Cultivating Food Connections:

Toward a Healthy and Sustainable Food System for

May 2010 25 Food Connections to the City of Toronto Tablef o Contents

Foreword 1 Introduction 3 Torontos i Poised to Lead the Way 6 Toronto’s Advantages 6

Moving Toward a Health Focused Food System 10 How We Got Here 10 Unintended Consequences 10 Carving Up Food 11 The Road Ahead 13 Thinking Outside the Breadbox 15

Local Government’s Food Levers 16 What Torontonians Told Us 18 Embedding Food System Initiatives in City Government 19 Priority Areas for Action 20 Support Food-friendly Neighbourhoods 20 Make Food a Centerpiece of Toronto’s New Green Economy 24 Eliminate Hunger in Toronto 26 Empower Residents with Food Skills and Information 28 Connect City and Countryside through Food 29 Urge Federal and Provincial Governments to Establish Health-Focused Food Policies 32

Conclusion 33 Implementation 33 Appendix: 1 Members of the Toronto Food Strategy Steering Group 34 Endnotes 36

Foreword

Food can play a powerful role in promoting health, as well as building strong and diverse communities, protecting the environment and strengthening the economy. That’s why food is such an effective vehicle to connect people to one another, to their neighbourhoods and their city.

I believe it is time to build on these connections and challenge ourselves to create a healthy and sustainable food system for all. I initiated the Toronto Food Strategy project to inspire discussion and action that will move us toward this goal.

“Cultivating Food Connections” proposes a new vision for Toronto’s food, one that unites health and city building. The report, which lays out numerous opportunities for Toronto to champion food system renewal, is the product of broad consultation with individuals and groups across City government and the community. We heard from a wide range of people – newcomers, neighbourhood organizations, farmers, students, health professionals, business people, and many more. Torontonians told us that they care deeply about making our food better.

Toronto Public Health’s 2007 report, “The State of Toronto’s Food”, showed that the food we eat comes from a complex system of connected activities – production, processing, distribution, marketing, consumption and disposal – from “grow it to throw it”. It warned of intensifying pressures from a range of food-related problems − hunger, obesity, chronic disease, disappearing farmland, environmental pollution − and Dr. David McKeown highlighted the need for coordinated and strategic approaches. Medical Officer of Health, City of Toronto

In 2008, the Toronto Board of Health endorsed the Food Strategy project, and a Steering Group was convened to guide the work, culminating in the “Food Connections” consultation report that was released in February 2010. I’m grateful to the diverse group of community food experts and senior City staff who served on the Steering Group. Its mandate was to help articulate a bold food vision for the city and begin to identify effective short and long term actions to implement it. I’m also thankful for the ongoing support and advice of the Toronto Food Policy Council.

1 Toronto already has many examples of food system leadership through the efforts of community organizations, City divisions and agencies, the private sector, and academic institutions.

With the support of the Steering Group, the Food Strategy project has begun the process of reaching out to, and connecting, a wide range of people and organizations in the community and across City government.

Visit our website (toronto.ca/foodconnections) for more information. You may also contact Peter Dorfman, Toronto Food Strategy Manager (Tel: 416-338-7935, Email: [email protected]), with your questions and comments.

I look forward to working with you to build a healthy and sustainable food system for Toronto.

Dr. David McKeown Medical Officer of Health, City of Toronto

Cultivating Food Connections 2 Introduction

Torontonians are ready for a fresh take on food. All this excitement has opened many people’s Many are looking for new ways to make a difference eyes to the need for decisive actions that foster by unlocking food’s potential to contribute to progress toward a healthier and more sustainable personal health, vibrant neighbourhoods and a great food system. Toronto, along with the rest of the city. People increasingly understand that food is industrialized world, faces a cascade of health, social connected to not only health, but the environment, and environmental problems connected to food. the economy and community. There’s growing At least one Toronto household in ten – the rate is interest in cooking, gardening, food festivals, much higher among urban Aboriginal populations, farmers’ markets, specialty food stores, food households of recent immigrants and lone parents – entrepreneurship, volunteering with neighbourhood can’t afford regular meals and a healthy diet1. This food projects, learning about nutrition, and hardship persists in the face of undeniable research supporting local farms and healthy and sustainable that links hunger and poverty to higher disease rates food. and lower life expectancy2.

Food is also becoming central to how residents and Alongside hunger, approximately one in three the outside world see Toronto. It’s recognized as the Toronto children (age 2-11) is either overweight or city’s number one service and industrial employer. obese3. According to a 2010 report from Statistics Diversity will be a defining characteristic of Toronto Canada, children as a group are “taller, heavier, in the 21st century and the city has food to match. fatter and weaker than in 1981”, which may Almost any food craving can be met in our Little lead to accelerated “non-communicable disease India, Chinatown, Greektown, Little Italy and development, increased health care costs, and loss Korea Town in the downtown, and lesser-known of future productivity”4. Newcomers to the city are restaurants featuring foods from a hundred cultures, often more vulnerable to poverty, unemployment, scattered across suburban plazas. And newly “fused” underemployment and social isolation than long cuisines, mixtures of food traditions that exist side established residents. Newcomers also face challenges by side in Toronto, are spontaneously emerging. in adapting to new ways to access, prepare, and eat Community agencies and non-governmental food in Canada, while attempting to preserve their organizations (NGOs) are spearheading made-in- healthful food knowledge and practices. Together, Toronto food projects that are winning international these factors contribute to a worrisome decline in the acclaim. health of many immigrants over time.

Toward a Healthy & Sustainable Food System 3 Food problems are not confined to one population. Many of Toronto’s food problems exist in spite of Children from all social groups are exposed to a enormous advantages. For example, the city has greater intensity and frequency of unhealthy food a large number of community agencies that do marketing than ever before. Many young people, creative and effective work on food access projects, and adults for that matter, lack basic food skills and urban agriculture, and strengthening communities information – the ability to cook healthy meals from through food. Torontonians are surrounded by the scratch, read food labels correctly, or know where Greenbelt, the largest area of protected near-urban food comes from. A rapidly aging population means greenspace in the world with some of the most fertile that the nutritional needs of seniors and the role soil in Canada. The food sector is the second biggest food can play in promoting independent living and employer in the province. The city’s chefs, many reducing the cost of medical expenses will quickly of whom feature local, sustainable and heritage become a priority. foods, are another asset. The diverse restaurant and food sector is fueled by dynamic entrepreneurs and The viability of local agriculture and rural is fast becoming as much a signature of Toronto’s communities is also put at risk by the current food system. The number of farms in the Greenbelt dropped by seven percent between 2001 and 2006, The Toronto Food Strategy project a bad omen for local farm survival5. The average “Cultivating Food Connections” is the next food producer earns a little more than stage in the Toronto Food Strategy. Toronto 6 $8,000 annually from farming operations , while Public Health spearheaded the project to build production costs continue to increase for many. It a vision and inspire action toward a health- is increasingly recognized that the food system’s focused food system. A strategy is more than high energy inputs account for as much as a third just a report or set of recommendations. It is of greenhouse gas emissions that are causing climate the ongoing process of identifying, building and strengthening positive connections - change7. Added to all of this, there are few signs of between local government and residents, preparation for a relatively near-term future when among City Divisions, within the community, fossil fuels for food production, transportation and and with the countryside. This report reflects storage will become scarcer and more expensive. the multitude of conversations with City Reliance on today’s long-distance, energy-intensive and community partners about the future of food system will soon become more difficult. Toronto’s food and creative initiatives that are flourishing across the city.

Cultivating Food Connections 4 creative edge as movies, live theatre, music, comedy, available. It also refers to a range of influences on publishing, biomedical research and higher the health of individuals, families, neighbourhoods education. and cities. A health-focused food system, in other words, nourishes the environment, protects against The Toronto paradox - a city with so many climate change, promotes social justice, creates advantages beset with so many food-related local and diverse economic development, builds challenges - calls out for new approaches. This is community and much more. This “big picture” where a food system perspective and “food system approach to health isn’t new. It reflects the holistic thinking” come into play. The term “food system” view promoted by the World Health Organization is commonly defined as the complex set of activities and endorsed by , sometimes and relationships related to every aspect of the food described as the “social determinants of health”. cycle, including production, processing, distribution, This report envisions an ongoing process whereby marketing, retail, preparation, consumption the big “c” City (local government), in active and disposal. Food system thinking is a way of partnership with the small “c” city (residents, seeing the bigger picture, of developing solutions community organizations and businesses), can to food problems by seeing and leveraging their continually move toward a food system that connections to other health, social, economic, promotes health for everyone. and environmental issues. Many initiatives led by community organizations and/or local government that embody this new way of thinking are already A Health Focused Food System underway. In large part, this food strategy initiative • Fosters food-friendly neighbourhoods is about building on this momentum - finding • Promotes social justice and implementing new ways of achieving multiple • Supports nutrition and disease prevention objectives through food. For this to happen, Toronto • Builds strong communities needs to think in strategic terms about how to • Creates local, diverse and green economic leverage and coordinate food advantages and assets development to help solve the city’s problems. • Protects and sustains the environment • Empowers people with food skills This report, and the Food Strategy project overall, and information is founded upon the idea that the food system • Nourishes links between city should be health-focused. This means much and countryside more than making safe and nutritious food more

