FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
FOOD SYSTEMS BACKGROUND AND MAPPING
TE MAHINGA KAI O TAIRAWHITI | 2020 FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
TABLE OF CONTENTS
1. EXECUTIVE SUMMARY • Local Government Practice 2. PRINCIPAL FINDINGS AND RECOMMENDATIONS 7. RESEARCH METHODOLOGY • Economy • Data sources and key • Ecology informant selection • Politics • Collective Impact • Culture Model
3. INTRODUCTION 8. DISCUSSION AND OBSERVATIONS 4. BACKGROUND • Economy • Healthy Families East • Ecological Cape • Political Accountability • Systems thinking 9. REFERENCES approach
5. TAIRAWHITI CONTEXT
• Economic Profile • Ecological Profile • Political Profile
• Cultural Profile
6. POLICY CONTEXT: NATIONAL AND LOCAL • National Practice
FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
1. EXECUTIVE SUMMARY
This analysis forms background mapping of the rationale behind why a large percentage of the first phase in a collective impact food systems Tairawhiti population do not and are not able project – Te Mahinga Kai o Te Tairawhiti. This to eat as well as they could despite a collective project, which is expected to span up to at least goal of optimising liveability for all. The report two years, will inform the development of a aims to support community leaders, sustainable regional food security and food stakeholders, the local food system leaders sovereignty strategy for Tairawhiti, and back and the Tairāwhiti community in the bone the implementation and achievement of establishment, promotion and expansion of a the vision and objectives agreed upon by the healthy, delicious, sustainable and fair food Te Mahinga Kai o Te Tairawhiti Steering Group. system for all residents in the region.
The evidence supporting a relationship With our helicopter view of the system, we are between a good food system and health and able to reveal factors at local, regional and wellbeing is overwhelming. This report reveals national levels that span across systems of the complexities of this relationship, and the economy, ecology, politics, and culture. This influence that such a relationship holds over systems lens reveals how these systems the quality of life of the Tairawhiti community. influence and shape the food cupboards across Tairawhiti households, restaurants and cafes, This background mapping includes a desktop and workplaces. analysis of existing policies, strategies and reports, accompanied by group and individual The report identifies gaps and weaknesses interviews with key players and important across documentation and implementation of stakeholders across the system. This report previous and current projects and initiatives. explores some of the principle and key With this information and analysis, it is systemic influences on the local food system of possible to inform recommendations for the Tairawhiti. The aim has been to provide FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
development and implementation of the Te Mahinga Kai o Tairawhiti project.
Armed with insights, observations and learnings from Covid-19 lockdown in Te Tairāwhiti, a design Being a desktop review, with preliminary challenge question was posed which insights from a small scale of individuals was “How might we enable a across the region interested in building a nourishing and sustainable local kai healthier and more sustainable food system for Te Tairāwhiti?” system, we by no means make claims that it is comprehensive or final. Rather, the report is evidence-based and seeks to build discussions, laying the foundations for the next phase of Te Mahinga Kai o Te Tairawhiti.
FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
2. PRINCIPAL FINDINGS &
RECOMMENDATIONS
ECONOMY
1. There are major opportunities to communities. Setting up or supporting support existing and new growers to exemplary small-to-medium food enterprises achieve greater produce diversity and is one way amongst many of responding to this extended production seasons in issue. Tairāwhiti Economic recommendations: 2. There are significant economic pressures on Tairāwhiti residents that a) Diversify and expand food production, negatively affect their eating patterns distribution, and consumption in and overall health and wellbeing Tairāwhiti, with an emphasis on fresh, 3. Government regulatory barriers place seasonal, and most importantly, local restrictions on the capacity of farmers produce and local growers to sell directly from b) Support business innovation, social the farm gate, with permits required enterprise and local job creation in for food markets and stores Tairāwhiti’s food system, for example through consideration of a Tairāwhiti/ Economically, food is an integral part of a East Coast food box. balanced production and exchange system. c) Explore opportunities to support the Growing, processing, and providing food can emergence of essential food providers generate sustainable employment. Tairāwhiti in retail environments, especially in has an established and successful agriculture rural areas, as opposed to heavily sector. However, there remain other economic burdening communities with non- areas that need focussed attention in the essential food providers. community. Commonly across Aotearoa, d) Supporting local suppliers to provide inequities in access to good food are economically accessible locally associated with basic problems in the local produced food. FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
e) Encouraging changes in pre-existing 4. According to Hauora Tairawhiti (2019), food retailers to support people to Tairāwhiti has the highest level of make healthier choices, and support deprivation than any other district, local food growers (such as changes in with two thirds of the population in-store promotion, promoting and (65%) living in Decile 8-10. This trend is selling more local produce, display of further exacerbated when split by foods and food placement, menu ethnicity, with 77% of Māori in Te adaptation, portion size. Tairāwhiti living within deciles 8-10, ECOLOGY and 78% of Māori children under 10 living in Deciles 8-10 1. The Rau Tipu Rau Ora Covid-19 5. In common with many towns and Pandemic Response and Recovery Plan isolated regions, minimising food 2020 reflects a deep understanding of waste and recovering vital nutrients the significance of the ecological presents a major challenge. Over 30% values of the Tairāwhiti region and the of waste in the garbage bin in importance of preserving it for its Tairāwhiti was food waste, biodiversity, agricultural, horticultural constituting a major source of and heritage values. methane gas emissions. 2. Agricultural, domestic and forestry
land use in Tairāwhiti are some of the Ecologically, living in a sustainable most significant contributors to environment that enables availability and pollutant loads to receiving waters. access to nutritious food has a direct 3. High levels of obesity and dietary relationship to better health outcomes. related ill health levels in part caused Adequate fruit-and-vegetable consumption, by the lack of fresh food outlets (food for example, can decrease the risk of obesity deserts) throughout the East Coast and and diet-related chronic diseases. Growing low levels of food literacy. food locally can, for example, contribute to decreasing these issues.
