Towards A Healthy Community Food System

Towards A Healthy Community Food System
for Waterloo Region

Prepared by Marc Xuereb and Ellen Desjardins
Health Determinants, Planning and Evaluation

Interim Report
November 2005

Interim Report Towards A Healthy Community Food System

Acknowledgements
Much of the research conducted for this report was reviewed regularly by members of an advisory committee over the
course of 2005. They provided suggestions on research methodology, contacts in the local food and agriculture industry,
and feedback on how to interpret results. Region of Waterloo Public Health would like to thank them for their contributions.

Members of the advisory committee included:

Elsie Herrle and Trevor Herrle-Braun – Herrle’s Country Farm Market
Gerry Horst – Ontario Ministry of Agriculture, Food, and Rural Affairs (OMAFRA)
Peter Katona - Foodlink Waterloo Region
Ron Laurie – Global Delights
John Lubcynski – Region of Waterloo Planning, Housing, and Community Services
Rod MacRae – Food Policy Consultant
Carl Mueller – Elmira Farmers’ Market
Donald Murray and Harry Cummings – Harry Cummings and Associates
Mark Reusser and Jeff Stager – Waterloo Federation of Agriculture
Rick Whittaker and Cathy Brosseau – Waterloo-Wellington Community Futures Development Corporation

In addition Public Health staff would like to acknowledge the ongoing involvement of colleagues from the Planning,
Housing and Community Services department and the Social Services department. They have provided very helpful
direction and guidance in the development of this report.

Finally, the contribution of local planning staff and other associated agencies through the RGMS Implementation
Coordinating Committee has been formative and has helped to ensure relevance of the research underlying this report.
Public Health staff looks forward to continued collaboration as these findings are moved into policy recommendations.

2

Towards A Healthy Community Food System Interim Report

Table of Contents
Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4

Section 1: Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5

Section 2: The Current Food System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8

2.1 Dietary Intake and Health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8

2.2 Food Accessibility, Availability and Affordability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9
2.2.1 Access and Availability of Healthy Food . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9
2.2.2 Affordability of Healthy Food . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10

2.3 Agricultural Production and Food Distribution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10
2.3.1 The Agriculture and Food Economy in Waterloo Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11
2.3.2 Distribution of Local Food Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12

2.4 Food System Consolidation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15

2.5 Social and Environmental Consequences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .18
2.5.1 Social Consequences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .18
2.5.2 Environmental Consequences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19

2.6 Emerging Trends. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20
2.6.1 The Local Food Economy is Gaining Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20
i) Farm-Direct Sales . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20
ii) Farmers’ Markets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20
iii) Food Box Programs and Community Shared Agriculture Projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20
2.6.2 Consumers are interested in Local Food . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21
i) Popularity and impact of the Buy Local! Buy Fresh! Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21
ii) Consumers want to buy local food . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21
2.6.3 Urban agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21

Section 3: The Future of Waterloo Region’s Food System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22

Section 4: A Healthy Community Food System Plan for Waterloo . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
Plan Objectives:
1. To ensure that all residents can afford to buy the food they need to sustain health . . . . . . . . . . . . . . . . . . . . . . . . . . .25
2. To preserve and protect Waterloo Region’s agricultural lands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25
3. To strengthen food-related knowledge and skills among consumers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .26
4. To increase the availability of healthy food so that healthy choices are easier to make . . . . . . . . . . . . . . . . . . . . . . . . .27
5. To increase the viability of farms that sell food to local markets in order to preserve rural communities
and culture. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .28
6. To strengthen the local food economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .30
7. To forge a dynamic partnership to implement the plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .32

Section 5: Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .32
References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .33

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Executive Summary
The concept of broad community The local food supply can affect the Waterloo Region integrates the findings
food system planning provides an nutrition environment of the local of a number of local studies relating
integrated response to the seemingly population, in that the food produced, to local agriculture, rural health, food
disparate food-related problems distributed and sold within the region availability, buying practices,
affecting public health. A healthy can play a major role in how well the environmental issues and dietary
community food system approach population eats. A region with a intake of the population. Section 1
goes beyond individual dietary diverse agricultural economy, linked makes the connection between a
behaviour, and examines the broader with local food needs and markets, community food system approach
context in which food choices occur. will be more sustainable in the long and the social, economic and
It seeks to build healthy communities term, with lower environmental costs, environmental determinants of
by considering the ways in which reduced demands on transportation health. Section 2 describes the state
social, economic and environmental infrastructure, and potentially higher of the local food system today, and
conditions determine health. The goal food quality that helps serve nutritional documents the impacts it is having
is to create a system in which all objectives. As well, a vibrant local on public health. Section 3 points out
residents have access to, and can food economy will help sustain our some trends for the future, highlighting
afford to buy safe, nutritious, and rural communities and the viability of challenges and opportunities presented
culturally-acceptable food that has our local farms. by population growth and demographic
been produced in an environmentally change. Section 4 provides objectives
sustainable way and that sustains The interim report Towards a Healthy and preliminary strategies to guide
our rural communities. Community Food System for further planning in Waterloo Region.