Toward a Healthy & Sustainable Food System 5 Torontos i Poised to Lead the Way Cities are well positioned to play a leading role in address a wide range of urban priorities and, that fostering a healthy, sustainable food system. Toronto food can release the untapped potential of cities to is better equipped to lead than most. The potential address food issues. of cities to be food leaders may not be obvious, given that many formal food powers related to agriculture, Toronto’s Advantages healthcare, imports and infrastructure are in the When it comes to the list of what’s required for hands of federal and provincial governments. But cities to lead the way in food – knowledgeable the role of cities is rapidly changing in this century. and engaged residents, abundant natural assets, With more than half the world’s population and economic strength, “collaborative infrastructure”8 So many of the ingredients more than 80 percent of Canadians living in urban and dynamic leadership – the Toronto region has a areas, cities are a nexus of change, where health, lot going for it. Many of the ingredients to produce to promote health, social, economic and environmental challenges are health, environmental, economic and social benefits felt most acutely, and where ongoing opportunities through food are already in place, available to be for innovation, community participation and leveraged by a strategy and connected through a environmental, economic positive change are most abundant. common vision.

and social benefits through Many policies and programs that Canadians As individual community members, Torontonians take for granted began with experiments by local have repeatedly shown their willingness and governments. On the international level, the generosity in support of projects that help the food are already in place. role of cities as breeding grounds for innovation environment and society. The city has a respected, is becoming ever more important in the era of popular and effective group of community climate change. Cities all over the world are uniting organizations with a long history of achievements in action and Toronto is among them, earning in food access projects, urban agriculture, capacity a reputation as a global environmental leader. building and strengthening communities through Similarly, big cities are becoming leaders in food food. Indeed, a host of community agencies, system renewal. New York, London, San Francisco, NGOs, university institutes and publications are Chicago, and Belo Horizonte, Brazil, among others, earning Toronto a reputation as a world leader are spearheading efforts through a wide range of in food thinking and action. A broad network of initiatives. Whatever their inspiration, all agree that community food programs also provides emergency cities can release the untapped potential of food to food to thousands of people every day.

Cultivating Food Connections 6 When it comes to natural assets, the GTA is home Canada’s largest wholesale market for vegetables to some of the best agricultural land in the country. and fruits. With more than five million pounds On a clear day, over one third of Canada’s class of produce moving through the Terminal each one farmland can be seen from the top of the CN day, small and medium-sized retailers are able to Tower9. At a time of increasing water scarcity in rely on it to compete with large retail chains. The other parts of the world, Toronto has access to existence of the Terminal, one of the few public vast amounts of freshwater. There’s some comfort food distribution centres on the continent, is a big in knowing that governments have protected the reason why Toronto possesses a dynamic sector of Greenbelt, over 1.8 million acres. However, much independent and diverse neighbourhood retailers work remains to reconcile the interests of farmers, who have ready access to well-priced, high quality conservationists, local residents, and developers. foods. Surprising to those who think that food’s importance is restricted to the rural economy, it is As for economic clout, Toronto shoppers spend a foundational economic sector, providing one in about $7 billion per year on food10 . Many eight jobs in Toronto and generating $85.2 billion consumers use their purchasing power to support in annual revenues across the province11. Niche products that express their values, especially markets for local, sustainable, organic, artisanal and through local, fair trade, organic, vegetarian and ethnically diverse food are all growing rapidly, as are sustainable choices. To a remarkable degree, the efforts to stimulate, protect and recover regional food success of new food “niche markets” has been infrastructure. driven by demands from consumers, rather than governments, major corporations or food producers The food cluster in the has great – signalling a dramatic increase in the role of eaters potential for growth. Internationally recognized and citizens in shaping the emerging food system. nutrition research in Southern Ontario universities, While these markets are still relatively small, they agri-food research in Guelph, a bustling agricultural Ontario Food Terminal: The Terminal is the largest wholesale fruit and are being actively sought out by major food retailers, technology centre in the Niagara fruit and wine vegetable distribution centre in Canada and suggesting a potentially powerful role for consumers region, along with a wealth of nearby financial, supports diverse and independent retailers in creating larger structural changes to the biomedical research, information technology, across the region. food system. logistics expertise, and a culturally diverse customer base, all point to a region poised for a breakthrough Toronto is the second largest food distribution hub in food system renewal. The strategic challenge is on the continent. The provincially-charted Ontario to build the links within this common foodshed. Food Terminal, located in the city’s west end, is In other words, create a synergy of these advantages

Toward a Healthy & Sustainable Food System 7 so that their combined efforts are greater than the Hastings championed nutrition promotion, prenatal sum of their individual efforts. A pressing strategic care, food safety and water treatment as central opportunity is to link the evolving food cluster with to the public health agenda, resulting in Toronto the developing green economy and market the region winning a reputation as the healthiest big city in as the continent’s go-to region for food innovation. the world in the 1920s13. Toronto Public Health Toronto is already building a world reputation as continues to work with community partners to a centre for green investment. The Toronto Stock deliver and support a wide range of programs that Exchange, for example, has more “cleantech” link food with neighbourhood development and the companies listed than any other exchange in the social determinants of health. Prenatal and early world12. Food is an equally important building block childhood supports, nutrition education, food skills for a green economy. Food growing, after all, is the training, the Student Nutrition Program, working original solar and renewable industry. with Children’s Services to remove trans fats from meals, support to school gardens, the newcomer Toronto has also built “collaborative infrastructure” focused Peer Nutrition Program, Nutritious Food – opportunities for people from all walks of life to Basket monitoring, support in moving to healthier work together on solutions to common problems, choices in vending machines, food safety promotion instead of splitting into polarized groups. Scholars and enforcement, and dental services for people have argued that cities which embrace collaborative on low income, all testify to ongoing public health infrastructure are the ones most likely to succeed leadership. in the 21st century. A leading example of Toronto’s success in this direction is the City Summit Alliance, During the 1990s, Toronto’s Board of Health created organized by the late David Pecault. Leadership one of the world’s first food policy councils. The

GreenFuse for food system improvements has grown out of Toronto Food Policy Council (TFPC) is a City- Student Nutrition Programs: this civic culture of engagement and collaboration. supported, community-led organization that has The City collaborates with the Toronto Partners It encourages solutions, founded on “horizontal” pioneered the field of urban food system thinking. for Student Nutrition to provide nutritious food for over 122,870 children and youth in schools and partnerships, a precondition for successful and long- It has helped put a whole range of new food issues community sites. lasting teamwork around food. on the radar of local, national and international policy makers, including community and rooftop Toronto enjoys a history of dynamic leadership in gardens, local and sustainable food, rural-urban the broad area of food, going back to the crusading partnerships, nutrition labelling and GE-free milk. Medical Officer of Health Dr. Charles Hastings, a The TFPC was a major participant in the Food major force shaping the city during the early 1900s. and Hunger Action Committee, established by the

Cultivating Food Connections 8 newly amalgamated City of Toronto. It also helped Similar forward-thinking approaches to food are write the Toronto Food Charter (2001) which has evident in many parts of local government. For inspired dozens of charters across the continent. example, Toronto Community Housing uses More recently, TFPC launched the world’s first gardens as a cornerstone of tenant engagement and Youth Food Policy Council, an idea that is already green programs. Shelter, Support and Housing spreading internationally. Administration Division collaborated with Toronto Public Health, George Brown and Daily Bread Toronto Food Facts Food Bank to make healthier and more culturally appropriate emergency meals available through drop- Number of jobs in Toronto directly ins. Economic Development and Culture regularly 1 in 8 connected to food works with members of the Toronto Food Policy Council, including co-sponsoring a 2009 conference City’s ranking in North America as the on local food infrastructure. The Parks and 2nd largest food distribution hub Environment Committee directed staff, led by the Interdivisional Workgroup on Urban Agriculture, to prepare an inventory of City-owned land that Average annual income earned by Ontario $8,001 farmers from agriculture could be used for urban agriculture. Staff are also investigating the feasibility of allowing backyard chickens. Number of kilometres that the average 4,497i food item sold in stores has traveled All these advantages exist at a time when enthusiasm for food’s potential is at an all time high. But our Number of food calories that Canada produces or imports, as percentage of 145%ii strengths also highlight the need for concerted Toronto Drop-Ins - Creating Health Plus: what the average person needs action. With more than enough produced or Creating Health Plus is a partnership among the imported to feed everyone well, there are still Daily Bread Food Bank, and hungry families in Toronto. Likewise, most farmers the City of Toronto to produce healthier meals in Number of meals/snacks served per week 128,000iii by charitable food programs in Toronto drop-ins by increasing the nutritional knowledge are having a hard time making a living from their and culinary skills of cooks who prepare the food. farms, even though they live on fertile land next to Number of Toronto children that are a prime market. These challenges, in the midst of so 1 in 3 overweight or obese many advantages, call out for a comprehensive vision and strategy to make the most of our food system’s potential to build a healthy Toronto.

