A Vision to Improve NYC's Food System

FoodWorks A Vision to Improve NYC’s Food System

The New York City Council Christine C. Quinn, Speaker Acknowledgements

This report would not be possible without the insights and contributions of hundreds of New Yorkers and organizations who work every day to improve our food system.

In particular, we would like to thank the following people for their invaluable guidance and dedication to this project:

Hilary Baum, Baum Forum

Joel Berg, New York City Coalition Against Hunger

Nevin Cohen, The New School

Michael Conard, Urban Design Lab, the Earth Institute at Columbia University

Fern Gale Estrow, FGE Food & Nutrition Team

Christina Grace, New York State Department of Agriculture and Markets

Karen Karp, Karp Resources

Ruth Katz, Stone Barns Center for Food and Agriculture

Robert Lewis, New York State Department of Agriculture and Markets

Report prepared by: Sarah Brannen Research and editorial assistants: Gabrielle Blavatsky and Heidi Exline Report designed by: Antonio M. Rodriguez

Additional assistance provided by: Kubi Ackerman, Lisette Camilo, Brendan Cheney, Crystal Coston, Brandon Colson, Pamela Corbett, Danielle DeCerbo, Lyle Frank, Matthew Gewolb, Jeffrey Haberman, Anthony Hogrebe, Jarret Hova, Noah Isaacs, Wayne Kawadler, Meghan Linehan, Omany Luna, Christine McLaughlin, Jeffrey Metzler, Margaret Nelson, Robert Newman, Laura Popa, Danielle Porcaro, Steven Presser, David Pristin, Alix Pustilnik, Adira Siman, Samara Swanston

FoodWorks • A Vision to Improve NYC’s Food System Table of Contents

1 INTRODUCTION

2 OUR FOOD SYSTEM: A HISTORY OF CHANGE

2 MOVING FROM FOOD SYSTEM INSECURITY TO OPPORTUNITY

10 THE FOODWORKS PLAN

AGRICULTURAL PRODUCTION 13

PROCESSING 31

DISTRIBUTION 39

CONSUMPTION 47

POST- CONSUMPTION 65

73 NEXT STEPS

A Vision to Improve NYC’s Food System • FoodWorks

Introduction

FoodWorks A Vision to Improve NYC’s Food System

ach morning before Dagele Brothers has provided choices about using fertilizers sunrise, a truck leaves them with over 40,000 pounds and pesticides. Restaurants Dagele Brothers Farm of produce—everything from make choices about where to in Orange County, peppers to celery.) After buy ingredients and how to ENew York, and travels 60 miles these employees finish turning dispose of their food scraps south to the Hunts Point Mar- fresh produce into salads, the and cooking grease. City gov- ket in the Bronx. There, the new products are then trucked ernment makes choices every driver makes his first drop of to a network of more than day about what type of food it the day at a warehouse operat- 350 delis and grocery stores buys and from where. It makes ed by the Food Bank for New around the city. choices about infrastructure York City. (Each year Dagele improvements and investments

Brothers provides 560,000 Every day, New Yorkers make in our food economy. And it 1 pounds of fresh produce to choices about what and where enacts building, tax, and ad- the Food Bank from four dif- we eat. When we buy a salad, ministrative policies that affect ferent New York State farms.) we might not think about all communities and businesses. Food Bank trucks then make the people and places that their way throughout the city, were involved in its creation. Individual choices like these dropping off fresh produce to But the simple act of eating have an impact on every phase over 1,000 food pantries, soup that salad could be creat- of our food system, from farm kitchens, and other community ing jobs on a farm in Orange to table and beyond. Each organizations across the five County, at a distribution center action has the potential to boroughs – groups that serve in Hunts Point, and at a factory improve our health, our econ- 400,000 free meals to hungry in Jamaica, Queens. It could omy, and our environment. New Yorkers every day. also be supporting a growing This FoodWorks plan explores operation that helps get food some of the ways in which the Meanwhile, our Dagele Broth- to hungry New Yorkers. And many pieces of our complex ers driver has continued over it could be a healthy choice to food system are interconnect- the bridge from the Bronx help reduce our risk of obesity, ed, sets goals to help us make and on to a food processor diabetes, and heart disease. better choices, and presents a in Jamaica, Queens, which blueprint for some initial steps, employs more than 200 New Businesses and government both large and small, that can Yorkers making salads, wraps, also make decisions about how make the system stronger and and other healthy meals. they produce, process, and more sustainable for genera- (Just in this growing season, distribute food. Farmers make tions to come.

A Vision to Improve NYC’s Food System • FoodWorks FoodWorks

OUR FOOD SYSTEM: NYS Farmers and Population 1840-2007 A HISTORY OF CHANGE

Food is one of our most basic needs. Throughout human history, the pursuit of food has driven our social, economic, and cultural development. The domestication of animals and the development of agriculture paved the way for the first settle- ments. Later it was the ability of farmers to move from subsistence

to surplus production that allowed (1000s) State Population York New for specialization of labor and fueled the growth of civilizations around the world. Similarly, increased efficiency and consolidation of food production helped feed a rapidly growing Source: USDA Agricultural Census 1840-2007 population throughout the 20th Century. In the United States, the ways helped transport goods from investments can encourage positive growth of large scale, centralized coast to coast, further supporting changes for the food system of future food production and distribution co- centralized food production. generations. This report outlines a incided with the Industrial Revolution plan for key legislative changes, public and supported mass urbanization Food systems have changed through- and private investments, infrastructure and economic growth. Advances in out history to support the evolution improvements, and partnerships to agriculture through pesticides, syn- and economic growth of societies. improve our food system. thetic fertilizers, mechanization, and Today we are once again confronted 2 public subsidies increased the ef- with the need for additional change MOVING FROM FOOD ficiency and productivity of American to the food system. Our national SYSTEM INSECURITY farmers. As a result, from the 1930s food system evolved to support a TO OPPORTUNITY to 2002, the portion of Americans rapidly growing population, and it employed in farming decreased from has allowed us to feed more people As New York City is expected to 24 percent to 1.5 percent.1 Whereas than ever before. Yet, that evolution add nearly one million new resi- in 1940, each farmer produced had unintended consequences. Our dents in the next two decades,3 we enough food to feed 11 people, by current system is characterized by high must identify ways to move from an the 1990s each produced enough energy usage and waste throughout all unsustainable food system to one to feed 100 people.2 The develop- phases; an aging farming population; that promotes health, environmental ment of quick freezing and other loss of farmland to development and sustainability, and a thriving econ- preservation techniques allowed degradation; and an obesity epidemic omy. In 1996, the Food and Agri- food to maintain nutritional value for that threatens to reverse generations culture Organization of the United longer periods and reduced product of public health progress. Because of Nations wrote that “food security” loss for both producers and retail- these challenges, the very system that occurs when food systems operate ers. Government services like the is meant to sustain and nourish us im- so that “all people, at all times, have Supplemental Nutrition Assistance poses costs to our health, our econo- physical and economic access to Program, which started in 1939, of- my, and our environment. However, sufficient, safe, and nutritious food fered a basic level of food access to just as the policies and technologies to meet their dietary needs and food all Americans, regardless of income. of the past created the food system preferences for an active and healthy And after World War II, new high- we experience now, new policies and lifestyle.”4 By this definition, the

NYC stops Refrigerated dumping First U.S. Invention John Deere train cars garbage aluminum Henry Ford Horses are of food & Leonard Mixed introduced, from a recycling Food and introduces Clarence domesticated preserved Andrus begin chemical increasing na- platform plant opens Drug Act the Fordson, Birdseye, a Egyptians use for transport, Chinese in cans feeds manufacturing fertilizers tional markets built over in Chicago, & Meat the first mass Brooklynite, yeast to make plowing, use salt to Napoleon’s steel plows & sold com- for fruit and the East IL and Inspection produced tests frozen bread and drafting preserve food Army threshing mercially vegetables River Cleveland, OH Act pass tractor food technology 4000 B.C. 3000 B.C. 2700 B.C. 1810 1837 1849 1870 1872 1904 1906 1917 1923

U.S. Industrial Revolution World War I FoodWorks

New York City food system is not new york city Food outlets fully secure. Additionally, our food NYC Food Outlets 2010

system faces a number of issues Food Outlet Quantity

that compromise its long-term sus- Restaurants 24,000 tainability. Agricultural production Supermarkets, Grocery Stores & Convenience Stores 5,445 is energy intensive, greatly contrib- Food Wholesalers 1,730 utes to greenhouse gas (GHG) Public Schools 1,500 emissions, and is not economi- Emergency Feeding Programs 1,000 cally viable for many farmers. Food Food & Beverage Manufacturers 1,000 processing and distribution require Green Carts 445 Source: Bureau of Labor large non-renewable energy inputs Farmers Markets 120 Statistics, Quarterly Census of Employment and Wages and further impact our environ- and NYC Dept. of Health Community Supported Agriculture (CSAs) 100 ment. There is significant waste and Mental Hygiene

throughout the system, both from discarded food and food packaging. Seizing economic the food chain, farming is threatened Moreover, New York City is not fully Source: Bureau of Labor Statisticsopportunity , Quarterly Census of Employment and Wages and NYC not only by environmental prob-Department of capitalizing on its economic power Health and Mental Hygiene, NYS Dept. Agriculture & Markets, Just Food, Food lems, but also by economicBank fragility. to create good jobs and economic The New York City food market con- Global food demand and energy opportunity at each phase of the sists of over 8 million residents, $30 prices cause fluctuations in prices food system. billion in food spending and a bud- that hit consumers at the register. get for institutional meals second Additionally, many New Yorkers’ Our FoodWorks plan details the only to the Unites States military.5 demand for fresh, healthy food is not issues our food system faces today, With such vast purchasing power, met. There have been some promis- how they are born of a national and New York City is uniquely positioned ing recent developments, but there global system, and what we can do to stimulate the food economy, are additional opportunities to more to address them both nationally strengthen our regional food system, fully capitalize on existing resources and locally. New York City can be and drive local and regional business in the food economy. a leader in food systems change, activity. To accomplish this, we must 3 serving as a model of how targeted first address several points of eco- Supporting a Diverse local action can support large nomic vulnerability and loss in our Retail Sector scale improvements. food system. At the beginning of Demand for food at and away from home is met by tens of thousands of businesses — a vast network of farmers, wholesalers, distributors, processors, grocery stores, bodegas, street vendors, restaurants and other food service establishments. Despite the reach of these businesses, New York City has yet to ef- fectively meet all consumer demand in these sectors and thus has the opportunity to generate business activity and create jobs. In terms of fresh food retail alone, New York City has the potential to capture an additional $1 billion in grocery store

Photo Credit: Zach K sales each year that are not met by existing stores.6 FDA approves There is Federal-Aid Fresh Kills in FLAVRSAVR great de- First Highway Staten Island tomato, first Largest National drive-thru Act passes, becomes Congress whole food First recall mandof forFirst Lady King Kullen Victory Garden Microwave restaurant helping the largest passes the produced NYC CSA groundregional beef Obama plants opens the first Food Stamp Program oven is in the trucking to landfill in Organic Food through drop off in U.S. White House “supermarket” program begins launched invented U.S. opens expand the world Production Act biotechnology established historyproducts,organic garden 1930 1939 1941 1945 1948 1956 1986 1990 1994 1995 1997 2009

great Depression World War ii FoodWorks

energy prices, global trade de- mands, and conversion of cropland Bronx to energy uses. Agricultural prod- New York City ucts are one of America’s fastest growing exports, particularly corn, Farmers Markets soy, rice and food oils.12 As other

2010 Manhattan countries continue to develop and demand more of these U.S. prod- Queens ucts, the domestic supply will be subject to increased prices as seen in 2007 and 2008, impacting consumers at home.13 This problem is exacerbated when oil prices in- Brooklyn crease, which causes producers to Staten Island spend more on inputs such as fertilizer and transportation.14 Because the costs of non-renewable energy are expected to rise, this trend will Source: : NYS Dept. of Agriculture and Markets likely also persist if not mitigated by food system improvements locally stores.6 There is great demand for supports 76 jobs in other industries.11 and nationally. regional products, seen in the rapid However, our food manufacturers growth of farmers markets and com- need to be better linked to regional Compounding these price vulner- munity supported agriculture (CSA) processors and markets. abilities are the financial challenges throughout the city. Today there are faced by most farmers. Less than 120 farmers markets throughout the Supporting two percent of our population is city7 and since 1995 CSAs have in- Regional Farmers employed in farming and of those, 4 creased from 1 drop off point to ap- many are nearing retirement, with proximately 100 in 2010.8 However, Strengthening the regional supply farmers six times more likely to be restaurants and retailers attempting chain is an important strategy for over the age of 65 than under the to fill this demand through their of- shoring up our food system against age of 35.15 Over the past genera- ferings encounter difficulty sourcing other economic threats. In recent tion, the industry has struggled to regional products from wholesalers. years, our food supply and prices attract younger farmers because it This market has a surplus demand have become more vulnerable to is not economically sustainable. In of nearly $600 million annually that could be captured.9 Not only would Food & Energy CPI New York - Northern New Jersey - Long Island meeting this demand help individual farmers, it would also strengthen our regional economy and state tax base, alleviating some of the financial burden on New York City.

Expanding Food Manufacturing

In addition to capturing more of our local food dollars through retail

outlets like supermarkets and CSAs, Consumer Price Index New York City can utilize its economic power to support local manufacturers. Food processing is a valuable part of our city’s economy, providing $1.3 billion to the Gross City Prod- uct.10 Additionally, every 100 jobs in the City’s food manufacturing sector Source: Bureau of Labor Statistics. Consumer Price Index-All Urban Consumers. Energy and Food. New York-Northern New Jersey-Long Island. 2010

FoodWorks • A Vision to Improve NYC’s Food System FoodWorks

2007 only 63 percent of all farms earned a positive net farm income.16 Despite recent food price spikes, real food prices have increased modestly in the past 40 years due to innovations in food production. However, farmers receive a shrinking portion of our food dollar. In 1950, farmers received 41 percent of the food dollar, while in 2006, they received only 19 percent.17 Because most farmers in the U.S. already Photo Credit: Gabrielle Blavatsky struggle to maintain profitability, added environmental and input tribute to greater food insecurity and topsoil is lost every 34 years, which costs cause prices of food to rise, consumption of less healthy foods.18 could take over 200 years to replen- putting added pressure on consum- ish.20 To many New Yorkers, the loss ers. Because fresher, healthier items ImprovIng of topsoil may seem a distant con- are more expensive on a per calorie EnvIronmEntal cern, even though healthy topsoil is basis, food price increases will con- SuStaInabIlIty required to grow much of our food. Yet some New Yorkers might remem- Farmer's Share of the Our food system faces several ber when one of the worst storms of Food Dollar in 1950 environmental issues: loss of farm- the Dust Bowl carried topsoil from land, water pollution, high energy the fields of the Great Plains all the usage, greenhouse gas emissions, way to New York City in 1934. This and waste at every phase of the type of major ecological event may food chain. The gains in efficiency not be in our current forecast, but that were needed to feed a rap- New Yorkers are still intricately tied idly increasing population in past to the health of farmland, which 5 $0.41 generations have contributed to feeds us every day. problems that are now beginning to be internalized to the food system, Additionally, we rely on the upstate affecting systemic security and rais- watershed, home to several hun- ing the costs to farmers, processors, dred farmers, for our water supply. distributors, consumers, and tax The environmental threats typical payers. of conventional agriculture, over consumption of water and chemical Source: USDA. ERS. Price Spreads From Farm to Consumer. May 28, 2008 Protecting Farmland run-off, are therefore of particular Farmer's Share of the Food Dollar in 2006 concern to city residents. Well- Farmer's Share of the Although a much smaller portion managed regional agriculture offers Food Dollar in 2006 of our population is engaged in a better alternative to both con-

farming than ever before, most of ventional agriculture and develop- $0.19 our food still comes from American ment, which increases impermeable farmland. Protecting cropland and surfaces and run-off. These threats $0.19 ensuring that farming is economi- to farmland are widespread issues cally viable are therefore critical to that extend beyond the boundaries long-term food security. Unfortu- of the five boroughs. However, New nately, farmland is being rapidly lost York City has immense power to to development and environmental support farmers and good farming degradation, which puts increas- practices by ensuring that they have ing pressure on the farmland that direct-to-consumer and institu- remains. Due to unsustainable tional markets, and by continuing agricultural practices, the U.S. is los- to pursue direct support programs ing topsoil approximately ten times for farmers in our watershed and faster than it can be replaced.19 By training for New Yorkers interested Source: USDA. ERS. Price Spreads From Farm to some estimates, roughly one inch of in the field. Consumer. May 28, 2008

A Vision to Improve NYC’s Food System • FoodWorks FoodWorks

Reducing Energy Usage Food Transport in New York City Region* by Type and GHG Emissions Food Transport in New York City Region by Type* In addition to the loss of farmland and watershed issues, our food system is characterized by high energy usage and greenhouse gas emissions. Fully 50000

80 percent of the increase in energy 45000 flows in the United States between 40000 1997 and 2002 were related to the

) 35000

food system, in large part due to s n o 30000

increased consumption of processed T t 21 r foods. Overall, the food system ac- o h 25000 S (

counts for approximately 14 to 19 per- t

h 20000

22 g i

cent of national energy usage, most e

Weight (shortWeight tons) 2035 W 15000 of which comes from non-renewable 2030 23 fossil fuels. 10000 2025 5000 2020 This problem affects all phases of the 2015 0 food system. Agricultural production Air & Truck 2010 Other Pipeline & requires energy to run equipment and Rail Truck Intermodal Unknown Truck & Rail vehicles, and to produce fertilizers, Water

pesticides and feed. Agriculture’s * For New York Combined Statistical Area contribution to all greenhouse emis- Transport Mode sions in the U.S. range from approxi- Source: U.S. Dept. of Transportation. Federal Highway Administration. Freight Analysis Framework.A Bor Cew Dork EomFined GtaHIHcal Area 2010 mately 6 to 8 percent annually, with livestock contributing the most.24 Food 6 processing and distribution practices volume and distance of food trans- 27 percent of the food we prepare, also consume considerable energy and ported increases. The vast majority which nationally costs approximately contribute to greenhouse gas emis- of food coming into New York City $1 billion in disposal.31 Preventing just sions. As consumers look for more arrives by truck, with these truck trips 10 percent of this food from being convenience in their daily lives, our con- expected to increase through 2035, discarded would be enough to feed all sumption of highly processed foods will further stressing our infrastructure. of New York City.32 At the same time, continue to increase.25 Energy usage And because transportation accounts much of the city’s waste is disposed in the processing sector has increased for 4 percent of food costs and con- of in landfills or through incineration. noticeably at a rate of approximately tributes to the cost of farm inputs, we Food decomposition in landfill can 8.3 percent annually and is expected to may also see food prices increase in produce 4 to 8 percent of the food continue over the next two decades.26 the future.29 Several strategies exist for system’s greenhouse gases in the form Significant opportunities exist for both reducing the impact of food transport, of methane.33 However, increased households and businesses to reduce such as increasing regional and local recycling of food packaging, compost- environmental impacts with new tech- capacity and energy efficiency among ing of organic matter, reuse of grease, nologies and equipment. producers, processors and distributors, and other recovery techniques can and encouraging alternative modes of help the city reduce costs of disposal, Transportation of food also contrib- transportation. lower greenhouse gas emissions, and utes to high energy usage in the food identify resources for future use. system. From the time food leaves the Waste farm, it usually passes through several IMPROVING phases before reaching consumers. Opportunities also exist for minimiz- PUBLIC HEALTH From 1997 to 2002, transportation of ing environmental impact and food several major types of food products system costs by reducing waste and Addressing Both Hunger averaged an increase of 5 to 15 miles recovering by-products to be used as and Obesity annually.27 This rate increased from resources. The national food system 2002 to 2007 to between 10 and 16 produces the equivalent of 3,900 New York City is one of the great- miles annually.28 The demand for fossil calories per person per day.30 How- est food destinations in the world, fuels is expected to rise as both the ever, consumers discard more than boasting over 24,000 restaurants34

FoodWorks • A Vision to Improve NYC’s Food System FoodWorks

Child and Adolescent Obesity in the U.S. vide a safety net to those who lack financial resources. The city has begun to pursue these policies, but additional improvements to public meal programs, benefits administration, and economic development efforts can be made.

As paradoxical as it seems to the problem of food insecurity, three of the five leading causes of mortality Percent in New York City can be linked to diet and are mostly preventable: heart disease, stroke, and diabetes.37 Each of these is strongly rooted in the problem of obesity. Over the past 20 years, obesity among children and adults has doubled and is now considered epidemic.38 Source: CDC, National Health and Nutrition Examination Survey (NHANES). June 2010. The economic costs of these health problems are also considerable. Obesity-related medical expendi- Adult Obesity in the U.S. tures in New York State are over $6 billion, 81 percent of which are paid by Medicare and Medicaid.39 Currently, Medicaid comprises 30 percent of all state revenues.40 New York City alone spends an estimated 7 $2.65 billion on health care each year, at a cost of roughly $315 per resident.41 Percent Improving the Food Environment

The widespread rise in obesity has been attributed to changes in our food environment and eating habits. On average, we each consume 530 calories more each day than we did Source: CDC, National Health and Nutrition Examination Survey (NHANES), in 1970, with more than half of this NCHS Health E-Stat and NYC Community Health Survey, 2008 increase in the form of added sugar, fats and oils.42 Over the past three and scores of renowned chefs due to a lack of supply, but rather decades, the kinds of meals we eat and food representing countries the inability of people to purchase and where we eat them have also around the world. Additionally, enough food. changed. We now eat more food the domestic and imported food away from home and consume more supply provides each American with As the New York City population processed foods, which account for nearly twice the average caloric increases in the coming decades, 82 to 92 percent of food sales in the intake needed.35 But in this seem- adequately feeding all of our United States.43 Several factors likely ing culture of plenty, there are still residents will continue to present contribute to our changing eating 1.4 million New Yorkers who live a challenge. To do so will not only habits here and elsewhere across the in households that cannot afford require enabling more New Yorkers nation: the higher price of healthy an adequate supply of nutritious to afford healthy food, but also en- foods compared to unhealthy foods, food.36 Hunger is therefore not hancing public programs that pro- shortages of healthy food retail in

A Vision to Improve NYC’s Food System • FoodWorks FoodWorks

Fats Available Per Capita and Adult Obesity in the U.S. Even if affordability and proximity Fats Available Per Capita and Adult Obesity in the U.S. to healthier food options are not at issue, there are other factors Obesity Total Fats that affect our food choices. 100 40% Pressures on our time from work, 90 35% transportation, and child care,

80 especially for working parents, 30% compete with our ability to cook

) 70 46 a t i

Adult Obesity Rate nutritious meals. Americans e p t

a 25% a c 60 /

R spend 1.23 hours each day eating s y b t i L s ( e and drinking and only about a half s

50 20% b t a O t l F hour each day on food prepara- l u a d t 40 47 o 15% A T tion. Additionally, with the in-

30 crease in consumption of processed 10% foods and food away from home,

Total Fats Available (lbs./capita) Available Fats Total 20 keeping track of our caloric intake 5% 10 has become more difficult. In many

0 0% ways, New Yorkers spend little time thinking about food and how it’s 1971 1973 1975 1977 1979 1981 1983 1985 1987 1989 1991 1993 1995 1997 1999 2001 2003 2005 2007 prepared, which has resulted in a Source: USDA. ERS. U.S. Per Capita Food Availability Custom Report. 2010 loss of food knowledge and reliance on unhealthy, more processed Caloric Sweeteners Available Per Capita and Adult Obesity in the U.S. foods. Fortunately, unlike other public health problems, the solutions to food insecurity and obesity are known and achievable. By improving utilization of public 8 programs, supporting a healthier food environment in the city, and making good food more affordable, Adult Obesity Rate we can achieve better health outcomes for all New Yorkers, regardless of their income.