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Section 1: Introduction
Towards a Healthy Community Food greater transportation choice and human and economic capital have
System for Waterloo Region is one of protecting our countryside in ways left rural communities. These
several discussion papers prepared which simultaneously promote public communities are showing signs of
by Region of Waterloo Public Health health. Based on this work, Towards economic and social stress as
in support of the implementation of a Healthy Community Food System agriculture has re-structured and
the Regional Growth Management for Waterloo Region attempts to consolidated. Pressures to increase
Strategy (RGMS), which was approved engage key stakeholders in further agricultural production have resulted
by Council in June 2003. Urban shaping policy and program in concerns about water quality and
design affects public health and recommendations to improve the ecosystem health.
quality of life in a number of ways. health of the public.
Incidence of chronic diseases, such The concept of broad community food
as asthma and conditions like obesity system planning provides an integrated
in particular, seem linked to the way response to these seemingly
in which our communities are disparate problems, and aims to
designed. The interests of the ensure access to healthy food for all
population’s health are best served residents. A community food system
by communities which make healthy approach goes beyond individual
choices for food and activity more dietary behaviour, and examines the
convenient, and which put in place Evidence is beginning to quantify an broader context of these behaviours.
infrastructure which reduces our increasing number of food-related It seeks to build healthy communities
reliance on fossil fuel use. problems in our communities. by considering multiple conditions
Hunger and poor nutrition have risen, that determine health and quality of
Toward this end, the RGMS diet-related diseases have proven life (see figure 1). With this health
integrates a cross-section of local resistant to traditional educational determinants perspective, economic,
Municipal, Regional, and other approaches, and consumption of social and environmental aspects of
stakeholder actions, including many low-nutrient “fast food” is increasing, the food environment become
which typically fall outside the scope resulting in the escalating incidence relevant to public health. A food
of conventional land-use planning. of obesity and diet-related diseases system that improves access to
This partnership-based approach is like diabetes. Reliance on international healthy food throughout the region,
the most successful way to achieve shipping of food has environmental and at the same time ensures a
balanced growth which simultaneously implications. Food retail has been viable local agricultural economy, will
advances public health. As partners consolidated outside of urban cores, enhance the health of all residents.
in the RGMS, Public Health staff has resulting in more automobile trips. An ecological paradigm emerges,
been engaged in a number of studies Centralized purchasing associated where a healthy food system is an
which support the goals of enhancing with the giant retail model has embedded goal within regional
of our natural environment, building of reduced opportunities for producers growth management for the future.
vibrant urban spaces, providing to sell their product locally. Both

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Figure 1: Applying a Community Food System Approach to a Healthy Communities Model
Sustainability
-increased biodiversity
-increased consumption of food
Viability
-reduced dependency on imported food
-improved air quality
-protection of farm land
-fertile soil
-unpolluted, conserved water
supply
Prosperity
-adequate and sustainable Economy Environment
livelihoods - urban and rural Livability
HEALTH
-walkable access to retailers of
healthy food
-green spaces, community
gardens, etc. that encourage
Community physical activity and enjoyment
of food
Equity
-equal opportunity and increased
interaction of diverse cultures
-increased access to healthy food for
people with low-income Conviviality
-heightened sense of community
-decreased social isolation
-increased community empowerment
and social cohesion
-time and space for cooking and
eating together

Source: Adapted from Hancock, 1999

Over the next 40 years, Waterloo and whole grains will face a lower will be more sustainable in the long
Region will face population growth of risk of obesity and both communicable term, with lower environmental costs,
over 50%, with a corresponding and chronic diseases. reduced demands on transportation
increased demand for food. The infrastructure, and potentially higher
population will change demographically The local food supply can affect the food quality that helps serve nutritional
such that the proportion of older nutrition environment of the local objectives. As well, a vibrant local
people and new immigrants will grow. population, in that the food produced, food economy will help sustain our
As these population subgroups are distributed and sold within the region rural communities and the viability of
known to consume more fruit, can play a major role in how well the our local farms (Feenstra, 1997,
vegetables and legumes, the demand population eats (French et al, 2001, Halweil, 2002, Horrigan et al., 2002,
for these foods will likely rise. A McCullum, 2004). A region with a Meter, 2004).
population that consumes an optimal diverse agricultural economy, linked
diet high in fruit, vegetables, legumes with local food needs and markets,

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A food system, as depicted in Figure The overall food system is vast and
2, can be defined as “a set of complex, and involves numerous 1. To ensure that all residents can
interrelated functions that includes sub-systems. Engaging stakeholders in afford to buy the food they need
food production, processing and achievable local changes is seen as to sustain health
distribution; food access and utilization the most realistic step given limited 2. To preserve and protect Waterloo
by individuals, communities and resources. Region’s agricultural lands
population; and food recycling, 3. To strengthen food-related
composting and disposal”(Dahlberg, Thus, the scope of this report is to knowledge and skills among
1991). A sustainable community food describe the food system in Waterloo consumers
system, however, improves the Region, highlight the ways in which it 4. To increase the availability of
health of the community, environment impacts the public’s health, and healthy food so that healthy
and individuals over time, involving a present possible strategies to choices are easier to make
collaborative effort in a particular accomplish the following seven 5. To increase the viability of farms
setting to build locally-based, self- objectives of a Healthy Community that sell food to local markets in
reliant food systems and economies Food System Plan for Waterloo order to preserve rural
(Dahlberg, 1999, Peters, 2002, Region: communities and culture
Feenstra, 1997). 6. To strengthen the local food
economy
7. To forge a dynamic partnership to
implement the plan

Figure 2: A Food System Model

Policy Policy Policy

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Section 2: The Current Food System in Waterloo Region