Toward a Healthy & Sustainable Food System 9 Moving Toward a Health Focused The modern food system surged ahead during the Food System 1950s, when methods so effective at mobilizing Since the 1950s, a focus on mass production resources during war were adapted to food. Tanks methods has dramatically increased food availability morphed into tractors, and chemical warfare turned in wealthier parts of the world. The modern, highly into weed warfare. The logic of industrialization, mechanized, commercial food system that supplies centralization and compartmentalization, so most of Toronto’s supermarkets, restaurants and successful in factories, was applied to agriculture dinner tables, has many successes to its credit. and food processing. Huge increases in food Despite significant population growth over the last availability followed. The idea that increased food 60 years, farmers and fishers produce more than production would automatically improve health and enough food for everyone on the planet. Year round, serve the public was logical for that time. Cheap it’s possible to find a diversity of reasonably priced fossil fuels, transformed into diesel, pesticides and tropical foods in grocery stores, along with locally fertilizers, made specialized or monoculture (one grown vegetables. Modern technology has also crop) farms possible. High input technologies, reduced some of the back-breaking and dangerous from tractors to irrigation, became standard. The work traditionally required in primary food term “agri-business” was first coined in the 1950s, production. when dominant food players became national and international conglomerates. Economies of scale led How We Got Here to greater concentration of ownership everywhere in Many of today’s food production technologies and the world, but particularly in Canada’s processing, institutions are legacies of the period following distribution and retail sectors. By 2005, for example, World War II, when the modern food system took just four grocery retailers controlled 78 percent of 14 Gelek Badheytsang shape. Most people at that time shared high hopes market share . Likewise, the number of farms in Greenest City: for a post-war world of plenty and freedom. Many Canada declined by more than 47,000 between 1996 Parkdale youth enjoy Greenest City’s and 2006 (a 17 percent drop), even as total farm garden and cooking programs, one of many had painful memories of hunger and famine during community-based programs funded by Live the 1930s and food rationing during the war. The acreage rose, an indicator that food was coming 15 Green Toronto grants. talk of those days was about building strong bodies, from ever larger farms . conquering hunger, and declaring war against poverty and disease. This explains why the Food Unintended Consequences and Agriculture Organization and the Charter of A system focused on mass production methods Human Rights were created so early in the United succeeded in making large quantities of food Nations’ history. available at relatively low prices across North America. Indeed, by the 1990s, the portion of

Cultivating Food Connections 10 household income spent on food had plummeted environmental benefits. This problem is partially a to about 10 percent, down from 20 percent in the result of the specialization that developed to support 1950s16. At the same time, a whole new category the modern food system. After the 1950s, a whole of highly-processed “convenience” foods filled range of new specializations flourished, both within supermarket shelves. Today, more than enough food agriculture (producers of growth hormones or is grown or imported into Canada – 3,339 calories genetically modified seeds, for example) and across for every person, every day of the year17. the food system (logistic experts, food scientists, information technology specialists, marketers, and Notwithstanding such successes, the food system others). is increasingly identified as a contributor to many serious problems, sometimes referred to as “negative Based on the same logic of specialization, distinct externalities” or “unintended consequences”. food issues became separated or “siloed” within a Unforeseen back in the 1940s, the food system has labyrinth of government ministries, departments We have a health system become a major source of climate change emissions and authorities. Food, which by its nature connects and pollution. Likewise, the overproduction of health, social, economic, environmental and cultural calorie-dense, nutrient-poor products that come goals, became disconnected. Seemingly separate that doesn’t care about out of processing plants fosters an unhealthy food issues – nutrition, agriculture, safety, job or “obesogenic” food environment, where the creation, waste, for example – were carved up into food and a food system that cheapest and most accessible choices are often the different government departments, making it more least healthy. These and other emerging problems difficult to treat them in interconnected ways. It are partly the result of a system that continues to also made it harder to prevent problems early on doesn’t care about health. prioritize mass production, rather than the health of by getting at the root of the matter, or by focusing people and the environment. on what public health experts call the “cause of the causes”, as distinct from the symptoms of Carving Up Food the problem. A focus on high volume production has become institutionalized, often without the checks and For example, early environment ministries were balances needed to support public health and protect designed to deal with “end of pipe” impacts on soil, the environment. For example, most farm incentives water and air pollution, rather than helping farmers and supports encourage farmers to produce more or processors reduce their environmental impact. commodities at a lower price, rather than rewarding Likewise, health ministries concentrate on treating them for growing healthier food or providing chronic disease and other “downstream problems”

Toward a Healthy & Sustainable Food System 11 caused partly by poor nutrition and unhealthy food Likewise, few anticipated that an overriding focus environments. For much of their histories, each on high volume production at low price could government domain focused on its own mandate, threaten regional food self-reliance. But by the rarely collaborating with others to seize common 1990s, food companies followed in the footsteps of opportunities and solve food-related problems. auto and textile companies, pursuing ever-increasing Siloed structures bred siloed thinking. The signs of cost efficiencies by becoming global. Farmers and disconnect between food and health are everywhere processors became suppliers to global food chains, now. Think of hospitals. They’re institutions rather than local communities. The basics of local dedicated to restoring health. But few hospitals see food infrastructure − from farmers’ markets to providing healthy food to patients as a key part canning facilities and meat packing plants − started of their mandate. Wendell Berry, an American to disappear. In recent years, interest in rebuilding philosopher of food and farming, famously local food systems has grown rapidly. addressed this paradox: “we have a health system that doesn’t care about food and a food system that Sometimes, both the local food movement and doesn’t care about health”. its detractors have become absorbed in debates expressing the same compartmentalized thinking The “small picture” thinking encouraged by that characterizes the dominant food system. compartmentalization also stands in the way of “We need to cut down on food miles to save the adapting to new conditions of the 21st century. Few environment”, say some. “We need to keep food of the factors driving success of the food system in prices low, no matter where it comes from”, say the post-war period exist any longer. The producers others. This report suggests that these discussions Tinashe Kanengoni - Community Food of that era relied on seemingly unlimited and would be better served from a broad food system Security Coordinator, Lawrence Heights: cheap energy. Ours can’t. They didn’t anticipate perspective. The issue is not so much which “My n role i our community centre is to engage and involve children, youth and the rest of that fossil fuels or irrigation water, fundamental to single food choice is “best”, but how can we the commnity in food-related activities and increased production, would ever become scarce accelerate progress toward a comprehensive health- programs.e W use food as a tool for learning, or unaffordable. That generation didn’t know that focused food system where goals of affordability, living and recreation. Cooking classes, growing there was a limit to the amount of waste or pollution environmental protection, local farm viability, land an organic garden filled with vegetables and that the soil, water and air could absorb. This use planning and others, can be reconciled. One making these activities fun for participants fillsy m day. Food is our connection.” generation does. of the functions of this food strategy project is to promote this kind of dialogue.

Cultivating Food Connections 12 The Road Ahead The table below highlights some of the key The food system of the future will be quite different differences between the existing dominant from the system we’ve known. This section has commercial food system, as it relates to cities, and described how the current dominant food system the emerging system envisioned by this report. developed and pointed to some emerging trends – scarcer and more expensive energy, increasingly In simpler terms, the emerging food system reflects expensive health, social and environmental three underlying principles - resilience, equity and externalities, and the need for more integrated, sustainability, all primary goals of any truly health- collaborative solutions. The road ahead will bring focused food system. other challenges, but also opportunities, for Toronto. For example, the increase in newcomers will grow the need for access to culturally appropriate foods, while also offering great economic opportunities for Ontario’s food sector to meet that local demand. The decline in car ownership (down 9% in Toronto Existing Food System  Emerging Food System since 199118), among other factors, points to an Prioritizes mass production  Prioritizes health opportunity to make food retail more accessible to residents through walking, public transit and other Foods i seen as a strategic vehicle for Foods i not seens a the business fo cities  means. An ageing population will test the city’s meeting city goals ability to support healthy food access for seniors, Environmental protection is a cornerstone of Foundedn o access to cheap fossil fuels  and many others who are on low income, socially food production, processing and distribution isolated and have physical activity limitations. But a Market forces determine location Neighbourhoods are planned with food  rising senior population also brings opportunities for of food stores accessn i mind volunteers to serve as community food animators, Food pricing unconnected  Food pricing favours healthy choices teachers of cooking and gardening and mentors to to nutritional benefit young people. For all of these reasons, Toronto needs Food issues carved up into separate Food solutions come from collaborative to take action now to prepare itself for the food  partnerships within and among governments government departments and jurisdictions needs of a 21st century city and seize a whole range and civil society of opportunities.