Although many of these problems

Total Sweeteners Available (lbs./capita) Available Sweeteners Total are national and global in nature, there are immediate steps that can be taken within New York City to strengthen our food system. The city can facilitate urban-rural linkages, support a market for Source: USDA. ERS. U.S. Per Capita Food Availability Custom Report. 2010 regional products, and use its institutional purchasing power neighborhoods, an abundance of linked to the prevalence of obesity to support small and local produc- unhealthy food options, and a lack of in neighborhoods.44 In fact, nearly ers. Moreover, by helping green knowledge or time to improve cook- 3 million residents in New York City the city’s landscape, assisting ing and eating habits. lack adequate fresh food retail in their companies with adopting new neighborhood.45 However, these fac- technologies, and exploring Many neighborhoods in the city are tors can be influenced through public better distribution networks, we not healthy food environments. They policies like zoning, financial incen- can begin to address the high are characterized by a relatively low tives, health regulations, infrastruc- energy usage and greenhouse concentration of fresh food retail ture changes, and the types of meal gas emissions characteristic of and a higher concentration of fast programs and benefits offered to our food system. food establishments, which has been New Yorkers in need.

FoodWorks • A Vision to Improve NYC’s Food System

FoodWorks

tHE FoodWorKS PlAn Through the key investments and policy nationally. For example, over 20 years ago changes recommended in this report, we can New York City was the first large American build a better food system for our growing city to institute a city-wide curbside recycling city – one that that provides healthy, affordable program as a regular, municipal function, and food for all New Yorkers in our growing popu- was the first to include high-rise apartment lation, while supporting our local and regional buildings in any such program. Now all major economy and mitigating environmental im- cities across the U.S. are doing the same - just pacts. In short, our food system will be better one example of how local government action able to respond to the needs of New Yorkers can create a groundswell of national change. today and in the years to come. Today, the New York City Council (“City Coun- cil”) and numerous other stakeholders are Although the New York City food system is already beginning to invest in new initiatives part of a national and international system that and ideas to improve health outcomes, build will also require large scale changes, there are up our food infrastructure, and strengthen our significant opportunities on the local level to food economy. To further these efforts, this re- restructure the food system to create positive port proposes a series of initiatives and policy outcomes. Historically, the actions of individ- changes at each phase of New York City’s food ual consumers, businesses, and municipalities system, from agricultural production all the have often led the way for positive changes way through post-consumption.

Each section of the plan AgriculturAl tively to develop new procurement that follows outlines: Production guidelines that encourage purchasing from regional farmers. • A number of goals that can be Our plan begins where our food achieved through improvements begins – on farms, in community To further mitigate farmland loss, we along each phase of the gardens, and atop roofs across the will continue to fund sustainability food system (for example, five boroughs and throughout the practices for farmers in the upstate increasing regional food region. To meet the needs of our watersheds and encourage new production and creating a growing population and achieve a farmers. Yet despite all of these ef- healthier food environment); more secure food system for the forts, we still need federal subsidies future, we must support our regional to prioritize small producers and • Specific strategies that can be farmers and reconnect New Yorkers those growing fruits and vegetables. employed to meet each goal to their food. Our plan is to facilitate Beyond these local actions, we (for example, strengthening urban-rural linkages to help farmers therefore urge the state and federal regional supply channels); and bring their food to city markets. To governments to do their part by in- do this, we will support alternative creasing subsidies for small produce • A series of proposals or retail outlets like farmers markets growers and improving the State tangible initiatives that we will and community supported agricul- Farmland Protection Fund. work to implement in the ture (CSAs). However, we must also coming months and years build a permanent wholesale farmers Although much of our food originates (for example, expanding and market to help mid-sized farmers sell on rural farms, agricultural produc- supporting farmers markets). to restaurants, government institu- tion also occurs right here in the five tions, and grocers. Additionally, we boroughs. Our community gardens Together, these elements form will use the city’s economic power as and urban farms are vital community our blueprint for long-term a purchaser of food to support our assets. Not only do they provide chil- food system change. regional farmers by working legisla- dren and adults vital open space, but

FoodWorks • A Vision to Improve NYC’s Food System FoodWorks they also afford us the opportunity to resources through workshops and carts, farmers markets, CSAs, and learn about how food is grown, while an online center. Through these key food co-operatives. Additionally, improving attitudes toward fruit and investments and policy changes, we will discourage unhealthy food vegetable consumption. To encour- our food manufacturing industry can consumption by targeting fast food age more local growers, we will make thrive, generating more economic and helping bodegas improve their sure that out community gardens activity for our city while ensuring a infrastructure so they can more easily are preserved, that new gardeners greener future for all New Yorkers. offer fresh products. We’ll invest are connected to space, and that all in workforce development for food qualifying urban farms are counted in Distribution retail careers and create guides that the Census of Agriculture. The city direct New Yorkers to healthy food in can also be more hospitable to urban Food reaches New Yorkers by a vari- their neighborhoods. agriculture by making our regulatory ety of means and from places all over environment easier to navigate and the world. Some comes directly from We can make the meals that the City disseminating new technologies farmers a mere hour or two away serves to children, seniors, and other and knowledge. from consumers, while other food New Yorkers healthier and more passes through an elaborate national nutritious by making sure agencies By supporting our regional farmers distribution network. Our plan to have the tools they need to cook and urban growers, we can ensure improve distribution addresses the healthy foods. To combat hunger, that agricultural production remains issues associated with the transport we’ll continue to push for improve- an economically viable part of our of food into and throughout the city, ments to federal programs like food food system, improves the health regardless of its origin. Through stamps and Supplemental Nutrition and eating habits of residents, careful study of this intricate network Program for Women, Infants, and preserves and creates more valuable within the city, we will better under- Children (WIC), and for a stronger open space, and better protects stand local distribution and identify Child Nutrition Act. At the same our environment. means for diversifying our transporta- time, we will work locally to make tion modes, reducing truck trips and sure everyone eligible for these ben- Processing miles, and decreasing the environ- efits can receive them. mental impact associated with get- 11 Our plan continues with food ting food to consumers. To do this, Post-consumPtion processing. Much of the food we we must find optimal routes, adopt consume goes through some form new technologies, and help distribu- Improving environmental sustain- of processing before reaching our tors navigate our city more quickly ability in the food system will require plates. In New York City, we boast and easily. Additionally, improving recapturing our waste as resources a strong food processing sector. our food distribution system will to be reinvested, rather than pay- However, many of these businesses require a forward-thinking redeveloping to incinerate or landfill them. By struggle to stay profitable and main- ment of the Hunts Point Distribution encouraging household composting tain what are often energy intensive Center. We envision a new produce and exploring citywide composting operations. Our goals are to support market with vastly expanded capac- technologies, we can begin to recap- these processors, connect them ity, reduced energy usage and GHG ture more food system waste and re- to regional agricultural producers, emissions, increased rail service, and duce our municipal burden. We can and help them to reduce their greater opportunity for processors, work to expand recycling of restau- environmental impact. retailers and other relevant uses. rant grease and packaging materials in every sector. Additionally, we must To achieve these positive changes, consumPtion begin to reduce waste upstream by we will help these businesses find discouraging bottled water consump- affordable manufacturing space, The food system we envision for to- tion and making better choices about whether they’re start-ups or estab- morrow addresses the twin problems the types of packaging on food we lished firms. Additionally, we will of hunger and obesity and makes procure through city meal programs. hold a business-to-business confer- sure that all New Yorkers, regard- ence with private sector partners less of income, have access to fresh, By addressing the system as a to help make the connections that healthy and affordable food. This whole, we can begin to make might otherwise be difficult. Lastly, will require restoring a healthier food connections throughout these to help businesses reduce their costs environment where all residents live phases, establish partnerships and become more energy efficient, near a grocery store, and expanding across sectors, and create more we will help link them to valuable other healthy food outlets like green powerful, far-reaching changes.

A Vision to Improve NYC’s Food System • FoodWorks

Agricultural Production

Agricultural production involves growing crops and raising animals for food. A wide array of people and organizations produce food for New Yorkers. New York State boasts 36,000 farms and over 7 million acres of farmland, a quarter of our state’s land. While rural farms throughout the state are a part of our food production, much of New York City’s food is trucked or flown in from across the country and globe. Yet some food is even produced within the five boroughs of New York City on urban farms, rooftop gardens, beekeeping operations, and hundreds of community gardens. Agricultural Production

AGRICULTURAL PRODUCTION

For most New Yorkers, our connec- New York State Top Agricultural Products tion to food begins in a restaurant or grocery store, far removed from New York StateÕ s Top Agricultural Products the farm. Agricultural production Product National Rank Sales Value has traditionally been considered a rural or national concern among Cabbage 2nd $67,300,000 local policy makers. Recently, how- Apples 2nd $185,000,000 ever, many New Yorkers have begun Corn Silage 3rd $227,000,000 to think about where our food Milk 3rd $1,910,000,000 comes from, the implications of how our food is produced, and what Sweet Corn 4th $699,00,000 our food dollar buys. Even though Onions 6th $49,000,000 most of it occurs outside of our Grain 19th $117,000,000 urban boundaries and is affected by Hay 22nd $282,000,000 national and international factors, cities have a major stake in the way Poultry 27th $54,800,000 food is produced. Through our Meat 34th $190,000,000 role as purchasers of food, we can effect considerable positive change Source: New York State Department of Agriculture and Markets. Source: NYS Dept. of Agriculture and Markets. Ag Facts. 2009. and Environmental Working Group in agricultural production within our own region. Much of our food in New York City will continue to come from places outside the region, but commitment to growing their own Farmers in our state do not earn progress toward a thriving agricul- food, whether in their backyards, the same per acre for their products 16 tural production economy in our on school lots, or on rooftops. as do farmers nationally. Currently, region can be achieved. Producers This interest in urban agriculture New York farms sell an average of in the region can maintain and de- offers significant opportunity to $121,551 overall, approximately velop a competitive advantage in a green our urban landscape, foster $1,623 per acre whereas nationally, variety of products, such as apples, nutrition and food education, and farmers sell an average of $134,807 pears, cabbage, grapes, cucumbers, help reconnect New Yorkers to annually, or approximately $3,102 dairy and squash. In fact, New York their food. per acre.52 In their struggle to make is already a large producer of many ends meet and remain profitable, of these products. New York State Agricultural production in our re- many farmers are forced to sell their produces a remarkable $4.4 billion gion and across the nation land for development. Additionally, each year in agricultural products, faces several critical issues: loss the average age of farmers in our ranking 3rd nationally for dairy of farmland, increasingly con- state is 56 years and has been rising products, 2nd nationally in apple centrated operations, economic as fewer young people enter the production, and 5th nationally for vulnerability, and environmental industry, instead opting for more lu- vegetable production.48 Help- degradation. Although farmland crative careers.53 As the number of ing regional producers distribute loss is a national problem, New York farms in our region has decreased, their products to New York City State has lost farms and farmland there is increased environmental restaurants, retailers, wholesalers, acreage at a much faster pace. In and economic pressure on the individual consumers, and agencies 1950, New York State had 124,977 farmland that remains. In particular, will be a critical strategy for building farms on 30.6 million acres.49 By intensive farming can threaten the production capacity. 2007, only 36,352 farms remained health of topsoil and water supply on approximately 7.1 million acres.50 due to run-off. Because residents In addition to supporting regional This represents a 70.1 percent drop of the city rely on the upstate water- producers, our food system can in the number of farms and a 76.8 shed for our drinking water, ensur- be strengthened in other ways by percent loss in farmland acres. In ing the farms in the watershed supporting urban agriculture. New contrast, over the same period, the are able to invest in sustainable Yorkers across the five boroughs are U.S. lost just 20.5 percent of farm- practices is of particular concern showing increased interest in and land acres.51 to New Yorkers.

FoodWorks • A Vision to Improve NYC’s Food System Agricultural Production

These problems in agricultural pro- 1930.54 This makes it increasingly Through state and local support duction were born of national needs difficult for smaller producers to en- and continued commitment from and policies. Historically, increased ter and thrive in the market. Federal private sector and non-profit mechanization and centralization subsidies have further supported organizations, we can develop a of agricultural production have centralized, large-scale commodity regional food system that comple- enabled us to feed millions of new operations, but have not focused ments and strengthens our national Americans over several generations. as much of these resources in our food system. As New York City As in the rest of the country, produc- region or on smaller producers. As begins to implement key policy tion in New York has become more outlined later in this report, New changes to facilitate this shift at concentrated, with the average size York City must continue to focus on home, other cities around the of the remaining farms increasing supporting federal policy changes country are also beginning to by approximately 75 percent since to support our region’s farmers. focus on their regional food econo- mies. This national shift over time will support further development of regional competitive advantage FarmsFarm ins i nNew New YYorkork St aStatete in different products. For example, 250,000 although New York State is now a major producer of apples and produces enough to support our 200,000 demand, we still import apples from Washington and apple juice

s 55

m 150,000 from China. These kinds of r a F

f practices are not sustainable and o r

e can create environmental and b m u 100,000 economic inefficiencies in our N Number of Farms food system.56 By making a conscious effort to support our re- 50,000 gional farmers through developing 17 infrastructure, programming and

0 procurement change, we can 1900 1910 1920 1930 1940 1950 1964 1974 1982 1987 1992 1997 2002 2007 ensure they are competitive at home and nationally.

Source: USDA NYS Agricultural Census. 1900-2007 The City Council and other stakeholders have begun to invest in several programs to help support our farmers. Yet there are other Average Size of New York State Farms things we can do locally to help strengthen agricultural production. This includes facilitating supply channels between producers and the urban market, using the city’s economic power to support regional producers, and ensuring that our community gardens and Acres urban farms have the ability to thrive. The following series of goals and proposals aim to preserve and increase regional and urban food production.

Source: : USDA NYS Agricultural Census. 1900-2007

A Vision to Improve NYC’s Food System • FoodWorks Agricultural Production

prices compared to products at aGrICUltUral ProDUCtIoN retail stores.57 However, farms that have been extremely successful at Goal 1: Preserve and increase regional food production. farmers markets throughout the city Strategy: Strengthen regional food supply channels. are frequently not large enough to Proposals: sell wholesale to retail stores, food • Reorient federal farm subsidies to support healthy, sustainable service establishments, institutions food production. or processors. A small but persis- • Improve the New York State Farmland Protection Fund. tent handful of farmers sell whole- • Encourage new farmers. sale at the Hunts Point Market, but • Build a permanent wholesale farmers market. do not currently have a permanent • Expand and support farmers markets. home. Meanwhile, many farmers in • Expand the electronic benefits transfer (EBT) program and our region continue to face difficulty acceptance of the Special Supplemental Nutrition Program for aggregating and transporting their Women, Infants, and Children (WIC) benefits at farmers markets. products throughout the urban • Expand and support community supported agriculture (CSA). market. To address this issue, the city will pursue the following two StrateGy: Leverage the city’s economic power to support strategies to support regional regional producers. production: 1) strengthen regional Proposals: food supply channels and 2) lever- • Track and encourage regional food procurement. age the city’s economic power. • Support farmers in the upstate watersheds. StrateGy: Goal 2: Increase urban food production. Strengthen regional StrateGy: Better use existing space for urban food production. food supply channels.

Proposals: There has been enormous growth in • Protect community gardens. direct-to-consumer supply channels, 18 • Ensure urban farms are counted in the Census of Agriculture. such as farmer’s markets and CSAs, • Create a searchable database of city-owned property. throughout the city. These venues • Identify city-owned properties with roofs suitable for urban agriculture. are important because they enable • Waive the Floor to Area Ratio (FAR) requirements and height restrictions for certain rooftop greenhouses. farmers to capture more of food • Change the state green roofs tax credit to encourage food-producing sale prices than they can through 58 green roofs. traditional sale channels. They also • Change water rates to encourage green roofs. have helped meet growing demand • Streamline the green roof permit application process. for regional products. For some farmers, retail farmers markets and StrateGy: Restore food and horticultural knowledge. CSAs will continue to offer the best Proposals: venue for selling their products, and • Ensure garden education is available citywide. the City Council will continue to sup- • Support urban agriculture technology development. port these direct-to-consumer supply channels. However, for mid-sized and larger farmers who struggle to channels. It is not as cost effective penetrate the urban market, the city Goal 1 for many wholesalers, distributors, must establish new supply chan- and retailers to do business with nels to institutions and commercial Preserve and increase small-scale operators, even though outlets, and enhance existing supply regional food production. on an individual basis many re- channels like the wholesale farmers gional farmers offer quality products market. Over the past few years, Many northeast regional agricul- and are price competitive. In the there have been several companies tural producers are at a competitive direct-to-consumer market here in that have successfully begun to grow disadvantage compared to large New York City, farmers selling at food, process them into new prod- producers in other areas of the local outdoor markets offer products, and sell them to mainstream country because they lack the ability ucts that consumers consider to be retailers and institutions throughout to tap into mainstream distribution higher quality and at competitive the city.

FoodWorks • A Vision to Improve NYC’s Food System Agricultural Production

that regional supply channels can

New York City Wholesale Farmer's Market Prices vs. Average U.S. Wholesale Prices 2009 be developed and expanded to Wholesale Farmers Market vs Average U.S. Prices 2009 serve lower income New Yorkers. NYC Wholesale Farmers Market Average U.S. Many regional farmers are price $0.45 competitive with other mainstream $0.40 suppliers and will likely become

$0.35 increasingly so as demand rises, as they are able to increase produc- $0.30 tion, and as it becomes easier to b

l $0.25 /

e bring their products to the urban c i r Price/lb. P $0.20 market.

$0.15 The following proposals outline $0.10 our plan to facilitate regional $0.05 supply channels.

$- Celery Onions Cabbage Lettuce Sweet Eggplant Bell Apples Broccoli Corn Peppers Proposals:

• Reorient federal farm Source: GrowNYC, USDA. ERS. Vegetables and Melons Yearbook Data 2010. State of Georgia Legal Commodity Weights. subsidies to support healthy, sustainable food production.

U.S. Federal Farm Subsidies 2009 U.S. Federal Farm Subsidies 2009 New York State continues to lose $1,600,000,000 farmland and farmers because the industry is not economically viable. $1,400,000,000 National policies have exacerbated

$1,200,000,000 this problem for small farmers in our state and northeast region by devot- 19 $1,000,000,000 ing resources to large, centralized farms rather than supporting small, $800,000,000 non-commodity farms with the same

$600,000,000 level of funding. National farm subsidies increased from $8.1 billion in $400,000,000 1995 to $15.4 billion in 2009.59 Half of the subsidies paid last year were $200,000,000 for commodity crops, a large portion 60 $‐ of which went to corn. Overall, Texas Iowa Illinois Kansas Minnesota North Dakota California South Dakota Missouri New York New York State ranked 29th in the country for total farm subsidies in 2009, receiving only 1 percent of all Source: NYS Dept. of Agriculture and Markets. Ag Facts. 2009. and Environmental Working Group federal farm support.61 Even shifting The New York State Department rect in Long Island City has greatly an additional 1 percent of national of Agriculture and Markets has expanded and marketed its new subsidies would be the equivalent actively marketed state products line of local products to customers. of what 211,000 New York City to city agencies, wholesalers and Whole Foods has also implemented residents spend on fruits and veg- distributors. In partnership with the a corporate policy of purchasing re- etables in a given year.62 The most State Department of Agricultural gional products for its retail stores. recent Farm Bill in 2008 represented and Markets, the New York City While these mainstream outlets are some progress, increasing the pro- Department of Education is already considered to offer good products, portion of fresh fruit and vegetable procuring dairy and some produce they generally cater to consumers producers receiving subsidies. As from the region. However, private with bigger food budgets. The suc- the next Farm Bill approaches, New companies have also responded cess and growth of farms selling to York stakeholders must again ad- independently to the growing these outlets demonstrate not only vocate for federal support for fresh, consumer demand for regional strong consumer demand for these healthy, sustainable operations in products. For example, Fresh Di- kinds of products, but also the way the region.

A Vision to Improve NYC’s Food System • FoodWorks Agricultural Production

• Improve the New York State to the 1970s. In comparison, New York create farmland protection plans and Farmland Protection Fund. State’s program began in 1992, but did has assisted with the purchase of 170 not provide funding for easements until conservation easements that cover In 1992, New York State began the 1996.63 While New York and all of its 32,867 acres.66 These easements help Farmland Protection Program to contiguous states have lost farm acreage farmers preserve working farms and prevent farmers from selling their over the past 10 years, New York and avoid succumbing to pressure to sell land for development. The program Vermont are the only states to have also their land for commercial or residential receives funds through the Clean Wa- experienced a decline in the number uses. In spite of these successes, over ter and Air Bond Act and the Environ- of farms.64 Additionally, the states with the past several fiscal years there have mental Protection Fund. These funds the highest cumulative expenditures on been significant delays in pending are dispersed to localities for the farmland protection, New Jersey, Penn- contracts for these easements be- purchase of development rights and sylvania, and Massachusetts, have also tween the New York State Department to create farmland protection plans. seen the highest percentage change of Agriculture and towns. increase in the number of farms over the All of our neighboring states have similar past 10 years.65 Currently, there are 113 contracts farmland protection plans. Connecticut pending, almost 48 percent of which and Massachusetts have two of the So far, the New York State program has have been outstanding for at least oldest programs in the country, dating allowed 53 counties and 64 towns to 3 years.67 Moreover, there is $110.1 million in funding for this program that has been appropriated but not Percent Change in Number of Farms 1997-2007 Percent Change in Number of Northeast Farms 1997-2007 dispersed.68 The backlog is not due 6% to lack of demand; many applicants have been turned away since the

4% program’s founding due to lack of funds. Rather, this backlog represents an administrative delay in the pro- 2% gram. New York State must prioritize 20 farmland protection and identify the 0% administrative causes of the program’s backlog to disperse the funds New Jersey New York Vermont Connecticut Massachusetts Pennsylvania -2% that have already been appropriated.