As a foundation to the development of a Community
Food System Plan for Waterloo Region, Public Health
has engaged the help of multiple partners to research
and document the current state of the local food system
and its impact on population health. This section
highlights these findings. Complete background reports
referenced are available on the Region of Waterloo
Public Health website.1

2.1 Dietary Intake and Health

Our population does not eat enough healthy foods, and our health is affected

origin such as whole grains, legumes, Region residents do not meet the
fruits and vegetables helps protect dietary recommendations of Canada’s
against both communicable and Food Guide to Healthy Eating. Over
chronic diseases. Such a diet also half (58%) of residents consume
helps maintain a healthy weight, fewer than the daily recommended
because these foods are high in fibre number of servings of fruits and
and generally low in fat, especially vegetables. Whole grains and
when they are minimally processed. legumes are also under-consumed,
The increased availability of low-cost, and refined carbohydrates, fats and
highly-available processed foods, oils and animal proteins are
which are typically high in sodium, fat over-consumed. This pattern of
and/or refined carbohydrates, is a dietary intake, coupled with inactivity,
contributing factor to the rise in has contributed to a population where
Habitual dietary patterns are a key obesity among children and adults 50.1% of residents were either
factor in health, and can have a (Raine, 2005, Drewnowski, 2003). overweight or obese in 2003
positive or negative long term effect. (ROWPH, Oct. 2004, and ROWPH,
A healthy diet high in foods of plant Current dietary habits of Waterloo June 2005).

1
Go to http://www.region.waterloo.on.ca/ph, and click on “Reports and Fact Sheets” under “Resources.”

8


2.2 Food Accessibility, Availability and Affordability

2.2.1 Access and Availability of Healthy convenience but not grocery stores, however, will find that
convenience store food is 1.6 times more expensive
Food compared to larger grocery stores and that healthy food
options are more limited. (ibid) Hence, location of grocery
The food that is available to people shapes their food stores and other food retail outlets is a key consideration
choices. Evidence suggests that people are more likely to which affects all residents’ ability to make healthy lifestyle
meet dietary recommendations when they have ready choices.
access to grocery stores with healthy and affordable food,
as opposed to convenience stores that offer mostly packaged
processed food (Morland, 2002). The increased Healthy food needs to be available, accessible and
density of “fast-food” restaurants in lower-income affordable to support healthy eating choices.
neighbourhoods has been shown as a contributing factor
for greater obesity rates in some American cities (Block et
al., 2004, Maddock, 2004, Reidpath et al, 2002). Further,
the opportunity to walk to retail food outlets can contribute
to obesity prevention and improved urban Livability
(Gottlieb et al, 1996).

A study of food access in Waterloo Region found that
residents without cars have good access to food retail,
since 94% of the urban population lives within walking
distance of a bus route which can connect them to a
supermarket.2 (ROWPH, Sep. 2004) However, using
public transit for grocery shopping is difficult, especially for
families with small children, and many residents who do
not have access to a private vehicle do not have the option
of walking to obtain the food they need.

Seventy-one per cent of the Region’s urban population
does not live within reasonable walking distance of a
supermarket, and 47% of the urban population in Waterloo
Region does not live within reasonable walking distance of
either a supermarket or a convenience store (ibid).3
Residents without cars who live within walking distance of

2
“There is no formal taxonomy for the various food retailers, but supermarkets are generally characterized as stores with over 15,000 square feet of selling space,
featuring very diverse products for sale, and located within a 15-minute drive from the clientele” (HCA, Oct. 2003, p. 88, citing Wen, 2001).
3
The research defined a reasonable walking distance to be 450m.

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2.2.2 Affordability of Healthy Food
Limited food access and limited income with which to buy are taken into account, a family on social assistance or
food lead to multiple risk factors for poor health (Tarasuk et with two adults working full-time at minimum wage would
al, 2004). It is estimated that 42.4% of low income households4 find it difficult to afford sufficient healthy food (ibid).
in Waterloo Region experienced some degree of food
insecurity (defined as “not having enough to eat, worrying The problem of insufficient income with which to buy food
about having enough to eat, or not eating the desired in Waterloo Region is reflected through use of food banks
quality or variety of food, due to lack of money”) in 2001 and other emergency food distribution sites. The Food
(ROWPH, Sep. 2004). It costs about $112.00 per week for Bank of Waterloo Region distributed food hampers or
a family of four to eat a healthy diet in Waterloo Region. meals to over 25,000 people through its member agencies
When shelter, household items, and other essential costs and programs in 2004, an 11% increase over 2002
(FBWR, 2005).

2.3 Agricultural Production and Food Distribution
A region with a diverse agricultural economy, linked with
local food needs and markets, will be more sustainable in
the long term. It will have lower environmental costs and
reduced demands on transportation infrastructure. It will
strengthen linkages in the local economy by keeping more
money circulating locally and therefore help to preserve
rural culture.

We have a prosperous agricultural region, yet
not much food that is produced in Waterloo Region
is sold here.
4
Low income households are defined as those whose incomes are below the Low-Income Cut-Off (LICO). 10.3% of households in the Region
are in this category.