Toward a Healthy & Sustainable Food System 13 Resilience can apply to a system as a whole or to All neighbourhoods in Toronto would have nearby, individuals, neighbourhoods and cities. A resilient quality and affordable food stores, as well as spaces food system is able to meet the needs of consumers to grow, share and celebrate food – allotment in the face of short-term crises and resilient people gardens, community kitchens, restaurants and food are able to cope with adversity in ways that are not festivals, for example. only effective, but enhance their capacity to deal with future problems. No government can ensure Sustainability has been defined in numerous ways, or instil resilience, but public supports can be put in but fundamentally it refers to meeting the needs place to facilitate it at every level of society. At the of the present without compromising the ability individual level, a food system that values resilience of future generations to meet their needs19 . A would empower people with a broad range of sustainable food system prioritizes the protection food skills and information. It would foster strong of the environment so that the soil, air and water neighbourhoods with a sense of community where will be able to continue producing food long into people feel they can rely on each other in difficult the future. Beyond the environment, a sustainable times. food system is also economically and socially viable over the long term, especially for local A system that promotes equity ensures that food is farmers. Individuals would embrace elements accessible to everyone. Too many neighbourhoods in of a sustainable food system by composting and Toronto are underserved by quality and affordable choosing more locally grown and seasonal foods. food stores. Many residents, in the inner suburbs At the neighbourhood level, food stores would be GreenFuse Good Food Markets: especially, are now primarily dependent on public easily accessible on foot or by public transit, and Many neighbourhoods lack access to fresh, transit or walking to reach food stores. For some would offer sustainably grown foods with minimal healthy food. FoodShare works in partnership people, this adds a minor inconvenience. But for packaging. Local government would embrace “good with community organizations to run 17 a large portion of the community, especially those neighbour” policies. This could mean building Good Food Markets accross the city featuring without money for transportation, those with health links between local food producers and urban seasonal produce purchased from local farmers and the Ontario Food Terminal. problems that limit their mobility, seniors, as well eaters by expanding government purchasing of as mothers with young children, the lack of nearby sustainable food, promoting farmers’ markets, and stores is a significant barrier to a healthy diet. In a supporting the expansion of local, sustainable food food system that prioritizes equity, people would infrastructure. It could also mean implementing have access to enough safe, nutritious and culturally even more advanced waste diversion strategies related appropriate food, as well as access to accurate and to nutrient recycling and greenhouse gas mitigation. understandable information about their purchases.

Cultivating Food Connections 14 Resilience, equity and sustainability, therefore, are in North America to integrate advice covering not only prerequisites for a health-focused food nutrition, food safety and ecological criteria, all system. They reinforce each other. One way of in one package. Food system thinking is also expressing mutually reinforcing influences is the demonstrated when one City Division sees food- notion of a “virtuous circle”. For example, the way related activities as enhancing its own seemingly food is produced can protect against climate change non-food objectives. The Transportation Division’s by storing carbon in the soil and further nourishing Public Realm Office, responsible for keeping the the land, as well as the economy. Or, food city “green and clean”, acted on this principle when production can be a vicious cycle by exacerbating it funded signage and transit posters for community climate change through fossil fuel dependence, gardens and farmers’ markets. The Office leading to further environmental destruction, understood that people maintain and protect the depleted soil and more public funding diverted to fix beauty of spaces for which they feel ownership and those problems. Using food to create a virtuous circle affection, both of which food activities help build. of continuing benefits is an objective of a Food system innovators commonly have a knack food strategy. for finding and leveraging underused resources with assets that hadn’t been visible to those who thought Thinking Outside the Breadbox in less holistic ways. The non-profit organization Thanks to a long rich history of “out of the box” Evergreen has transformed the former Don Valley food initiatives, Toronto is primed for success in Brick Works from a collection of deteriorating food system innovation. Indeed, many parts of local heritage buildings into an international showcase government, as well as non-profits and businesses in for urban sustainability and green design. Similarly, the city, have been evolving in this direction without through a collaboration among Artscape, the Stop actually naming the process or adopting a formal Community Food Centre, the City of Toronto, and food strategy plan. many community and government stakeholders, Toronto Food Business Incubator: Susan Ho, founder of TeaAura Inc, developed the Wychwood Barns now offer public green space, her f line o tea-infused shortbread cookies at There are several key characteristics that most of a greenhouse, a farmers’ market, and office space the Toronto Food Business Incubator. With these successes have in common. For example, for many community groups. Finally, food system support from the City of Toronto, the TFBI they typically identify a wide range of nutritional, projects frequently make full use of partnerships provides access to business resources and cultural, economic, community and environmental among different levels of government and with industry-standard equipment to help start- up micro-enterprises become commercialized benefits. Toronto Public Health staff embraced this citizens and community groups. One of the most food businesses. thinking in preparing their 2006 fish consumption effective examples is the Student Nutrition Program, education and guidance documents, the first a collaboration among school boards, the City of

Toward a Healthy & Sustainable Food System 15 Toronto, the provincial government, community Food is also rooted in the work of many agencies, organizations and parents, which now provides boards and commissions funded by, or connected to, healthy food to 122,870 students in 433 . For example, Exhibition Place hosts a schools daily. food pavilion, a range of food outlets and the annual Royal Agricultural Winter Fair, the largest fair of its kind in the world. The City-owned St. Lawrence Local Government’s Food Levers Market has been a vital part of Toronto’s food scene since the early part of the city’s history and has Cities don’t have the full toolkit to remake an been named one of the top 25 markets worldwide20. entire food system. They need partnerships with The , the largest public residents, neighbours, businesses and other orders library system in North America, houses a wealth of of government to make this new vision a reality. information on every aspect of food, including no However, cities have more influence over how food less than 2,500 cookbooks. systems work than many suppose, and could have even more influence if they started to identify, name A lot of municipal spending goes to food, directly and intentionally leverage what they can do in or indirectly. Three City Divisions − Children’s support of a healthy, sustainable food system. Services, Homes for the Aged, and Shelter, Support and Housing − spend a combined $11 million a Cities regulate food sales, provide business year to feed 7,000 people each day21. Parks, Forestry licenses, carry out food safety inspections, support and Recreation coordinates millions in foodservice community gardens and provide allotment garden contracts. The City spends millions more on food spaces, promote healthy eating, offer breastfeeding in less obvious ways when you consider garbage support, run nutrition education programs, fund collection and composting (Toronto picks up the Nutrition Education Programs: school food programs, serve food in childcare centres tab for much of the 20-40 percent of the food that’s Toronto Public Health Dietitians and Nurses and seniors’ homes, provide social housing, fund wasted in the system), and a portion of the millions help residents build their food skills such as dental clinics for low income families, support the reading labels, learning nutritious recipes, spent each year to maintain Toronto’s roads (it is shopping skills and cooking economically. growth of food processors and retailers, apply zoning commonly accepted that 20 percent of all vehicle rules, coordinate food festivals and events, and more. trips are for food).

The City has already taken advantage of many levers for food system change. In 2008, Toronto adopted a local food procurement policy to begin

Cultivating Food Connections 16 to leverage its purchasing power in favour of home- Successful cities work with residents to help the grown products. Toronto has earned a reputation community grow in ways that fit their own needs as an environmental champion by adopting and desires. This is especially relevant for food green technologies, requiring green roofs on new because, while eating habits and food purchasing developments, restricting cosmetic pesticide use, decisions may be supported by public policy, they and supporting urban agriculture projects. And require the consent and participation of individuals this report builds on work done a decade ago by and families. That’s why community animation the Food and Hunger Action Committee and the – the task of tapping the creativity of residents subsequent adoption by City Council of the Toronto and fostering collaboration on projects – is such Food Charter in 2001. an important lever for cities, all governments, and community agencies to use. There is a new energy in government and agency circles focused on place-based initiatives and Animators are already playing pivotal roles in services. The closer that supports and services are to establishing food-friendly neighbourhoods across the place they’re serving, the more accessible they Toronto. The Toronto Community Food Animators, are to residents needing the service, the more flexible funded through the City’s Community Partnership they can be in adapting to local needs, and the easier and Investment Program, have helped residents it is to build trust and ongoing relationships in the in underserved neighbourhoods organize farmers’ community. The hundreds of projects happening markets, community kitchens and community in Toronto’s thirteen priority neighbourhoods are gardens. They are now working with Toronto examples of local government and communities, led Community Housing to develop a comprehensive by Neighbourhood Action Partnerships, working strategy to grow and support community gardening Y t Café a Metro Hall: together to complement each others’ efforts. The as a neighbourhood engagement and capacity Toronto Employment and Social Services and initiative has leveraged more than $86 million in building project. Toronto Public Health’s Diabetes theMCA Y have collaborated to open the Y Café at Metro Hall. Participants receive hands-on funding from non-government sources since its Strategy has funded ethno-culturally specific trainingn i a realistic kitchen environment for inception. The food strategy’s proposed creation of community outreach workers to animate its work. 18 weeks under the direction of professional food-friendly neighbourhoods as a key action area Livegreen Toronto Community Animators, funded instructors. fits well with this approach. by the Toronto Environment Office, are using food projects to breathe life into neighbourhood activities Fortunately, great cities are not limited by their that also advance the city’s environmental agenda. authority to command and control. They also use their capacity to animate and inspire residents.