POLITICS
1. Systems thinking is new to most conversations with stakeholders people and an emerging approach to throughout the community that this organisational planning and strategy. new way of thinking is an opportunity Healthy Families East Cape have to test approaches and methods that evaluated through reports and are outside of the norm. FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
2. A regenerative, local food system with Cape team and project partners are acutely a focus on nutritious kai is mentioned aware of the critical issues that affect a vibrant in the Rau Tipu Rau Ora Covid-19 food system. They are clear about what Pandemic Response and Recovery Plan political environments can directly change, 2020, where Gisborne District Council what it can influence, and what is beyond its is the facilitator. There is an indication jurisdiction. Local council could thus take a of mutually supportive players and local, state-wide, and national lead in this area. clear strategic direction on the That is, Tairāwhiti-Gisborne could become a coordination of local governmental city and region that consciously treats food as sectoral Key Performance Indicators a central part of its social life. In political terms, and mutually supportive policies. this means building questions of the vitality of 3. Building the capacity of individuals the local food system into the centre of its throughout our region to increase the policy-making. sustainability of projects will be Political recommendations: enhanced with the appropriate investment of time and energy. a) Build capacity amongst council and 4. Local governments are not often throughout stakeholders by positioned to invest heavily in new integrating food systems thinking programs because of the likelihood of across different business units and change or disruption in the political within key council plans and strategies environment. b) Evaluation processes and priorities 5. A major challenge is presented by the should be in place from the outset of different levels of government and the project their powers in localised regional c) Council adoption of policies that affairs. protect and prioritize local food providers, providing to the local region Politically, Gisborne District Council has taken d) Advocate to other levels of the laudable step through partnering with government through research and Toitū Tairāwhiti and others to develop, in Rau case studies for changes in planning Tipu Rau Ora Covid-19 Pandemic Respond and policy for better control around Recovery Plan 2020, a local food systems density and proximity to vulnerable strategy that attends to the whole food system communities of fast food outlets. and looks to create regional food security and food sovereignty. The Healthy Families East FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
CULTURE wellbeing for all of Tairāwhiti, will require united and committed action around the 1. The strongest predictors (amongst others) of aspirational visions and targets of the Te inadequate vegetable consumption and Mahinga Kai o Te Tairawhiti. Tairāwhiti inadequate vigorous moderate physical stakeholders within the food sector, service activity is “a lack of time”: many East Coast providers and food banks already take food residents working in Tairāwhiti are faced with very seriously. This provides a strong basis for long commutes by car to work however this is acting in the area of food. Even though this not the only cause with cost and convenience cultural strength does not yet translate into significantly relevant factors more than an emergent political engagement
2. Eating habits and healthy lifestyles are with food issues in the local area, the signs are learnt; and there are powerful economic promising. interests that shape eating habits of families Cultural recommendations and children a) Healthy eating and dietary habits and 3. Conversations with key stakeholders related issues must be analysed within revealed that engagement and sustainability of a broad systemic context that factors future projects would be greatly enhanced if in potential causes and their effects. they were designed with a community-led This is needed to build a shared approach, in a ‘bottom up’ way understanding of the Tairāwhiti food
4. Advocacy for change and accountability system, and its challenges and greatly benefit from vision, inspiration and opportunities amongst a diverse and living examples of possibilities. representative group of stakeholders b) Establish a shared and widely Culturally, the liveability challenges of understood definition and baseline of employment, transport in and around the food literacy with Tairāwhiti residents Tairāwhiti region, including the East Coast, and and food system stakeholders cost of living pressures, together with a c) Raise levels of food literacy across the planning framework that has privileged the region, particularly amongst the youth expansion of non-essential food providers, d) Establish a local food security coalition mean that ‘making healthy choices the easy of food producers, distributors, and choices’ is not easy for many of our whānau. consumers to strengthen food security Transforming a food system that, in effect, e) Evaluation and iterative community makes unhealthy choices the easy choices, to engagement processes worked into one that supports optimal health and FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
the life of the project but especially at the outset are essential.
FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
3. INTRODUCTION
The principal findings and recommendations the food system extend beyond consumer illustrate a Tairawhiti that is experiencing accessibility, food literacy and health. In fact, it significant unresolved and underlying social extends into the world of economic and health challenges throughout. These development or decline, food production, food challenges have, and continue to have vast security and food sovereignty. negative impacts on the health, wellbeing and As part of the back-boning process, a quality of life of many residents. Facing these Partnership Steering Group has been challenges head on using a systematic established, with representatives of several approach, guided by collective impact and a organisations, including Hikurangi Enterprises shared vision across all institutions, Ltd, SuperGrans Tairawhiti, Rongowhakaata organisations, stakeholders and community in Iwi Trust, Cobham School, Te Whare Wananga Tairawhiti will be required for positive impact. o Awanuiarangi, Gizzy Kai Rescue and Trust
Many of the serious challenges, such as high Tairawhiti, coming together to plan, rates of obesity and chronic health issues, have implement, monitor, evaluate and promote their origins in the food system. The Healthy the Te Mahinga Kai o Tairawhiti project. Families East Cape team is working in Project team hui have taken place between the partnership with local food system months of August and November 2020. The stakeholders and the wider system to create a early phases of the project will help inform the substantial knowledge base and will backbone development of a Local Food Plan, and support a number of local projects and subsequent project activities will support its initiatives that this project can learn from and implementation and the achievement of its build upon. objective.