• Encourage new farmers. -4%

New York To ensure that our regional production -6% system remains viable in the future,

Source: USDA, Agricultural Census, State and County Profiles. 1997 and 2007 we must engage a new generation of young farmers. Right now, the average farmer is within ten years of retirement Farmland Protection Funding by Northeast State 1997-2007 age. Attracting new farmers to take their place will require not only making sure farming is economically viable, but also active outreach and education to younger New Yorkers interested in the field. Organizations such as the Greenhorns, Hawthorne Valley Farm, and the Stone Barns Center for Food and Agriculture, together with the U.S. Department of Agriculture’s beginning farmer loan program, help organize young farmers, hold educational events, and provide resources to help nurture this new generation of producers. These kinds of programs must be continued and supported. Source: American Farmland Trust. Farmland Information Center. June 2010

FoodWorks • A Vision to Improve NYC’s Food System Agricultural Production

Additionally, the City Council is part- producers increasingly take advan- a permanent home. Rungis, outside nering with GrowNYC and the New tage of direct-to-consumer outlets of Paris, currently has 80 to 100 farm- York State Department of Agriculture like farmers markets and community ers selling in their market through- and Markets on the New Farmer supported agriculture. However, out the growing season74 and the Development Project. This program for larger purchasers and larger Ontario Terminal market in Toronto has already supported the training of producers, there is a missing link in sells products from hundreds of re- 16 new farmers who farm outside of the supply chain: a large wholesale gional farmers each year.75 A similar the city and many of whom sell their market. Many commercial business type of dedicated space here would products at local farmers markets.69 owners have indicated they would also allow regional producers to sell Not only is this program supporting like to purchase more regional foods at Hunts Point and would allow the new farmers, but it is also strength- but that they were not able to find city and region to better promote ening local communities within the the products and the amounts they the products to restaurants, agency city by bringing fresh, healthy foods needed.73 Having to source from food service programs, and other to underserved neighborhoods. individual producers is too cumber- large institutions. It would also be a This next generation of farmers will some for many buyers. A wholesale boon to the regional economy and continue to require this type of tech- market at Hunts Point would fulfill an important regional hub to lay the nical assistance, as well as help with this need and provide a reliable out- foundation for strengthening urban- finding land and resources to launch let for mid-sized producers. rural linkages in the future. Adding their businesses. value-added and other processing Currently, there are about a dozen capability nearby would create new • Build a permanent wholesale farmers who sell at Hunts Point in business opportunities, good jobs, farmers market. a temporary market operated by and a new venue for distributing GrowNYC. Despite their best efforts regional products. The desire for local and regional to keep the market open, the lack food has been a growing market of a permanent home has compro- • Expand and support trend for several years but the supply mised its ability to thrive. Instead farmers markets. channels throughout the region have of a designated, marketable space, not enabled producers to keep up these farmers are relegated to the Direct-to-consumer sales of agri- 21 with this demand in the city. In par- parking lot of the fish market without cultural products have increased by ticular, sales of local foods increased the basic amenities needed by any $399 million (49 percent) from 2002 25 percent nationally from 2002 to business. Much in the way that to 2007, and by $660 million (120 2007.70 A 2005 report estimated the other cities have embraced regional percent) from 1997 to 2007.76 Since demand for local foods in the city producers by building wholesale 1994, the number of farmer’s markets was as much as $860 million annu- farmers markets as a part of their recorded in the United States has ally.71 This far outpaced supply at terminal markets, New York City more than tripled from 1,755 to that time, which was estimated to be should ensure these producers have 6,132.77 In New York City, there are under $200 million.72 Restaurants, food manufacturers and grocery stores have recognized this demand New York City Farmers Markets and are increasingly incorporating local options into their offerings. However, connections between regional agricultural producers and local processors, retailers and food service establishments have only begun to take shape. Facilitating these relationships and supply channels as Number an alternative to the national, centralized, large-scale system will be necessary to better meet consumer demand and strengthen our regional economy.

As the demand for food from regional farmers has increased,

Source: NYS Dept. of Agriculture and Markets

A Vision to Improve NYC’s Food System • FoodWorks Agricultural Production

currently 120 farmers markets.78 cess to fresh, healthy and affordable and offices across the five boroughs. These markets serve several pur- food. Since 2005, the City Council Residents demand these products poses. Not only do they provide a has partnered with several market throughout the northeast growing critical outlet to farmers and provide operators to bring EBT to farmers season to such an extent that some residents better access to healthy markets throughout the city. One of CSAs have waiting lists and are food, but they make our neighbor- these programs began with only 3 forced to turn customers away. The hoods more vibrant and economi- markets in 2005, but expanded to 23 city should capitalize on this growing cally stronger. The Union Square markets by 2009, with sales increasing popularity for fresh, healthy, regional market in Manhattan has been in by 24,000 percent over that time.79 food. Working with local organiza- existence for over 30 years. Many Not only does this program increase tions and businesses, we can expand residents credit its popularity with financial access among several com- CSAs citywide. The City Council prompting Union Square’s rebirth munities that lack access to good can lead by example by enrolling as a major economic hub, attracting quality fresh produce, it also provides employees of City Hall in a CSA and thousands of shoppers daily. For an expanded market to small farmers then encouraging organizations and these reasons, the city should ensure in the region. These sales put money large companies throughout the five farmers markets have adequate, high directly into the farmer’s pockets, boroughs to start workplace CSAs traffic, and stable space in which allowing many of them to stay in for their employees. Additionally, to operate. Additionally, the city business and even increase their pro- the City Council is exploring with should leverage its resources and ductivity. This year, the City Council the New York City Department for voice to support markets of all sizes expanded this valuable program even the Aging (DFTA) opportunities to throughout the city to maximize their more from 23 markets to 40 markets expand CSAs to the city’s senior reach. throughout the city. centers. The City Council will also work with the New York City Hous- • Expand the electronic benefits • Expand and support community ing Authority (NYCHA) to explore transfer (EBT) program and accep- supported agriculture (CSA). ways to increase access to CSAs by tance of the Special Supplemental working with the residents who serve Nutrition Program for Women, In- CSAs have grown nationally from just on the Green Committees in NYCHA 22 fants, and Children (WIC) benefits 2 in 1986 to an estimated 2,500 in developments. at farmers markets. 2010.80 In the city, there are now over 100 CSA drop off points.81 Organiza- STRATeGY: Another strategy to support farmers tions like Just Food and the New York Leverage the city’s economic markets throughout the city is ensur- City Coalition Against Hunger have power to support regional ing that they have a broad customer been critical in helping communities producers. base. Doing so has enabled markets start new CSAs in the city. Drop off to open in neighborhoods where of fresh, seasonal products occurs at The city has immense purchas- residents do not have adequate ac- churches, community organizations ing power through its various food programs, whether through senior centers, day care centers, after eBT Sales at Green Markets school programs, summer meals, or student breakfasts and lunches. Each year, the city’s agencies spend over $175 million on food for these programs.82 The NYC Department of Education alone is the second largest institutional purchaser of food in the country, next to the US Department of Defense.83 Researchers estimated in 2005 that as much as $12 to $15 million, or 10 percent, of Department of Education procured food could be produced in the region.84 Addi- tionally, between 2006 and 2009, the Department of Education successfully purchased almost $4.5 million of regional food without additional cost.85

Source: GrowNYC. EBT Progress Report 2008 and 2009

FoodWorks • A Vision to Improve NYC’s Food System Agricultural Production

New York, jurisdiction over school food procurement lies with the U.S. Depart- ment of Agriculture (USDA), the New York State Department of Education, New York City Bronx the New York State Legislature, and CSA Drop-Off Sites to some extent with local education 2010 departments, while other city agencies follow state law and local regulations in Manhattan their procurement practices. Through advocating for both state and local policy change, the City Council intends Queens to further encourage regional food procurement to support and expand our regional farming operations. Brooklyn Proposals: Staten Island • Track and encourage regional food procurement.

Source: JustFood One way in which the city can support regional farming is to encourage local agencies to procure regionally produced food for its meal programs. The New York City Department of Educa- tion (DOE) has begun to purchase some produce from New York State and surrounding states, and much of the 23 milk served in meal programs comes from regional dairies. However, this procurement has, thus far, occurred on an ad hoc basis. As their food distribu- tor contracts come due for renewal, the DOE should consider including requirements to track food sourcing from their newly contracted distributors. As a first step, the City Council is introducing legislation requiring city agencies to report the sources of the food served in their meal programs.

Although the DOE has already begun to proactively procure regional food, there are no guidelines to encourage other city agencies to do the same. Photo Credit: Mina Pekovic Therefore, the City Council will This expenditure is the equivalent Recognizing this opportunity, Con- introduce legislation to require that of what 37 New York farms sell in a gress included a provision in the 2008 guidelines be developed for agen- year and the additional expenditure Farm Bill to explicitly allow schools, for cies to encourage procurement of potential would be equal to what 98 the first time, to extend a preference food that is grown, harvested or farms sell in a year.86 This presents an to regional farmers in their procure- produced in New York State. Many incredible opportunity to positively ment process. However, the federal city agencies may not know that state impact the food system by conscious- legislation does not mandate the law already allows them to prioritize ly choosing where, how, and what we preference and leaves implementa- certain state products over food from procure for the city’s food programs. tion to the state and local agencies. In other areas. These guidelines will

A Vision to Improve NYC’s Food System • FoodWorks Agricultural Production

assist city agencies in maximizing the ment and providing funding for farmers ricultural programs to assist farmers purchase of New York State food. to engage in best management prac- in the watershed with implementing Additionally, because New York City's tices and whole farm planning in the better environmental practices on regional food system extends beyond watershed. There are approximately their land to prevent harmful run-off the jurisdictional boundaries of the 350 farms located within the New York into the water supply, while also State, the City Council will introduce City watershed.89 The economic viabil- helping them to maintain financial a resolution calling on the State to ity and management of their operations sustainability.91 This vital program enact legislation that would allow are of critical concern to New Yorkers. has served over 65,000 farmed acres the City to preference the purchase Loss of this farmland to development or in our watershed.92 The City Council of food that is produced in other environmental degradation presents a has been and will continue to be a states within the region. These prac- major threat to our water supply. major impetus for financial support tices, combined with other initiatives for these critical farmers, making in this report to build capacity among The City has partnered with the sure this program is adequately regional producers, will facilitate stron- Watershed Agricultural Council, an funded. In maintaining this support, ger regional supply channels and help entity formed after the FAD, to carry we not only protect the integrity of farmers bring their products into larger out these preservation activities. In our water supply, but also ensure institutional outlets. the 2008-2009 fiscal year, the City a nearby supply of fresh products provided $11.5 million for these and economically viable farms to • Support farmers in the activities.90 Approximately $4.43 mil- further strengthen our regional upstate watersheds. lion of this funding was used in ag- food economy.

New York City’s drinking water is supplied by the Catskill-Delaware watershed, approximately 125 miles north of the city, and the Croton watershed, within approximately 75 miles of the city. These watershed areas cover 24 2,000 square miles and together supply over 1 billion gallons of water to city residents every day.87 Despite antici- pated population growth in the city, we will continue to have an ample water supply. The concern, however, is that the purity of this water is protected. Currently, our water arrives through two major aqueducts and does not pass through filtration plants. It is one of only five similar large urban systems nationally. The City has plans to build a filtration plant for the Croton watershed, which represents approximately 10 percent of our water supply, but not for the remaining water supply.88

To maintain this system, New York City is subject to a 10-year Filtration Avoid- ance Determination (FAD), a waiver issued by the federal government. To preserve our water supply and avoid spending billions on a filtration plant for the Catskill-Delaware watershed, the city is required by this agreement to engage in several conservation activities Source: NYC Dept. of Environmental Protection in the watershed areas. These include purchasing land to avoid their develop-

FoodWorks • A Vision to Improve NYC’s Food System Agricultural Production

Northeastern U.S. Agricultural Land

New York City

Image Courtesy of the Urban Design Lab

A Vision to Improve NYC’s Food System • FoodWorks Agricultural Production

Source: New York Public Library

Farm on 55th Drive, Queens, NY circa 1920s

GOAL 2 Gardens, Just Food, and Green Gue- STRATeGY: rillas, offer education and support to Better use existing space for Increase urban help residents start and expand food urban food production. food production. growing within the five boroughs. New York City is the largest and Long before the five boroughs were Some organizations have even densest metropolitan area in the 26 unified, much of New York City’s begun experimenting with com- country. Yet residents and orga- landmass was used for farming and mercial food growing enterprises nizations throughout the city have the waterways were home to a rich in the city. While these enterprises discovered creative ways to produce supply of aquatic life. Since that have yet to develop into a robust food within this environment using time, our city has undergone count- part of the city’s urban agricultural rooftops, vacant parcels and raised less transformations to become the activities or a major source of food, beds. Some new technologies are dense, soaring urban capital we see they can inspire urban agriculture even able to grow food inside build- today. Property ownership is out of innovation. There are a number of ings.94 However, gardeners still face reach for the vast majority of New ways the city can support all of these challenges protecting the gardens Yorkers and open space is a precious different types of activities. These they have from development, finding – and sparse - resource. Even so, urban gardeners and farmers need new space for gardens, and navigat- the most recent federal agricultural stable spaces to grow food, as well ing the city’s approval processes. census reports as many as 20 farms as technical assistance. Although Other cities also face these issues in the five boroughs.93 Addition- space is extremely expensive in and have begun to implement policy ally, the city is home to hundreds of New York City, agencies can better changes to facilitate urban agricul- community gardens that grow food. promote the underutilized spaces ture. For example, the Mayor of While these efforts are not sufficient that do exist. Yet even once grow- San Francisco issued an executive to feed nearly nine million residents, ers find space, they may lack the order requiring all city agencies to they provide opportunities to learn knowledge required to navigate the report on city-owned land available about growing food, healthy eating, city’s regulatory process or to ensure and appropriate for growing food.95 and our environment. They also the space they have is productive. Additionally, Detroit is now trying to provide a small but important source To address these issues, the City position itself as a leader in urban of food for some New Yorkers. Ad- Council will pursue two strategies: agriculture.96 One thing Detroit has ditionally, in New York City over a 1) better utilizing existing space at its disposal that is not easily iden- dozen programs, such as Green for urban food production and 2) tified in New York City is inexpen- Thumb through the New York City supporting horticultural education sive, available space. However, as Department of Parks and Recreation, and technology around the city. demonstrated by urban agriculture the New York and Brooklyn Botanical already underway in the city, much

FoodWorks • A Vision to Improve NYC’s Food System Agricultural Production can be done with the little space we do have. There are numerous ways in which the city can facilitate these efforts. Specifically, the City Council will pursue the following key initiatives to better utilize existing space for urban food production. Proposals:

• Protect community gardens.

There are 600 community gardens throughout the five boroughs that have deep roots in the city’s history. As many families left the city and ur-

ban decay settled in to some neigh- Photo Credit: Ambient Traffic borhoods, dedicated New Yorkers reclaimed vacant lots by planting gardens. Many of these gardens still remain and have become a vital part of their communities’ identity. Not only do they provide healthy food and educational opportunities for children, but they also offer residents of these community gardens, most from development. While this is an an oasis in otherwise densely built of which are under the jurisdiction of important policy change, the rules neighborhoods. Yet, despite these the City’s Department of Parks and are subject to change at the discre- 97 benefits, community gardens have Recreation. The City Council part- tion of the next Mayor and thus 27 not yet achieved long-term protec- nered with community gardeners to do not afford long-term protection tion as part of the city’s landscape ensure these rules are the strongest to these gardens. Therefore, the for future generations. Recently, the possible. Thanks to our efforts, the City Council will pursue policies to Mayor’s administration promulgated rules now state that these gardens achieve long-term garden conserva- rules to preserve approximately 300 are to be preserved and protected tion, along with the addition of new gardens.

New York City • Ensure urban farms are counted in the Census Community Gardens of Agriculture. Bronx Size in Square Feet 27 - 12,839 Another way to support local urban 13,934 - 51,059 58,278 - 150,001 farming is to ensure that they are 217,290 - 335,450 Manhattan recognized by the USDA’s Census of 579,948 - 633,228 Agriculture. This annual census counts Queens all farms by county if they produce at least $1,000 worth of product each year. Many of the city’s moderately sized and larger community gardens would qualify as farms by this federal Brooklyn definition. However, these gardens are Staten Island not yet officially recognized as urban farms because gardeners do not track and report the financial value of the food they grow. Currently, only 20 farms in New York City are counted by the Census of Agriculture.98 By educat-

Source: Data courtesy of Mara Gittleman

A Vision to Improve NYC’s Food System • FoodWorks Agricultural Production

ing and assisting more of our growers as a critical resource to organizations farms or commercial enterprises, does to participate in this census, we could seeking new space for other food not have to be located on the ground increase that number dramatically. As uses (such as food processing or level – many have adapted to our built a result, the city would not only be retail space). It will also ensure that environment by using rooftops as a recognized as a leader in urban farm- underutilized space can be better growing surface. Several new rooftop ing, but we would also be better able identified and put to good use. locations have attracted public atten- to utilize federal resources to support tion and are attempting to pioneer a farming. The City Council will part- • Identify city-owned new approach to urban agriculture in ner with organizations citywide on an properties with roofs suitable the city.99 Unfortunately, new green- outreach and education campaign to for urban agriculture. houses encounter a barrier to develop- make sure as many of our farmers are ment because some buildings are at counted as possible. The Administration is conducting a or exceed their floor-to-area ratio (FAR) study of city-owned buildings to de- allowance, preventing an addition to • Create a searchable database termine the potential for rooftop solar the building. For example, buildings of city-owned property. panels. While this is a valuable study, in Chelsea, Greenpoint, downtown the Administration should at the same Brooklyn, and Jamaica have faced With widespread and growing inter- time determine which roofs would be this problem. These restrictions serve est in gardening and urban farming, good candidates for vegetative green several important purposes. They identifying and publicizing available roofs. Given that many of the same moderate the density of development space for cultivation will be critical to factors being evaluated for solar roofs in neighborhoods, allowing for a safer, increasing urban food production. To would yield information needed for more pleasant built environment while help support this activity, the City will determining viability of green roofs ensuring that the local infrastructure is create a database of all city-owned and – such as total roof square footage, not excessively burdened. But green- leased properties, including vacant sunlight exposure, and load bearing houses used for growing food also land. Currently, this information is capacity – expanding this study now provide a public benefit, and the City available in various forms, but is not would be an efficient way of exploring Council will pursue two policy changes collected in one, consumer-friendly where vegetative roofs could be sited. to facilitate their development. First, 28 place. The City publishes a book, we will pass legislation to exempt called the Gazeteer, that catalogues • Waive the Floor to Area Ratio greenhouses from building height city-owned and leased properties and (FAR) requirements and height restrictions. Second, we will call on the which agencies control them. How- restrictions for certain rooftop New York City Departments of Build- ever, the book includes only limited greenhouses. ings (DOB) and City Planning (DCP) to information on city-owned properties, develop a waiver program for green- and is only available for purchase in Urban food production, whether in the houses seeking space on buildings hard copy and thus not easily accessi- form of community gardens, urban that have met or exceeded their FAR. ble to most New Yorkers. The City also produces a software program called PLUTO that includes more detailed information about all properties in the five boroughs, including city-owned property. However, this is also only available for purchase. Lastly, there is an application called City Map online that includes city-owned properties, but it is not searchable by property feature.

The City Council will introduce legislation that requires the Admin- istration to create a new searchable Photo Credit: Kristen Taylor database of all city-owned and leased properties. The database will not only provide useful information to stakeholders seeking urban agriculture land, but could also service

FoodWorks • A Vision to Improve NYC’s Food System Agricultural Production

• Streamline the green roof permit application process.

Although encouraging green roofs is a stated goal of both the City Council and the Administration, many organizations in the city have difficulty navigating our complex permitting and inspections process. The DOB is responsible for the important task of ensuring public safety by inspecting and regulat- ing our buildings. They are also therefore responsible for processing green roof permit applications. As with any new technology, balancing the goals of enforcing our building Photo Credit: William Alatriste code and encouraging innovation These two initiatives will encourage not ing of wastewater are billed at 159 can be difficult. Realizing this, the only the growth of urban agriculture, percent of drinking water costs.100 City Council partnered with various but also the development of urban ag- This calculation means that waste- stakeholders to green our building riculture technologies as organizations water is billed by consumption and code. Through this effort, an inter- develop and adapt to rooftop sites. therefore does not impose a cost agency group within the Administra- on stormwater. However, stormwa- tion was established to review new • Change the state green ter imposes significant costs on the technologies, illustrating a policy roofs tax credit to encourage city. The city’s wastewater treatment innovation to facilitate energy con- food-producing green roofs. system combines stormwater and servation in buildings. wastewater. During times of low 29 In 2008, New York State passed leg- flow, all stormwater is treated by Because many organizations are islation to encourage environmental the city’s sewage treatment plants, finding the building and inspections sustainability by providing a tax credit which is costly. Additionally, during process for green roofs challenging, for green roofs. While an important large rainstorms, the system cannot the City Council recommends that advancement at the time, the credit process all of the waste in the sewer the Mayor’s Office of Long-Term defines green roofs narrowly. When system and instead sends some of Planning and Sustainability work the original legislation was written, that waste directly into our water- with the Department of Buildings, the city did not have any high-profile ways without treatment, polluting the Fire Department and other city rooftop food gardens, and green our waterways and waterfronts with agencies to review the current pro- roofs were not generally discussed as raw sewage. cess and develop best practices to a means of growing food. Consid- facilitate rooftop agriculture. ering the movement toward urban The City Council calls on the Water agriculture and the growing interest in Board to change the wastewater billing STRATeGY: rooftop gardens, the City Council will to include a charge on stormwater Restore food and horticultural pass a resolution calling on the state to based on a lot’s impermeable surface. knowledge. expand the definition of green roofs to This charge will incentivize building include those that grow edible plants. owners to develop green roofs. As Producing food in New York City We will also partner with state officials a result, we would hope to see more relies not only on the physical en- to pass legislation on the state level to green roofs developed that also vironment, but also on the techni- change the tax credit definition. include urban agriculture. The Water cal knowledge of our residents. Board took the first step in Fiscal Year In 1840, there were 20,286 New • Change water rates to 2011 by charging city licensed park- Yorkers working in the agricultural encourage green roofs. ing lots with no water service a fee of sector in the five boroughs.101 Even five cents per square foot. The Water as recently as World War II, more Under the current water rate struc- Board should take the next step and than 20 million families in the U.S. ture, approved by the New York City charge all building owners based on were growing food in their back Water Board, costs for the process- impermeable square feet. yards in “victory gardens.” These

A Vision to Improve NYC’s Food System • FoodWorks Agricultural Production

small plots supplied 40 • Support urban agricul- percent of the produce ture technology develop- consumed in America ment. during the war.102 But with increasing urbanization and Because of New York City’s industrialization, much of dense environment and this knowledge about industrial history, agriculture food production has and gardening can be chal- become specialized and lenging enterprises. Not only unavailable to residents is finding space difficult, but of the city today. implementing the appropriate growing systems – wheth- Programs like Garden to er greenhouses, hoop houses, Café, Added Value, and bo- rain water harvesting, vertical tanical garden workshops indoor systems, or any of the are trying to recapture countless other technologies this knowledge. Research available – can be overly com- has demonstrated that plex as well. However, there these programs reconnect are engineers, architects, and people to their food and seasoned growers in our city encourage healthier eating that have been leading the habits.103 To coordinate way to the development and these efforts and help dis- execution of new technolo- seminate knowledge about gies. These technologies creating school gardens can be found on the ground, Source: Division of Public Inquiries. Office of War Information. or home gardens, the City on roofs, inside, outside, and Council will invest in garden educa- classroom. Some strides have been all over the five boroughs. Moreover, 30 tion centers throughout the city. made to better coordinate these there is a growing community of innova- programs and publicize them to tors across the country who are sharing Proposals: teachers. The City has appointed best practices. a new citywide garden coordinator • Ensure garden education to assist teachers in finding gardens This expertise and interest in urban is available citywide. and educational programs. Ad- agriculture nationally presents a unique ditionally, the New York City De- opportunity here in New York City. We Several organizations and programs partment of Education has hired a are fortunate to boast a great number across the five boroughs provide staff member to collect the various of well-known academic institutions, garden education to residents. curriculum aids for teachers and to a rich talent pool in urban design and These include several botanical help facilitate the development of planning, and a highly motivated and gardens, the New York Horticulture new gardens. active community of growers. By Society, the New York City Depart- connecting these resources and using ment of Parks and Recreation’s Several organizations also provide them to solve urban agriculture prob- Green Thumb Program, and count- assistance to home, institutional, lems in such a large, dense city as ours, less others. The workshops currently and community gardeners. These we can position ourselves as leaders in offered target home gardeners and can include workshops on rainwater urban technology development. The teachers who utilize gardens to capture, composting, and other City Council will partner with academic complement their in-class curricu- skills needed to make an urban institutions, such as Columbia Univer- lum. To date, there are as many as garden thrive. However, these pro- sity and the New School, to identify 300 school gardens in operation.104 grams lack resources and coordina- strategies for encouraging innovation Despite the popularity of school tion. They also are financially out of and dissemination of new technolo- gardens and community gardens, reach for some New Yorkers. The gies. Not only would this support the there is still additional demand for City Council will work with organiza- efforts of growers here, but if we can educational services. Additionally, tions throughout the city to support begin to formalize and commercialize many teachers are unaware of the and expand garden education these technologies, we can also lay opportunities that exist for incor- services for residents and commu- the foundation for potential economic porating garden education into the nity gardeners. activity in the future.