Toward a Healthy & Sustainable Food System 17 But even with the power of animation, there are wide range of community perspectives, Toronto limits to what City budgets can fund. Like all cities, Public Health invited community groups that Toronto needs other levels of government to help are often under-represented to participate in with adequate funding and supportive legislation. the process. Twenty-five community groups Many planning, zoning, licensing, public health, organized self led consultations on food systems taxation and similar roles that influence food in issues in their community. Groups included cities are governed by provincial and/or federal Aboriginal communities, newcomers, seniors, authorities. Consequently, cities must also lead by women’s groups, people living with AIDS, and leveraging their ability to partner with, and advocate persons with disabilities,.. to, other levels of government. Some key themes emerged from the consultation What Torontonians Told Us process, especially the affordability of healthy food, lack of access to quality food stores, the In early 2010, staff conducted a Food Strategy specific needs of newcomers adjusting to a new consultation and engagement process. The food system, a range of food safety and quality consultation report, “Food Connections: Toward issues, concern about the lack of basic food skills a Healthy and Sustainable Food System for and the unhealthy diets of children and youth, Toronto”, formed the basis for discussions with and the poor quality of food available through residents, community organizations, business, food banks. At the same time, many groups farmers, City staff and other levels of government. expressed interest in acting on community- A more detailed summary of the process and Anfernee Chansamooth based food solutions, including growing and feedback is provided in the “What We Heard” Evergreen Brick Works Farmers' Market: cooking food (for consumption and sale) in their Throughout the summer, the Saturday market report, available on the Food Strategy website communities, purchasing food from local farmers, features fruits, vegetables, wild fish, meat, (toronto.ca/foodconnections). starting small food businesses and getting better cheese, milled flours, eggs and oils – all from access to neighbourhood food stores that sell fresh local producers. In total, staff met with, and heard from, more food. Many residents expressed frustration with than 60 community organizations across the city. the lack of clear information and resources to The Toronto Food Policy Council also organized create solutions in their own community. Most discussions on key themes, including urban expect governments to play a role in facilitating agriculture, small green business, poverty, hunger, solutions. the environment, and coordinated specific sessions for youth, academics and chefs/food artisans. To ensure that the food strategy was informed by a

Cultivating Food Connections 18 Toronto Public Health staff also initiated a livable neighbourhoods, stronger and more diverse number of meetings with Divisions across economic development, better environmental the City, including the Affordable Housing protection, and a growing reputation as a leader in Office, City Planning, Economic Development food system renewal. To achieve this, it’s essential & Culture, Long-Term Care, Homes & to make food system innovations an intentional Services, Parks, Forestry & Recreation, Social part of all that the City does. In other words, local Development, Finance & Administration, government needs to embed food system initiatives, Toronto Employment & Social Services, as well as food system thinking, into existing work Toronto Environment Office, Toronto Office and priorities. Embedding food system initiatives is of Partnerships, Transportation, as well as not about making food a priority that competes with with interdivisional committees and the City other City priorities for resources and attention. On Manager’s Office. There were also ongoing the contrary, it is about being proactive and using discussions with Toronto Public Health food activities as a way to enhance efforts to meet staff, Local Health Committees and several Toronto’s ongoing goals. Agencies, Boards and Commissions, including Toronto Community Housing Corporation. This report recommends that the City Manager The discussions resulted in a number of new request all City Divisions, Agencies, Board collaborative initiatives that are identified later and Commissions, to identify and implement in this report. Discussions with staff revealed the opportunities to embed food system initiatives in many links between food system issues and their City policies and programs. The following sections ongoing work. Many felt that some barriers to describe specific initiatives that the City of Toronto progress were beyond their control and welcomed can take, in active partnership with residents, Oriole Community Peanut Garden: initiatives that linked their efforts to the work of community organizations and businesses. The Peanut Garden is a welcoming place for newcomers in the heart of the Don Mills other City Divisions and community initiatives. and Sheppard area. Moving into its seventh Torontonians told us that they want governments season, the organic garden is a partnership to be enabling and proactive leaders in food issues. between Advent Lutheran Church and Working Embedding Food System Initiatives But they also emphasized the need for efficient Women Community Centre, and funded by the in City Government use of existing assets and concerted efforts to align Cityf o Toronto's Food Security Investment Program. resources across different Divisions. City staff are This report supports Toronto taking the next also well aware of current budget limitations and steps to champion a healthy and sustainable food are looking for ways to leverage scarce resources to system. In doing so, the city stands to reap multiple meet the needs of Torontonians for a healthy, safe benefits – healthier residents, more vibrant and

Toward a Healthy & Sustainable Food System 19 and livable city. The initiatives listed here reflect Support Food Friendly Neighbourhoods what Torontonians told us. Thus, the list features opportunities to leverage existing resources and Many Torontonians told us that they want their initiate food activities that will help meet the health, neighbourhoods to become living models of a economic, environmental and social challenges food-friendly city. People understand that food that Toronto faces. Along with specific actions, the and strong neighbourhoods belong together. sections below point to momentum that’s already In other words, they reinforce each other. Safe producing positive, creative and collaborative food and friendly neighbourhoods offer healthy and system initiatives. vibrant food scenes, and lively food environments bring neighbours together. Neighbourhood is where a relationship-based food system – one that strengthens the relationships among people and Priority Areas for Action between people and nature, as well as people and the source of their food – takes shape. For that to 1. Support Food Friendly Neighbourhoods happen, many areas of the city will need better 2. Make Food a Centerpiece access to quality, affordable food stores, more opportunities for food growing, more local food of Toronto’s New Green Economy festivals and celebrations, and multiple opportunities 3. Eliminate Hunger in Toronto to use food activities to build stronger and more vibrant neighbourhoods. 4. Connect City and Countryside through Food Traditionally, lively neighbourhoods have formed around key public services such as libraries, 5. Empower Residents with Food Skills schools, parks, community health clinics and The Toronto Community Food Animators: Food Animator Anan Lololi of the Afri-Can and Information recreation centres. A similar way to link food and FoodBasket, at the Varna garden in neighbourhoods is to integrate a wide range of 6. Urge Federal and Provincial Lawrence Heights. food activities into community centres, and employ Governments to Establish Food Animators to help organize and mobilize Health-Focused Food Policies communities around food to produce community- based solutions. In ways that are complementary to their core functions, these centres can provide essential services, including drop-ins, perinatal

Suppor t Food Friendly Neighbourhoods 20 programs, community kitchens, nutrition education 2. Integrate food activities into and community gardens. Though links between community centres/ hubs and food and neighbourhood may develop spontaneously neighbourhood action teams in some areas, City staff community agencies should seek to animate these connections wherever they Already Underway: need some start-up assistance. • Community hubs, currently in development by the City in collaboration with United Way 1.Expand food animation to serve and community and private sector partners, are every neighbourhood being designed with enhanced kitchen facilities to enable community cooking programs and Already Underway: greater capacity for food programs of all types. • The Toronto Community Food Animators, • A number of Neighbourhood Action Teams funded through the City’s Community have supported community-based food Partnership and Investment Program, have initiatives. been highly successful in helping residents in Next Steps: underserved neighbourhoods organize fresh • City staff will work with community partners produce markets, community kitchens and to increase and integrate a broad range of food community gardens. The Toronto Environment activities in community and recreation centres, Office’s Live Green Animators are also libraries and community hubs. incorporating food initiatives into their work. 3. Leverage existing food-related Mount Dennis Community Kitchen: Next Steps: Thankso t United Way's Action for assets • City staff will work with community partners Neighbourhood Change initiative, residents and potential funders to expand food animation organize many community activities and Already Underway: events which bring them together to cook, capacity to serve every neighbourhood by • Parks, Forestry and Recreation is developing garden and plan neighbourhood improvements. 2014, including integrating food into existing an inventory of kitchens, gardens, food-related animation efforts. programs and activities in community centres. • City staff will work with community partners to identify existing animation capacity, needs • Toronto Community Housing is conducting an and resource implications of citywide expansion inventory of kitchens in their buildings. of food animation. • Toronto Homes for Long-Term Care is conducting an inventory of food-related

Suppor t Food Friendly Neighbourhoods 21 programs and activities in their homes Next Steps: and services • The Toronto Environment Office is preparing a report(s) for the Parks and Environment Next Steps: Committee, from the interdivisional team, • City staff will conduct inventories of food- that will discuss policy and program options related assets and infrastructure in all City to support an increase in urban agriculture Divisions and Agencies. These inventories can activities, including a discussion on permitting be a starting point for enhancing community the raising of chickens in backyards and how access, new programming, and capital City owned lands, outside of parks, may be improvements such as upgrading kitchens to utilized in support of urban agriculture. allow for greater utilization. 5. Establish enabling city policies 4. Expand urban agriculture to expand healthy food access

Already underway: Already Underway: • The Toronto Environment Office supports • Parks, Forestry & Recreation is in the process of many new urban agriculture initiatives developing and updating a range of food-related through the Live Green Toronto program. For policies (e.g. markets, gardens, community bake example, in 2008 and 2009 almost $800,000 ovens) as part of their service planning. was invested in the community in support of • Toronto Public Health is working with schools The Duncan Mills Co-op Rooftop Garden: developing and expanding food production to develop school nutrition policies. Looking for ways to build a greater sense of spaces and projects and the Live Green Toronto community and improve the quality of life Community Animators continue to work in for many senior residents, the Duncan Mills Next Steps: Labourers’ Local 183 Co-operative Home built neighbourhoods to assist with the establishment • City staff will establish or update City policies a rooftop garden on its terrace. The raised of community and backyard gardens. bed design means that even residents with to expand access to healthy food through limited mobility can garden and become more • The Toronto Environment Office coordinates community gardens, allotment gardens, physically active, while getting to know their an interdivisional team that has been children’s gardens, bake ovens, farmers’ neighbours. identifying and evaluating barriers and markets and fresh food markets on City land, opportunities to increase urban agriculture while adhering to food safety regulations initiatives in the City. and requirements for maintenance and administration.

