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Ten Years of Food Policy Governance in New York City: Lessons for the Next Decade

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Ten Years of Food Policy Governance in New York City: Lessons for the Next Decade City University of New York (CUNY) CUNY Academic Works CUNY Graduate School of Public Health & Publications and Research Health Policy 2018 Ten Years of Food Policy Governance in New York City: Lessons for the Next Decade Nicholas Freudenberg CUNY School of Public Health Nevin Cohen CUNY School of Public Health Janet Poppendieck CUNY Hunter College Craig Willingham CUNY School of Public Health How does access to this work benefit ou?y Let us know! More information about this work at: https://academicworks.cuny.edu/sph_pubs/270 Discover additional works at: https://academicworks.cuny.edu This work is made publicly available by the City University of New York (CUNY). Contact: [email protected] Fordham Urban Law Journal Volume 45 Number 4 Taking a Bite out of the Big Apple: A Article 2 Conversation About Urban Food Policy (Colloquium) 2018 Ten Years of Food Policy Governance in New York City: Lessons for the Next Decade Nicholas Freudenberg Nevin Cohen Janet Poppendieck Craig Willingham Follow this and additional works at: https://ir.lawnet.fordham.edu/ulj Recommended Citation Nicholas Freudenberg, Nevin Cohen, Janet Poppendieck, and Craig Willingham, Ten Years of Food Policy Governance in New York City: Lessons for the Next Decade, 45 Fordham Urb. L.J. 951 (2018). Available at: https://ir.lawnet.fordham.edu/ulj/vol45/iss4/2 This Article is brought to you for free and open access by FLASH: The orF dham Law Archive of Scholarship and History. It has been accepted for inclusion in Fordham Urban Law Journal by an authorized editor of FLASH: The orF dham Law Archive of Scholarship and History. For more information, please contact [email protected]. TEN YEARS OF FOOD POLICY GOVERNANCE IN NEW YORK CITY: LESSONS FOR THE NEXT DECADE Nicholas Freudenberg,* Nevin Cohen,** Janet Poppendieck*** & Craig Willingham**** Introduction ............................................................................................. 952 I. Food Policy Governance Standards ............................................... 955 II. Food Policy in New York City Since 2008 ................................... 959 A. Food Standards and Food Policy Coordinator .................. 969 B. Food Retail Expansion to Support Health (“FRESH”) ............................................................................ 972 C. Changes in SNAP Enrollment and Outreach .................... 975 D. Universal Free Lunch ........................................................... 976 E. Portion Cap Limitation ........................................................ 977 III. An Assessment of Food Policy Governance in New York City ............................................................................... 979 A. Promotes Equity .................................................................... 980 B. Encourages Accountability .................................................. 982 C. Ensures Sustainability .......................................................... 985 D. Fosters Inclusion and Participation ..................................... 986 E. Uses Data and Evidence to Inform Decisions ................... 987 F. Advances Intersectoral Action ............................................ 988 IV. Recommendations ......................................................................... 989 A. Develop a New York City Food Plan ................................. 990 B. Create a Central Interactive Repository of City Food Data ...................................................................... 991 * CUNY Urban Food Policy Institute, Graduate School of Public Health and Health Policy, City University of New York. ** CUNY Urban Food Policy Institute, Graduate School of Public Health and Health Policy, City University of New York. *** CUNY Urban Food Policy Institute, Graduate School of Public Health and Health Policy, City University of New York. **** CUNY Urban Food Policy Institute, Graduate School of Public Health and Health Policy, City University of New York. 951 952 FORDHAM URB. L.J. [Vol. XLV C. Strengthen the Public Sector in Food ................................. 992 D. Create New Democracy and Governance Processes to Expand Local Control of Our Food System .................. 993 Conclusion ................................................................................................ 