FoodWorks • A Vision to Improve NYC’s Food System Processing

Processing

Much of the food we consume goes through some form of processing. Food processing transforms ingredients like harvested crops or animal products into new products for consumption. This can be as simple as washing and packaging fresh produce or as complex as making breakfast cereal. Few processors source ingredients directly from farms, instead purchasing ingredients through a broker, intermediary, or from another processor. In New York City, food processing is an important sector of our economy and presents a great opportunity for growth. Processing

PROCESSING PROCESSING Food processing in New York City represents a $5 billion industry that adds GOal 3: Generate growth and employment in the food manufac- approximately $1.3 billion to the Gross turing sector. City Product.105 There are nearly 1,000 StRatEGy: Make affordable space available. food processing and manufacturing establishments employing over 14,000 Proposals: workers in New York City.106 Many of • Build a commercial kitchen incubator for start-ups. these processors make foods such as • Develop new industrial space for food manufacturing businesses. baked goods, tortillas, chocolates, or • Revitalize New York City’s market system through the New roasted coffee.107 Companies range in Yorkers 4 Markets initiative. size from individual entrepreneurs to StRatEGy: Provide technical assistance to food manufacturers. large-scale operations that export their goods around the country and world, Proposals: bringing much needed revenue into • Create an online resource center for food manufacturers. the city. Despite these strengths, there • Establish a workshops series to assist food manufacturers. are barriers to entry for start-ups, and larger businesses find it increasingly GOal 4: Increase regional products processed in and for New difficult to remain in the city or invest in York City. infrastructure due to high costs. StRatEGy: Facilitate urban-rural linkages.

Like other businesses in the city, food Proposal: manufacturers struggle to access • Hold a regional food business-to-business (B2B) conference. capital, pay for equipment, and find GOal 5: Reduce the environmental impact associated with food affordable manufacturing and retail processing in New York City. space within which to grow their 34 business. Despite these challenges, StRatEGy: Help businesses reduce energy consumption. food manufacturing remains a stable economic sector, while other manu- Proposal: facturing sectors have been declining • Help food manufacturers access energy efficiency programs. in the city for decades. Although

food manufacturing is a source of good jobs and revenue, it has not been a specific part of the city’s economic development efforts. The City Council will pursue several strategies to aggressively grow the food manufacturing sector. The initiatives that follow will ensure food manufacturers have the space, financial resources, business relationships, distribution channels, and knowledge to thrive in New York City.

GOal 3 Generate growth and employment in the food manufacturing sector.

The city must take several key actions to support and protect food manu- Photo Credit: William Alatriste

FoodWorks • A Vision to Improve NYC’s Food System Processing

New Yorkers. Yet maintaining these operations remains difficult due to a shrinking supply of industrial space and increasing prices compared to areas like New Jersey or upstate New York. One major strategy for keeping and growing the food manufacturing sector must be to ensure an affordable supply of space, from the fledgling enterprise to the well-established business. Proposals:

• Build a commercial kitchen incubator for start-ups. Photo Credit: UptownFlavor.com Between the moment when an facturers and generate growth in the entrepreneur first tests a recipe and sector. These strategies will include the time he or she is ready to rent linking companies to affordable and equip his or her own space, industrial and retail space, and ensur- their business comes to a difficult ing that they can access the resources cross-roads. There might be enough already available to them. The New revenue to stay in business, but

York City Economic Development Photo Credit: William Alatriste not enough to afford a commercial Corporation (EDC) has partnered with kitchen and market their products. To several lenders to develop a capital StRatEGy: fill this gap and help these businesses access program that is open to dif- Make affordable grow, the City Council has invested in 35 ferent types of businesses, but many space available. a commercial kitchen incubator at the food manufacturing companies may La Marqueta building in East Harlem, not know how to apply. Additionally, The cost of manufacturing space in which will be opening later this year. because food manufacturers require many industrial neighborhoods has This building has a long history as expensive equipment and energy, increased significantly over the past a public food market, but has fallen they often need assistance cover- 10 years, with space that was approxi- largely into disuse over the past 20 ing these costs. The New York City mately $6 to $9 per square foot in 2000 years. Building an incubator in part Industrial Development Agency offers now renting for closer to $12 to $18 per of this building will not only help programs that provide companies square foot.108 This makes New York grow individual businesses, but it will with access to triple tax-exempt bond City a less competitive market for these also attract new tenants to the rest of financing or tax benefits to acquire manufacturers, especially new and the building. Moreover, clients of the or create capital assets, such as smaller operations, prompting manu- incubator may be able to utilize the purchasing real estate, constructing facturers to leave the city. We have front of the market or other com- or renovating facilities, and acquir- begun to address this issue by invest- ponents of the La Marqueta site as ing new equipment. Additionally, ing in a food incubator, but there are future retail space for their products. there are several programs in New other supports that could be provided, York to help companies with energy especially for companies beyond the • Develop new industrial space efficiency, thus reducing their operat- start-up phase. for food manufacturing busi- ing costs. Companies could benefit nesses. from targeted marketing of these Through the Brooklyn Navy Yard, programs. To generate growth and the Greenpoint Manufacturing and Food processors in the city have dif- employment in the food manufac- Design Center, Industrial Business ficulty finding affordable space at every turing sector, the City Council will Zones (IBZs) and other programs, the stage of their business, from their initial pursue two strategies: 1) making city has attempted to retain some start up through their growth into larger affordable space available and 2) manufacturing in the five boroughs operations. Even if the city is able to providing technical assistance to as this industry provides good, assist new start-ups in the incubator, food manufacturers. living-wage jobs for thousands of more established firms still face an im-

A Vision to Improve NYC’s Food System • FoodWorks Processing

portant decision. Once they are ready processing should be explored. Given into contained, shared retail spaces to find their own, larger manufacturing its proximity to wholesalers, local whole- throughout the city. They provided space, do they remain in New York City sale farmers, and major highways, Hunts vendors with affordable space and or do they move to a more affordable Point presents a promising opportunity cleared streets that residents com- area? Unfortunately, some manufac- to create a hub for local food manu- plained were becoming overly clut- turers have answered this question by facturers, especially those interested in tered with push carts. However, these leaving New York City. In an attempt sourcing regional ingredients and mak- markets served another important to keep more of these companies in ing fresh convenience foods. function: they opened a pipeline for the five boroughs, the City Council has these individual vendors to become partnered with private sector brokers, • Revitalize New York City’s more established businesses. Today not-for-profits, and the EDC to develop market system through the New only four of the original retail markets food manufacturing space. Yorkers 4 Markets initiative. remain: La Marqueta in East Harlem, Arthur Avenue in the Bronx, Moore First, we surveyed food manufacturers Just as food manufactures require pro- Street Market in Brooklyn, and Essex and identified dozens who are seeking duction space, many are also looking Street Market in the Lower East Side. space and began to assist these food for retail spaces to bring their products Visiting each of these markets reveals manufacturers with finding space, either to market. The City currently owns very different states of repair and occu- publicly or privately owned. Second, the several public food market buildings pancy. While Essex Street Market has City Council created a Small Manufac- that could be better utilized for both undergone significant changes and is turing Investment Fund of $10 million production and retail space to sup- now a popular shopping venue, Moore to assist in the development of new port local food businesses. However, Street Market and La Marqueta have manufacturing space, some of which they are not yet fully occupied and not enjoyed the same level of attention can be utilized for developing food require renovation. The City Council and success. And despite a grassroots processing space. Over the coming has already begun an initiative, NYers effort to celebrate the area’s history as year, we will be partnering with EDC to 4 Markets, to revitalize these markets a major food destination through the identify buildings that can be renovated through outreach efforts and signifi- New Amsterdam Market, the South and subdivided into leasable space for cant investment in their renovation. Street Seaport area, once home to the 36 small manufacturers. Lastly, as the city city’s famous Fulton Fish Market, still redevelops the Hunts Point produce The city built several food markets doesn’t have a new permanent market. market, any opportunities for develop- under Mayor Fiorello LaGuardia with ing underutilized or vacant space for the intent to draw street cart vendors These sites, rather than generating jobs and revenue for the city, have sat underutilized for years. This is a lost opportunity not only for the city, but also for food processors and retailers who seek small, affordable space to make and sell their products. Just as Mayor LaGuardia originally envisioned, these markets could be the launching pad for dozens of small businesses. The City Council is committed to raising the profile of these markets and investing in their revitalization.

Last year, we invested $1.5 million in the La Marqueta building by creating the kitchen incubator, to be operated by the not-for-profit Hot Bread Kitchen. Already, this has allowed EDC to attract three new tenants to the retail space and begin planning for future development of the rest of the site. We have also been actively involved in efforts to help raise the profile of these markets by conducting Photo Credit: Manyhighways

FoodWorks • A Vision to Improve NYC’s Food System Processing

effort has worked in reaching other industries and should be replicated for food manufacturers. For example, EDC has organized well-attended workshops for the biotech sector to educate researchers and companies about grant programs, innovation contests, and leasing opportunities. Additionally, through the Food Retail Expansion to Support Health (FRESH) program, EDC outreach to the supermarket industry has contributed to three supermarket expansions. Similar outreach and workshops should be focused on food manufacturers to assist them in accessing capital, business planning assistance, necessary health permits, leasing and other important opportunities.

GOal 4

Source: Project for Public Spaces Increase regional outreach through our New Yorkers 4 To make this information more readily products processed in Markets campaign, collecting over one available, the City Council will pursue and for New york City. thousand signatures from residents the following two initiatives. who supportPreserving the revitalization of these and Revitalizing theOur Moore city’s rich cultural diversity has critical assets. This type of outreach Proposals: resulted in an abundance of specialty 37 is imperativeStreet for helping to build Market a in Brooklyn, Newand ethnic York foods across the five bor- customer base for these public mar- • Create an online resource oughs. As Americans’ palates have kets. Additionally, we have provided center for food manufacturers. become more diverse, the demand for significant financial investment in the these products has increased, boosting Moore Street Market. As a result, this EDC and the city’s Department of our local manufacturers. Now consum- market will be undergoing renovation Small Business Services (SBS) have ers are demanding regional foods, to revitalize the retail space and attract individual web pages devoted to “value-added” products, and fresh new vendors. various industries that explain what convenience foods.110 The growing programs and benefits are available popularity of farmers markets and com- StRatEGy: to help businesses in each indus- munity supported agriculture (CSA) has Provide technical try grow. However, none of these also brought an increased demand for assistance to food specifically target the needs of food regional products that are processed, manufacturers. manufacturers. To better market the or “value-added” products like yogurts, space, capital, technical assistance cheeses, jams, mixed salad greens, Just as with any type of business, ac- and other benefits available, the City and baked goods. Finding a steady cessing or even identifying available Council will partner with SBS Business supply of regional ingredients presents resources can be difficult for food Express to create a one-stop resource a challenge for some processors and manufacturers. There are numerous page for food manufacturers. food service establishments. Likewise, types of business assistance available, for some institutions obtaining lightly from the city’s Small Business Services • Establish a workshops series processed foods, such as washed and Department to the Capital Access to assist food manufacturers. packaged greens, is a barrier to purchas- Loan Guarantee Program administered ing regional food. It is much easier and by the Economic Development Corpo- To support food manufacturers in less staff intensive to obtain pre-washed ration, Citibank, and Accion.109 Many accessing available resources, we rec- and cut produce than to receive raw businesses are unaware of these pro- ommend that EDC conduct outreach product that requires additional prepara- grams, or even that the city may have to food manufacturing businesses and tion before use. These kinds of interim available space for rent or purchase. hold informational workshops. A similar processing activities are an important

A Vision to Improve NYC’s Food System • FoodWorks Processing

missing link in the regional food system. business-to-business conference, which Strategy: Therefore, one strategy for increas- will target both regional producers and Help businesses reduce energy ing regional products consumed in local businesses to facilitate networking consumption. New York City is to facilitate urban- and distribution. The conference will rural linkages among businesses and also feature workshops by city agencies, Not only does high energy consumption institutions. including the Department for the Aging, by food processors represent an envi- the Economic Development Corpora- ronmental challenge, it is also a high cost Strategy: tion, and the Department of Education. burden for businesses. In New York City, Facilitate urban-rural linkages. Various workshops will feature informa- in particular, energy costs are 56.4 per- tion about becoming a vendor for city cent higher than in other cities.115 This New York State is home to 35,600 family food programs, a difficult market to ac- not only threatens businesses’ bottom farms111 and New York City boasts ap- cess for many regional and local produc- line, but it can also result in higher food proximately 1,000 food manufacturers,112 ers and distributors, and about financial costs. Recognizing the impact these over 7,000 food retailers,113 and tens of programs, finding space, and accessing energy prices have now and are likely to thousands of restaurants. Throughout other business assistance services in the have as the cost of energy increases over the year, these businesses perform the city. By connecting businesses at every time, there have been several efforts in impressive task of bringing food to over step of the food system, we will help New York to increase businesses’ energy 8 million residents and 45 million visi- existing firms grow and add new jobs, efficiency. However, we must ensure that tors.114 Doing so requires relationships while creating opportunities for new and New York City companies are aware of across every phase of the system. For emerging entrepreneurs. these programs and can utilize them. small- and mid-sized producers, however, getting their products to processors Proposal: and to sales outlets or institutions in the goal 5 form demanded can present a chal- • Help food manufacturers access lenge. Specifically, the lack of processors reduce the environmen- energy efficiency programs. linked to our regional growers has pre- tal impact associated vented city institutions from procuring with food processing in The New York State Energy Research 38 more regional products. By helping to New york City. and Development Authority (NYSERDA) facilitate these urban-rural linkages, New oversees several programs that help York City can help spark economic activ- Although the food processing indus- assist businesses to reduce their energy ity without significant capital investment. try has benefited from our increased costs and become more energy efficient. demand for convenience foods, there Several programs exist to help with Proposal: are also environmental implications. As energy audits and energy reduction consumers seek faster, easier ways to planning, such as FlexTech.116 Addition- • Hold a regional food business- prepare meals, much of the work tradi- ally, the New Construction Program117 to-business (B2B) conference. tionally done in our kitchens has been and the Existing Facilities Program118 outsourced. Grocery stores now feature provide benefits for companies to Although many wholesalers, retailers, products like pre-washed vegetables, upgrade to more energy efficient equip- and processors are trying to meet the frozen meals, shredded cheeses, ment during construction of new facilities demand for regional products, finding and individually packaged snacks to or for renovation of existing facilities. For suppliers can be difficult. Even once a help us reduce our time in preparing companies located specifically within regional agricultural product is identified, meals. The result, however, has been the five boroughs, there is a program there are additional challenges getting it an increase in energy consumption by to help transition to clean fuel vehicles to the city so it can be processed or sold. food processors and an increase in food for distribution called the New York City Farmers who participate in direct-to-con- packaging. To help support our local Private Fleet Program.119 Together, these sumer venues may not be able to access processors while still reducing negative programs represent a vital resource for other channels like traditional retail or environmental impacts, we must better companies that manufacture and distrib- larger food service establishments and link them to programs that will help ute food citywide and will be aggressive- public institutions. One effective way reduce their energy consumption. We ly marketed to New York City businesses. that government can support industry also must reduce packaging upstream These efforts will include better publiciz- growth and encourage new markets is and ensure that food packaging is recy- ing these programs through workshops to better connect producers, proces- clable. Our central strategy for reduc- for food manufacturers in a business- sors, and buyers in order to strengthen ing the environmental impact among to-business conference to be held next and create new markets. As a first food processors will be to help them year, and as part of a new resource page step, the City Council will organize a reduce their energy consumption. through Business Express.

FoodWorks • A Vision to Improve NYC’s Food System Distribution

Distribution

Food distribution refers not only to the way food travels, but also to the establishments that distribute food for sale or donation. These outlets include national chain supermarkets, grocery stores, bodegas, food cooperatives, street vendors, farmers markets, community supported agriculture (CSAs), soup kitchens, and food pantries. Getting food into and throughout the city relies on transportation infrastructure such as roads, bridges, ports, vehicles, and rail lines. It also requires related inputs like warehousing, technology, and food handling processes. Food distribution in New York City is a complex network involving thousands of participants and several modes of transportation. Most of the food distributed in the city enters via truck with a small portion arriving by boat, air, and rail. Distribution

DISTRIBUTION DISTRIBUTION Over the past decade, the time our food spends in transit and the distance GOal 6: Improve food distribution in New York City through it travels have increased measurably.120 infrastructure enhancements, technological advances, alternative This trend has compounded the prob- transportation, and integrated planning. lems of energy usage and greenhouse gas (GHG) emissions already typical STRaTeGY: Expand on the current vision for the Hunts Point of our current food system. Yet these Food Distribution Center to maximize its potential. trends cannot continue given global Proposals: climate change and the increasing • Redevelop the Hunts Point Produce Market. cost of energy – the food system must • Increase rail service through the Hunts Point Distribution Center. adapt to these new realities. Sourc- • Transform the Hunts Point Distribution Center into a hub for ing more food locally is a critical piece citywide food system improvement strategies. of the puzzle, but we must also make key changes to the way in which food STRaTeGY: Diversify and improve food transport. is distributed throughout the country, region, and city. Proposal: • Identify optimal distribution routes and modes for food distribution Decades ago, the U.S. began to move within the region and city. away from rail as a primary means of transport toward an increased reliance on our highways and airways. But while dents suffer from increased congestion percent of the truck traffic over the these modes may be faster, they are on roadways, degraded infrastructure, George Washington Bridge on any also more energy intensive. For years, and noise due to truck traffic through- given day is carrying food.122 These city planners and environmentalists out the city. Because much of this is trucks, often refrigerated, consume have been encouraging a return to the due to food transport, the city must great amounts of fuel, contribute to 42 use of trains and public transit as a more also do its part to facilitate alternative greenhouse gas (GHG) emissions, environmentally sustainable way for modes of transport and new technolo- and degrade our infrastructure due transporting the general public. How- gies. We’ll likely never reach full rail to their frequent, heavy trips on our ever, shifting to alternative transport transport, but even moving some food bridges and roadways. The system for food is more complicated. It must transport to rail and other modes and overall is energy intensive and a meet the needs of the businesses that improving current trucking technologies considerable contributor to our buy and sell food. Since products like can have significant impact on improv- carbon footprint. berries, spinach, peaches, and citrus are ing air quality, reducing congestion, and highly perishable and prone to bruis- reducing our GHG emissions. The New Although the distance traveled is not ing, refrigerated trucks with heavy food York City Department of Transportation the only factor in the environmental packaging (which are typically faster, has begun some of this work, but the impact of food distribution, it is a more reliable, and better at protecting issue will require additional partners key area for improvement. Just as cargo) have remained the most popular locally and regionally. facilitating urban-rural linkages in means for long distance transport. the New York City region will help However, there is a national movement farmers and local businesses, it can to find an efficient, effective means for GOal 6 also help lower our energy costs and increasing rail transport, with companies reduce GHG emissions. However, like Railex, which guarantees five day Improve food distribution the extent to which these reduc- service from coast to coast, to compete in New York City through tions are achievable depends on with trucking companies.121 infrastructure enhance- the per unit impact of the type of ments, technological ad- transportation involved, the en- Improving food distribution in New York vances, alternative trans- ergy efficiency of the vehicles used, City is also an important quality of life portation, and integrated and the distance traveled. Some issue for residents. In many neighbor- planning. research has demonstrated that local hoods, like Hunts Point in the Bronx, distribution networks can be more children and adults suffer from high Our current distribution system energy efficient and have a lower rates of asthma, which is exacerbated relies greatly on food trucked long carbon footprint than national dis- by poor air quality. Additionally, resi- distances into the city. Nearly 30 tribution networks.123 However, no

FoodWorks • A Vision to Improve NYC’s Food System Distribution such targeted assessment has been conducted for our region. Hunts Point Peninsula

The distribution challenges faced within our city are tied to many outside factors, and fully addressing these issues will require us to partner with state and federal stakeholders and the business community. Regional planning is needed to consider optimal transportation routes, as well as infrastructure and warehousing needs. Additionally, addressing the most vital piece of our food system infrastructure, the Hunts Point Distribution Center, will require cross-sector and interagency collaboration. The City Council’s strategies for pursuing an improved food distribution system are: 1) creating a new vision for Hunts Point the Hunts Point Food Distribution Produce Market Center and 2) diversifying and improving food transport. STRaTeGY:

Expand on the current vision Source: NYC Economic Development Corporation for the Hunts Point Food Distri- 43 bution Center to maximize its the world’s largest food distribution Since the Hunts Point markets were potential. center.124 Its meat, fish, and produce originally built in the late 1960s, they markets house over 200 businesses have served the New York City and A significant amount of our food trav- that employ over 12,400 people.125 It regional market well. But as with els through a small number of large is the lynchpin of the New York City any older piece of infrastructure, distribution centers in the city – most distribution system that feeds 9 per- their age and limited capacity are significantly Hunts Point in the Bronx, cent of the U.S. population.126 showing. The produce market is 50 percent over capacity, causing businesses to use overflow storage in diesel trucks. These trucks run con- Hunts Point Food Distribution Center stantly, using fuel and releasing CO2 into the surrounding environment. Traffic congestion, aging infrastructure, and the capacity issues at the produce market have come at a cost to its competitive advantage. These problems, along with new competi- tion from large national businesses and the new produce market in Philadelphia, threaten the future growth of the market.