Suppor t Food Friendly Neighbourhoods 22 6. Identify neighbourhood food fruits and vegetables can be sold from trucks access problems and solutions in underserved areas of the city where it is presently not permitted. Already Underway: • Social Development, Finance & Administration 8. Support Toronto's Aboriginal and Toronto Public Health have developed Communities maps that identify the location of a wide range of community food-related assets, including Already Underway large and small food stores, restaurants, food • The City Manager’s Office has convened a staff banks, farmers’ markets, community gardens group to develop the Toronto Urban Aboriginal and recreation centres. Framework to identify how the City can best serve local Aboriginal communities and engage Next Steps: them in the decision making process. • Toronto Public Health, City Planning and • Toronto Public Health has convened a Social Development, Finance & Administration Roundtable on Urban Aboriginal Health, will identify specific neighbourhoods in need a collaboration of people and organizations of better access to quality, affordable food focused on promoting and protecting the health stores and food growing spaces and identify and well-being of Aboriginal peoples opportunities to use planning and other in Toronto. municipal levers to enable food access. • Toronto Public Health’s Peer Nutrition • Toronto Public Health will include food access program provides a range of food security and considerations in its review of health impacts of nutrition services to individuals and agencies in the built environment. the Aboriginal community. The Peer Nutrition Aboriginal Nutrition Program: Program has played an active part in the As f part o Toronto Public Health's Aboriginal 7. Facilitate fresh food retail in Peer Nutrition program, participants use Roundtable and Toronto Urban Aboriginal underserved neighbourhoods traditional foods to prepare and enjoy Framework. nutritious, affordable and tasty meals. Next Steps: Next Steps: • Toronto Public Health, Municipal Licensing • In the planning of the Toronto Urban & Standards, Transportation Services and Aboriginal Framework and the Roundtable Tower Renewal staff will implement a pilot of on Urban Aboriginal Health, participants will mobile sales of fresh produce, whereby fresh

Suppor t Food Friendly Neighbourhoods 23 consider how to meet the unique food needs Next Steps: of Aboriginal communities, e.g. food co-ops, • City staff will explore opportunities for access to game meat, indigenous vegetables and increased funding to enable expanded provision fruit seedlings, community dining circles and of healthy and culturally appropriate meals in nutritious emergency food. City of Toronto shelters and childcare centres.

9. Support food opportunities • City Council to urge the Ontario Ministry of in Toronto Community Housing Health and Long-Term Care to provide a top up of the $7.31 per diem for food in order to Already Underway: expand the provision of healthy and culturally • Toronto Community Housing is developing a appropriate foods to residents living in long- community garden strategy, in collaboration term care homes. with the Toronto Food Animators, to facilitate greater access to food growing opportunities Make Food A Centerpiece of for tenants. Toronto’s New Green Economy

Next Steps: In speaking to Torontonians during the consultation • Toronto Community Housing to collaborate and engagement process, most people were surprised with key City Divisions and community at just how important food is to Toronto’s economy. partners on expanding food initiatives Many felt that the City should profile food’s (community gardens, community kitchens, economic potential and include it in efforts to build Community Catering Business: bake ovens and fresh food markets) to foster The Flemingdon Health Centre started the a more environmentally sustainable or “green” Community Caterer Program in 2008 to help strong, vibrant neighbourhoods. economy. But people also stressed the need to residents launch small catering businesses. • Toronto Community Housing to integrate support small business start-ups too, including social One day each week, the caterer prepares food food infrastructure and programming, enterprises, micro-businesses and community-based in the health centre's kitchen to sell to staff businesses. and other tenants in the building. “Suluv's where feasible, in their revitalization and Catering”s i the fourth company to get its start redevelopment efforts. Food is already a foundation of Toronto’s economic through the program. success. Food production, processing, distribution, 10. Expand access to healthy and marketing, retail and services employ about one culturally appropriate food in person in eight. On top of that, the $7 billion city food programs that Torontonians spend on food every year could generate and sustain a wider range of local jobs

Make Food a Centrepiece of Toronto's New Green Economy 24 and careers. The City already supports many start- Next Steps: up, diverse and artisanal food businesses but the • Economic Development and Culture to potential to create quality and environmentally continue to support the Toronto Food Business conscious jobs in the food sector is still very Incubator and expand its outreach to: much untapped. • include community-based and social In an era of heightened environmental awareness, enterprise programming, and there is an opportunity to make an expanded • increase its capacity to support the scale food sector a centerpiece of an emerging green up of new and existing businesses to serve economy as well as a cultural and environmental emerging markets. success story. According to the Martin Prosperity Institute, Ontario’s food sector has the potential to rival the once dominant auto industry as a pillar of 2. Support social enterprises economic strength and a generator of employment opportunities of many kinds in the manufacturing, Next Steps: service and creative sectors22. • Toronto Public Health, Economic Development & Culture and Toronto Employment & . 1 Cultivate small food business Social Services to identify opportunities to start-ups support or create community-based and food-related social enterprises that combine Already Underway: skills development, opportunities for income • The City-supported not-for-profit Toronto generation, environmental protection and safe Food Business Incubator supports a wide and nutritious food. St John’s Bakery: St. John’s Bakery is a social enterprise that range of start-up, diverse and artisanal food provides training and employment for people entrepreneurs. Funding is provided, in part, by with significant barriers to employment. Economic Development & Culture, along with . 3 Create a “Hiddenlicious” event Its i operated by St. John the Compassionate the Federal Government and private sector. The to promote diverse cuisines Mission. Their 23 varieties of organic artisanal demand for the Incubator has grown rapidly across Toronto bread are sold throughout Toronto. and has potential to nurture and scale up many more diverse food enterprises. Next Steps: • Economic Development and Culture to work with local Business Improvement Associations (BIAs), the Toronto Food Policy Council,

Make Food a Centrepiece of Toronto's New Green Economy 25 Toronto Public Health, Special Events, the negatively impact early childhood development, Ontario Culinary Tourism Alliance and and can produce poor mental health outcomes, other eco-food initiatives to establish a social exclusion, and make it much more difficult “Hiddenlicious” event that highlights lesser- for families and communities to survive and known businesses across the city that feature thrive. culturally diverse, healthy and/or sustainable In spite of their best efforts, food banks are the food. first to acknowledge that they are not a solution to hunger or poverty. Some are striving to evolve 4. Embed food into green into multi-service hubs as a way to link the employment strategies nutritional needs of clients with housing, food Next Steps: skills, settlement, community engagement, and other services. • Economic Development and Culture and Toronto Public Health to work with the Green Eliminating hunger needs to be a priority health, Jobs Action Group to highlight opportunities to social and ethical issue for the whole city. Local create green jobs in Toronto’s food sector. government itself has limited powers to address income inadequacy. The City has no powers to set social assistance or minimum wage rates. In Eliminate Hunger in Toronto addition, income redistribution programs cannot be sustained through a municipal budget that is Torontonians told us that the existence of hunger, heavily dependent on a property tax base. especially among so many of the city’s children, is unacceptable in a city that strives to be an Toronto must continue to champion the right Congregate Dining at Harmony Hall: economic and social leader of the 21st century. of all residents to adequate amounts of safe, The Harmony Hall Centre for Seniors One in ten Toronto households can’t regularly nutritious and culturally-acceptable food provides many services, including affordable afford to put enough healthy food on the table. to maintain health and live a dignified life. congregate dining and transportation to This means urging the federal and provincial supermarkets. In 2008-2009, the Centre Many single parents, those with disabilities, governments to establish a comprehensive income prepared and served over 8,000 nutritious Aboriginal people and racialized communities mealso t more than 500 residents. suffer disproportionately. There is undeniable security system. Such a system would build on research that links hunger and poverty to existing income support mechanisms and include higher rates of disease and lower life expectancy. a range of income supplements so that all Ontario But its impact goes well beyond the physical. residents, including people on social assistance and The overlapping cycles of poverty and hunger the working poor, would be able to obtain and

Eliminate Hunger in Toronto 26 retain without penalty, sufficient income to live a . 2 Establish community food centres dignified life (e.g. Housing supplement, childcare subsidy, Ontario Child benefits, nutrition Already Underway: allowance, income supplements for medical • Multi-service food centres, such as the conditions, etc.). Stop Community Food Centre, as well as community centres that integrate food activities, In the absence of a comprehensive income security such as Scadding Court, Lawrence Heights and system, inequities in food access will continue to East Scarborough Storefront, already operate cause unnecessary suffering for individuals and in Toronto. These centres breathe life into impose preventable and excessive financial burdens neighbourhoods by being places where people on all governments. can get food, learn food skills, participate in . 1 Champion food and income community gardens, organize community security events and meet neighbours.

Already Underway: Next Steps: • City Council has already adopted positions in • Establish a new community food centre in favour of a stronger income security system, an underserved area of Toronto, based on the including increasing social assistance rates. expertise of existing centres, such as the Stop Community Food Centre. The City to work • The City of Toronto is taking steps to with community, private and public sector strengthen and better integrate services, such partners to secure the necessary funding and as working with communities to develop determine an appropriate location. Neighbourhood Action Partnerships and strengthening pathways to employment. . 3 Expand provision of nutritious The Stop Community Food Centre: At the Stop, neighbours participate in a broad food in drop-in programs rangef o programs that provide healthy food, Next Steps: foster social connections, build food skills • City of Toronto to continue to take a leadership Already Underway: and promote civic engagement. Among the role in advocating for income support systems • Shelter, Support and Housing Administration, Stop’s initiatives are community kitchens that reflect the cost of healthy eating. Toronto Public Health, George Brown College and gardens, cooking classes, drop-in meals, perinatal support, a food bank, outdoor bake and The Daily Bread Food Bank have worked ovens, food markets and community advocacy. together to improve the quality of food in 24

drop-in centres and provided food-related job skills training.