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2.3.1 The Agriculture and Food Economy
in Waterloo Region
Compared to other regions across Ontario, Waterloo Farms in the Region averaged 156 acres, significantly
Region’s farm sector is relatively prosperous. The Region’s smaller than the provincial average of 226 acres. As shown
farms ranked third in the province in gross receipts per in Figure 3, the size difference is largely explained by the
farm in 2001, with an average of over $262,800 per farm. predominance of beef, dairy, and hog farms in the Region,
Net revenue per farm, at over $39,000, was almost twice which are smaller than field crop type farms (HCA, 2003,
the provincial average, and second only to Niagara Region. pp.26-28, pp. 3-16).

Figure 3: Farm Types in Ontario and Waterloo Region, 2001.
35.00%
30.00%
25.00%
20.00% Ontario
15.00% Waterloo
Per centage

10.00%
5.00%
0.00%
iry f y s it &
Da Be
e Ho
g ltr p Fru bles alty tion
Pou Cro pe
ci
bin
a
ld ta S
Fie Ve
ge Co
m
Source: HCA, 2003, p.16

The strong farming sector makes an important contribution
to Waterloo Region’s economy, with every job in the
agricultural sector supporting another four in the wider
economy (ibid, p.59). Taken as a group, the primary
(farming), secondary (processing and distribution) and
tertiary (retail) sectors of the Region’s agriculture and food
economy support 11.3% of the Region’s labor force,
comparable to any other major sector of the local economy
(ibid, p.100). The secondary sector alone supported 6,674
jobs directly in 2002 (ibid, p.69).

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2.3.2 Distribution of Local Food Products
Our food system relies heavily on imports to meet supermarkets and convenience stores. In most cases the
consumer demand. Canada imports about 40% of its amount of Waterloo Region (WR) content found in food
vegetables (excluding potatoes) and 80% of its fruit, with items is low as a result of the integration of Waterloo
most of the imports coming from the USA and Mexico Region’s food
(Riches et al, 2004). The Food Flow Study (HCA, 2005) production into the
attempted to determine what per centage of food that is provincial, national,
consumed in the Region of Waterloo has been grown, and international
raised and/or processed in the Region. A basket of 20 processing,
foods (shown in Table 1), all commonly eaten and capable distribution, and
of being grown or raised locally – was assessed in both retail systems.

Table 1: Degree of Ontario and Waterloo Region Sourcing of Selected Foods in WR Retail Outlets

<10% Very low 10-29% Low 30-59% Moderate 60-79% High >80% Very high

Food Ontario content WR content Food Ontario content WR content

Ground beef Low – moderate Very low Wholegrain crackers Insufficient info Insufficient info

Pork chops Low – moderate Very low Quick oatmeal Moderate Very low
Beef wieners Low Very low Corn flakes Insufficient info Insufficient info
Chicken breasts Moderate – high Low Fresh apples Very high Moderate
Cooked ham Low Very low Apple juice Moderate Very low
2% milk Very high Low Fresh carrots Moderate None
Fruit yogurt Very high Low Fresh tomatoes Moderate high None

High Very low Strawberries (out of None None
Cheddar cheese
season)
Eggs High Very low Strawberry jam Very low None
Oats, cornmeal &
Multigrain bread Very low Potato chips High Very low
soybean: very high

Source: HCA, 2005

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To explore the availability of local products
further, Region of Waterloo Public Health
conducted a series of grocery store and
farmers’ market audits in order to
determine the extent to which imported
produce was available during peak
availability of local produce. (ROWPH,
Nov. 2005a) As shown in Table 2, this
study shows that, even during the peak
season, produce grown in Waterloo
Region is not readily available to
residents.

Table 2: Origins of Eight Products at Randomly Selected Grocery Stores and Farmer’s Markets during their peak
local Season

Number and Per cent of Number and Per cent of Number and Per cent of
Product Vendors Selling Region of Vendors Selling Ontario Vendors Selling Imported
Waterloo Product Product Product
Asparagus (n*=26) 1 (4%) 25 (96%) (11)** No imported product

Strawberries (n=35) 2 (6%) 30 (86%) (1) 9 (26%)

Leaf Lettuce (n=18) No ROW product 14 (78%) (2) 7 (39%)

Sweet Corn (n=28) 3 (11%) 25 (89%) (8) No imported product

Field Tomatoes (n=30) 2 (7%) 30 (100%) (2) No imported product

Carrots (n=20) 1 (5%) 19 (95%) (4) 1 (5%)

Bartlett Pears (n=23) No ROW product 20 (87%) (2) 6 (26%)

White Potatoes (n=23) 2 (9%) 22 (96%) (0) No imported product

Source: ROWPH, Nov. 2005a
* n refers to the number of vendors audited
** the second number in brackets refers to the number of vendors who knew their produce was from Ontario but did not
know exactly from where

13


As shown above, Ontario produce is Interviews with primary producers, Retailers also noted the growing
well represented in grocery stores produce managers, distributors, and demand for local produce, but still
and markets during peak season. In market managers reinforced the carry the imported produce noting
contrast, Waterloo Region produce above findings. There was agreement that it is generally more consistent, it
was generally available at a more among all interviewees that imported is available in the volume they
limited number of locations. The produce is always available somewhere require, it often has longer shelf life
audits also made note of other similar during the local season. All primary and it is often cheaper. Primary
products that were available, such as producers saw this as a significant producers commented on the need to
differently packaged products or problem and noted that where there continue to educate the public about
different varieties. It is interesting to is an abundance of imported product the health and community economic
note that once a product has even a available it has the obvious effect of benefits of buying locally produced
small amount of processing associated reducing the price of locally grown fruit and vegetables.
with it, the imported product tends to product. One primary producer
dominate the market. For example, commented on the difficulty of
100% of foil wrapped baking potatoes distinguishing between local and
and 80% of baby carrots available imported produce and that people’s
were imported. This suggests potential assumptions of where they can
for growth in the local food processing source local produce are not always
sector. correct.

