The New Geography of Food Security: Exploring the Potential of Urban Food Strategies
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The Geographical Journal, Vol. 182, No. 2, June 2016, pp. 190–200, doi: 10.1111/geoj.12129 The new geography of food security: exploring the potential of urban food strategies ROBERTA SONNINO School of Planning and Geography, Cardiff University, Glamorgan Building, King Edward VII Avenue, Cardiff CF10 3WA E-mail: [email protected] This paper was accepted for publication in October 2014 Food insecurity is increasingly ‘bimodal’, encompassing issues of quantity and quality, under- and overconsumption, in developed and developing countries alike. At a time when most of the world’s population lives in cities, food security has also assumed a strong urban dimension, raising new issues of physical and financial access to food. Finally, the recent emergence of a ‘New Food Equation’, marked by food price hikes, dwindling natural resources, land grabbing activities, social unrest, and the effects of climate change, is bringing onto the global food security agenda a range of often interrelated sustainability concerns. Responses to this new geography of food security are increasingly emerging at the local level, particularly in industrialised countries, where municipal governments are recasting themselves as food system innovators. Based on the documentary analysis of 15 urban food strategies from Canada, the USA and the UK, the paper addresses three main questions: What type of ‘foodscape’ do these documents envision, and why? Does the rescaling of food governance coincide with the emergence of a new localistic approach to food security? What type of priorities and concrete measures do city governments identify to deal with the new geography of food security? By highlighting the centrality of the relationships between urban and rural areas and actors as targeted intervention areas, the analysis raises the need for a tighter scholarly and policy focus on ‘connectivities’ – i.e. the role of food exchange nodes and of governance coordination in the design and implementation of more effective food security strategies. KEY WORDS: food security, urban food strategies, local food systems, policy analysis cities, food security has also assumed a strong urban Introduction dimension, which raises new issues of physical and ebates on food security have historically financial access to food. Finally, the recent emergence taken place at two different levels. The of a ‘New Food Equation’, marked by food price D ‘productivist’ position that emerged from hikes, dwindling natural resources, land grabbing discussions at the World Food Conference (1974) has activities, social unrest, and the effects of climate constructed the problem as one of national self- change (Morgan and Sonnino 2010), is bringing onto sufficiency, especially in developing countries. Over the global food security agenda a range of often time, and largely as a result of Sen’s seminal work interrelated sustainability concerns (Lang et al. 2009). (1981) on entitlement and access, productivism has Global food dynamics always have context-specific been challenged by an access-based approach manifestations and impacts. As Marsden and Sonnino that situates food security in the context of poor (2012, 427) state, food has particular spatial configu- households’ survival strategies. rative features, since its production and consumption In recent years, the unfolding of a new geography embody essential (and uncontrollable) natural and of food security has been exposing the limitations metabolic processes that depend on the type and of extreme macro (i.e. national) and micro (i.e. amount of resources available. For this reason, ‘food household-level) perspectives. Food insecurity today systems – and their health and wellbeing attributes – is increasingly ‘bimodal’, encompassing issues of inherently interact with (and shape) spaces and quantity and quality, under- and overconsumption, in places’. The bimodal dynamics that are shaping the both developed and developing countries. Moreover, new global geography of food security are bound at a time when most of the world’s population lives in to impact upon (and be impacted by) local The information, practices and views in this article are those of the author(s) and do not necessarily reflect the opinion of the Royal Geographical Society (with IBG). © 2014 Royal Geographical Society (with the Institute of British Geographers). The new geography of food security 191 environmental, socio-cultural and economic contexts was for the first time conceptualised as an issue of in very different ways. It is then not surprising that national self-sufficiency or self-reliance – ‘whether a innovative food policies are emerging at the local country can meet its own food needs’ (Lang et al. level, particularly in industrialised countries, where 2009, 255; see also Harsch 1992). Today, the pro- municipal governments are recasting themselves as ponents of this approach continue to focus on the food system innovators. supply side of the food chain and on the efficiency of Several academic and non-academic observers the production process, emphasising the role of have recently documented the emergence of urban scientific and technological innovation in mitigating food strategies, especially in relation to the new gover- food shortages. The central idea is that developed nance mechanisms that they have introduced to bring nations need to increase their food production for civil society into the food policy arena (Blay-Palmer domestic consumption and to supply developing 2009; FAO 2011a; Viljoen and Wiskerke 2012). As countries (Dibden et al. 2013; Rosin 2013). yet, however, no analysis has been performed to distil During the 1980s, the persistence of food crises in the vision behind these efforts to reform the urban the global South, coupled with Sen’s influential theory foodscape. What are the shared features of the on food entitlement and access (1981), began to emerging municipal policy discourses on food? Are change the emphasis from the ‘natural’ causes of these narratives signalling a new paradigmatic shift in hunger to its wider political and socioeconomic the interpretation of (and responses to) current food context (Dilley and Boudreau 2001; Gladwin et al. insecurities? More generally, are we witnessing the 2001; Valdivia and Gilles 2001). Over time, this emergence of a new localism that is beginning to created a shift from an international and national (i.e. address the complex dynamics at play through a macro) policy focus to an emphasis on the individual reconfiguration of the relationships between food (i.e. micro) level of poor households, generating the system actors, spaces and governance scales? emergence of a ‘livelihood security’ model that has To begin to answer these questions, the paper uncovered the complexity of demand strategies examines 15 urban food strategies from Canada, the employed by vulnerable people2 (Maxwell 1996; USA and the UK1 – countries that are widely Lindenberg 2002; Davis et al. 2001). In current considered as pioneers of municipally led food debates, this model has been incorporated into wider policies (Mendes 2008; Sonnino 2009a). The sample access-based approaches that focus on issues of food includes cities of very different sizes where public distribution (Sage 2013) and emphasise the role of bodies have produced or commissioned a strategic traditional knowledge and endogenous development document that explicitly aims to reconfigure the strategies in addressing food insecurity (McIntyre et al. urban food system. These documents, which always 2009; Marsden 2013). include a vision statement, an action plan and often An emerging literature is raising the need for a new also a set of indicators that aim to facilitate the type of approach that bridges the gap between supply- monitoring of progress towards the identified goals, led and demand-led narratives and between macro have been comparatively analysed in relation to three and micro perspectives on food insecurity (Barling main discursive elements: the motivations behind et al. 2008; Sonnino et al. 2014). Central to this cities’ perceived need to rescale food governance; the argument is the recognition that the unfolding of a key concepts and ideas deployed to construct the new and complex geography is adding new layers of underlying narrative of the strategies; and the role meaning to the very notion of ‘security’ in relation to attributed to re-localisation in relation to food security the food system. Simply put, the concept of food and sustainability concerns. Altogether, such elements security today evokes a series of interrelated public provide important insights into the potential of these health, political, socioeconomic and ecological crises urban innovations to become a significant counter- that threaten human survival and, for this reason, force to the complex socioeconomic and environ- require strong public intervention. For the State, mental dynamics that are shaping the new geography securing appropriate quantities of quality food for all of food security. At the same time, as it will be argued citizens is crucial to reduce the human and financial in the conclusions, they identify new intervention costs of a constantly worsening public and ecological areas that require more specific attention in the health crisis and to avoid social unrest. formulation of theoretical and policy agendas for food Four fundamental dimensions of the problem security. currently shape the rhetoric on food security. First, the ‘nutrition transition’, linked to the global expansion of the Western