Eliminate Hunger in Toronto 27 Next Steps: 1. Build farm to school links • In the absence of an adequate income security system, Shelter Support and Housing Next Steps: Administration will work with Toronto Public • City staff will work with school boards and Health and community partners and funders community agencies to expand urban farms, to support efforts of drop-in centres to provide farm-to-school programs, and purchases of local nutritious and culturally appropriate food. and local-sustainable food. • City staff will explore partnerships with the Connect City and Countryside Ontario Food Terminal and the Student Through Food Nutrition Program to purchase local, healthy and more affordable food. Torontonians told us that they’re increasingly interested in reconnecting with their food – 2. Expand City Procurement where it comes from, what it takes to produce it of Local Food and what’s in it. In an era of rising energy prices and threats from climate change, it’s essential Already Underway: for Toronto to support farmers and help protect • In 2008, the City adopted a local food local farmland. The City has already begun to procurement policy to start to leverage its strengthen the regional foodshed through the purchasing power in favour of locally grown adoption of a local food procurement policy. products, beginning with Children’s Services. Consumers who are more knowledgeable about where their food comes from are also more likely Next Steps: Southern Horizons Market Gardening: to seek out more locally grown products. One • City staff will continue to explore funding Rodney Garnes and Margaret Zondo got job of a food strategy is to connect city and their n start o a 2.5 acre plot on the McVean opportunities to expand the City’s purchases of countryside, and thereby bring the understanding farm. The land is owned by Farm Start, an local and local-sustainable food. organization dedicated to building a new of mutual benefits closer to home. By working generationf o farmers by providing low-cost together as good food neighbours, Toronto and accesso t near-urban farmland. They now communities across Southern Ontario could help grow and sell diverse vegetables and herbs, generate an economic boon for Ontario. including okra, mustard greens, pumpkin leaves, callaloo, and calypso tomatoes.

Connect City and Countr yside Through Food 28 . 3 Work with GTA neighbours on Empower Residents with Food a regional food strategy Skills and Information

Next Steps: Torontonians told us that they want to know more • The City and the Toronto Food Policy Council about the food they eat and they’re concerned that to collaborate with the GTA Agricultural children are growing up without the skills and Action Committee, the Ontario Ministry of information they need to choose a healthy diet. Food Agriculture, Food and Rural Affairs, GTA literacy is essential to building a healthier, more governments, public health units and food sustainable, equitable and resilient food system. As producers to develop a regional food strategy people told us, the work begins with ensuring that the that addresses the needs of farmers and Toronto next generation is more connected to the food that residents. goes in their mouth – how to buy, grow and prepare healthy food, and be able to pass these essential skills and information on to their own children. Parents . 4 Link local producers with urban also told us they want schools to teach food literacy to consumers reinforce what children learn at home.

Next steps: Moving towards a healthy and sustainable food • Economic Development and Culture to system cannot take place unless citizens and collaborate with the Friends of the Greenbelt consumers make choices to support that goal. Foundation, the GTA Agriculture Action Residents told us of the anxiety they experience Green Thumbs, Growing Kids Committee, the Ontario Food Terminal, about not having enough clear and understandable the Ontario Culinary Tourism Alliance, the information to make food choices. They expect Gardent a Winchester School: Ontario Ministry of Agriculture and Rural In classrooms without walls, more than 30 governments to champion greater food system Toronto elementary and secondary schools Affairs and other stakeholders to build links transparency. This is especially important in a link food activities to math, science and between local farmers and Toronto’s diverse multicultural city such as Toronto, where many other subjects. markets. newcomers want opportunities to find culturally appropriate foods, understand food marketing messages, and generally adapt their food skills to their new home.

Empower Residents with Food Skills and Information 29 . 1 Expand Student Nutrition . 2 Require nutrition information on Programs to all schools in Toronto restaurant menus

Already Underway: Next Steps: • The City collaborates with the Toronto Partners • The Medical Officer of Health will report to for Student Nutrition and the provincial the Board of Health on a City bylaw requiring government to provide nutritious food for selected nutrition information to be posted on over 122,000 children and youth in schools the menus of chain restaurants in Toronto. and community sites. Student nutrition programs help to create healthier eating habits, . 3 Integrate food skills into city prevent obesity, the early onset of diabetes and programs cardiovascular disease, and provide students with the nutrients and energy they need to be Already Underway: ready to learn. • Using a train the trainer approach, Toronto Employment & Social Services and Toronto Next Steps: community food animators are collaborating • City Council to extend municipal funding to to train social assistance recipients in food and all provincially designated school communities animation skills with a view to job creation and in Toronto over 2010-2014 in accordance with expanding food access, using funding from the the five year plan endorsed by the Board of Investing in Neighbourhoods initiative. Let’s Talk Support Program: • The Investing in Families program for single The Toronto Public Health Let’s Talk program Health, and provide annual funding increases has found that food discussions can be a to address the cost of nutritious food. parents on social assistance is beginning to use great o way t open up conversations about food as a vehicle to develop job and life skills. • The Medical Officer of Health will report other important issues. For example, talking about children’s food needs can lead to to the Board of Health on best practices Next Steps: parenting strategies and talking about an for a student nutrition strategy, including • Toronto Public Health, Social Development, upcomingBQ B opens the door to sharing administrative structure, outcomes for Finance & Administration and Toronto concerns about community safety. children’s health, educational outcomes and Employment & Social Services to establish a behaviours, and financial information for the pilot community food handler certification 2011 budget process that allows for one, two or and food skills training program, for people on three year phase-ins. social assistance and other low income residents, delivered in a community setting.

Empower Residents with Food Skills and Information 30 • Toronto Public Health and Tower Renewal Next Steps: will establish a pilot community food handler • Economic Development and Culture, Toronto certification and food skills training program in Public Health, Parks, Forestry & Recreation, St. Jamestown. Toronto Environment Office and other • All City Agencies, Boards, Commissions and appropriate Divisions to develop and distribute Divisions to explore opportunities to integrate clear language information in multiple food skills into their programs. languages to make it easier for residents to understand food-related City policies and requirements (e.g. regulations related to food . 4 Develop guidelines for soil safety safety, food sales, zoning, urban agriculture, starting a food business, commercial kitchen Next Steps: designs, etc.). • Toronto Public Health to lead the development of a soil contaminant protocol as a resource . 6 Promote food literacy in schools to guide and inform urban gardeners about ways to minimize the risks associated with soil Already Underway: contaminants, including options for soil testing. • Twenty four food gardens in Toronto schools are funded through the School Food Garden 5.Make City food policies clear Project, a partnership among Toronto Public and accessible Health, FoodShare and school boards. The gardens link food activities to science, math and Already Underway: Beyond 3:30 Junior Chefs Program: other subjects. Beyond 3:30 is a unique after-school program • Toronto Public Health is producing clear offeredn i seven TDSB schools. The Junior Chefs language materials to inform residents of Next Steps: Club introduces youth to healthy food choices commercial kitchen requirements. Many • Toronto Public Health and other City Divisions and cooking skills, something that can have a residents want to use kitchens in community continue to work with community groups, big n impact o their lives today and throughout centres to learn food skills and to cook for adulthood. The program is made possible by parent groups, school boards and the Ministry a partnership among TDSB Model Schools community events. Toronto Public Health is of Education to weave food literacy broadly for Inner Cities, the Toronto Foundation for working with communities to enable kitchens into the curriculum and the school experience Student Success and the Toronto Community to be classified for commercial uses, while (school gardens, nutrition education, cooking, Foundation. ensuring food safety requirements are met. food and the environment, for example).

Empower Residents with Food Skills and Information 31 7. Integrate Food And Health Into Urge Federal and Provincial Newcomer Settlement Supports Governments to Establish Health-Focused Food Policies Already Underway: • Toronto Public Health’s Peer Nutrition This report has described a variety of ways that program serves parents and caregivers from Toronto can foster a healthy and sustainable food ethnically and culturally diverse communities system through better collaboration among local in Toronto to improve infant and child feeding government, residents, community organizations practices, food selection, purchasing and and business. But even with these efforts, Toronto preparation skills among parents of young still needs other orders of government to do their children aged six months to six years. The part by establishing enabling food policies. program has a reference group that provides a forum for sharing ideas, coordinating In the broadest sense, Toronto needs the Federal training opportunities, and partnering to reach Government and the Government of Ontario to newcomer communities. establish comprehensive food policies that identify optimal health as a key goal of the food system and Next Steps: enhance the capacity of cities and communities • Toronto Public Health and Social to take action. Governments can support the Development, Finance & Administration to approaches listed above in many more specific collaborate with settlement agencies to expand ways. This includes establishing a federally-funded opportunities for newcomers to adapt their food universal student nutrition program, implementing skills (accessing culturally appropriate foods, regulatory measures related to eliminating trans navigating supermarkets, adapting recipes, fats and reducing sodium, restricting commercial Health-focused food policies: understanding food marketing messages, etc.) advertising targeted to young children, and adopting Toronto needs all levels of government to work togethero t ensure that the food system serves and share their knowledge. agricultural policies that allow farmers and farm a broad range of health goals. This includes communities to thrive. making the healthiest food choices more accessible and available to consumers.