Like other terminal markets in major cities around the world, such as Rungis outside of Paris, the Hunts Point Market could be an integrated, forward-thinking generator of eco-

Source: NYC Economic Development Corporation

A Vision to Improve NYC’s Food System • FoodWorks Distribution

Source: NYC Economic Development Corporation

Produce Market Buildings and Parking lot

44 nomic activity. Because of capacity, to expanding one part of the facility at a part of the equation. The Hunts infrastructural, and governmental Hunts Point, the city should reassess Point produce market supplies fully 60 issues, Hunts Point will require an what more could be achieved through percent of the city’s produce.128 Yet expanded and coordinated vision an expanded vision for the entire com- it is well over capacity and in desper- and investment to maximize its po- plex. In addition to the development ate need of new space. The city must tential for the city and region. EDC of a permanent wholesale farmers invest in redeveloping this vital market published a Hunts Point Vision plan market discussed earlier in this report, not only to ensure a growing supply of in 2004 after a year-long task force.127 three key components should be fresh produce into the city but also to This task force considered issues fac- included and are outlined below. create new business activity for its ven- ing the Hunts Point peninsula, which dors. The estimated $320-350 million includes both the residential area and Proposals: redevelopment plan for the market the food distribution center. A series could increase capacity by as much as of short-term proposals emerged • Redevelop the Hunts Point Pro- 33 percent,129 eliminating the need for to address the tension between the duce Market. storage in large trailers that constantly different needs among residents and consume diesel fuel and impact air businesses. These included address- As public health research has dem- quality with heavy emissions. Working ing traffic safety, local land use issues onstrated, consumption of fruits and through the produce market co-op- between the residential and industrial vegetables is integral to maintaining erative, EDC, and other city, state and areas, and nearby residents’ need for health. Through the Health Bucks federal partners, the produce market employment opportunities. program, Food Retail Expansion to can be an example to other markets Support Health (FRESH) initiative, throughout the country and world. While a good effort to improve the Green Carts program, nutrition educa- relationship between local residents tion programs, and numerous other • Increase rail service through the and the distribution center, this plan efforts, city agencies and organizations Hunts Point Distribution Center. does not include a vision for capitaliz- have been working diligently to in- ing on Hunts Point to achieve citywide crease consumption of fresh produce. The vast majority of food transported health, economic, and environmental Ensuring New Yorkers have a stable through Hunts Point Produce Mar- goals. Rather than limiting their focus supply of fresh produce must also be ket – 97 percent – is transported by

FoodWorks • A Vision to Improve NYC’s Food System Distribution

truck.130 Traditionally, truck transport tion to post-consumption. This mapping their movements and re- has offered customers a faster way makes its issues complex, but also its searching distribution alternatives will of bringing fresh products across the promise immense. The Hunts Point be an important step in improving country than is possible via rail. How- Distribution Center could be a hub food transportation for the future. ever, trucks consume more energy for the City’s food system improve- per unit transported and contribute ments and a symbol of our citywide Proposal: to GHG emissions, road degradation, goals. As we consider things like and traffic congestion. Because of reducing citywide congestion and • Identify optimal distribution these reasons, the city should pursue our carbon footprint, expanding routes and modes for food distri- a policy of increasing rail usage for food processing and food jobs, ad- bution within the region and city. food distribution. Although rail is dressing food deserts and obesity, not likely to replace most truck trips creating better urban-rural linkages Food businesses in the city and into the city in the near future, even and reducing our solid waste stream, region face several distribution limited increases in rail service could Hunts Point should be part of these challenges – traffic congestion, lack have meaningful impacts. Whereas conversations. A strategic plan for of loading zones, frequent citations nearly 10 percent of food is transport- Hunts Point should include explora- and fines, and an aging Hunts Point ed to the Rungis market in France by tion of ways to get more regional market. Residents also feel the im- rail,131 only approximately 3 percent product into our markets, diversify pact of these distribution challenges, arrives at the Hunts Point Produce our food transport, get fresh and but through problems like poor air Market by rail.132 Increasing rail ser- healthy foods into bodegas and gro- quality, traffic congestion, higher vice through Hunts Point to 6 percent cery stores, and support more local food prices, and degraded infra- would eliminate 58 million truck miles jobs. The City Council calls on the structure. The city should work with every year.133 This is the equivalent Mayor’s Office and EDC to incorpo- its state, federal, community, and of a single truck making 2,412 trips rate these goals into their plans for business partners to identify specific around the globe. Eliminating those Hunts Point and to explore ways targets for improving food transport trucks would prevent 76,000 tons of in which Hunts Point can be used throughout the region and within 134 CO2 being emitted each year. Just to support our long-term efforts to the city and develop key changes to to counter that CO2 contribution, the improve environmental, health, and ensure that we reach them. Bringing 45 city would have to plant 29,000 acres economic outcomes across the city. increased rail access into Hunts Point of trees, or an area roughly 30 times is one such change, but even with the size of Central Park.135 As a first STRaTeGY: new infrastructure in place it must step toward increasing rail usage, Diversify and improve still be made cost-effective for busi- the city will ensure that the plans food transport. nesses. By mapping key parts of the to redevelop the produce market food distribution system in the city include new rail terminals that allow Although Hunts Point is the lynchpin and getting community and business for increased usage in the future. of the city’s distribution system, it is owners’ input, the city can begin to To this end, the city is pursuing by no means the only place where make critical investments and policy federal transportation grants to help distribution of food can be improved. changes to reduce congestion, fund these improvements. Addition- Fully 30 percent of truck traffic com- diversify transportation modes, ally, achieving a long-term increase in ing over the George Washington and improve environmental and rail service will require increased Bridge is due to food transport,136 community impacts of the distribu- turnover of rail boxcars and increased and not all of these truck trips end up tion system. usage of rail over truck shipments at Hunts Point. Many larger retailers by wholesalers. and food service suppliers, like Sysco and Sodexo, have warehouses out- • Transform the Hunts Point side of the city and move their goods Distribution Center into a hub for through their own delivery systems. citywide food system improvement Each day, hundreds of trucks from all strategies. over the country and region travel Photo Credit: Russell Sekeet into New York City to make deliveries Hunts Point is one of the only exam- to restaurants, bodegas, supermar- ples in our food system infrastructure kets, colleges, hotels, and other food that cuts across all sectors—private, outlets. Given the contribution of public, and not-for-profit—and all these trucks to congestion, energy food system phases, from produc- consumption, and GHG emissions,

A Vision to Improve NYC’s Food System • FoodWorks

Consumption

Consumption is the phase of the food system that defines what and where New Yorkers eat and has an impact on the health outcomes associated with those choices. Our “food environment” where we live and work has a large impact on what we consume. Addition- ally, the affordability of food greatly impacts our choices. Over one million New Yorkers are food insecure, meaning they rely, at least in part, on government assistance for their food. The city also provides nearly one million institutional meals every day, in schools, senior centers, and other locations. There is also a growing trend toward consumption of meals at restaurants and take-out establishments. Currently, about half of our food is consumed away from home. Consumption

CONSUMPTION born of broad national factors, but more over this period than the price through targeted, local action, some of soft drinks.140 In general, the The past several decades have seen progress toward better consumption cost per calorie for healthier foods two troubling, but resolvable food patterns can be made. is higher than for unhealthy foods. system issues related to consump- For example, the price per calorie tion: increasing obesity and persis- Over the past 20 years, obesity in of zucchini and lettuce is 100 times tent food insecurity. Seemingly dis- New York City has doubled.137 The greater than the price per calorie of cordant problems, these two major trend among children and young sugar or butter.141 health problems are rooted in the adults is particularly troubling, with same food system issues: access to 25 percent of Head Start children This price disparity in our food fresh, healthy, and affordable food. and 28 percent of high school stu- system encourages consumption of For many New Yorkers, access is dents either overweight or obese.138 foods that are high in calories and limited by financial, geographic, and This rise in obesity can be traced to low in nutrients, contributing to the knowledge barriers. These issues changes in our food environment prevalence of diet-related disease. are evidenced in many neighbor- and consumption habits. New York- Consequently, families with smaller hoods across the city by an un- ers are consuming more calories budgets will use their food dollars healthy food environment, low con- each day than we did a generation to buy lower quality foods because sumption of fruits and vegetables, ago, largely because it has become they seem, at least in the short run, higher consumption of unhealthy easier and cheaper to consume more cost effective. Compounding foods, food insecurity, and pressure higher calorie and unhealthy foods. this issue of price disparity is the on public nutrition assistance pro- From 1980 to 2000, the price of relatively unhealthy balance of food grams. The poor health outcomes healthier foods has increased much outlets in neighborhoods across that result are not just costly to indi- more than the price of unhealthy the five boroughs. In some neigh- viduals and their families, but to all foods.139 The price of fruits and borhoods, there is a serious lack of New Yorkers. These issues are partly vegetables increased nearly six times grocery stores offering fresh, healthy

50 Adult Obesity in New York City

Obesity Rate by Neighborhood 2008 Bronx 0% - 11.1% 11.2% - 21.3% 21.4% - 25.7% Manhattan 25.8% - 32.1% 32.2% - 44.2% Queens

Brooklyn

Staten Island

Source: NYC Dept. of Health and Mental Hygiene. Community Health Survey 2008

FoodWorks • A Vision to Improve NYC’s Food System Consumption

CONSUMPTION • Increase federal benefit amounts to reflect higher costs of living. GOAl 7: Create a healthier food environment. • End finger imaging for SNAP applicants. • Continue SNAP outreach through agency data STRATeGY: Expand fresh food retail in under- matches and grocery stores. served areas of the city. • Improve the WIC program. • Enact federal legislative changes to the WIC program. Proposals: • Help WIC vendors by translating the vendor book • Aggressively market the FRESH Program. into multiple languages. • Support efforts to expand food co-operatives. • Improve bodega infrastructure. • Mandate breakfast in the classroom for • Improve the Green Cart program by expanding high-need schools. the electronic benefits transfer (EBT) service. • Improve the summer meal program. • Establish a process to make sure summer meal STRATeGY: Better support food outlets that sites are identified earlier and outreach has provide fresh and healthy foods. begun in advance of summer recess. • Identify and expand on high-utilization sites. Proposals: • Produce a list of nearby summer meal sites for • Pilot a food retail workforce development program. parents receiving SNAP or TANF with children. • Create neighborhood healthy food guides. GOAl 9: Improve the nutrition of STRATeGY: Discourage unhealthy food institutional meals. consumption. STRATeGY: Expand the capacity of city Proposal: agencies to cook whole foods for • Discourage consumption of fast food. nutritious meals. 51 GOAl 8: Strengthen the safety net of hunger Proposals: and nutrition programs. • Agency kitchen capital investment and staff training. STRATeGY: Improve federal food programs • Expand salad bars in schools. and remove local barriers to enrollment. GOAl 10: Increase quantity and quality Proposals: of opportunities for food, nutrition and • Strengthen the federal Child Nutrition Act to cooking knowledge. improve school meals. • Improve the Supplemental Nutrition Assistance Proposal: Program (SNAP). • Maximize SNAP-Education funding.

food, but bodegas and fast food es- Food insecurity, or this absence of behavioral disturbances.143 This in tablishments are in abundant supply. resources to purchase food, impacts turn causes more frequent absences This type of environment greatly af- 1.62 times more households with from school and an inability to fects New Yorkers’ food choices and children than households without concentrate, which impacts educa- encourages poor health outcomes. children.142 Food insecurity is the tional performance.144 However, the first domino in a line of other health problem is not isolated to individual For over one million New Yorkers, and economic problems. Pregnant children or families. It affects our what they eat has less to do with women without adequate nutri- entire city as hindered learning what type of food is available than tion are more likely to have babies becomes hindered productivity and what financial resources they have with low birth weight and develop- as chronic health problems among to buy food. Not only do they mental delays. Children who lack some residents cause higher health struggle to afford healthy food, but adequate food are more prone to care costs for everyone. In short, they are unable to buy enough food health problems from frequent colds these health issues are shared by for themselves and their families. and anemia, to developmental and everyone and are not sustainable.

A Vision to Improve NYC’s Food System • FoodWorks Consumption

Although consumption patterns greatly affect the health outcomes Ratio of Total Food Bought Outside of the Home we observe in New York City, ad- to Food eaten at Home 1954 – 2009 dressing them also offers economic opportunities. By promoting usage of government assistance programs, local businesses reap the benefits of increased spending on food. Ad- ditionally, unmet demand for fresh food in many neighborhoods is an opportunity to expand retail busi- Ratio ness and create hundreds of new jobs. The goals below describe our plan to create a healthier food environment, make healthy food more affordable and accessible to all New Yorkers, and combat food insecurity while also stimulating the economy through demand for good food.

Source: USDA. ERS. Food CPI and Expenditures. Food at Home and Food Away from Home. 1954-2009

GOAl 7 While many New Yorkers may not be better weight and health outcomes. able to transition entirely to home- To achieve our goal of creating a Create a healthier cooked meals, having the knowl- healthier food environment, the food environment. edge to make healthier choices is an City Council will pursue three strat- important step toward combating egies: 1) expanding fresh food re- Over the past two generations, obesity and diet-related disease. tail, 2) supporting existing healthy 52 Americans have experienced dra- food outlets, and 3) discouraging matic changes in our food environ- Unfortunately for many New Yorkers, unhealthy food consumption. ment. These changes have affected their food environment does not sup- our relationship with food and our port consumption of nutritious foods STRATeGY: health outcomes. Compounding or healthy outcomes. Approximately Expand fresh food retail in the price disparity between healthy 3 million people across the city do underserved areas of the city. and unhealthy foods is the fact that not have adequate access to fresh we are now cooking fewer meals at food retail.148 This severe shortage is While millions of New Yorkers are home, relying on food service es- exemplified in residents’ low con- without easy access to a grocery store, tablishments for more of our meals. sumption of fresh fruits and veg- nearly all New Yorkers live near an Both our caloric intake away from etables. In several neighborhoods unhealthy food outlet.150 As a result, home and the amount of money – South Bronx, Pelham/Throggs many of us do not consume adequate we spend on food away from home Neck, East New York, Jamaica – 20 to fruits and vegetables, are obese or have dramatically increased over 25 percent of people report eating overweight, and suffer from costly the past 30 years. In the 1970s, New no fruits or vegetables in a given day diet-related diseases. Additionally, Yorkers spent 27.8 percent of their even though recommended intake New York City is losing as much as $1 food budget away from home and is 5 to 7 servings.149 Not surprisingly, billion in grocery store sales each year consumed 18 percent of their calo- in these same neighborhoods we to surrounding suburban areas due ries outside the home.145 By 2003, also see a shortage of grocery stores to a lack of stores in many neighbor- 45.6 percent of our food budget and a higher prevalence of diet- hoods.151 The City could gain as many purchased meals away from home related diseases. Through programs as 100 new grocery stores to fulfill this and in 2008, 35 percent of our calo- to support local food businesses need.152 With each new grocery store ries were consumed eating out.146 like supermarkets, bodegas, food employee contributing $2,800 to the Although eating out does not neces- co-operatives, and Green Carts, the city’s tax base, the economic impact sarily mean healthy choices are not city can restore a healthier balance of of additional grocery stores is consid- available, restaurant and take-out options in neighborhoods. In doing erable.153 Through the Food Retail meals tend to be higher in calories so, New Yorkers will enjoy increased Expansion to Support Health (FRESH) than meals we prepare at home.147 availability of fresh foods to support program, the city is now directing

FoodWorks • A Vision to Improve NYC’s Food System Consumption

"Food Deserts" in New York City

Supermaket Need Index

high med low

Source: NYC Dept. of City Planning 53 financial and zoning incentives to the food retail industry to begin meeting this need. Given the size of the NYCNYC Fresh Fresh Food Food Retail Retail Programs Programs demand, the city should pursue other Bronx programs to increase fresh food venues in underserved neighborhoods.

Manhattan Additionally, New York State is now FRESH Zoning Boundaries providing healthy food retail financing, Green Cart Zones which could be utilized within the city. Queens Proposals:

• Aggressively market the FRESH Program. Brooklyn Staten Island In 2007, the City Council partnered with the Food Trust in Philadelphia Source: NYC Dept. of City Planning to identify “food deserts,” or areas with a severe shortage of fresh food access. This work launched a broader effort in partnership with the for eliminating them. The result businesses that expand or create Bloomberg Administration to form was FRESH, the first program of its new grocery stores in targeted areas. a Supermarket Commission whose kind in the country. This program, The FRESH zones currently cover goal was not only to identify food launched last year, provides financial three areas in the city identified as deserts, but also develop strategies benefits and zoning incentives to the highest need based on health

A Vision to Improve NYC’s Food System • FoodWorks Consumption

outcomes and grocery store shortages: Jamaica, Central Brooklyn, and South Bronx/ Upper Manhattan. To date, three grocery stores have utilized the program, adding 63,000 square feet of additional grocery store space, providing 93 new jobs and retaining 90 existing jobs.154 The City Council will continue to market FRESH to potential supermarkets to help them identify financial resources Photo Credit: William Alatriste and assistance with energy efficiency programs that will encourage expansion into these underserved neighborhoods.

• Support efforts to expand food co-operatives. for members. However, only members products. The result is an over- Although grocery stores and large who maintain this level of service may reliance on nutritionally poor, calorie supermarkets provide a considerable shop there. dense convenience foods. The New amount of food to consumers, other York City Department of Health and models of retail are available. One of While this particular model of a food Mental Hygiene (DOHMH) has been these, food co-operatives, has been co-operative may not be desirable offering valuable assistance to these gaining public support in several for all communities, there are nearly bodegas to help them carry fresh, areas of the city. The longest run- a dozen neighborhoods around the healthier options. This has included ning and perhaps most famous food city with residents who are seeking help with sourcing fresh foods, stor- 54 co-operative in the city is the Park assistance to begin their own co-oper- ing them, and merchandising them Slope Food Co-op in Brooklyn. This atives. As has been seen in the South to appeal to customers. Addition- co-operative has been in existence Bronx and East New York, starting and ally, through this program, bodegas since 1973 and now boasts over 12,000 maintaining a food co-operative can have been able to obtain permits members.155 By the Park Slope Food be extremely difficult. They face chal- to place produce stands outside Co-op’s model, members must work lenges in maintaining strong member- their stores. at the store 2 hours and 45 minutes ship, finding space, and managing the every four weeks.156 Relying at least in flow of products. However, when they Despite this helpful program, many part on member labor has allowed the do succeed, they provide an important bodega owners face structural Park Slope Food Co-op to keep their asset to their communities. The City challenges that prevent them from prices at a 20 to 40 percent discount Council will therefore be partnering sourcing and stocking fresh food. with organizations and communities These include distribution challenges across the five boroughs to assess the and a lack of shelving, refrigeration, feasibility of expanding co-ops, build- air conditioning, and awnings, all of ing community capacity, and launching which help extend the shelf life of new co-operatives. fresh products. Bodegas are, by their nature, small independent business- • Improve bodega infrastructure. es, which makes the upfront investment in these kinds of infrastructure In neighborhoods that lack grocery out of reach. To assist these small stores, consumers turn to other business owners carry fresh products, available outlets such as bodegas. the City Council will explore ways to While bodegas offer a convenient provide infrastructural support. Ad- option for nearby residents, they ditionally, by working with wholesale do not frequently offer the types of farmers, regional products can find fresh foods that support a healthy a new retail outlet in these bodegas. diet. Instead, they generally special- Not only will this kind of investment ize in processed, shelf-stable food and collaboration improve the food Photo Credit: WallyG

FoodWorks • A Vision to Improve NYC’s Food System Consumption

environment for consumers, it will have been identified. Specifically, children how to grow vegetables. assist small business owners and the the Green Carts offer an excellent Together, they serve as a positive regional farming economy. opportunity to expand utilization influence on the city’s food landscape of SNAP benefits in their neighbor- and help make our food environment • Improve the Green Cart pro- hoods. Currently, some Green Carts more supportive of healthy, sustainable gram by expanding the electronic are piloting EBT. Similar to the farm- outcomes. However, given the sheer benefits transfer (EBT) service. ers’ market program, increased rev- size and density of the city, residents enue for the vendors and purchases oftentimes don’t know what lies in their In 2007, the City Council passed leg- of fresh produce by Supplemental own backyard. These outlets must be islation creating a new street vendor Nutrition Assistance Program (SNAP) supported as assets in communities program, the Green Cart Program. recipients is expected. Once this and marketed to residents. The program established a new pilot has concluded, the city should license for vendor carts to sell fresh identify ways to successfully support Proposals: produce in designated areas of the EBT on Green Carts citywide. city, identified as having a shortage • Pilot a food retail workforce of fresh food access and high levels STRATeGY: development program. of diet-related disease. To date, Better support food outlets that there are over 400 active Green Cart provide fresh and healthy foods. Over 47,000 people work in the food licenses citywide. Not only does retail sector today.157 There was a the program help create a healthier In addition to expanding fresh food time in New York City history, before food environment in these neigh- retail in underserved areas, we must the evolution of the modern super- borhoods, but it has also created support existing stores and other market, when food retail workers hundreds of jobs for independent venues that provide healthy food. were full-time employees who could retailers. Many of these retailers are These can include existing grocery support a family on their income. immigrant New Yorkers who have stores, co-operatives, farmers mar- While this remains true for some food been able to launch their own small kets, community supported agricul- retail workers, most are part-time and enterprises. ture (CSA) drop-offs, pantries, senior temporary workers, and the industry centers, and many other types of food is characterized by high turnover. For 55 The Green Cart Program has been outlets. These outlets may prepare, store owners, training a revolving growing over the past several years sell, or donate food; or they may help workforce can be a financial burden. and, as with any new initiative, sev- families enroll in public programs, learn For workers, there is reduced incen- eral opportunities for improvement about healthy cooking, or even teach tive to invest themselves in their work. Providing training to underemployed and unemployed people to create a pipeline into the industry and a career path for workers can begin to address some of these issues.