994 INTRODUCTION In this century, cities around the world have embarked on ambitious efforts to modify food policies to improve health, reduce hunger and food insecurity, and to create more sustainable community development and environmental protection, while decreasing economic inequality.1 In the last decade, New York City has played a leading role in charting the path of new urban food governance by creating dozens of new food policies and programs to improve nutritional well-being, promote food security, create food systems that support community and economic development, and encourage more sustainable food production, distribution, and consumption practices.2 These initiatives built on the City’s prior efforts to create healthier food environments3 and used existing and new governance mechanisms to consider, enact, and implement changes in how New York City manages its food system. Food policy means more than laws and regulations that govern food; it includes all public decisions affecting food. Thus, this Article uses the term “food policy” to refer to legislation, executive orders, rule changes, demonstration projects, program expansion or elimination, capital investments and budget allocations, grant programs, reporting requirements, certifications and enforcement, programs, and government agency rules and regulations. Together these decisions and their implementation constitute the food policy landscape in New York. Businesses and trade associations also shape food policy, both through their influence on government and through their own organizational practices such as marketing, retail 1. See generally Kameshwari Pothukuchi & Jerome L. Kaufman, Placing the Food System on the Urban Agenda: The Role of Municipal Institutions in Food Systems Planning, 16 AGRIC. HUM. VALUES 213, 213–24 (1999). 2. See generally NICHOLAS FREUDENBERG ET AL., CUNY SCH. OF PUB. HEALTH & HEALTH POLICY, URBAN FOOD POLICY INST., FOOD POLICY IN NEW YORK CITY SINCE 2008: LESSONS FOR THE NEXT DECADE 4–9 (2018). 3. Thomas R. Frieden et al., Public Health in New York City, 2002–2007: Confronting Epidemics of the Modern Era, 37 INT’L J. EPIDEMIOLOGY 966, 966 (2008). 2018] LESSONS FOR THE NEXT DECADE 953 distribution, pricing, and product design.4 As this Article will demonstrate, businesses and civil society groups have played an important role in food policy governance in New York City. As city governments around the world took on new responsibilities for food, municipalities also expanded their role in health, transportation, education, environmental protection, and housing.5 Analyzing these experiences, scholars from several disciplines began exploring what distinguishes governance from the institution of government, and furthermore, what constitutes good urban governance.6 In this discourse, government describes a more static structure while governance conveys the dynamic interactive processes that influence policy.7 UN-HABITAT, the United Nations agency for human settlements, asserts that “good urban governance” provides residents with “the platform which will allow them to use their talents to the full to improve their social and economic conditions.”8 Another United Nations agency, UNESCO, has defined governance as “the structures and processes that are designed to ensure accountability, transparency, responsiveness, rule of law, stability, equity and inclusiveness, empowerment, and broad-based participation.”9 Governance allocates power, resources, and services. It safeguards justice and fairness, sets the rules for markets, enables participation and democracy, and reinforces or disrupts hierarchies. More broadly, governance describes how citizens, government, civil society groups, and businesses interact to achieve public goals and participate in public affairs. In 2015, acknowledging the growing global interest in governance, world leaders endorsed the United 4. TIM LANG ET AL., FOOD POLICY: INTEGRATING HEALTH, ENVIRONMENT AND SOCIETY 160–65 (2009). 5. See generally Jason Corburn et al., Health in all Urban Policy: City Services Through the Prism of Health, 91 J. URB. HEALTH 623 (2014). 6. See generally BENJAMIN R. BARBER, IF MAYORS RULED THE WORLD: DYSFUNCTIONAL NATIONS, RISING CITIES (2013); BRUCE KATZ & JENNIFER BRADLEY, THE METROPOLITAN REVOLUTION: HOW CITIES AND METROS ARE FIXING OUR BROKEN POLITICS AND FRAGILE ECONOMY (2013); JON PIERRE, THE POLITICS OF URBAN GOVERNANCE (2011). 7. Laura S. Jensen, Government, the State, and Governance, 40 POLITY 379, 381 (2008). 8. U.N. HUMAN SETTLEMENTS PROGRAMME, THE GLOBAL CAMPAIGN ON URBAN GOVERNANCE 14 (2d ed. 2002). 9. Concept of Governance, U.N. EDUC., SCI. & CULTURAL ORG., http://www.unesco.org/new/en/education/themes/strengthening-education-systems/ quality-framework/technical-notes/concept-of-governance/ [https://perma.cc/VD5W- 3WCQ]. 954 FORDHAM URB. L.J. [Vol. XLV Nations Sustainable Development Goals,10 which recognized the development and strengthening of good governance at the local level as a key goal.11 In the food sector, food governance describes the complex systems and processes through which global, national, and local decisions shape food environments and food choices;12 urban food governance, specifically, describes
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