Other observations such as gardening, horticulture, fisheries and agriculture demonstrate Tairāwhiti’s relationships within FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
4. BACKGROUND
HEALTHY FAMILIES EAST CAPE
Healthy Families East Cape focuses on activity, and reducing tobacco smoking and preventative measures aimed at addressing harmful alcohol intake. the underlying causes of poor health in settings such as schools, early childhood centres, workplaces, neighbourhoods and streets by encouraging healthy eating and physical
SYSTEMS THINKING APPROACH
The Healthy Families East Cape prevention While the potential for a ‘systems thinking initiative is distinct from previous attempts to approach to broaden your understanding of tackle complex health issues in that it takes complex issues’ was generally recognised by a systems’ thinking approach. The Healthy Healthy Families East Cape staff, there were a Families NZ Summative Evaluation report number of challenges to this approach (Ministry of Health, 2018) explains that this highlighted in the evaluation report. Some approach ‘recognises that obesity is a complex challenges mentioned included difficulty in issue with many causes including biology and explaining the concept of systems thinking to behaviours but is also influenced by cultural, other systems stakeholders and community. environmental and social factors.
FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
5. TAIRĀWHITI CONTEXT
Tairāwhiti-Gisborne is located on the East Matawai, Te Karaka, Tolaga Bay, Tokomaru Coast of the North Island with a current Bay, Ruatoria, Te Araroa and Potaka. population of 48,016 throughout the entire Tairāwhiti-Gisborne has the highest population region. The Tairāwhiti district covers a land of Maori of all regions throughout the country, with 53% identifying as Maori, compared to 14% nationally. The iwi of Tairāwhiti are Ngai Tamanuhiri, Rongowhakaata, Te Aitanga-a- Mahaki, Te Aitanga-a-Hauiti and Ngati Porou.
Tairāwhiti-Gisborne is one of many regions throughout the country that have and continue to face ongoing challenges impacted and underpinned by economic, ecological, political and cultural environments. These challenges Figure 1 Tairāwhiti-Gisborne District (Maori Land Court, 2020) bring to light the need to explore proactive and community-led approaches that can lead to a area of 8,265 square kilometres, equating to resilient, healthy and economically thriving approximately 5% of New Zealand’s total land community. Below we present an overview of area. the different social domains that may influence Figure 1 illustrates the Tairāwhiti region, and impact future action in the Tairawhiti including other small settlements throughout – region.
ECONOMIC PROFILE
The unemployment rate in the Tairawhiti- 15 years and over, compared with 7.1 percent Gisborne District is 9.3 percent for people aged for all of New Zealand (Stats NZ, 2020). The FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
Provincial Growth Development Fund Due to the high demand of agricultural product investment in Tairāwhiti signifies opportunities overseas, this has meant there is limited to improve and support the region through number of fresh food retailers or providers to local industry and improving the resilience of local customers, negatively impacting on the infrastructure. In September 2018, an economic affordability and consumption of investment package of $152.7 million was healthy, local food. This is not only for low- announced to boost the region’s economy, income families, but has also become an create jobs and enhance tourism increasing problem for higher income families opportunities. Te Huarahi Hei Whai Oranga, as well. the Tairāwhiti Economic Action plan, lays out Kimihia He Oranga’s (KHO) Tairawhiti Maori the region’s plans for economic growth. Economic Development Report (2017) Additionally, and more recently, Rau Tipu Rau discusses the need to move towards a Ora, Tairāwhiti’s Response and Recovery Plan collaborative and whole-of-community to the 2020 global pandemic, also highlights approach to further create economic opportunities amid the challenges, and draws prosperity for the region, and while the lens attention to a plan that shows a willingness cast over this report is uniquely Māori, KHO see and commitment to growing economic this as a valuable resource as it informs opportunities for the region. employers and business owners of how to Agriculture continues to lead the region’s way engage effectively with Māori. This report in terms of providing employment. The articulates the economic aspirations of Māori region’s long and successful history of sheep in Tairāwhiti, and also provides a window of and beef farming have provided international hope for Tairāwhiti. consumers with a world-class abundance of ECOLOGICAL PROFILE agricultural product, creating economic prosperity for the region. Tairāwhiti’s supply of The Gisborne region covers approximately fresh food, much to the credit of fertile land 839,000 Ha. 596,000ha (79%) of that space is and soil, has also created opportunities steep hill country and 71,000ha (8.5%) is flat to downstream in food and beverage processing gently rolling land (Gisborne District Council, and manufacturing. The region is home to 2020). powerhouse processing facilities in 352,000ha (42%) of the region is used for LeaderBrand, Cedenco and Corsons, who hold pastoral farming. The region has the largest maize milling company in approximately 17,000 ha of land suitable for Australasia. horticultural production, with approximately FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