14


2.4 Food System Consolidation

Our food system is concentrated in the hands of
fewer and fewer players.

There is a general trend toward an increasing scale of
operation across Canada’s agriculture and agri-food
system, including significantly larger farms and consolidation
of food stores (Wilson, 2005). Agriculture and AgriFood
Canada notes that one-third of larger farms (>$100,000
sales) account for 87% of farm production and receive
75% of agricultural program payments (AAFC, May 2005).
Figure 4 and Table 3 illustrate that, while not as dramatic
as in the rest of Ontario, this trend is evident within
Waterloo Region.

Table 3: Number of Farms, Farmland Area, Average Farm Size and Per cent Change 1996-2001
1996 2001 Per cent change '96-'01
Average Average Average
Total farms Total acres Total farms Total acres Total farms Total acres
farm size farm size farm size

Ontario 67,520 13,879,565 206 59,738 13,507,357 226 -11.5% -2.7% 10.0%
Waterloo 1,590 234,406 147 1,444 225,800 156 -9.2% -3.7% 6.1%
Region
Source: Region of Waterloo, 2003

15


Figure 4: Distribution of Farms in Waterloo Region by Total Gross Receipts Category, 1990- 2000

550
500
450
400
Number of Farms

350
1990
300
1995
250 2000
200
150
100
50
0
Under $2,500 to $5,000 to $10,000 to $25,000 to $50,000 to $100,000 $250,000 $500,000
$2,500 $4,999 $9,999 $24,999 $49,999 $99,000 to to and over
$249,000 $499,999
Source: HCA, 2003, p.29

Food system consolidation is not to the marketplace (HCA, 2005). In the first product of the size and
limited to primary production. In their audits of supermarket and quality they were seeking. They
Waterloo Region the top five employers convenience store shelves in search found that almost all of the foods they
in the food processing and distribution of the 20 commonly-consumed foods, surveyed were dominated by two or
sub-sector account for over 55% of food flow study researchers used a three brands that in some cases were
all jobs in the sub-sector (HCA, 2003, random sampling method to record owned by the same parent company.
p.69). Though the sub-sector is a
major contributor to Waterloo Region’s
economy currently, this dominance of
a few firms leaves the local food
economy somewhat vulnerable to
potential corporate relocation
decisions (ibid, p.74).

Ongoing consolidation in the food
processing and distribution sub-sector
is also making it more difficult for
commodities to retain their unique
local identity as they make their way

16


In the food retail sector, four food chains operate 71% of These findings confirm analysis made elsewhere about the
the 35 supermarkets in the Region, where consumers effect of concentration in the food industry on the
spend 77% of their total food expenditures (HCA, 2003, availability of local food (Winson,1993; Waltner-Toews
pp.89, 94). These chains are increasingly consolidating and Lang, 2000). The image below, for example, was
purchasing decisions through head offices, posing barriers created to portray the food system in Europe, but could
to producers that cannot generate sufficient product volumes also represent the situation in Waterloo Region.
to supply all stores in a chain throughout the year (ibid, p.89).

Figure 5: Shift in the supply chain: Retailers, not farmers, dominate the food supply
The Supply Chain Funnel in Europe

Consumers 160,000,000
Customers 89,000,000

Outlets 170,000
POWER Supermarket formats 600
Buying desk 110
Manufacturers 8,600
Semi-Manufacturers 80,000
Suppliers 160,000
Farmers/producers 3,200,000
Source: Grievink, 2003.

17


2.5 Social and Environmental Consequences
The structure of our food system 2.5.1 Social Consequences rural residents have a strong sense
has social and environmental of connection to the land and history,
consequences. The health of rural communities is which leads to a sense of community
recognized as a key component of a and belonging which in turn contributes
community food system plan. For to their health. It was clear that
In a free market economy, the supply example, the US Department of farming is more than a business for
of food tends to be driven by the goals Agriculture includes it in its definition the farmers who were interviewed. It
of productivity and efficiency to of sustainable agriculture as a was also clear that the business of
minimize costs and maximize profits. system “that will, over the long-term: farming is changing. Smaller farms
Over the past several years, the (1) satisfy human food and fiber are disappearing, and those left are
effects of competition and subsidies needs; (2) enhance environmental finding it increasingly difficult to
in the global market have reduced quality and the natural resource base compete with larger farms and the
the price of agricultural commodities upon which the agricultural economy subsidized commodities from other
to record low levels (resulting from depends; (3) make the most efficient countries. As a result of all these
high volume outputs and excess use of non-renewable resources and factors, farmers are facing a great
supply). As a result of this trend, the integrate, where appropriate, natural deal of stress and major financial
market price of many locally grown biological cycles and controls; (4) concerns, resulting in many pursuing
food products may not reflect all of sustain the economic viability of farm off-farm incomes (ROWPH, 2003,
the production costs. This makes it operations; and (5) enhance the and AAFC, May 2005). The study
increasingly difficult for local farmers quality of life for farmers and society also found farm succession to be a
to earn a living and keep their farm as a whole. (USDA, 2005, emphasis concern. As one participant stated,
viable. When agricultural policy is added) "Young people end up leaving and
driven solely by the goals of the community loses - they see no
productivity and efficiency, the market The Rural Health Study (ROWPH, future in farming."
outcome may lead to social, health, 2003) was conducted to gain a better
and environmental consequences that understanding of the factors that
affect the community as a whole affect the health of rural residents in
(Waltner-Toews and Lang, 2000). Waterloo Region. It identified that