The City Council is partnering with the Hope Program to pilot a new food retail training program called GroceryWorks. The program is being designed with the input of the food retail industry, labor unions, and other experts to ensure that high quality training is provided and that program graduates will be placed in good jobs. In its first year, the program will train 100 unemployed people.158 The initial investment of $2,400 in the training and job placement of a former welfare recipient through this program will save taxpayers $6,290 in the first year alone.159 The training will focus on Photo Credit: Karp Resources

A Vision to Improve NYC’s Food System • FoodWorks Consumption

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can be difficult. Disparate organiza- Restaurants Food of Out Home Meal Purchases at Fast Percent tions and city agencies gather and 1929 1948 1958 1967 1977 1983 1985 1987 1989 1991 1993 1995 1997 1999 2001 2003 2005 2007 2009 report on various components of the food landscape, but there is no Source: USDA. ERS. Food CPI and Expenditures. Food Away from Home. 1929-2009 centralized system to collect, analyze, and publicize all of this information. unhealthy food outlets compared Proposal: to healthy food outlets. Just as the The City University of New York rise in obesity has occurred over the • Discourage consumption (CUNY) has for several years man- past several decades, the changing of fast food. aged a database of city information, balance in our food environment collected into an online map. This has been a slow, steady progres- There are over 24,000 food service es- 160 56 includes transportation, zoning, and sion. Reversing these trends and tablishments in New York City, ranging other key data. However, significant establishing a healthier balance of from Italian restaurants on Arthur Avenue opportunity exists to utilize this infor- food options for New Yorkers will in the Bronx to Sri Lankan restaurants on mation to map neighborhoods’ food therefore require a long-term policy Staten Island’s North Shore. The diversity environments. A food map could response. New York City has already of food options is unmatched by any draw on information from all of our become a national leader on public other city in the U.S. The sheer number community gardeners, urban farms, health policies to reduce unhealthy of choices and the convenience of having farmers markets, and CSAs. Addi- food consumption. These have food anytime, anywhere, is part of the tionally, it could also collect informa- included nutritional standards for fabric of New York City life. However, in tion on SNAP enrollment offices, public meal programs and vending the midst of this vibrant restaurant scene emergency feeding programs, and machines on city property, calorie there are real and widespread faults. supermarkets. From this expanded labeling on chain restaurant menus, set of information, community boards and a ban on trans fat in food ser- Over the last three decades, there has and community organizations could vice establishments. Additionally, been a staggering rise in the prevalence assess their neighborhood food the DOHMH has launched aggres- of fast food establishments.161 In 1970, environments to advocate for key sive campaigns against soft drink Americans spent about $6 billion on fast changes. As a result, neighborhood and salt consumption. Together, food.162 In 2000 they spent more than food guides could be produced and these policies are a compelling $110 billion.163 While they offer consum- distributed to help market healthy effort to encourage healthier eat- ers convenient and relatively inexpensive food outlets to residents. ing habits. However, they do not meals, there is also a high long-term address the very real problem of cost. As New Yorkers eat more meals STRATeGY: what choices New Yorkers face in outside of the home, our overall caloric Discourage unhealthy their neighborhoods every day. Not intake has increased.164 The pervasive- food consumption. only will restoring a healthy food ness of fast food establishments and the environment require encouraging consumption of fast food, in particular, The food environment observed in good options, but it will also require have been associated with higher many neighborhoods is character- addressing the overabundance of incidence of obesity, weight gain, and ized by a higher concentration of unhealthy food options. increased waist circumference.165

FoodWorks • A Vision to Improve NYC’s Food System Consumption

Large chain fast food establishments became critical for thousands more However, for many individuals and have particularly troubling effects. New Yorkers in the most recent families, these benefits do not run They market their foods directly to recession, as unemployment peaked deep enough to last a whole month children through the use of toys, mas- near 10 percent. The reach and or to pull them out of food insecu- cots, and advertising during youth quality of these programs has had a rity. Additionally, our local public television programming, and cluster widespread impact on New York- meal programs struggle to improve their establishments near schools.166 ers’ ability to maintain a good diet their food quality and extend their The effects of these business prac- and improve their health outcomes. reach because reimbursement rates tices are now seen in the high rates Currently, 1.75 million New Yorkers for individual meals do not take into of children who are overweight receive SNAP benefits each month, account the high cost of service and obese.167 Specifically, children a program administered by the city’s delivery in New York. The proposals who attend schools within walking Human Resources Administration below will be a key step in address- distance of fast food establishments (HRA).173 Yet barriers to enrollment ing food insecurity through en- have significantly higher weight and prevent many more eligible people hanced benefits for individuals and body mass index.168 The combination from using these benefits. Addition- improved meal programs provided of targeted marketing, proximity, and ally, the federal Special Supplemen- by institutions. low price have proven attractive to tal Nutrition Program for Women, In- the youth market, who now have an fants and Children (WIC) is a proven Despite the breadth of our public obesity rate of 40 percent.169 means to reducing food insecurity safety net, many New Yorkers still do and improving the health outcomes not take advantage of the benefits for Other cities have attempted to of children. which they are eligible. As might be limit fast food establishments expected, the fewer barriers to enroll- with various policies. Los Angeles Many children and adults also re- ment in public nutrition programs, placed a moratorium on all new fast ceive meals from schools and other the higher the enrollment of eligible food establishments in part of the institutions, but utilization of some of consumers.176 All New Yorkers juggle city.170 San Francisco recently voted these programs could be improved. multiple, competing responsibilities. to prevent toys from being given Lastly, approximately 1.3 million New For low-income New Yorkers, the task 171 out with unhealthy menu items. Yorkers, many of them children and of meeting all of these obligations 57 London is pursuing land use poli- seniors, rely on emergency food can be overwhelming as they balance cies to limit fast food establishments programs.174 While these non-profit child care, employment, and appoint- near schools.172 The City Council organizations provide a much-need- ments to receive benefits. In fact, will review best practices nationally ed service to hungry New Yorkers, most people on SNAP work at least and internationally to discourage the they themselves often struggle to part-time and have children. For consumption of fast food, and create acquire the healthy food that hungry them, having the time to learn about more opportunities for healthy food families need. Many of them run out and apply for public benefits can service in neighborhoods around the of food before adequately meeting be a difficult task under our current city. By identifying effective strate- demand.175 Strengthening this safety system. There are several key im- gies to restore a healthier food en- net of programs is therefore vital provements that can be made to the vironment in all neighborhoods, we to improving food consumption in administration of benefits programs hope to reverse some of the trend New York and the quality of life for to remove barriers to enrollment and toward obesity and higher rates of over a million residents. To improve improve food security. diet-related disease. these programs, the City Council will pursue a strategy of improving Despite the critical role of state and federal food programs and remov- federal policies in addressing hun- GOAl 8 ing local barriers to enrollment. ger, there are also multiple things the city can do to improve utilization Strengthen the safety STRATeGY: of the programs and benefits avail- net of hunger and Improve federal food programs able now. We must remove barriers nutrition programs. and remove local barriers to to enrollment, better coordinate enrollment. the programs we have, and aggres- New York City provides a safety sively market our programs to needy net of various food and nutrition The combination of federal, state, New Yorkers. Drawing down these programs for New Yorkers who lack and local food and nutrition pro- additional federal benefits will not the financial resources to purchase grams provides a broad safety only help us address food insecurity enough food. This safety net net for food insecure residents. in our city, it will provide a critical

A Vision to Improve NYC’s Food System • FoodWorks Consumption

during the recession, Congress made some changes to funding NYC School Food by the Numbers levels through the American Recov- NYC SCHOOLFOOD BY THE NUMBERS ery and Reinvestment Act. These included an increase in the amount School Food Budget $143,533,088 of SNAP benefits people can receive Students 1,000,000 and federal funding for emergency Meals Served Daily 860,000 feeding programs. As a result, many Schools 1,500 emergency feeding programs were Salad Bars 586 better able to meet demand.178 The Students Eligible for Free & Reduced Price Lunch 75% City Council will continue to advocate for increased federal funding Source: Budget of the City of New York and NYC Dept. of Education Source: Hunter College. School of Public Health. Projects for Health Public forPolicies these at programs the to ensure that we have the resources to adequately City University of New York Ò Recipes for Health: Improving School Food in New York combat hunger in neighborhoods City.Ó August, 2010 economic stimulus as we increase partner organizations will continue across the five boroughs. the purchasing power of consumers to advocate for a stronger Child without increasing local costs. Nutrition Act now and for the future 2) End finger imaging for SNAP and to make sure food and nutrition applicants. Proposals: benefits for low income New Yorkers are not reduced in one program to New York City is one of only four • Strengthen the federal serve another. jurisdictions in the country that re- Child Nutrition Act to improve quires finger imaging of SNAP appli- school meals. • Improve the Supplemental Nu- cants. In total, almost 100,000 New trition Assistance Program (SNAP). Yorkers were required to provide The Child Nutrition Act governs finger prints over the past year solely many of our public food programs, 1) Increase federal benefit in order to receive SNAP benefits for 179 58 including school lunches, school amounts to reflect higher costs of them and their families. Propo- breakfast, summer meals for chil- living. nents of this policy argue it saves dren, the child and adult care feed- the city valuable resources because ing program, and the WIC program. Federal legislation also governs it reduces fraud in the system. Yet This legislation was originally passed SNAP income eligibility standards no compelling evidence of this has over 40 years ago and is updated and provides funding for the ben- been demonstrated to date. On approximately every five years. It efits people use to purchase grocer- the contrary, evidence exists that determines how much federal fund- ies. However, states and cities are the policy costs the city greatly and ing New York City agencies receive left with the task and cost of admin- deters eligible, food insecure, New for the meals they serve, the nutri- istering this program. Unfortunately Yorkers from receiving the federally- tional standards for those meals, and for New York City, the way in which funded benefits they need.180 who is eligible to receive them. The eligibility is determined and the Council and a local coalition of or- amount of benefits offered to fami- In 2006, the Mayor’s Commission on ganizations have advocated for key lies is not sufficient for an adequate, Economic Opportunity estimated as changes to this law to improve the healthy diet. In New York City, over many as 28 percent of eligible New programs’ impact. These changes 27 percent of children live below the Yorkers were not enrolled in SNAP.181 include higher reimbursement rates federally-defined poverty line, much Using our current enrollment182 as a to allow city agencies to improve higher than the national rate.177 Ad- baseline, nearly 500,000 New Yorkers the quality of foods served and ditionally, the cost of living in New are eligible but not enrolled in SNAP. streamlined eligibility determination York City is higher than the national This is in alignment with other and enrollment to help more New average, but SNAP benefits do citywide estimates that range from Yorkers get the meals they need. not reflect these costs. Our soup 500,000 to almost 800,000 people.183 Although some of these changes kitchens and food pantries often see According to some research, finger are likely to be incorporated into a surge in demand at the end of the imaging has a direct deterrent effect the new legislation this year, paying month as families see their SNAP on recipients, which indicates as for them might come at the cost of benefits dwindling. In recognition many as 29,500 New Yorkers likely other vital programs, such as SNAP- of this problem and the increased do not receive SNAP because of the education. The City Council and our pressure on our safety net programs finger imaging requirement.184

FoodWorks • A Vision to Improve NYC’s Food System Consumption

The potential benefits of this policy benefits. Because these benefits are ties is also needed. Only with this have not been demonstrated and do spent in scores of local businesses approach can we reach people with not support its persistence. Finger and markets, there is also an indirect limited English proficiency or those imaging only captures one type of po- economic loss as a result of this policy. who have no experience with public tential fraud—the attempt by some- Additionally, as these New Yorkers are programs. The City Council is there- one to open more than one benefit not able to afford fresh food, they rely fore partnering with grocery stores case. Officials on both the state and on our emergency feeding programs around the city to conduct outreach federal levels have testified that finger that already struggle to meet demand. to more New Yorkers who may be imaging does not increase program- For all these reasons the policy should eligible for WIC and SNAP. matic integrity or reduce fraud.185 be immediately eliminated. Even by HRA’s own estimates, there • Improve the WIC program. have been relatively few duplicate 3) Continue SNAP outreach cases, only 0.35 percent of cases in through agency data matches and 1) Enact federal legislative 2008 of all 278,225 new cases were du- grocery stores. changes to the WIC program. plicates.186 Moreover, whether these cases were due to agency adminis- Even if the city eliminates the finger The WIC program was created trative error is unclear. To date, no imaging requirement for receiving nearly 30 years ago with the goal of penalties have been pursued for any SNAP benefits, there are thou- improving the health of low income of these cases and other methods for sands of New Yorkers who may not pregnant women, new mothers, in- identifying duplicate cases have not even know they are eligible or why fants, and children up to age five.192 been attempted. Additionally, officials they should apply. WIC is an even Through the program, women both in New York State and the USDA smaller program in the city, but one receive vouchers for formula and have recognized that finger imaging that has been shown to measurably certain types of food for themselves deters eligible low income people improve the health and well-being and their children. They also receive from receiving SNAP benefits.187 of mothers and their children. To nutrition counseling. Evaluation support these programs and health- of the program has demonstrated The direct and indirect costs of the ier outcomes, the city must continue lower Medicaid costs for recipients, policy are considerable and support its to improve its outreach efforts. longer gestation periods, higher 59 elimination. Direct costs include finger birth weights, and reduced infant imaging machinery and staff time to One recently successful project mortality.193 Forty five percent of handle in-person appointments by targeted outreach to people en- infants born in the United States applicants. New York State eliminated rolled in Medicaid, but not in SNAP. receive WIC assistance.194 The the finger imaging requirement for Because the program requirements program is therefore a key strategy SNAP applicants, but provided an are similar, those who are enrolled for addressing food insecurity and exception to New York City to con- in Medicaid are also likely eligible to related health issues among low- tinue the policy. This exception was receive SNAP. However, the data- income women and their children. provided on the condition that the city bases that organize the caseloads would provide additional locations and for these two programs are sepa- Despite the program’s clear ben- hours for SNAP applicants to reduce rately administered. By matching efits, it does not have the depth of the burden on applicants. These the two databases, HRA was able to impact for all needy mothers and additional hours and locations also identify approximately 650,000 New children because of federal recer- have an associated direct cost to the Yorkers enrolled in Medicaid but not tification requirements. Currently, city, although they have not yet been in SNAP.190 Identifying these New children must be recertified every consistently or publicly quantified. To Yorkers and targeting outreach to six months, which requires a doctor’s date, estimates of these direct costs them resulted in 51,000 new SNAP examination. The City Council has by HRA have ranged from $150,000 to beneficiaries.191 This type of com- and will continue to advocate for over $900,000 annually.188 mon sense approach to administer- a federal change to extend this re- ing benefit programs and conduct- certification period from six months There are also large costs to the city ing outreach to eligible New Yorkers to one year. Doing so will remove due to this policy. Each of these should become a routine practice. a significant burden on low-income estimated 29,500 low income people mothers. would receive an average federal ben- Even though targeted outreach efit of $153.59 monthly, or $1,843 annu- has proven successful in improving 2) Help WIC vendors by translat- ally.189 The city is therefore losing $54.4 utilization of government programs, ing the vendor book into multiple million each year in foregone federal broad-based outreach in communi- languages.

A Vision to Improve NYC’s Food System • FoodWorks Consumption

Not only does WIC help mothers and Unfortunately, many vendors and po- day. Citywide, approximately 75 their children, it also provides a benefit tential vendors in New York City still percent of public school children are to local food retailers by establishing are not fully able to take advantage eligible for free and reduced price a customer base and revenue stream. of this handbook because, to date, lunch under federal definitions.196 In New York City, there are more than it has only been provided in English. 2,000 businesses who accept WIC At the urging of the New York City Breakfast in schools is not nearly as vouchers for food purchases.195 To Council, the NYSDOH has com- well utilized as the lunch program, become a WIC vendor, a local busi- mitted to translating this book into despite its clear benefits to chil- ness must meet very specific stock- multiple languages and to revising dren. Participation in the school ing requirements of WIC program- its website for vendors to be more breakfast program in New York City approved foods. Local retailers who accessible. Not only will this ensure is extremely low when compared to are approved WIC vendors are subject a supply of WIC vendors for women other cities. Only approximately 29 to inspections and, if they are found in communities citywide, it will help percent of children eligible for free in violation of the program rules, they our local stores take advantage of and reduced price lunch receive could be issued fines. another resource to support their breakfast.197 Right across the Hud- business. son in Newark, New Jersey, almost Ensuring vendors are in adequate 94 percent of students participate.198 supply in New York City is necessary • Mandate breakfast in the In fact, New York City ranked second to the success of the WIC program. classroom for high-need schools. to last in a survey of urban school They must be readily accessible to districts’ school breakfast participa- women who need to redeem their The New York City Department of tion.199 Children receiving school vouchers for food and formula. Education (DOE) administers two breakfast perform better throughout The New York State Department of key programs that provide food to the day, are able to maintain their Health (NYSDOH) publishes a hand- children: summer meals and school attention, and have fewer disciplin- book to assist vendors in meeting all breakfast. During the school year, ary issues.200 Moreover, schools program requirements. the DOE serves 860,000 meals each providing breakfast have reported

School Breakfast Participation Rates 2009 Ratio of Students Receiving Breakfast to Students Eligible for Free or Reduced Price Lunch Ratio of Students Receiving Breakfast to Eligible for Free

Source: Food Research and Action Center. “School Breakfast in America’s Big Cities.” December 2009

FoodWorks • A Vision to Improve NYC’s Food System Consumption fewer issues with attendance.201 While it is likely not feasible to reach 3) Produce a list of nearby sum- Breakfast for students lives up to its all of these children during the mer meal sites for parents receiv- reputation as the most important summer, improvements to the sum- ing SNAP or TANF with children. meal of the day. mer meal program can be made to increase participation. The DOE has While utilization of free and reduced Currently, the DOE does not require advertised the program on subways price lunch during the school year is school principals or teachers to serve and bus stops and has partnered relatively high, summer meals repre- breakfast in the classroom to students. with the City Council to conduct sent only approximately 19 percent Unlike school lunch, breakfast is served outreach to increase participation. of the number of meals students at the discretion of the principals, Yet there are several additional receive during the year.206 This begs regardless of student need. For many steps that can be taken to reach the question of where these chil- students, the city will not bear the more students. dren are eating during the summer cost of providing breakfast because months and whether they are ad- it is funded through the federal Child 1) Establish a process to make equately receiving the nourishment Nutrition Act. The cost of breakfast sure summer meal sites are identi- they need. Because most of these for lower-income students, those who fied earlier and outreach has be- children are in households that are need meal assistance the most, is reim- gun in advance of summer recess. eligible for SNAP or Temporary As- bursed at a set rate. The DOE should sistance for Needy Families (TANF), therefore take full advantage of this One barrier to adequately publiciz- the city should target outreach to program and mandate breakfast in the ing summer meal sites each year these parents so they are aware of classroom in schools that have a high is the late publication of the site the program and where they can portion of low-income students. addresses by the DOE. Although bring their children to receive Council Members, the DOE, and summer meals. • Improve the summer meal community organizations have program. consistently conducted outreach in past years to attract more par- GOAl 9 Similar to school breakfast, the ticipants, it has been underminded city’s summer meal program for because the list of sites is typically Improve the nutrition of 61 students is underutilized. Summer not available until June. The DOE institutional meals. meal programs are more difficult should establish a protocol for to administer than school lunches identifying these sites earlier, includ- In an effort to reduce obesity and because many students are not at- ing those that are collocated with improve other health outcomes, New tending classes and are difficult to summer schools, to support more York City instituted new nutrition reach. In New York City, the summer effective outreach efforts. standards for meals served by its agen- meal program is administered by a cies. These nutrition standards exceed network of providers, including sum- 2) Identify and expand on high- federal standards for meal programs mer school sites, recreation centers, utilization sites. like school lunches. The standards for summer camps, and community- meals require City agencies to serve based organizations. Last year, Free summer meals are provided to low-calorie beverages like skim or 300 schools, 82 NYCHA sites, school-aged children at several dif- 1 percent milk, eliminate deep fry- and 100 public parks and pools ferent types of sites: New York City ing, include two servings of fruits and provided summer meals throughout Housing Authority (NYCHA), parks, vegetables in every lunch and dinner, the five boroughs.202 However, pools, recreation centers, community lower salt content and ensure adequate compared to utilization of school organizations, faith-based organiza- fiber in meals.207 Furthermore, juices meals during the academic year, tions, and schools. Additionally, a must be 100 percent fruit juice and all utilization at these sites was low. new mobile meal van was piloted food purchased and served must not Schools serve over 860,000 meals just this past summer. Because contain trans fat.208 The Mayor’s Office each day during the school year.203 utilization overall is low across this and DOHMH have worked with several More than 720,000 are to low in- population of sites and because city agencies to improve the nutritional come students eligible for free and some types of sites have higher uti- quality of institutional meals and ensure reduced price lunch.204 However, lization than others, the DOE should they comply with new nutrition stan- this past summer, approximately identify which types of sites are more dards. While the reach and ambition 160,000 meals were served daily.205 popular and expand them to other of this project are impressive, there are neighborhoods. structural challenges to improving the

A Vision to Improve NYC’s Food System • FoodWorks Consumption Photo Credit: William Alatriste

quality of institutional meal programs from scratch.209 Some of the remaining • Expand salad bars in schools. that the city should make a long-term schools are not able to prepare whole goal for addressing. The City Council’s foods for meals because they lack a Currently, 586 of the 1,500 public strategy for improving the nutrition kitchen. Additionally, many public hos- schools across the city have salad 210 62 of institutional meals will be to ex- pitals also lack the ability to cook whole bars in their cafeterias. These pand the capacity of city agencies to meals on-site. Partly due to financial salad bars have been a success- cook whole foods through infrastruc- constraints, hospitals centralized their ful means for increasing children’s tural improvements. food preparation and have meals dis- access to fresh, healthy foods, and tributed and reheated on-site. also for increasing their consumption STRATeGY: of fresh produce. Because children Expand the capacity of city PROPOSAlS: are able to select their salad ingre- agencies to cook whole foods dients, these salad bars have been for nutritious meals. • Agency kitchen capital popular among children of all ages. investment and staff training. Moreover, these salad bars have the City meals sites, like schools and hospi- potential to bring regional produce tals that serve a high volume of meals, Having a fully equipped and staffed in season to the school food pro- face infrastructural issues and a short- kitchen in every school or hospital gram. The city should therefore age of trained staff to prepare whole is not practical in the short-term. aggressively expand this program to foods. The DOE has already commit- However, investment in the institu- as many schools as possible in the ted some new staff and resources over tions that are ready and able to begin coming years. the past several years to improve the cooking whole foods should be quality of the meals they serve students. pursued in the coming years. Ad- They hired a culinary director and estab- ditionally, for those institutions, there GOAl 10 lished a new program to test and plan must be an investment in staff train- new meals. However, many of their ing. In this way, the city can begin to Increase quantity and kitchens are not conducive to cooking transform the types of meals it serves quality of opportunities whole foods. They lack updated equip- to millions of school children, pa- for food, nutrition and ment and systems required for the safe, tients, seniors, and other New Yorkers cooking knowledge. efficient, handling of raw ingredients. Of every day. The city should therefore the approximately 1,500 public schools commit to long-term infrastructural Along with a healthier food environ- citywide, some of which share buildings, improvement in sites that serve a ment and meal options, consum- only 300 of them are able to cook meals high volume of meals. ers must also be equipped with

FoodWorks • A Vision to Improve NYC’s Food System Consumption knowledge to make choices about of food knowledge over the past Proposal: what to eat. Currently, education several decades. Better coordina- about food, nutrition, and cooking tion among these programs and • Maximize SNAP-Education funding. is delivered in a variety of settings. expanding other innovative, suc- New and expecting mothers receive cessful models of education will help As a compliment to the SNAP program, nutrition education through the restore some of this knowledge to the federal government provides fund- Supplemental Nutrition Program for New Yorkers. For example, school ing for a program called SNAP-Educa- Women, Infants, and Children (WIC). garden programs nationally and tion with the goal of increasing the likeli- Young children receive education within the city have demonstrated hood that SNAP recipients will make about where food comes from and immense promise in connecting healthy food choices with their benefits. what to eat from countless innova- children to their food and encourag- Activities target both potentially eligible tive programs. Additionally, thou- ing consumption of fresh, healthy and current SNAP recipients. Each year, sands of Supplemental Nutrition As- foods.211 The city should assess the state SNAP agencies must submit a sistance Program (SNAP) recipients various services currently available plan for utilizing this federal funding for receive nutrition education through through SNAP-Education and other nutrition education programming. The the Food Bank for New York City's programs, their target audience, and programs must target behavior and be Cookshop program and the Cornell their effectiveness to improve scientifically-based. To maximize the ef- Cooperative Extension, both pro- nutrition and health outcomes. As fects of this important federal program, grams funded by the federal SNAP- a first step toward achieving the local organizations and agencies should Education program. While these goal of improving opportunities partner with state officials to conduct programs have grown in recent years for nutrition education, the City a review of the program, identify best and offer valuable services, they Council will work to maximize our practices, and explore future opportuni- are not enough to confront the loss existing SNAP-Education program. ties for the program.