5,000 ha on the flats around Uawa, Waiapu to a rate that is uneconomical to farm and and Tikitiki (Gisborne District Council, 2020). live. There are few opportunities for local residents to connect with local growers According to Gisborne District Council’s 2050 and buy local produce, due in part to policy Spatial Plan (2019), the current 31,700 restrictions regarding selling produce at residents in Gisborne city are connected to city the farm gate, as well as market share water supply and there is augmented water characteristics of new retail spaces which supply to Te Karaka and Whatatutu. During tend to favour the large corporate food February 2019, a break in the water supply retailers over smaller independent grocery pipe left the city with less than 24 hours of stores. The key foods grown in Tairawhiti sufficient water supply, bringing to the are: lettuce, broccoli grapes, tomatoes, forefront the inadequacy of the regions sweetcorn, maize and pumpkins on farms drinking water supply and reliability. The on- located in Gisborne. The area is rich in effect such an event could have had on food citrus fruits, as well as kiwifruit, apples and production and economic use is catastrophic, watermelon. demonstrating a need to improve water supply and efficiency across the region. The ongoing Uncontrolled urban growth has the flooding experiences that occur annually potential to spread over the productive during the winter season also hinder the soils of the Poverty Bay Flats. These capabilities of a flourishing water supply and fragments reduce the land available for local food economy. Regarding the important food production and therefore, threaten issue of water availability, increased the viability of a local food economy for the development will also mean a vast increase in Tairawhiti region. Key drivers of land the availability of retreated water, which is fragmentation are demand for lifestyle suitable for many agricultural uses. block living and the financial gains derived from property owners subdividing and The Tairawhiti region experiences ongoing selling their land (Gisborne District Council, loss and sale of agricultural land to not only 2020). Access to reliable water supplies, housing, but also a booming forestry and the impact that subdivisions and non- industry that threatens the local and regenerative intensive production can regional sustainability and food security in have on soils and ecosystems, are critical future decades. Driving this loss is also the constraining factor on future agricultural threat of foreign and non-local developers production capacity. who continue to push up the cost of land FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
There is a lack of public transport in (Gisborne District Council, 2020). The local Gisborne, with the only bus route run by food system in Tairawhiti is impacted by the Gizzy Bus. This service is strictly “Monday policy context at multiple levels: local, to Friday, 7.10am to 5.40pm” (Gisborne regional, national and global. While the District Council, 2020). There are no present focus is about the local food system, it weekend bus routes run, increasing the is clear that interactions with national policy reliance on a car-centric transport system contexts are important factors. In particular, that sees an average of 0.79 vehicles per the national policy context bears directly on dwelling in New Zealand (Ministry of some of the critical determinants of affordable Transport, 2020). This figure demonstrates access to healthy food as regards the a growing number of residents notably ‘competition’ framework that favours large dependent on fuel and vulnerable to supermarkets and non-local retailers; and the energy costs and potential shortages. We Gisborne District Council planning framework therefore, cannot ignore the impact on which permits the proliferation of fast food greenhouse gas emissions that continue to outlets in residential areas, amongst other rise throughout the Tairawhiti region. critical issues.
There continues to be opportunities for CULTURAL PROFILE the Gisborne District Council to collect The Tairāwhiti region has a rich Maori history household organic food waste, recycling that stems back to the arrival of the Takitimu through community to develop healthy and Horouta waka. The Tairawhiti region was urban and rural township recycling and named Tūranga-nui-a-Kiwa, which means 'the waste management. There is also an great standing place of Kiwa', as Kiwa was the opportunity for markets to be tested and captain of the Horouta waka. Hundreds of develop further to allow municipal food years after the arrival of the two waka, Captain waste as soil conditioner. James Cook arrived ashore at Kaiti Beach near
the mouth of the Turanganui River. When
European settlers started arriving in the POLITICAL PROFILE region, the settlement was called as Tūranga. Gisborne District Council is the local This name was changed in 1872 to Gisborne, to government body for the Gisborne/Tairāwhiti avoid confusion with Tauranga in the Bay of Region. The Gisborne District Council are a Plenty. This arrival documents the first meeting unitary authority - both the district and between Maori and Pakeha in Aotearoa. regional council for the Gisborne district FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
From the southern boundary of the district, the base of Titirangi maunga. It is known that the iwi of Te Tairāwhiti are: Ngāti Porou, Ngāi entire grass area at the back of the Pa was once Tāmanuhiri, Rongowhakaata, and Te Aitanga- used for maara kai. The Pa are aspiring a-Māhaki. Ngāti Porou has the highest number towards mahi maara and currently have the of iwi affiliation among Gisborne Māori, with support of the Whaia Titirangi crew who have just over 12,000 people in the district been working as part of a joint venture under identifying with that iwi. The local iwi, the Gisborne District Council to the restore community and whanau have a strong parts of the maunga. connection to local and seasonal produce through whakapapa and identity connections to the whenua of Tairawhiti. The multicultural makeup of Tairawhiti has led to ongoing conflict throughout the years. In 2019, the region was part of and hosted the Tuia – Encounters 250, a commemoration marking
250 years since the first onshore encounters between Māori and Pākehā in 1769. Tuia 250 celebrated Aotearoa New Zealand’s Pacific voyaging heritage and was a national opportunity to hold honest conversations about the past, the present and how we navigate our shared future.