18


2.5.2 Environmental Consequences 1.1 kg of greenhouse gas is created. If all the tomatoes
consumed in Waterloo Region came from Leamington,
One environmental consequence of a system that sources each kg of tomatoes would create 14 times fewer
food from distant locations is the greenhouse gases emitted emissions. If all the tomatoes came from within Waterloo
in its transportation. Greenhouse gases are emitted Region, each kg would create 132 times fewer emissions.
through the burning of fossil fuels, and affect air quality
and global climate change. A recent study of imports5 of Imports of only the 31 foods tracked in this study are
31 commonly-eaten foods capable of being grown or responsible for more than the equivalent of 5% of the
raised in Waterloo Region tracked the distances travelled. greenhouse gases emitted by households in the Region
It found that imports of the studied foods travel an (ROWPH, Nov. 2005b). This environmental impact is
average of over 4,500km (median of over 3,700km) to entirely preventable since all of the studied foods are
Waterloo Region, and generate an average of 1.8 kg of capable of being grown in the rich agricultural lands of
greenhouse gases (median of 1.0 kg) for every kg of food Waterloo Region.
imported. Imports of the studied foods generate a total of
over 50,000 tonnes greenhouse gas emissions annually,
which is equal to the average emissions of over 16,000
cars on our roads each year (ROWPH, Nov. 2005b).
Although the greenhouse gases created are not all emitted
within Waterloo Region, the emissions result from demand
created here and contribute to the broad environmental
issue of climate change.

Tomatoes serve as an interesting example. Canned
tomatoes travel an average distance of 5,244 km to get to
Waterloo Region. For every kg of canned tomatoes imported,

5
Imports were from outside of Canada: data on inter-provincial or inter-regional food trade are not available.

19


2.6 Emerging Trends
Waterloo Region has a prosperous local and agricultural economy
and some emerging trends are increasing consumer food options.

2.6.1 The local food economy is gaining as three emerging markets (Elmira, Wellesley and New
Hamburg).
support
Farmers markets are a strong part of both urban and rural
Though the number of farms is declining and the remaining
culture in Waterloo Region: they serve both local needs
ones are becoming bigger, the trend is not as strong in
and as day trip destinations. Approximately 75% of
Waterloo Region as in the rest of the province. OMAFRA’s
consumers in the urban areas of Waterloo Region shop at
representative in Waterloo Region calls the Region “the
a farmers market between June and October (ROWPH,
king of small farms” because the average farm size is
Nov. 2005e). Collectively, consumers spend over $20
smaller than the province’s and yet net farm income is
million annually at farmers’ markets in Waterloo Region,
comparatively strong.
which is 2% of the $1 billion spent annually on food (HCA,
2003, p98).
(i) Farm Direct Sales
Driven by low commodity prices, a growing number of
Waterloo Region farmers have found a renewed interest in (iii) Food Box Programs & Community Shared
becoming “price setters” by selling directly to consumers. Agriculture Projects
In fact, some farmers are earning up to 50% of their Food Box programs are a form of farm-direct selling in
income in this way (HCA, which farms, sometimes through organizations that pool
2003, pp.80-84). However, products from several farms, deliver boxes of fruits and
farmers describe barriers vegetables to pick-up locations in the city. They can also
to this approach, such as be offered at a discounted price through charitable organizations
competition from cheaper with the intention of providing affordable access to nutritious
imports and federal or food to people on low incomes. For example, Waterloo
provincial regulations that Region has a program called the Good Food Box that makes
seem to be designed for monthly deliveries to 21 sites throughout the Region.
larger-scale operations. In Community Shared Agriculture (CSA) programs, farmers
establish a price for a share of their harvest. Consumers
purchase these shares at the beginning of the season
(ii) Farmers Markets (thereby sharing in the risk with the farmer), and their
Farmers’ markets are a convenient way for people to “dividend” is a weekly delivery or pick-up of produce
access healthy food, an important urban design feature in throughout the season. At least four CSAs, ranging in size
the revitalization of neighbourhoods and a way for farmer- from 30 to 100 shares each, currently operate in Waterloo
vendors to capture higher retail (versus wholesale) prices. Region. Informal discussions with farmers operating CSA
Waterloo Region features four large farmers’ markets projects suggest that all have waiting lists, demonstrating
(Cambridge, Kitchener, St. Jacobs, and Waterloo) as well an opportunity for more farmers to try this approach.