Urge Federal and Provincial Governments to Establish Health-Focused Food Policies 32 Already Underway: Conclusion • The Toronto Board of Health has advocated to the federal and provincial governments on a The need for action to improve the food system number of health policy issues, including: is clear. Toronto faces a range of health, social and environmental problems related to food. • Urging the Government of Canada to Torontonians told us they are ready for a fresh take implement the recommendations of the on food and want governments to champion creative federal Trans Fat Task Force, and to ensure and effective solutions. This means thinking in that artificially produced trans fat food system ways - seeing the connections in the is regulated in the Canadian food supply; City’s work and implementing food activities that • Calling for a federally funded universal will help Toronto meet its existing objectives, while student nutrition program; and, also building a healthier Toronto. In spite of the challenges, Toronto is fortunate to have numerous • Calling for a total ban on all commercial advantages that make us well poised to take the next advertising targeted to children under 13 steps in championing a healthy and sustainable food years of age. system for all.

Next Steps: Implementation • Toronto Public Health will continue to monitor and evaluate federal and provincial policies The Toronto Food Strategy is an ongoing process. and assess the feasibility of City of Toronto Toronto Public Health staff will initially coordinate Afri-Can FoodBasket's Ujamaa Farm: regulation where voluntary measures are the Food Strategy, including seeking new As f part o Afri-Can FoodBasket's Cultivating inadequate. opportunities to leverage funding and provide support Youth Leadership program, youth grow food to City staff and the community to implement and share the harvest with food banks and their families. the actions identified in this report. Among other supports, staff will develop tools that will guide City staff and communities to compile inventories of existing assets, identify gaps and opportunities. Part of the ongoing work will be to develop an evaluation framework and indicators to measure the effectiveness of the Food Strategy project. The Medical Officer of Health will report to the Board of Health and City Council on progress in early 2011.

Urge Federal and Provincial Governments to Establish Health-Focused Food Policies 33 Appendix: 1 Members of the Toronto Nina-Marie Lister, Food Strategy Steering Group Professor – Urban Planning,

Below are the members of the Food Strategy Brad Long, Steering Group who guided the development of this Head Chef and Owner – Veritas restaurant project with valuable insights and advice all along Rod MacRae, the way. Members were invited to participate in the Professor – Faculty of Environmental Studies, process as individuals, rather than as representatives of any organization or interest group. Affiliations Glenn Miller, listed below are for identification only and don’t Vice President of Education and Research – necessarily represent an organization’s endorsement Canadian Urban Institute of this report. Lawson Oates, David McKeown (Chair), Director – City of Toronto Environment Office Medical Officer of Health Brenda Patterson, – City of Toronto General Manager – City of Toronto Parks, Forestry Geoffrey Cape, and Recreation Executive Director – Evergreen Mark Pearlman, Debbie Field, Director – Sales Solutions Deployment Group, Executive Director – FoodShare Hewlett Packard Ann Fox, Member – Ontario Food Terminal Board Director – Community Nutrition, Department of Member – FoodShare Board of Directors Nutritional Sciences, Sheila Penny, Patrick Habamenshi, Executive Superintendent, Facility Services – Agriculture specialist, Former Minister of Toronto District School Board Agriculture, Rwanda Ruth Richardson, Member – Toronto Food Policy Council Environment Program Director – Metcalf Peter Lambrick, Foundation Chair – Agricultural , Action Committee Manager – Toronto Food Policy Council

Urge Federal and Provincial Governments to Establish Health-Focused Food Policies 34 Cecilia Rocha, Toronto Public Health Staff Support Director – Centre for Studies in Food Security, Carol Timmings Ryerson University Director, Planning and Policy, Member – Toronto Food Policy Council Toronto Public Health Suman Roy, Executive Chef – Sodexo Canada Barbara Emanuel Member – Toronto Food Policy Council Senior Policy and Strategic Issues Advisor, Nick Saul, Toronto Public Health Executive Director – The Stop Community Food Centre Peter Dorfman Manager, Toronto Food Strategy Project, Andrea Strath, Toronto Public Health Regional Director, GTA and Central East Ontario – Canadian Diabetes Association Wayne Roberts Michael Wolfson, Manager, Toronto Food Policy Council Food Sector Specialist – City of Toronto Economic Development and Culture Brian Cook Research Consultant, Toronto Public Health

Toward a Healthy & Sustainable Food System 35 Endnotes 11. Statistics Canada (2008). 2006 Census, Ontario 21. City of Toronto (2008). Proposed Local and Overview. As cited in Donald, B. (2009). From Kraft Sustainable Food Procurement Policy and 1. Ontario Nutrition and Cancer Prevention Survey to Craft: innovation and creativity in Ontario’s Food Implementation Plan. Staff Report to the Government (2004). Statistic based on Toronto Public Health Economy. Martin Prosperity Institute. Working Paper Management Committee. May 1, 2008. analysis of Toronto level data. Series: Ontario in the Creative Age. 22. Donald, B. (2009). From Kraft to Craft: Innovation 2. Toronto Public Health (2008). The Unequal City: 12. “Clean tech companies flocking to TSX” (2009, and creativity in Ontario’s food economy. Working Paper Income and Health Inequalities in Toronto, 2008. November 13). Financial Post. Series: Ontario in the Creative Age. Martin Prosperity Institute. 3. Canadian Community Health Survey cycle 2.2 (2004) 13. Hancock, T. (1997). Healthy Cities and Communities: past, present and future. National Civic Review. Vol. Share File. Analysis performed byToronto Public Table Notes - Toronto Food Facts Health. 86:11-21. 4. Tremblay, M.S., Shields, M., Laviolette, M., Craig, 14. Market Share Matrix Project (2005). Canada Food i) Xuereb, M. (2005). Food Miles: Environmental C.L., Janssen, I. & Gorber, S.C. (2010).Fitness of Retail – 2004/2005. Implications of Food Imports to Waterloo Region. Canadian children and youth: Results from the 2007- 15. Statistics Canada. Census of Agriculture 2006. Region of Waterloo Public Health. 2009 Canadian Health Measures Survey. Statistics Available from http://www40.statcan.gc.ca/l01/cst01/ Canada Health Reports. Catalogue no. 82-003-X. agrc35a-eng.htm. Also, Statistics Canada. Census of ii) This figure is derived from dividing the estimated total Agriculture 1996, Agricultural Operations - Canada number of calories available from the Canadian food 5. Cummings, H. (2009). “Animal Agriculture Shrinking supply – 3,339 [see Statistics Canada (2010). Food in Ontario’s Greenbelt, Study Finds”. News Release, Highlights. Available from http://www.statcan.gc.ca/ ca-ra/can-eng.htm. Statistics 2009. Cat. No. 21-020-X. Note that the University of Guelph. Available at http://www. total does not adjust for losses, such as waste and/or uoguelph.ca/news/2009/12/ww_3.html. 16. U.S. Department of Agriculture, Economic spoilage, in stores, households, private institutions or 6. Statistics Canada (2006). Statistics on Income of Farm Research Service (2009). Food CPI, Prices and restaurants or losses during preparation.] by estimated Families. Catalogue no. 21-207-X. Expenditures: Food Expenditures by Families and daily energy requirements – 2,300 [Energy estimate Individuals as a Share of Disposable Personal Income. is based on Health Canada recommendations (see 7. Tukker, A., Huppes, G., Geerken, T., Nielsen, P., et al. Available from http://www.ers.usda.gov/Briefing/ (2006). Environmental Impact of Products: Analysis of http://www.hc-sc.gc.ca/fn-an/food-guide-aliment/ CPIFoodAndExpenditures/Data/Expenditures_tables/ basics-base/1_1_1-eng.php), using the median age the life cycle environmental impacts related to the final table7.htm. consumption of the EU-25. European Commission of Canadians (40) and averaging the daily energy Report. 17. Statistics Canada (2010). Food Statistics 2009. requirements (assuming 30 - 60 minutes of daily Vol. 21-020-X. The figure referenced here has not been moderate physical activity) for 40 year old men 8. Kanter, R.M. (1995). World Class: Thriving Locally in adjusted for retail, household, cooking and plate loss. (2,600) and women (2,000) = 2,300]. Therefore, the Global Economy. New York: Simon & Schuster. 18. MMM Group (2008). Greater Toronto Area Cordon 3,339 / 2,300 = 1.45 (145%). 9. Bristow-Callahan, K. (1999). Canadian agriculture Count Program: Transportation Trends 1991-2006. at a glance 1999. Statistics Canada. Cat. no. 96-325- iii) Tarasuk, V & Dachner, N. (2009). The Proliferation 19. United Nations General Assembly (1987). Report XPB1996001. of Charitable Meal Programs in Toronto. Canadian of the World Commission on Environment and Public Policy. Vol. 35(4): 433-450. 10. The $7 billion estimate is based on spending by Development: Our Common Future. Torontonians extrapolated from Statistics Canada (2003). Food Expenditure in Canada, 2001, and 20. Food and Wine (2004, April). “25 of the World's government spending estimates from Food and Hunger Best Food Markets”. Available from http://www. Action Committee (2001). The Growing Season, Phase foodandwine.com/articles/25-of-the-worlds-best-food- 2 Report. markets.

Cultivating Food Connections 36