The Tuia 250 event also coincided with the creation of the Te Maro sculpture, an artwork by Nick Tupara that depicts the Ngati Oneone ancestor Te Maro, who was the great grandson of the chief, Rakaiatane. Te Maro was a gardener, and his job was to feed the people (Forbes, 2016).
The rich Māori cultural history thrives, and this is evident in every settlement across the region. Te Poho o Rawiri marae is one of the largest marae here and it is situated very close to the city central. The ‘Pa’ sits at the FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
6. POLICY CONTEXT:
NATIONAL AND LOCAL
How might we design a better local food system for tomorrow?
As discussed, the local food system in Environment Policy Index (Food-EPI) was Tairawhiti is impacted by the policy context at conducted in February to May 2020 by an multiple levels: local, regional, national and Expert Panel of over 50 independent and global. Here, we briefly discuss the local and government public health experts. It used an national context. evidence-based approach to benchmark policies and actions of the Government against NATIONAL PRACTICE international best practice for creating According to the NZ Nutrition Foundation healthier food environments. The Government (2018), the third New Zealand Healthy Food has made virtually no progress on FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
implementing healthy food policies since 2017 food systems and diets. The Government is (Mackay, S. et al, 2020). Some policies were at strongly urged to act on the priority actions to the level of international best practice, but improve the diets of New Zealanders, many large ‘implementation gaps’ were especially for children, and to reduce the identified, including for healthy food in burgeoning health damage and healthcare schools, fiscal policies and marketing costs of obesity and unhealthy diets. restrictions for unhealthy foods. Gaps were identified relating to government The 13 recommendations from the Expert infrastructure support for prevention of Panel which were prioritised for immediate obesity and diet-related diseases, in particular action to improve the healthiness of New the lack of government leadership and limited Zealand’s food environments can be grouped monitoring of progress. into four main areas: Food Systems and Nutrition Strategy; Infrastructure; People’s The Expert Panel recommended 39 actions, capacity; Healthier Food Environments (Figure prioritising 13 for immediate action. There is a 2). These actions would collectively result in strong call for a renewed approach to positive outcomes for environmental developing a comprehensive multi-sector Food sustainability, economic prosperity, improved Systems and Nutrition Strategy to improve health and increased equity.
Figure 2 Actions prioritised by the Expert Panel for Government to improve the healthiness of New Zealand food environments (Mackay, S. et al, 2020) FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
LOCAL GOVERNMENT
PRACTICE It is at the local government level where policy and practice development are most notable regarding food systems in general, and local food systems in particular. It is possible to detect what amount as successive waves of policy, research and practice development, and more specifically bylaws, as follows: - Food Act 2014 - Alcohol Control 2015 - Food Hygiene - Trade Waste - Mobile shops and other traders
This report is part of the first phase of Te Mahinga Kai o Tairawhiti. Its purpose is to map existing food system work through desktop document review and discussions with past and present Council Staff and partners.
FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
7. RESEARCH
METHODOLOGY
DATA SOURCES AND KEY This preliminary research was conducted by Healthy Families East Cape between April and INFORMANT SELECTION November 2020. Data was collected from a range of documents
and websites shared with Healthy Families East 1. A literature review of the local Cape and other key informants. Healthy health data. Families East Cape also undertook an online 2. A broader food policy analysis independent search for documentation and and literature review of data to attain maximum coverage and national to local experience. understanding of the contexts and issues. 3. A review of key Council Documents reviewed as a part of the desktop documents and a series of review of local health data and key policy discussions with a small document and supporting documentation are number of internal and listed in the table below. external Tairawhiti food
system stakeholders (to
explore opportunities to
collaborate and strengthen
the focus on the local food
system in Council
documents).
4. Mapping of relevant data
highlighting key issues and
information gaps.
FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
Table 1: Documents reviewed for the Background Mapping Report
Local Government Plans and Policy Documents National Policy and Supporting Documentation (Ministry for Primary Industries, 2020) Food Hygiene regulations The New Zealand Health Monitor 2002 Resource Consent National Healthy Food and Drink Policy 2019 Building Consent Food Act 2014 (National Program) Trade Waste Healthy Food Environment Policy Index Environmental Health Food Control Plan Food Regulations 2015 Food (Uncooked Comminuted Fermented Meat) Standard 2008 Food (Tutin in Honey) Standard 2016 Consumers’ Right to Know (Country of Origin of Food) Act 2018 Biosecurity (Meat and Food Waste for Pigs) Regulations 2005 Animal Products Notice: Manufacture of Dairy Based Infant Formula Products & Formulated Supplementary Foods for Young Children Animal Products Notice: Labelling Requirements for Exports of Dairy Based Infant Formula Products and Formulated Supplementary Food for Young Children Animal Products Notice: Honey and Honey Based Products - Food Standards Exemption Animal Products Notice: Export Requirements for Infant Formula Products and Formulated Supplementary Foods for Young Children Animal Products Notice: Animal Products - Food Standards Code – Labelling Exemption Food Additives and Fragrance Materials (Combustible) Group Standard 2017 Food Additives and Fragrance Materials (Corrosive [8.2C]) Group Standard 2017 Food Additives and Fragrance Materials (Flammable) Group Standard 2017 Food Additives and Fragrance Materials (Flammable, Toxic [6.1]) Group Standard 2017 Food Additives and Fragrance Materials (Subsidiary Hazard) Group Standard 2017 Food Additives and Fragrance Materials (Toxic [6.1]) Group Standard 2017 Food Additives and Fragrance Materials (Toxic [6.1], Combustible) Group Standard 2017 Food (Continuation of Dietary Supplements Regulations) Amendment Bill Food (Exemption from Compliance with Verification Requirements) Regulations 2020 Food (Fees and Charges) Regulations 2015 Food Notice: Approved Food Control Plan Template (British Retail Consortium BRC for Horticultural Operators) Food Notice: Approved Food Control Plan Template (Bunnings Warehouse) FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