20


2.6.2 Consumers Are Interested in
(ii) Consumers want to buy local food
Local Food A 2003 survey commissioned by Public Health asked six questions
dealing with consumer attitudes and practices related to buying
(i) Popularity and impact of the Buy Local! Buy local food. It found that 87.1% of residents believe it is either
Fresh! Map somewhat (49.2%) or very (37.9%) important to buy local food.
The Buy Local! Buy Fresh! Map is a consumer The reasons they do so are shown in Figure 8. 71.3% of
guide to food products grown or raised on farms consumers report a willingness to buy more local food if it were
in Waterloo Region. It has been published as a labeled as local (ROWPH, Feb. 2004).
joint initiative of Region of Waterloo Public Health
and Foodlink Waterloo Region since 2002. With
50,000 copies distributed annually, the Map seems
to have found a niche with some consumers. Figure 2: Reasons for Buying Local Food
Recent focus group research found that
consumers identify the Buy Local! Buy Fresh! 100%
Brand with the experience of visiting local farms
% of Respondents Listing Reason

90% 88.6%
and building relationships with farmers; spending 80%
time with family, and educating their children 70%
about where food comes from. (ROWPH, July 60% 58%
2005). 50% 43.6%
40%
An evaluation of the Map in 2004 found that 30%
30.4%
23.6%
56.4% of map farmers reported an increase in 20%
the number of visitors to their farm (which 80.6%
13.8% 11.8%
10%
of farmers attributed to the Map) and 44.8% of 0%
Local is Preserves Support Decreases Local has Local is Local is
Map farmers reported an increase in sales (which fresher local local dependency travelled cheaper safer
84.6% of farmers attributed to the Map) farmland farmers on imports less
(ROWPH, Mar. 2005).

2.6.3 Urban agriculture water retention, food insecurity, urban rooftop gardens in Waterloo and
heat islanding, energy efficiency, air Kitchener (ROWPH, Nov. 2005d). In
Urban agriculture has the potential to quality, climate change, habitat loss, a recent survey 70% of urban
impact the social, economic, and social isolation and crime prevention residents indicated it is important to
environmental aspects of a community (World Health Organization, 2002). them to be able to grow their own
and thus impacts people’s health vegetables and 38% of residents
(Mougeot, 2000). Urban agriculture is In Waterloo Region, there are currently indicate they do so, predominantly in
becoming a well documented practice approximately 31 community gardens their backyards (ROWPH, Nov.
in Canada and has with the potential offering at least 679 individual plots 2005e).
to mitigate several environmental and to community gardeners. In addition,
public health issues, such as storm there are at least 6 green roofs or

21


Section 3: The Future of Waterloo Region’s Food
System

Over the next 40 years, the population of Waterloo Region proportion of individuals 65 and older increases in the next
will increase by over 50%, with a corresponding increased 40 years, projected trends for coronary heart disease are
demand for food. The population will change demographically also expected to increase (ROWPH, Nov. 2005c).
such that the proportion of older people and new immigrants
will grow. Add to these trends the potential for food system disruption
due to rising fuel costs, climate change, threats to water
As these population subgroups tend to consume more supplies, or other economic disruptions, and it starts to
fruit, vegetables and legumes (ROWPH, Oct. 2004), it is become clear that the current food system may not be
likely that the demand for these foods will rise. As the entirely sustainable in the long run.

An Optimal Nutrition Environment: A Viable
Possibility in Waterloo Region
To assess the viability of a food system that supplies more
of its own food, a 2005 Public Health study (ROWPH June
2005) calculated the optimal nutritional needs of Waterloo
Region’s projected population in forty years, and assessed
whether the Region’s agricultural land was capable of
supplying it.

The study started with the current dietary patterns of
Waterloo Region residents and compared them to the
recommendations of the Canada Food Guide. Of the foods
that are under-consumed, such as fruits and vegetables,
whole grains, and nuts and legumes, the study assumed
that current consumption of foods which must be imported
(e.g. rice, citrus fruits, exotic nuts) would continue. It then
calculated how many extra servings of foods that could be
grown in Waterloo Region would be necessary to achieve
optimum nutrition (see Table 4).

22

Table 4: Current Waterloo Region Food Intake Compared with Recommended Amount of Food that could be
Sourced Locally
Food group Canada’s Food Guide IDEAL : Recommended CURRENT: Food intake DIETARY CHANGE
Recommendations servings from a locally- in Waterloo Region NEEDED:
(fresh and processed) 2000-cal diet based diet (2005) ...to meet the
[servings/person/day] recommended diet, that
could be provided by our
Both local and imported food local food supply

Grains

wheat & rice 6 * >4

oats, rye, barley, other 2 0.37 1.63

Vegetables 7† 3.65 3.35

dark-green 2 0.42 1.6

deep orange, red, yellow 7 1 0.43 0.57
potatoes & other starchy vegetables 2 1.5 0.5
other vegetables 2 1.3 0.7

Fruit

tropical **
other than tropical 3 2.5 1.1 1.4
- melons, berries 0.5 0.32 0.18

- other local fruit 2 0.78 1.2

Meat and Alternates
meat, fish, poultry 3 *** >1.5
dry beans, peas, lentils, nuts 1.5 .86 .64
* Wheat and rice are more-than-adequately consumed and mostly imported into the Region.
†
The study assumed that local agricultural lands could grow all vegetables necessary for the recommended diet.
** The study assumed that current consumption of imported tropical fruits would continue.
***Meat, poultry, fish, eggs and dairy products are consumed adequately, therefore were not included in this study.

Data Source: ROWPH, June 2005.