A Vision to Improve NYC’s Food System • FoodWorks

Post Consumption

Post-consumption is the phase of the food system that manages the by-products of all other food system phases, such as food scraps and used cooking oil, water from washing and other processing, and packaging materials. Approximately one-fifth of the city’s waste stream is organic matter from food scraps. Another 36 percent of the waste stream is recyclable materials, such as food packaging. Some waste is recycled and a very small portion is composted. Most of the by-products generated by New York City’s food system are sent to a landfill or incinerator. Post Consumption

POST- CONSUMPTION POST- CONSUMPTION As the largest city in the country, New York City produces an immense GOAl 11: Decrease waste throughout the food system. amount of waste. We each produce an average of 5.15 pounds of garbage STrATEGY: Improve the net environmental impact associated every day, or approximately 1,880 with food procured by city agencies and institutions. pounds each year.212 In a city expected Proposals: to reach 9 million residents in the • Reduce packaging on food procured by city agencies. next 20 years, the problem of what • Identify alternatives to polystyrene foam in city food programs. to do with all of this waste is stagger- • Discourage bottled water consumption. ing. Our Department of Sanitation spends nearly $530 million each year GOAl 12: Increase resource recapture in the food system. collecting materials in the municipal 213 STrATEGY: Increase residential, commercial, and governmental waste stream. For decades, the city composting. avoided higher sanitation costs by unfairly placing much of the burden of Proposals: handling our waste stream on the resi- • Establish a voluntary household composting program. dents of Staten Island. But since the • Explore citywide composting of food waste. long overdue closure of the Fresh Kills STrATEGY: Increase recycling of waste related to food process- Landfill in 2001, costs have increased ing and packaging. as we have exported more of our waste. For example, in 1999, the City Proposals: spent $110 million dollars on waste dis- • Encourage restaurant grease recycling. posal.214 This year, the City will spend • Increase citywide recycling of food-related packaging. almost three times that amount, $310 million, to export our waste to landfills 215 68 and facilities in other jurisdictions. residential, commercial and institu- like used containers, packaging on tional waste stream. For example, soil, and water run-off. In processing, A considerable portion of our waste agricultural production in the city waste is generated from washing, stream comes from waste generated generates organic waste resulting packaging, and preparing foods. Dis- by the food system.216 At each phase from planting, trimming, weeding, tribution of food requires additional in the food system, there are different and other growing activities. In addi- packaging and produces waste as types of by-products that enter the tion, there are ancillary by-products some food perishes before reaching its destination. Even after reaching Source: NYC Dept. of Sanitation consumers, as much as 27 percent of food is discarded before consumption.217 As consumers, we also gener- Annual Waste Export Costs in New York City ate waste in the form of discarded food scraps and packaging.

The consequences of the waste we generate from food consumption are not limited to the city’s budget – they also impact our health and environment. Waste disposal practices, particularly involving food waste, cause significant impacts on greenhouse gas Millions of Dollars (GHG) emissions and therefore climate change, and truck traffic associated with waste hauling negatively impacts air quality in certain neighborhoods. Despite the significant effort put to- wards recycling, roughly 84 percent of our residential waste is sent to landfills

FoodWorks • A Vision to Improve NYC’s Food System Post Consumption

Source: NYC Dept. of Sanitation. Bureau of Waste Prevention, Reuse and Recycling making by private sector producers Composition of Residential Waste in New York City 2004-2005 and distributors, and encouraging Composition of residential Waste in New York City 2004 - 2005 better consumer choice. Our main Textiles and Carpets, 7.0% Organic, Compostable, strategy for reducing food system Electronic Waste, 0.7% Non-Recyclable Paper, 7.2% waste upstream will be to improve Household Hazadous Waste, 0.3% Organic Yard Trimmings, 5.2% the environmental impact associat- Construction Debris, 6.3% ed with agencies’ and institutions’ food procurement. STrATEGY: Other Materials, 15.1% Food Scraps, 21.4% Improve the net environmental impact associated with food procured by city agencies and institutions.

Just as the city has immense power Other Plastic, 13.4% to affect the regional food system through its purchasing policies, it

Recyclable Beverage Cartons, Recyclable Paper & Cardboard, can, through various policy changes, 0.4% 15.0% significantly reduce the waste stream. Recyclable Plastic Bottles, 1.5% Recyclable Glass Containers, The city procures significant amounts Recyclable Metal, 4.1% 2.4% of food and beverages for meal programs, vending machines, events, and other venues. Over the past 20 or incineration facilities.218 Much of this This fact demonstrates that the years, the city has made significant waste is comprised of organic material, composition of the waste stream is strides toward diverting recyclable such as food scraps, that break down not dictated solely by our individual materials in the waste stream. To fur- 219 and produce methane. Methane is consumption patterns, but also by ther these efforts, the city should also 69 23 times more potent than CO2 and the decisions made by product and reduce its impact upstream by reduc- methane specifically resulting from packaging manufacturers in the pri- ing its use of packaging overall, while landfills represents 1.8 percent of vate sector. Our plan below there- also transitioning away from materials GHG emissions nationally.220 Similarly, fore includes a series of proposals to like polystyrene foam that cannot be municipal solid waste comprises 3.8 of change institutional, private sector, easily recycled and toward recyclable New York’s statewide GHG emissions, and individual practices to decrease and reusable materials. which is second only to fuel consump- waste throughout the food system tion as a single-source of emissions.221 and increase recapture of the sys- Proposals: tem’s by-products as a resource. The decisions institutions and con- • Reduce packaging on food sumers make about what we buy can procured by city agencies. have a great effect on these trends GOAl 11 over time. Over the 20 years since The City Council will be introducing New York City began its recycling Decrease waste through- legislation requiring the Mayor to es- program, our diversion of recyclable out the food system. tablish guidelines for city agencies to materials has increased measur- reduce packaging for the food they ably.222 But despite the success of To reduce the costs and environ- procure. The guidelines will outline our residential recycling program mental impacts of handling food preferred methods businesses may during that time, the composition of system waste, we must decrease use to package their products. Com- the city’s waste stream has changed. the amount of waste we generate panies will be encouraged to follow A comparison of the waste stream upstream. By making choices about these guidelines, and those that con- from 1990 to 2004 reveals that we what we purchase, how we use it, sistently comply will be recognized. discard more plastics, particularly and what we discard, we can begin The City Council will also introduce those that that are not currently to decrease the volume and weight a resolution calling on the state to recyclable in the City, while materials of our waste. However, doing so authorize us to regulate the amount like glass and metal, which are more will require changes to our govern- and type of material used to package easily recycled, have decreased.223 ment purchases, better decision- goods that the city purchases.

A Vision to Improve NYC’s Food System • FoodWorks Post Consumption

• Identify alternatives to polysty- the New York City Department of Edu- tion of polystyrene trays. They tend to rene foam in city food programs. cation’s (DOE) school lunch program, be less expensive than available alterna- which serves meals on polystyrene trays. tives and the paper products used for Reducing the city’s impact on the waste Each day, the school meal program uses Trayless Tuesdays are not conducive to stream will also require gradual elimina- 830,000 of these polystyrene trays.226 As serving different types of foods. Working tion of non-recyclable materials. One one parent organization contends, if you with the DOE and the Pratt Institute for material that is very difficult to recycle stack all of these trays they would be Design, the City Council will launch a de- is polystyrene foam, also known as 8 times the height of the Empire State sign challenge for students nationally to Styrofoam.224 This foam material is light- Building.227 The DOE has taken steps to create an alternative to the DOE’s poly- weight, but still contributes approximate- eliminate these trays one day per week, styrene trays. The challenge will include ly 16,500 tons of waste to the city’s waste on “Trayless Tuesdays,” instead using a material, design, and cost parameters to stream annually.225 Currently, the city is paper-based product. There are several encourage viable alternatives. a large consumer of polystyrene due to challenges that prevent broader elimina- • Discourage bottled water consumption.

Over the past decade, consumption of bottled water nationally has increased ten-fold from 3 billion bottles annually in 1997 to 31 billion as of just a few years ago.228 Even though many plastic water bottles are recyclable, significant resources are needed to manufacture, transport and dispose of or recycle those plastic bottles. By switching from disposable single-use bottles to reusable drinking containers, consum- 70 ers can significantly decrease our solid waste stream. In an effort to lead by example, the City Council stopped purchasing bottled water for its central offices and events in 2008. To further discourage unnecessary reliance on single-use bottled water consumption, the City Council has passed new legislation to change a section of the city’s Building Code requiring building owners to provide potable water. The new law also discourages the reliance on bottled water by eliminating bottled water as a permissible option to satisfy the water availability requirements. Additionally, the legislation requires new water fountains installed as part of this requirement to be designed to allow for the use of reusable water containers. Since the city operates and maintains water fountains in parks and other outdoor public areas, we should encourage the installation of similarly designed drinking fountains at city water fountains. Together, these new policies will encourage broader transition from consuming bottled water to reusable water bottles. Collage Illustration by Omany Luna Omany Collage Illustration by

FoodWorks • A Vision to Improve NYC’s Food System Post Consumption

Source: Photo Credit: Mandi Nadel GOAl 12 Increase resource recapture in the food system.

Much of our food system can now be categorized as an open system, with byproducts at each phase being diverted to various waste streams. Our goal is to close this system where possible and treat these byproducts as STrATEGY: are working to increase composting. resources to be reinvested. Packaging, Increase residential, The following initiatives intend to build whether plastic, paper, glass, or metal, commercial, and governmental on and support those efforts. used in the processing and transport composting. of food can be recycled and reused as • Establish a voluntary other materials. Additionally, organic The city currently disposes of approxi- household composting program. scraps from growing, manufacturing, mately 3.3 million tons of residential household cooking, and institutional waste per year, 21 percent of which is Through grassroots efforts, a few farm- kitchens, can be recaptured for com- food scraps.229 This represents a larger ers markets in the city accept compost posting and reused as inputs into the portion of the overall waste stream than hand-delivered by residents who source production of food. The advent of new all designated recyclable metals, glass, separate at home. The largest of these technologies is helping to close this and plastics and non-recyclable plastics programs occurs at the Union Square system nationally, and we must con- combined.230 Additionally, the com- Farmers Market with the assistance of the tinue to explore their adoption here. mercial waste stream is an estimated Lower East Side Ecology Center. This The strategies listed outline our plan 3.2 million tons each year, 18 percent program accepts approximately 12,000 to increase resource capture by ex- of which is food waste.231 Currently, pounds each week, or 312 tons each panding composting, ensuring that very little of this organic matter is col- year. While an admirable program, this 71 more of the materials we consume lected for composting, although some represents only approximately .04 percent are recyclable, and recycling as much not-for-profit organizations, individual of all residential compostable materials. of these materials as possible. households, and commercial carters Due to the popularity of this program, the City Council will be expanding it in partnership with Green Markets to three Compostable and CompostableNon-Compost aandble Non-CompostableFractions of NYC' sPortion Reside n tial Waste additional farmers markets throughout of NYC's Waste Stream the city. In the first year, the program will increase household composting by 225 tons. While still a small portion of Other 23% the potential waste stream, the program capitalizes on the support for composting Compostable (e.g. food, in the city and, where possible, immedi- tissues, napkins, waxed paper, soiled paper ately begins to implement new programs. napkins, cups, yard By recapturing these source-separated trimming) organic materials, we are also diverting 41% this byproduct from consumers into a stream to use the materials as a resource for growing food.

• Explore citywide composting of food waste.

In addition to the household com- Recyclable (e.g. cartons, bottles, cans, metal, foil, posting program, the City Council will paper, cardboard) continue to explore future policies to 36% encourage composting of organic waste throughout the food system. This year,

Source: NYC Dept. of Sanitation. Bureau of Waste Prevention, Reuse and Recycling

A Vision to Improve NYC’s Food System • FoodWorks Post Consumption

the City Council passed Local Law 42, food system. Additionally, because New • Increase citywide recycling of requiring the city to conduct a study of Yorkers rely on the over 20,000 restau- food-related packaging. various options for increasing residential, rants in our city for many of our meals, commercial, and governmental com- the commercial waste stream is consid- Since the City Council enacted Local Law posting. These include exploring the erable. In particular, restaurants produce 19 in 1989 to launch a comprehensive viability of curbside organic waste collec- kitchen grease that can be transformed curbside recycling program, our recycling tion, development of new composting into biofuel rather than being discarded rate increased from 1 percent to 20 percent facilities within the city, and utilization – another way to close the food system in 2000.232 This remarkable increase over of local transfer stations to consolidate loop and improve sustainability. The time illustrated the impact government source-separated organics for delivery to following proposals outline our strategy policies can have on residents and our composting facilities outside of the city. for encouraging more recycling of food citywide environmental impact. Unfortu- Additionally, the city is exploring new waste in the city. nately, the city temporarily suspended the technologies to transform our waste into recycling program for budgetary reasons compostable materials while capturing • Encourage restaurant grease in 2002 and since its reinstatement, our and reusing the energy from that pro- recycling. diversion rate has climbed back to just over cess. Two particular technologies under 16 percent.233 consideration are anaerobic digestion New York City’s restaurants and other and thermal processing. Anaerobic commercial kitchens produce used To encourage an even greater recycling digestion breaks down municipal solid grease and oil, which by law, they are rate, the City Council recently passed leg- waste to remove inorganic components. prohibited from disposing of through islation to amend Local Law 19. Although Recyclable materials can be recovered, the city’s sewer system. Instead, res- not specifically focused on food waste, this while organic materials are converted taurants and commercial kitchens have new legislation has several key approaches either to gas that can then be used to historically been encouraged either to to increasing recycling that will positively generate electricity or to a solid product dispose of waste oil and grease with impact waste associated with the food that can be used as fertilizer. Although their regular solid waste or through system. It will require the New York City some inorganic materials are still sent waste oil reprocessing to make feed- Department of Sanitation to recycle all to landfill, the volume is significantly stock for materials such as soaps. Today, rigid plastics, such as yogurt containers and 72 reduced and much of the byproduct is thanks to developments in reprocessing, take-out food containers, once a new facil- converted to a new resource. In thermal much of this used cooking grease can ity opens in 2012. This component alone processing, organic components of be transformed into a biofuel to heat will divert 8,000 tons of plastics every year municipal solid waste are also converted buildings or run vehicles. Restaurants from landfills and incinerators. The legisla- to gas that can be used to generate are now partnering with organizations tion also requires an additional 300 public electricity. Other materials may also be like Ready, Willing, and Able to pick recycling bins be placed in public places produced, such as reusable mixed met- up the grease and transform it into over the next three years and that an als, industrial salts and chemicals that can biofuel. Already one plant is opening in additional 700 public bins be sited within then be sold or recycled. the city to process this grease, creating the next 10 years. These changes, along jobs within the five boroughs. The City with programmatic improvements to STrATEGY: Council also recently passed legislation agencies’ recycling efforts, public outreach Increase recycling of waste that requires heating oil sold in the city and education, and additional research related to food processing and to contain at least two percent bio- on our citywide recycling performance will packaging. fuel, which will broaden the market for significantly recapture materials from the recycled restaurant grease. food system waste stream.

Much of the energy flow increases in the Photo Credit: Shira Golding U.S. over the past several years are due to changes in our food system. These changes have included an increase in the meals we eat outside the home and a greater reliance on packaged convenience foods. This produces waste in the form of added food packaging from items like pre-packed salad mixes and pre-cut fruit. To address this waste, recycling of food related packaging such as plastic boxes, paper cartons, and cans will be a vital strategy for improving our

FoodWorks • A Vision to Improve NYC’s Food System Next Steps

Next Steps

TRACKING OUR RESULTS CONCLUSION

FoodWorks is the result of over a year of research and ESTABLISHING A FOOD POLICY COUNCIL more than 100 meetings with New Yorkers involved in every phase of the food system: gardeners, chefs, In designing this blueprint, we consulted with small business owners, researchers and academic ex- experts and stakeholders from around the city. In perts, not-for-profits, emergency food providers, and the same way, implementing these new ideas and manufacturers, as well as officials at every level of gov- policies will require input beyond that of govern- ernment. We also conducted surveys and reviewed ment officials. Cities throughout the U.S. have studies from across the country and around the world. adopted Food Policy Councils to track their progress toward achieving food system goals. These The 59 proposals in our report outline a strategy for a councils provide valuable insight and accountability. healthier, greener, and more productive food system. It They also give a voice to the constituencies af- contains ideas that the City Council can begin imple- fected by the very food system issues we intend to menting immediately, and ideas that will require a com- address. The Mayor’s Office has already created a mitment from our state and federal colleagues. Some Food Policy Coordinator and inter-agency task force will help us create new jobs and keep more of our food at the request of the City Council. It should also dollars in the local economy. Some will improve public be noted that as the Mayor’s Office of Long-Term health in the five boroughs or help keep our air, water Planning and Sustainability drafts its update to the and soil from becoming polluted. Others will strength- PlaNYC report, it has taken heed of our and others’ en our city’s infrastructure for decades to come. calls to include food in its new proposals. However, community and industry input has been noticeably We’ll use government resources in smarter ways and absent from previous food policy efforts by the help more families take advantage of existing pro- city. The City Council therefore calls on the Mayor grams. We’ll empower farmers and business owners 70 to create a New York City Food Policy Council. This to drive economic activity in sustainable ways. We’ll 75 Council will elicit non-governmental input on policy give communities better options and depend on changes and institutionalize the work embodied in them to make good choices. We’ll respond to the this report. needs of New Yorkers today while planning for the city of tomorrow.

REPORTING ON CITY FOOD SYSTEM DATA Our report identifies initiatives and best practices with The more we explored our food system for this real potential to strengthen our food system at this report, the more gaps we discovered in basic data moment in our city’s history. But this report is far from about food the city buys and serves and the im- the final word on food system development in the pacts of various food-related programs. Until we city. Rather, it is the beginning of a conversation with have more comprehensive information about our New Yorkers. The story of our food system is a story of food system, our attempts to improve it can only change, and like any blueprint, FoodWorks must con- be partial solutions. Therefore, the City Council tinue to evolve and incorporate new ideas and realities. will introduce legislation that will allow us to better understand the current state of our food system, Changing any large-scale system takes time and monitor changes, and provide a foundation for fu- commitment. The effects of these efforts will not be ture work. This reporting bill will establish metrics at felt overnight. But we can no longer afford to ignore each phase of the food system to determine where growing problems with our food system. We must city purchased food comes from, whether our local seize opportunities to build a system that truly serves processors are benefiting from city programs, the our changing needs – just as generations of New York- reach and quality of our agency meal programs, our ers and Americans have done so many times before. progress toward eliminating hunger, and the environmental sustainability of our Hunts Point markets. We already have the tools in place; now we have a By passing this legislation, we will be better able plan. All we need is the will to see these changes to measure the effectiveness of current efforts and through, to make smart decisions, and to leave a target future initiatives. system that is stronger, healthier, and more sustainable for future generations.

A Vision to Improve NYC’s Food System • FoodWorks

Endnotes FOOTNOTES

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67 Office of the State Comptroller. Thomas P. DiNapoli. “Bet on the Farm: Farmland Protection as a Strategy for Economic Growth and Renewal.” October, 2010. 68 Office of the State Comptroller. Thomas P. DiNapoli. “Bet on the Farm: Farmland Protection as a Strategy for Economic Growth and Renewal.” October, 2010. 69 GrowNYC. About NFDP 2010. < http://www.grownyc.org/greenmarket/nfdp. > 70 Porjes, Susan.. “Fresh and Local Foods in the U.S.” Packaged Facts. Market Research.com. Science, Industry, and Business Library.New York , NY. May 2007. 71 Market Ventures Inc/ Karp Resources. “ A Study on the Development of a New York City Wholesale Farmers’ Market. Final Report Executive Summary. Prepared for: New York State Department of Agriculture and Markets.“ January 2005. 72 Market Ventures Inc/ Karp Resources. “ A Study on the Development of a New York City Wholesale Farmers’ Market. Final Report Executive Summary. Prepared for: New York State Department of Agriculture and Markets.“ January 2005. 73 Market Ventures Inc/ Karp Resources. “ A Study on the Development of a New York City Wholesale Farmers’ Market. Final Report Executive Summary. Prepared for: New York State Department of Agriculture and Markets.“ January 2005. 74 Rungis Staff. Personal Interview. May 6, 2010. 75 Ontario Food Terminal Board. http://www.oftb.com 76 Martinez, Steve, et. al. Local Food Systems: Concepts, Impacts, and Issues. United States Department of Agriculture. Economic Research Service. Report no 97, May 2010. 77 United States Department of Agriculture. Agriculture Marketing Service. Farmers Market Services. 78 New York State Department of Agriculture and Markets. “New York State Farmers Market Nutrition Program: Participating Markets—NYC 2010.” 79 GrowNYC. EBT Summary Report 2009. 2009. < http://www.grownyc.org/files/gmkt/EBT/2009progressreport.pdf> 80 Martinez, Steve, et. al. Local Food Systems: Concepts, Impacts, and Issues. United States Department of Agriculture. Economic Research Service. Report no 97, May 2010. 81 Katz, Ruth. “NYC CSA location map.” Email to the author. November 4, 2010. 82 New York City Council. Finance Division. “Fiscal Year 2010 New York City Budget.”Chart. October, 2010. 83 City University of New York. Hunter College. School of Public Health. “Recipes for Health: Improving School Food in New York City.” August 2010. < http://web.gc.cuny.edu/che/NYCSchoolFood.pdf> 84 Karp Resources analysis of Department of Education School Food purchasing records completed under contract by W.K. Kellogg Foundation and New York State Department of Agriculture and Markets. 85 Karp Resources analysis of Department of Education School Food purchasing records completed under contract by W.K. Kellogg Foundation and New York State Department of Agriculture and Markets. 86 United States. Department of Agriculture. National Agriculture Statistics Service. The Census of Agriculture,.Volume 1, Chapter 2, County Level Data. County Summary Highlights, 2007. New York.2007. June 2, 2010 87 City of New York. “PlaNYC: A Greener, Greater New York.” 63. April 2007. Available at http://www.nyc.gov/html/planyc2030/html/home/home.shtml 88 City of New York. “PlaNYC: A Greener, Greater New York.” 64‐67. April 2007. Available at http://www.nyc.gov/html/planyc2030/html/home/home.shtml 89 J. Foran et al. “A Framework for Comprehensive, Integrated, Watershed Monitoring in New York City” Environmental Monitoring and Assessment. Vol 62, Number 2, 147‐167.1998. 90 Watershed Agricultural Council. “Annual Report 2009”. 2009. 91 Watershed Agricultural Council. “Annual Report 2009”. 2009. 92 Watershed Agricultural Council. “Annual Report 2009”. 2009. 93 United States. Department of Agriculture. National Agriculture Statistics Service.The Census of Agriculture,. Volume 1, Chapter 2, County Level Data. County Summary Highlights, 2007. New York.2007. June 2, 2010 94 Woody, Todd. “A Crop Sprouts without Soil or Sunshine”. New York Times. September 20, 2010. < http://green.blogs.nytimes.com/2010/09/20/a‐crop‐sprouts‐without‐soil‐or‐sunshine/>