Food Notice: Approved Food Control Plan Template (Care Association of New Zealand) Food Notice: Approved Food Control Plan Template (GLOBALGAP) Food Notice: Approved Food Control Plan Template (Lone Star Café & Bar Franchise Limited) Food Notice: Approved Food Control Plan Template (Ministry of Education) Food Notice: Approved Food Control Plan Template (New Zealand Aged Care Association) Food Notice: Approved Food Control Plan Template (New Zealand Good Agricultural Practice (NZGAP)) Food Notice: Approved Food Control Plan Template (Organic Farm NZ) Food Notice: Approved official templates for food control plans developed by third parties Food Notice: Exemption from operating under a registered food control plan or national programme Food Notice: Food for Export - Exemptions from Domestic Compositional Requirements No. 5 2020 Food Notice: Food Service and Food Retail Business Food Control Plan templates issued under section 39 Food Notice: Importing Food Food Notice: Maximum Residue Levels for Agricultural Compounds Food Notice: Requirements for food businesses operating under registered Food Control Plans or National Programmes during the COVID-19 response Food Notice: Requirements for Food Control Plans and National Programmes Food Notice: Requirements for Recognised Agencies and Persons Food Notice: Waiver from evaluation for custom food control plans developed through the ‘What I need to do’ tool Food Safety Law Reform Act 2018 Import Health Standard: Specified Foods for Human Consumption Containing Animal Products Medicines (Related Products (Exempted Foods)) Regulations 2003 New Zealand (Australia New Zealand Food Standards Code) Food Standards 2002 New Zealand (Bee Product Warning Statements— Dietary Supplements) Food Standards 2002 New Zealand (Permitted Fortification of Bread with Folic Acid) Food Standard 2012 New Zealand Food (Supplemented Food) Standard 2016
The key informants were identified based on residents. Interviewees were asked broad who either currently or previously worked in questions relating to their area of expertise on collaboration or alliance with the Te Mahinga the local data and information available, Kai o Tairawhiti project partners to improve relevant policies and procedures as well as health outcomes and food access for its gaps in the existing data. FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
The key informants and interviewees included smooth set up of small, local a small, local business and a Non-Government businesses. Organisation (NGO). The below is a preliminary yet significant As a part of the preliminary assessment summary of the content of those discussions: process these discussions served as at a point 1. The local of reference to interrogate and compliment policies/regulations/legislations are the document findings to uncover further required for compliance of the undocumented or emerging business include, but are not limited work, partnerships or players. to: Trade Waste (requirements for grease traps & trade waste consent, requirements for food waste) - COLLECTIVE IMPACT MODEL https://www.gdc.govt.nz/trade- The partnership between Healthy Families East waste/; Building consent Cape, Hikurangi Enterprises Ltd, SuperGrans (requirements for fire proof walls, Tairawhiti, Trust Tairawhiti, Rongowhakaata change of use); Resource consent (car Iwi Trust, Cobham School, Te Whare Wananga parking etc.) o Awanuiarangi and Gizzy Kai Rescue is based 2. The barriers/ challenges faced by local on the shared view that collective impact will businesses and NGO’s includes, but are provide a long-term opportunity to address not limited to: lack of communication the issue of food sustainability and food and support from departments, literacy in the community through a organisations and government, in community action approach. order to address what is needed and It’s anticipated that other partners will join this required for certificate of compliance/ collective approach over time, as we build and set up/ implementation of small, local paint a picture of the Tairawhiti Food System. businesses; the need to abide by A collective impact approach is whereby a certain regulations that impede the group of stakeholders from different sectors forward thinking nature and commit to a common agenda for solving a ‘emergency response’ nature of complex social problem. There are five businesses and NGOs; the high cost of conditions of success that together lead to set up in order to comply with meaningful results. These being: regulations and legislation; lack of • common agenda; communication between local and national departments to allow for the FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
• shared agreement on the way’s success will be measured and reported on; • mutually reinforcing activities; • continuous communication; and · backbone support (an independent, funded staff resource dedicated to the initiative to coordinate the activities). As the project progresses into its following phases and future partnerships and collaboration potential and community perspectives and vision are explored, the
Collective will agree, in accordance with the principles of the Collective Impact model to continuously monitor and evaluate the data and progress against the baseline, and ensure that this information is fed back to the community in order to facilitate change.
Healthy Families East Cape, Hikurangi Enterprises Ltd, SuperGrans Tairawhiti, Trust Tairawhiti, Rongowhakaata Iwi Trust, Cobham
School, Te Whare Wananga o Awanuiarangi and Gizzy Kai Rescue also agree to be open to new ways of doing things and new approaches during this agreement period.
FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
8. DISCUSSION AND OBSERVATIONS
As well as the background literature and based producers about supplementing desktop review, the conversations had with produce for the Ruatoria community key individuals have provided additional and in the interim local Ruatoria-based insight to the findings and reflections of the food producers are to increase reports and evaluations. In what follows, we produce diversity for food resiliency set out our principle findings and for the Ruatoria community. If the recommendations. pilot is successful it can be scaled to build food resiliency in other East ECONOMIC Coast communities. It is important to tap into and support existing research 1. Diversify and expand food production, and networks. distribution, and consumption in Tairāwhiti, • There is a significant economic with an emphasis on fresh, seasonal, and pressure on Tairāwhiti residents that where possible local produce negatively affects their eating patterns • Based on desktop analysis and and overall health and wellbeing. This preliminary interviews, there appears situation is not limited to people who to be a considerable opportunity to get are unemployed and / or on fixed low greater produce diversity and incomes, as demonstrated by the extended production seasons in the growing number of ‘working poor’ Tairāwhiti area. In Ruatoria, Hikurangi who are accessing emergency food Enterprises in partnership with the relief. Part of this pressure is due to the local community is about to limited local employment and experiment with growing more diverse postsecondary educational foods and starting a pilot food box opportunities in Tairāwhiti. This means subscription (currently at the that less time, energy and money is feasibility stage). They have begun a available for pursuing healthy eating conversation with local Gisborne- and active living – which is a major part FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
of the liveability challenge facing the horticultural and heritage Tairāwhiti as a whole. Efforts to values. It highlights potential change eating habits in the Tairāwhiti avenues for economic must look beyond access and food development and building a literacy to get to the root of the strong agricultural sector. problem. Support must come from • Government regulatory barriers mean policies that prioritise local that farmers are not able to sell food movement.
directly at the farm gate. Current POLITICAL market share characteristics that favour large supermarkets do little to 1. Build capacity amongst council and support the local economy, the local throughout stakeholders by integrating food food system and community health. systems thinking across different business On the contrary, the continued units and within key council plans and concentration of retail market power strategies
tends to undermine broad-based local • Systems thinking is new to most economic development, and people and an emerging approach to jeopardises the integrity of local food organisational planning and strategy. systems and community health. The Healthy Families NZ evaluation report and conversations with former
2. Support business innovation and local staff highlighted the lack of clarity and job creation in Tairāwhiti’s food confidence in its communication as an system, for example through ongoing challenge. Applying a ‘food consideration of a Tairāwhiti/ East lens’ to Council strategies and Coast food box programs will help build • The Rau Tipu Rau Ora Covid-19 understanding, focus engagement and Pandemic Response and generate support for integrated Recovery Plan 2020 reflects a action. A more in-depth understanding deep understanding of the of the amount of work already done in significance of the ecological systems thinking would be beneficial values of the Tairāwhiti region so that a definitive foundation is laid and the importance of for the Te Mahinga Kai o Te Tairawhiti preserving it for its project. Change takes time, and can be biodiversity, agricultural, FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
greatly facilitated by senior staff network or community initiative. Also, support for projects. to highlight the fact that in more • Any community food plan will need a successful cases, it has been invaluable systems perspective that works with having someone assigned by high level council stakeholders to clearly outline staff and not letting “it sit with one the relationship and role of each area person!” of government so that they are 2. To advocate to other levels of government reflected in strategic planning and through research and case studies for changes action. It will take time to build a in planning policy for better control around shared vision, which is something that density and proximity to vulnerable should be allowed to evolve over time. communities of fast food outlets Support for building this vision can be • Evaluation processes and priorities in found in other local or global case place from the outset of the project is studies that help demonstrate the key. It is also important to consider possibilities in integrated and systemic how to evaluate/share the unexpected approach. outcomes. • Building the capacity of staff to • A major challenge is presented by the increase the sustainability of projects different levels of government and will be enhanced with the appropriate their powers in localised regional investment of time and energy. affairs. There is a need to be strategic. Equally important to the sustainability One key piece of feedback is that the of these projects, from the project general public is not clear on the roles management perspective of the Te and responsibilities of different areas Mahinga Kai o Te Tairawhiti project, is of government. How could they be a realistic appreciation for the amount better informed? What are the of time and resources needed to build processes in place that facilitate up and support certain activities over community input/feedback to food such a culturally and geographically systems change? diverse area for the long term. The • Advocacy for change and message is not to underestimate the accountability greatly benefit from capacity (time, energy and resources) vision, inspiration and living examples needed to sustain an active of possibilities. A food forum is a good community network or the capability opportunity to share experience and of network managers to facilitate a stimulate conversations and networks. FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
CULTURAL • Eating habits and healthy lifestyles are learnt. There is little indication from 1. To build a shared understanding of the the council documents reviewed that Tairāwhiti food systems, and its challenges there is an understanding of the and opportunities amongst a diverse and importance of healthy food culture representative group of stakeholders and healthy eating. Interviewees
• The general public and local suggested that schools were government employees are generally enthusiastic participants in some of cautious of investing too heavily into the work done to date, and new programs because of the opportunities for further engagement likelihood of change or disruption to with schools will be presented with the previous health and social programs likely neighbourhood regeneration linked to government funding and project with Cobham School and the election cycles. Elgin community.
