Welfare Reform and Food Assistance Community Food Security Programs Improve Food Access Linda Scott Kantor (202) 694-5456 [email protected] he Federal nutrition assistance community nutrition, nutrition edu­ cities, have less access to reasonably Tsafety net represents the first cation, public health, sustainable priced, high-quality food than other line of defense in boosting the agriculture, and community devel­ households. For example, a 1997 food purchasing power and improv­ opment. As such, community food study by USDA's Economic ing the nutritional status of low­ security has no universally accepted Research Service found that super­ income households in the United definition. market prices were about 10 percent States. In fiscal 2000, USDA spent an Researchers at Tufts University lower, nationwide, on average, com­ estimated $32.5 billion on food view community food security as an pared with grocery stores, conve­ assistance programs, over half of its expansion of the concept of house­ nience stores, and grocery/ gas com­ annual budget. Community-based hold food security, which focuses on binations predominant in rural areas initiatives, such as farmers markets the ability of a household to acquire and central cities where a greater and community gardens, can boost enough food for an active, healthy proportion of the poor live. the effectiveness of USDA nutrition life. Community food security Supermarkets, which are more assistance and education programs focuses on the underlying social, prevalent in suburban areas, can by increasing the availability of economic, and institutional factors charge lower prices, partly due to high-quality and affordable food in within a community that affect the their lower operating costs and a community. Such initiatives also quantity, quality, and affordability of larger item selection, including store support rural comunities by food. label and generic items. This finding strengthening the traditional ties Researchers at Rutgers University has particular implications for low­ that exist between farmers and see community food security as a income households because house­ urban consumers. process in which community-based holds with access to supermarkets Following congressional passage programs work in tandem with a can often lower total food costs by of the Community Food Security strong Federal nutrition safety net selecting items within a food cate­ Act of 1996, USDA launched the and emergency food assistance pro­ gory, such as larger package sizes Community Food Security Initiative grams to move people from poverty or store brands, that are more in February 1999. This nationwide to self-sufficiency and food security economical. initiative seeks to forge partnerships (see box). This article examines a A 1997 study by USDA's Food between USDA and local communi­ variety of community food security and Nutrition Service (FNS) found ties to build local food systems, de­ programs, looking at their scope, that, nationwide, 77 percent of food crease need, and improve nutrition. their limitations, and their successes. stamps were redeemed at supermar­ Community food security is a rel­ kets. However, supermarkets atively new concept with roots in a accounted for 59 percent of all food variety of disciplines, including Foodstore Access stamp redemptions in rural areas Affects Food Affordability and 64 percent of redemptions in and Quality the poorest central cities (those with more than 20 percent of the popula­ Various studies suggest that low­ tion living in poverty) (fig. 1). The The author is an agricultural economist with the income households, particularly remaining food stamps were spent Food and Rural Economics Division, Economic Research Service, USDA. those in rural areas and poor central in grocery stores, convenience FoodReview • Volume 24, Issue l 20 Welfare Reform and Food Assistance Community Food Security Programs Benefit Farmers and Consumers Community food security pro­ households that participate in the provide small farmers with eco­ grams encompass a wide variety of Food Stamp Program and reduce nomic stability and consumers with community-based efforts to increase dependence on emergency food high-quality produce, often at the quantity, quality, and affordabil­ assistance providers. below-retail prices. ity of food for local residents, espe­ Farmers markets boost incomes of Farm-to-school initiatives help cially for low-income residents. small, local farmers and increase local farmers sell fresh fruits and Some of these programs improve consumer access to fresh produce. vegetables directly to school meal food access for low-income house­ Community gardens help public programs. holds and support rural communi­ housing residents and other low­ Food recovery programs rescue ties by strengthening traditional ties income consumers supplement wholesome food that would other­ between farmers and urban con­ their diets with home-grown pro­ wise be thrown away and provide sumers. Examples of community duce. the food to groups that serve the food security programs include the Food buying cooperatives help needy. following: families save money by pooling Food stamp outreach programs food purchases. Community-sup­ help increase the number of eligible ported agriculture programs help stores, and grocery sections of gas Figure 1 stations. Convenience stores and Share of Food Stamp Redemptions in Supermarkets grocery/ gas combinations typically Varies by Location offer poor selection and higher Percent prices, compared with supermarkets 100 and grocery stores. - Area average A 1997 FNS study of shopping Highest poverty1 habits of food stamp households - Lowest poverty1 found that many households, espe­ 80 cially African-American households, made just one major shopping trip per month, usually right after receiving food stamps. Food stamp 60 households made interim trips only to replace perishable items. Fewer shopping trips per month can mean 40 reduced access and higher prices for perishable items like dairy products and fresh fruits and vegetables as households purchase these items in 20 smaller, more expensive stores closer to home. Food Cooperatives Can 0 All areas Rural2 Urban3 Mixed4 Stretch Food Dollars Food cooperatives are customer­ 1Zip codes were divided into poverty quintiles. The highest poverty zip codes are those owned entities that are often formed in which more than 20 percent of the population is below the poverty level. The median poverty rate in the lowest poverty zip codes varied by metropolitan status. Median poverty to meet a need not being met by a rates in the lowest poverty quintiles were 6.9 percent (rural), 2.9 percent (urban), and 4.2 traditional retail store or to provide ~ercent (mixed). an alternative source of food in Rural areas = Zip codes with less than 10 percent urban population. areas poorly served by retail mar­ 3Urban areas = Urban population exceeds 90 percent 4Mixed areas = Urban population ranges from 10 percent to 90 percent. kets. There are two major types of Source: USDA, Food and Nutrition Service, Authorized Retailers' Characteristics Study, food cooperatives: buying clubs (or February 1997. pre-order cooperatives) and retail January-April 2001 21 Welfare Reform and Food Assistance security. Farmers markets are one of the leading sources of direct farm marketing in the United States. USDA reports the number of farm­ ers markets in the United States increased 63 percent in the past 6 years, from 1,755 in 1994 to 2,863 in 2000. A 1996 USDA study estimated national fruit and vegetable sales through farmers markets and other direct marketing outlets at $1.1 billion. A farmers market brings together producers and consumers at the same place and time, usually once or twice a week, typically in an out­ door setting. The markets range in size from a small community-based market to a large market run by a Community gardens are a way for local farmer organization and serving groups to improve households' access to several thousand shoppers. All fresh produce. Volunteer staff members farmers markets sell fresh fruits and with the Evangelical Lutheran Church in America (ELCA) grow vegetables in kiddie vegetables, but markets can also sell pools on the roof of the parking garage at cheese, meat and poultry, fresh ELCA's offices in Chicago, IL. The vege­ flowers, baked goods, honey, maple tables are donated to local food pantries. syrup, jellies and relishes, and Credit: Photographs courtesy of the crafts. Evangelical Lutheran Church in America. Data from USDA's NFSPS suggest that farmers markets account for a relatively small share of total food purchases by low-income house­ cooperative food stores. In buying rates for operating food coopera­ holds. Less than one-quarter of food clubs, members pool their resources tives in low-income areas- due to stamp participants reported shop­ (money, labor, purchasing, and dis­ lack of community support, poor ping at a farmers market, while one­ tribution) to buy food in bulk quan­ access to working capital, and Fed­ third shopped at a produce stand. tities at reduced cost. Retail coopera­ eral regulations that require cooper­ Households that were eligible for tive food stores maintain an atives to offer a full range of staple food stamps but did not participate inventory of food and nonfood foods in order to qualify as an in the program and households that items similar to a regular retail authorized food stamp retailer­ were nearly eligible for food stamps store. Members typically have some may limit