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95 City and County of San Francisco. Office of the Mayor.” Healthy and Sustainable Food for San Francisco”. Executive Directive 09‐03. July 9, 2009. http://civileats.com/wp‐content/uploads/2009/07/Mayor‐Newsom‐Executive‐Directive‐ on‐Healthy‐Sustainable‐Food.pdf 96 Whitford, David. “Can Farming Save Detroit?” CNN Money. December 29, 2009. http://money.cnn.com/2009/12/29/news/economy/farming_detroit.fortune/index.htm 97 Rules of the City of New York §6‐01 et seq., 42‐01 et seq. 98 United States Department of Agriculture. National Agriculture Statistics Service. 2007 Census of Agriculture County Summary Highlights. U.S. Government Printing Office, Washington, D.C. December, 2009. http://www.agcensus.usda.gov/Publications/2007/Full_Report/Volume_1,_Chapter_2_County_Level/New_York/st36 _2_001_001.pdf 99 Erway, Cathy. “A Rooftop Farm for the Future.” The Huffington Post. May 26, 2009. < http://www.huffingtonpost.com/cathy‐erway/a‐rooftop‐farm‐for‐the‐fu_b_207786.html> ; Schwartz, Ariel. “Gotham Greens Building First Hydroponic Rooftop Farm in NYC.” Fast Company.com June 15, 2009. < http://www.fastcompany.com/blog/ariel‐schwartz/sustainability/gotham‐greens‐building‐first‐hydroponic‐rooftop‐ farm‐nyc> 100 New York City Water Board. “Water and Wastewater Rate Schedule.” July 1, 2010. http://www.nyc.gov/html/nycwaterboard/pdf/rates/fy2011_rates.pdf 101 United States Department of State. Compendium of the Enumeration of the Inhabitants and Statistics of the United States.:Returns from the 6th Census. Washington, D.C. 1841. < http://www.agcensus.usda.gov/Publications/Historical_Publications/1840/1840.pdf> 102 Pollan, Michael. “Farmer in Chief” The New York Times. October 9, 2008. 103 Subramaniam, Aarti. “Garden Based Learning in Basic Education: A Historical Review. Monograph. University of California. Center for Youth and Development. Summer 2002. < http://www.scribd.com/doc/35141738/Garden‐ Based‐Learning‐in‐Basic‐Education‐A‐Historical‐Review> 104 New York State Department of Agriculture and Markets. New York City School Garden Survey. 2010. 105 New York Industrial Retention Network and Fiscal Policy Institute. “More Than a Link in the Food Chain: A Study of the Citywide Economic Impact of Food Manufacturing in New York City.” For the Mayor’s Office of Industrial & Manufacturing Businesses. February 2007. 106 U.S. Census Bureau. Nonemployer Statistics. www.census.gov. 106 U.S. Census Bureau. North American Industry Classification System 311, Food Manufacturing. www.census.gov. Retrieved June 9, 2010 from http://www.census.gov/epcd/ec97/industry/E311.HTM 108 New York Industrial Retention Network and Fiscal Policy Institute. “More Than a Link in the Food Chain: A Study of the Citywide Economic Impact of Food Manufacturing in New York City.” For the Mayor’s Office of Industrial & Manufacturing Businesses. February 2007. [106] U.S. Census Bureau. Nonemployer Statistics.U.S. Census Bureau. 109 New York City Economic Development Corporation. Financing and Incentives: NYC Capital Access Loan Guarantee Program . 2010. 110 Fresh Convenience foods are prepared meals, entrees, and side dishes that require no or little preparation beyond heating up or adding salad dressing. These items include deli foods prepared in‐store by food retailers for take out or on‐site consumption such as rotisserie meals, salads, and sandwiches. Fresh convenience foods also include fresh refrigerated prepared foods that arrive in stores packaged and ready for sale such as lunch kits, side dishes, and fresh soups. Definition from: Packaged Facts. “Convenience Foods in the U.S. , Volume 1: Fresh Prepared Deli and Packaged Foods.” December 2007. 111 New York State Department of Agriculture and Markets. Ag Facts. 2008. < http://www.agmkt.state.ny.us/agfacts.html> 112 United States Department of Labor. Bureau of Labor Statistics . Quarterly Census of Employment and Wages. Food Manufacturing Sector, New York County Level Data. 2010 < http://data.bls.gov/cgi‐bin/dsrv> 113 United States Department of Labor. Bureau of Labor Statistics . Quarterly Census of Employment and Wages. Food Manufacturing Sector, New York County Level Data. 2010 < http://data.bls.gov/cgi‐bin/dsrv> 114 The City of New York. NYCGO. NYC Statistics 115 Bureau of Labor Statistics “Average Energy Prices in New York and Northern New Jersey. July 2010. < http://www.bls.gov/ro2/avgengny.pdf > 116 State of New York. NYSERDA. FlexTech Program. < http://www.nyserda.org/programs/flextech.asp>

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117 State of New York. NYSERDA. Program Highlights. 118 State of New York. NYSERDA. New York State Energy Research and Development Authority Existing Facilities Program. < http://www.nyserda.org/programs/Existing_Facilities/default.html> 119 State of New York. NYSERDA. New York City Private Fleet Program. < http://www.nyserda.org/programs/transportation/AFV/NYCPrivateFleet.asp> 120 United States Department of Agriculture. Economic Research Service. Energy Use In the U.S. Food System. Economic Research Service Report Number 94. March 2010. 121 RailexUSA. About page. 122 Eng‐Wong, Taub, &Associates. “2000 Truck Survey Summary and Analysis: Prepared for The Port Authority of New York and New Jersey.” Final Report. March 2002. 123 Pirog, Rich and Andrew Benjamin. “Checking the Food Odometer: Comparing food miles for local versus conventional produce sales to Iowa institutions.” Iowa State University. Leopold Center for Sustainable Agriculture. July 2003. 124 Hunts Point 2010. June 9, 2010. 125 Hunts Point 2010. June 9, 2010 126 Weiss, L. “Market forces – Hunt’s Point produce market in the Bronx gets set for a makeover. “ The New York Post. .October 21, 2009. 127 New York City Economic Development Corporation. Hunts Point Task Force, City of New York. Hunts Point Vision Plan.Fall 2004. 128 EDC estimate 129 New York City Economic Development Corporation. Hunts Point Terminal Produce Market: Project Update. August 11, 2010 130 EDC estimate 131 Rungis Staff .Personal Interview. May 6, 2010. 132 EDC estimate 133 EDC estimate 134 EDC estimate 135 Healthy trees store approximately 2.6 tons of CO2 per acre each year. David J. Nowak. USDA Forest Service. “Benefits of Community Trees, Brooklyn Trees.” Central Park is 843 acres. http://www.nycgovparks.org/sub_your_park/vt_central_park/vt_central_park.html 136 Eng‐Wong, Taub, &Associates. “2000 Truck Survey Summary and Analysis: Prepared for The Port Authority of New York and New Jersey.” Final Report. March 2002. 137 New York City Department of Health and Mental Hygiene. Physical Activity and Nutrition. < http://www.nyc.gov/html/doh/html/cdp/cdp_pan.shtml> 138 The City of New York. New York City Department of Health and Mental Hygiene. Physical Activity and Nutrition. 2009. ; The City of New York. Department of Health and Mental Hygiene. Overweight and Obesity 2007. EpiQuery. 139 Yale Rudd Center for Food Policy and Obesity. Food Prices. 2010. 140 Yale Rudd Center for Food Policy and Obesity. Food Prices. 2010. 141 Yale Rudd Center for Food Policy and Obesity. Food Prices. 2010. 142 Food Research and Action Center. “Food hardship: A closer look at hunger. Data for the nation, states, 100 MSAs and every Congressional District.” January, 2010. 143 Weinreb, Linda. et al. “Hunger: Its Impact on Children’s Health and Mental Health.” Pediatrics. Vol 110. No 4. October 2002. < http://pediatrics.aappublications.org/cgi/reprint/110/4/e41> 144 Weinreb, Linda. et al. “Hunger: Its Impact on Children’s Health and Mental Health.” Pediatrics. Vol 110. No 4. October 2002. < http://pediatrics.aappublications.org/cgi/reprint/110/4/e41> 145 United States. Bureau of Labor Statistics. 100 Years of Consumer Spending.1972‐1973 . May 2006.32‐39. http://www.bls.gov/opub/uscs/1972‐73.pdf; Lin, Biing‐Hwan Lin et al. “Nutrient Contribution of

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Food Away From Home” U.S. Department of Agriculture. Economic Research Service. http://www.ers.usda.gov/publications/aib750/aib750l.pdf 146 United States. Bureau of Labor Statistics. 100 Years of Consumer Spending.1972‐1973 May 2006.32‐39. ; United States Department of Agriculture. “What We Eat in America.” 2007‐2008. http://www.ars.usda.gov/Services/docs.htm?docid=18349 147 Bureau of Labor Statistics. 100 years of U.S. Consumer Spending: Data for the Nation, New York City, and Boston. 2002‐2003. May 2006.57‐63 < http://www.bls.gov/opub/uscs/2002‐03.pdf> ; United States Department of Agriculture. Agricultural Research Service. What We Eat In America. National Health and Nutrition Examination Survey: Away From Home, Percent of Nutrients 2007‐ 2008. 148 New York City Department of City Planning. Going to Market: New York City’s Neighborhood Grocery Store and Supermarket Shortage. October 2008. 149 Department of Health and Mental Hygiene. Community Health Survey: Fruit and Vegetable Consumption. December 2009. < https://a816‐ healthpsi.nyc.gov/epiquery/SASStoredProcess/guest?_PROGRAM=/EpiQuery/CHS/chs2009a&var=fruitv3&crude=uncr ude> 150 Rundle, Andrew et. al. “ Neighborhood Food Environment and Walkability Predict Obesity in New York City.” Environmental Health Perspectives. Volume 117. Number 3. March 2009. 151 New York City Department of City Planning. Going to Market: New York City’s Neighborhood Grocery Store and Supermarket Shortage. October 2008. 152 New York City Department of City Planning. Going to Market: New York City’s Neighborhood Grocery Store and Supermarket Shortage. October 2008. 153 New York City Department of City Planning. Going to Market: New York City’s Neighborhood Grocery Store and Supermarket Shortage. October 2008. 154 New York City Economic Development Corporation. “ New York City Industrial Development Agency Approves Incentives for First two Supermarkets Under the Fresh Program.” Press Release. February 9, 2010. ; New York City Economic Development Corporation. “ New York City Industrial Development Agency Approves FRESH Incentives for Supermarket in the Bronx.” Press Release. August 3, 2010. 155 About the Coop: Park Slope Food Coop.Park Slope Food Coop. 156 Park Slope Food Co‐op .FAQ. 2010. 157 United States Department of Labor. Bureau of Labor Statistics . Quarterly Census of Employment and Wages. New York County Level Data. 2010 < http://data.bls.gov/cgi‐bin/dsrv> 158 Hope Program Estimates. March 24, 2010. 159 Hope Program Estimates. March 24, 2010. 160 New York City Department of Health and Mental Hygiene. “Restaurant Inspection Information.” http://www.nyc.gov/html/doh/html/rii/index.shtml 161 Schlosser, Eric. Fast Food Nation: The Dark Side of The All‐American Meal. New York: Perennial, 2002. 162 Schlosser, Eric. Fast Food Nation: The Dark Side of The All‐American Meal. New York: Perennial, 2002. 163 Schlosser, Eric. Fast Food Nation: The Dark Side of The All‐American Meal. New York: Perennial, 2002. 164 United States Department of Agriculture. Bureau of Labor Statistics. 100 Years of Consumer Spending. BLS Report 991. 1972‐1973. August 3, 2006.< http://www.bls.gov/opub/uscs/1972‐73.pdf>; United States Department of Agriculture. Bureau of Labor Statistics. 100 Years of Consumer Spending. BLS Report 991. 2002‐2003. August 3, 2006 < http://www.bls.gov/opub/uscs/2002‐03.pdf> 165 Duffey, Kiyah J. et al. “Regular Consumption for Fast Food Establishments Relative to Other Restaurants is Differentially Associated with Metabolic Outcomes in Young Adults.” The Journal of Nutritional Epidemiology. 10.3945/jn.109.109520. The American Society for Nutrition. 2009; Mellor, Jennifer, Carrie B. Dolan, and Ronald B. Rappaport. “Child body mass index, obesity, and proximity to fast food restaurants.” International Journal of Pediatric Obesity 2010. Early Online 1‐9. July, 2009. 166 Austin, S. Bryn. Et al. “Clustering of Fast Food Restaurants Around Schools: A Novel Application of Spatial Statistics to the Study of Food Environments.” American Journal of Public Health. Vol 95. No 9. September, 2005. 167 Kwate, Naa Oyo A., Ji Meng Loh. “Separate and Unequal: The influence of Neighborhood and school characteristics on spatial proximity between fast food and schools.” Preventative Medicine . Issue 51. 2010. 153‐156. 168 Kwate, Naa Oyo A., Ji Meng Loh. “Separate and Unequal: The influence of Neighborhood and school characteristics on spatial proximity between fast food and schools.” Preventative Medicine . Issue 51. 2010. 153‐156. 169 Estimates for children in school grades K‐8. Egger JR, Bartley KF, Benson L, Bellino D, Kerker B. Childhood Obesity is a Serious Concern in New York City: Higher Levels of Fitness Associated with Better Academic Performance. NYC Vital Signs 2009, 8(1): 1‐4.

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170 Fine, Howard. “Still No Room for Fast Food: South L.A. likely to keep new eatery ban.” Los Angeles Business Journal. September 6, 2010. < http://www.labusinessjournal.com/news/2010/sep/06/still‐no‐room‐fast‐food> 171 Berstein, Sharon. Supporters of Happy Meal Ban Predict Movement will Spread. Los Angeles Times. November 6, 2010. http://www.latimes.com/business/la‐fi‐happy‐meal‐20101106,0,5140401.story 172 Freudenberg,, N., Libman, K. Okeefe, E. . “A Tale of Two ObesCities: the role of municipal governance in reducing childhood obesity in New York City and London.” Journal of Urban Health. Vol 87. Issue 5. September, 2010. 755‐70. 173 City of New York. Human Resources Administration. Department of Social Services. Facts. 2010. 174 The Food Bank for New York City. “NYC Hunger Safety Net 2007: A Food Poverty Focus” October 18, 2007. 175 New York City Coalition Against Hunger. “2009 Annual Hunger Survey: NYC Hunger Catastrophe Avoided (For Now).” November, 2009. < http://www.nyccah.org/media/annual‐hunger‐survey> 176 Ratcliffe, Caroline., Singe‐Mary McKenran, and Kenneth Finegold. “The Effect of State Food Stamp and TANF Policies on Food Stamp Program Participation.” Washington, D.C. : The Urban Institute. March, 2007. 177 U.S. Census Bureau. “New York City, New York. Selected Economic Characteristics: 2006‐2008. American Community Survey” American Fact Finder. 2006‐2008. < http://factfinder.census.gov/servlet/ADPTable?_bm=y&‐ geo_id=16000US3651000&‐qr_name=ACS_2008_3YR_G00_DP3YR3&‐ds_name=ACS_2008_3YR_G00_&‐_lang=en&‐ _sse=on> 178 New York City Coalition Against Hunger. “2009 Annual Hunger Survey: NYC Hunger Catastrophe Avoided (For Now).” November, 2009. < http://www.nyccah.org/media/annual‐hunger‐survey> 179 New York City Human Resources Administration takes finger prints for new SNAP recipients. From August 2009 to August 2010, there were 194,903 new SNAP recipients who were not also enrolled in Temporary Assistance for Needy Families (TANF). New York State Office of Temporary and Disability Assistance. “Monthly Caseload Statistics.” http://otda.ny.gov/main/resources/caseload/ 180 Ratcliffe, Caroline.et al. “The Effect of State Food Stamp and TANF Policies on Food Stamp Program Participation.” The Urban Institute. March 2007. 181 New York City Commission on Economic Opportunity. “Increasing Opportunity and Reducing Poverty in New York City.” September 2006. http://www.nyc.gov/html/om/pdf/ceo_report2006.pdf 182 As of September 2010, 1,776,501 people in New York City were receiving SNAP benefits. City of New York. Human Resources Administration. Department of Social Services. Facts. 2010. http://www.nyc.gov/html/hra/downloads/pdf/hrafacts_2010_09.pdf 183 Food Research and Action Center. “SNAP Access in Urban America: A City‐by‐City Snapshot.” September 2009.; Widom, Rebecca, Ella Ewart, and Olivia Arvizu Martinez. “A Better Recipe for New York City.” January 2006. http://www.urbanjustice.org/pdf/publications/better_recipe_full_rpt.pdf 184 Ratcliffe, Caroline.et al. “The Effect of State Food Stamp and TANF Policies on Food Stamp Program Participation.” The Urban Institute. March 2007. 185 Hansell, David, Commissioner, New York State Office of Temporary and Disability Assistance. “Testimony: Oversight‐Fighting Hunger in New York City.” New York City Council. Meeting of the General Welfare Committee. November 20, 2007. United States Government Accountability Office. “Use of Alternative Methods to Apply for and Maintain Benefits Could be Enhanced by Additional Evaluation and Information on Promising Practices.” May 2007. 186 Doar, Robert Testimony: New York City Council. Meeting of the General Welfare Committee. November 24, 2009. 187 United States Government Accountability Office. “Use of Alternative Methods to Apply for and Maintain Benefits Could Be Enhanced by Additional Evaluation and Information on Promising Practices.” May 2007. and Kevin Concannon, Testimony Before the City Council General Welfare Committee. November 2009. 188 Doar, Robert “ Testimony: Oversight‐Fighting Hunger in New York City.” New York City Council. Meeting of the General Welfare Committee. November 20, 2007. Doar, Robert Testimony: Oversight‐ New York City Council. Meeting of the General Welfare Committee. November 2009. Doar, Robert. Letter to City Council. May 2008. 189 New York State Office of Temporary and Disability Assistance. “Monthly Caseload Statistics.” http://otda.ny.gov/main/resources/caseload/ 190 HRA Estimates provided in email to City Council staff October 28, 2010. 191 HRA Estimates provided in email to City Council staff October 28, 2010. 192 United States Department of Agriculture. Food & Nutrition Service. About WIC. September 12, 2003. 193 United States Department of Agriculture. Food & Nutrition Service. About WIC. September 12, 2003. 194 United States Department of Agriculture. Food & Nutrition Service. About WIC. September 12, 2003.

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195 Public Health Solutions. Public Health Programs & Community and Clinical Health Programs.2010. < http://www.healthsolutions.org/?event=page.Health_Services&about=158> 196 New York City Department of Education. School Allocation Memorandum No.9, FY 11. http://schools.nyc.gov/offices/d_chanc_oper/budget/dbor/allocationmemo/fy10_11/FY11_PDF/sam09.pdf 197 Food Research and Action Center. “School Breakfast in America’s Big Cities.” Washington. D.C.: August 2007. < http://www.frac.org/pdf/urbanbreakfast07.pdf> 198 Food Research and Action Center. “School Breakfast in America’s Big Cities.” Washington. D.C.: August 2007. < http://www.frac.org/pdf/urbanbreakfast07.pdf> 199 Food Research and Action Center. “School Breakfast in America’s Big Cities.” Washington. D.C.: August 2007. < http://www.frac.org/pdf/urbanbreakfast07.pdf> 200 Murphy JM et. al. “Maryland Meals for Achievement Year III Final Report.” Massachusetts General Hospital, Boston,MA, 2001. 201 Murphy JM, Pagano ME, Patton K, Hall S, Marinaccio J, Kleinman R. “The Boston Public Schools Universal Breakfast Program; Final Evaluation Report.” Massachusetts General Hospital, Boston, MA, 2000. 202 Hu, Winne . “School’s Out, but Many Will Get free Meals.” New York Times. July 3, 2009. ; New York City Department of Parks and Recreation. School Food Summer Meals Program. ; New York City Housing Authority. “NYCHA AND THE DEPARTMENT OF EDUCATION ANNOUNCE ANNUAL FREE SUMMER MEALS PROGRAM FOR NEW YORK CITY SCHOOL CHILDREN.” Press Release. July 2, 2009. < http://www.nyc.gov/html/nycha/downloads/pdf/pr_july09_2.pdf> 203 New York City Department of Education. Office of School Food. http://www.opt‐ osfns.org/osfns/meals/default.aspx 204 New York City Department of Education. School Allocation Memorandum No.9, FY 11. http://schools.nyc.gov/offices/d_chanc_oper/budget/dbor/allocationmemo/fy10_11/FY11_PDF/sam09.pdf 205 Estimates by New York City Department of Education. Email to author, November 4, 2010. 206 Estimates by New York City Department of Education. Email to author, November 4, 2010. 207 The City of New York. “New York City Agency Food Standards.” Provided November 9, 2010. 208 The City of New York. “New York City Agency Food Standards.” Provided November 9, 2010.. 209 New York City Department of Education and School Construction Authority estimates, June 2010. 210 New York City Department of Education estimate, Provided November 1 2010. 211 Morris, Jennifer. Marilyn Briggs, and Sheri Zidenberg Cherr. “School based gardens can teach kids healthier eating habits.” California Agriculture.Vol 54. Number 5. 40‐46. September‐ October 2000. 212 Statewide estimate from: New York State Department of Environmental Conservation. “2009 Draft Solid Waste Management Plan” http://www.dec.ny.gov/docs/materials_minerals_pdf/drbeyondwaste2.pdf 213 Natural Resources Defense Council, “Analysis of New York City Department of Sanitation Curbside Recycling and Refuse Costs,” prepared by DSM Environmental 2008. http://docs.nrdc.org/cities/files/cit_08052801A.pdf. 214 New York City Council, Committee on Finance, Budget Documents Reflecting DSNY Budget for FY2000. 215 New York City Council, Committee on Finance, Committee Report on Mayor’s Fiscal Year 2011 Executive Budget, Department of Sanitation. 216 New York City Department of Sanitation. Waste Characterization Study, 2004‐05. http://www.nyc.gov/html/nycwasteless/html/resources/wcs_results.shtml#finalreport 217 United States Department of Agriculture. Economic Research Service. Food Review: Estimating and Addressing America’s Food Losses. January‐April 1997. 218 Estimate of municipal solid waste not recycled. City of New York. Mayor’s Management Report. 2009. 219 New York State Department of Environmental Conservation. Draft Solid Waste Management Plan. 2010. http://www.dec.ny.gov/chemical/41831.html 220 New York State Department of Environmental Conservation. Draft Solid Waste Management Plan. 2010. http://www.dec.ny.gov/chemical/41831.html 221 New York State Department of Environmental Conservation. Draft Solid Waste Management Plan. 2010. http://www.dec.ny.gov/chemical/41831.html 222 Natural Resources Defense Council, “Recycling Returns: Ten Reforms for Making New York City’s Recycling Program More Cost‐Effective” pg. 26 (2004). 223 New York City Department of Sanitation. Waste Characterization Study, 2004‐05. http://www.nyc.gov/html/nycwasteless/html/resources/wcs_results.shtml#finalreport 224 New York City. Department of Sanitation. Bureau of Waste Prevention, Reuse and Recycling. All About Styrofoam. The City of New York, 2010. < http://www.ci.nyc.ny.us/html/nycwasteless/html/resources/plastics_styrofoam.shtml>

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225 New York City. Department of Sanitation. Bureau of Waste Prevention, Reuse and Recycling. All About Styrofoam. The City of New York, 2010. < http://www.ci.nyc.ny.us/html/nycwasteless/html/resources/plastics_styrofoam.shtml> 226 New York City. Department of Sanitation. Bureau of Waste Prevention, Reuse and Recycling. All About Styrofoam. The City of New York, 2010. < http://www.ci.nyc.ny.us/html/nycwasteless/html/resources/plastics_styrofoam.shtml> 227 Styrofoam out of Schools. Styrofoam out of Schools NYC. 228 New York State Department of Environmental Conservation. Draft Solid Waste Management Plan. 2010. http://www.dec.ny.gov/chemical/41831.html 229 City of New York. Department of Sanitation. Bureau of Waste Prevention, Reuse and Recycling. Pie Charts: What’s in NYC’s Waste? The City of New York .2010. < http://www.ci.nyc.ny.us/html/nycwasteless/html/resources/wcs_charts.shtml> 230 City of New York. Department of Sanitation. Bureau of Waste Prevention, Reuse and Recycling. Pie Charts: What’s in NYC’s Waste? The City of New York .2010. < http://www.ci.nyc.ny.us/html/nycwasteless/html/resources/wcs_charts.shtml> 231 City of New York. Department of Sanitation. Bureau of Waste Prevention, Reuse and Recycling. Pie Charts: What’s in NYC’s Waste? The City of New York .2010. < http://www.ci.nyc.ny.us/html/nycwasteless/html/resources/wcs_charts.shtml> 232 City of New York. 2001 Mayor’s Management Report. 233 City of New York. 2009 Mayor’s Management Report.

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