• Conversations with key stakeholders IDENTIFIED GAPS revealed that engagement and
sustainability of future projects would Given the high vulnerability of the Tairāwhiti be greatly enhanced if they were food system to rising fuel prices and its impact designed with community input in a on climate change greater attention will need ‘bottom up’ way. This contrasts with to be given to creating the conditions for the ‘top-down’ approach. responding appropriately to the challenges to
an ecologically sustainable food system in 2. To establish a shared and widely Tairāwhiti and to support the Council and understood definition and baseline of food stakeholders to prepare for and adapt to the literacy with Tairāwhiti residents and food challenges of a low carbon future by informing system stakeholders the ecological content and direction of a • Evaluation and iterative community Tairāwhiti Food Security and Food Sovereignty engagement processes worked into Strategy. the life of the project but especially at
the outset are essential. The New Zealand Government’s carbon
emissions programme has potential to be 3. To raise levels of food literacy across the closely linked to the Te Mahinga Kai o Te region, particularly amongst the youth Tairawhiti project. Food and its associated energy costs from paddock to plate are not FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
specifically highlighted as causes of rising - then it is more likely to be sustainable. This is energy outputs in the contextual analysis. The because it is less vulnerable to political change plan though deals with energy security and and fickle upheaval. identifies the link between food security and energy security, and hence contains many NETWORKS actions around changes to the food system. A There is already lot of work completed across significant contribution to the systemic change different sectors related to building a healthy needed to achieve greenhouse gas emissions and fair, local food system across the and energy reduction targets can be made if Tairawhiti region. All conversations held with the realistic effect and mitigation of food key informants highlighted the importance of systems energy costs (production, transport, tapping into existing networks and community processing, waste) are factored into Tairāwhiti organisations. Currently, Trust Tairawhiti are economic and development planning when it is progressing the development of a food and within their power to do so. beverage innovation strategy for the region, with recent endorsement from the Tairāwhiti POLITICAL ACCOUNTABILITY Economic Action Plan (TEAP) Steering Group Political change and insecurity can undermine (Trust Tairawhiti, 2020). There are some very new projects. This affects the energy and active people and networks who are keen to enthusiasm of staff and target participants and support the creation and growth of a their willingness to engage. ‘Buy-in’ by senior sustainable, healthy and thriving local food management staff can help mitigate the system. Accordingly, the collective impact impact of any change including by project model upon which the Te Mahinga Kai o Te design and their assignment of work to more Tairawhiti project is based on is well placed to than one person so that if one leaves, the support and work with and through these project will not stagnate. It is an issue of existing networks. political accountability for the long-term future and can be mitigated by building autonomy and sustainability into projects. While many of these observations and recommendations are more processed and
project implementation focused, it is not the SUSTAINABILITY purpose of this report to define future Sustainability has to be built into the strategic projects. Rather it is to highlight the existing design. If it is bottom up--that is, owned, driven gaps and issues that currently exist and the and designed by the community being targeted lessons from these experiences. FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
9. REFERENCES
• Gisborne District Council. (2020). icle/national-food-strategy-needed- Gisborne District Council – Te fix-poor-health-and-obesity-epidemic Kaunihere o Te Tairawhiti. Retrieved • Maori Land Court. 2020. Maori Land from https://www.gdc.govt.nz/state- Court. Copyright. Retrieved from of-our-environment/ https://www.maorilandcourt.govt.nz/ • Forbes, M. (2016). Gisborne the city of contact-us two people, one story. RNZ. Retrieved • Ministry for Primary Industries. from (2020). Ministry for Primary Industries https://www.rnz.co.nz/news/national – Manatu Ahu Matua. Retrieved from /309917/gisborne-the-city-of-two- https://www.mpi.govt.nz/food- people,-one-story business/running-a-food- • Gisborne District Council. (2019). business/national-programmes-steps/ Tairawhiti 2050 – Gisborne’s Spatial • Ministry of Transport (2020). Ministry Plan. Factsheet 01, March 2019. of Transport - Te Manatu Waka. Retrieved from Retrieved from file:///C:/Users/ToniJune/Downloads/ https://www.transport.govt.nz/mot- Tairawhiti-2050-Spatial-Plan- • NZ Nutrition Foundation (2018). NZ Factsheets%20(1).pdf Nutrition Foundation. Retrieved from • Hauora Tairawhiti. (2019). Hauora https://nutritionfoundation.org.nz/art Tairawhiti. Copyright. Retrieved from icle/national-food-strategy-needed- https://www.hauoratairawhiti.org.nz/ fix-poor-health-and-obesity-epidemic about-us/who/tairawhiti/ • Ministry of Health. (3 December 2018). Healthy Families NZ Summative Evaluation Report. Retrieved from https://www.health.govt.nz/publicati on/healthy-families-nz-summative- evaluation-report • Mackay, S. Sing, F. Gerritsen, S. Swinburn, B. (2020). Benchmarking Food Environments 2020: Progress by the New Zealand Government on implementing recommended food environment policies and priority recommendations. Auckland: The University of Auckland, 2020. Retrieved from https://nutritionfoundation.org.nz/art
FOOD SYSTEMS BACKGROUND AND MAPPING | TE MAHINGA KAI O TAIRAWHITI 2020
NGĀ MIHI!
Ngā mihi nunui To the partnership steering group, whānau and community of Te Tairāwhiti, key informants and stakeholders who have contributed to this desktop analysis and background mapping report of the region.
Healthy Families East Cape https://www.facebook. 21A Derby Street Gisborne com/healthyfamilieseas tcape Head Office: 38 King Street, PO Box 315, Opotiki 3162
P: 07 3156266 M: 021 022 04172 F: 07 3156970