The study then projected the number of additional servings commodity to another, or by making use of agricultural
needed of locally-grown foods into the future, using land not currently in production, or some combination of
projected population numbers for 2026 and 2046, and both. Further research would be necessary to determine
compared this to the existing base of agricultural land in the optimum means of achieving the shift.
the Region. It found that the need for many key nutritious
foods could be met in whole or part from local production, It would appear, from the above research, that Waterloo
and that only a 10% shift in agricultural production6 by 2026 Region’s agricultural land base may potentially be capable
or a 12% shift by 2046 would be required to produce these of supplying the foods that could meet the future optimal
foods in Waterloo Region. The shift could be achieved by nutritional needs of the population.
changing the production on existing lands from one
23


Section 4: A Healthy Community Food System Plan
for Waterloo Region
A healthy community food system plan is a collaborative Objectives 1-3 (asterisk) are already being addressed to
effort focused on increasing choices and options in the some degree by existing initiatives in Waterloo Region.
prevailing food system in order to improve the health of These are only briefly highlighted below with cross-
individuals, the community and the environment over time. references to where action is underway. The remainder of
The goal is to create a system in which all residents have this section proposes preliminary strategies to stimulate
access to, and can afford to buy safe, nutritious, and discussions toward accomplishing objectives 4–7.
culturally-acceptable food that has been produced in an
environmentally sustainable way and that sustains our
rural communities.

The development of a Healthy Community Food
System Plan for Waterloo Region focuses on the
following objectives:

1. To ensure that all residents can afford to buy the food
they need to sustain health *
2. To preserve and protect Waterloo Region’s agricultural
lands *
3. To strengthen food-related knowledge and skills among
consumers *
4. To increase the availability of healthy food so that the
healthy choices are easier to make
5. To increase the viability of farms that sell food to local
markets in order to preserve rural communities and
culture
6. To strengthen the local food economy
7. To forge a dynamic partnership to implement the plan.

24


Objective 1: To ensure that all residents can afford encourage environmentally responsible agricultural
to buy the food they need to sustain health practices.

A healthy food system ensures that all people have Regional staff is currently preparing a new draft of a
income sufficient to buy a diet that supports health, at Regional Official Plan, which among other things will
prices which support continued viability of farming. Groups propose policies related to agricultural lands. Opportunities
such as Opportunities Waterloo Region are pursuing for public input into the new Official Plan will follow in
campaigns related to this objective. 2006.

Ideally, income support policies would make the need to Objective 3: To strengthen food-related
deliver food assistance through food banks and meal knowledge and skills among consumers.
programs unnecessary. Until then, Regional Social
Services along with the Cambridge Self Help Food Bank, Education must play a key role in encouraging residents to
Food Bank of Waterloo Region and the House of eat a more nutritious diet. Public Health has always had a
Friendship are working with the over 65 food assistance strong mandate for food and nutrition education. For
programs to identify gaps in service and improve service example, since 1985, the Community Nutrition Worker
delivery. The Review of Emergency Food Distribution in program has used a peer-led approach in the community
Waterloo Region project will produce a report in early 2006 to improve knowledge and skills related to obtaining and
for discussion among providers, customers and stakeholders preparing nutritious foods (ROWPH, Nov. 2004). Other
on community solution building related to food assistance. Public Health examples include the Eat Smart program for
restaurants and efforts to encourage healthy eating in
schools.
Objective 2: To preserve and protect Waterloo
Region’s agricultural lands Recent research identified several educational strategies
that may reduce barriers to buying local food as well as
A healthy food system ensures that sufficient land is encourage healthier eating habits. The suggested strategies
available to produce the foods required to support the included educating consumers about what foods are grown
health of local populations. In addition to protecting the locally, the times local foods are in season, and teaching
farm land from development, farmers need to be supported skills for preserving local foods for the off-season
and the land needs to be used in a sustainable way, so (ROWPH, Feb. 2004). These strategies were also
that it will have the capacity to continue to produce food for suggested by local farmers participating in a University of
future generations. Waterloo study on local food systems development in
Waterloo Region (Soots, 2003). A number of other
The Region of Waterloo already has some of the strongest programs in Waterloo Region also pursue this issue,
farmland protection policies in the province, including including Foodlink Waterloo Region’s Local Harvest
policies which limit development outside of designated newsletter, The Working Centre’s urban agriculture
urban boundaries, prevent severances of agricultural lands workshops, and programs of the Cruickston Charitable
into lots too small to be farmed efficiently, and which Research Reserve.

25


Objective 4: To increase the availability of healthy food, so that the healthy choices are easier to make.

A healthy food system makes locations, similar to existing to be explored to attract retailers of
nutritious choices identifiable and mechanisms used to designate healthy food to neighbourhoods. For
more conveniently accessible, while affordable housing units. Or, for example, mobile farmers’ markets
limiting the availability of less healthy example, it may be that new could bring fresh local produce to
choices. opportunities are presented by the different neighbourhoods on different
development of station sites along days of the week or street vendors
Possible Strategies: the new transit corridor. might venture beyond traditional hot
dog fare to offer a variety of other
Other strategies beyond government choices.
4.1 Ensure Healthy Food is
incentives or regulations also need
Available in every Neighbourhood
Under the Planning Act, local
municipalities have the authority to
regulate the use of land through New York Greenmarkets
zoning by-laws. However, zoning a
property specifically for food retail use Greenmarket, a program of the Council on the Environment of NYC, promotes
does not necessarily guarantee that a regional agriculture and ensures a supply of fresh, local produce for residents
private firm will establish a food store on through smaller-sized, open-air farmers markets. Over 175 growers sell in 54
the property. However, it may be possible markets year-round, including locations near transit stations. By providing
to increase the availability of healthy regional family farmers with opportunities to sell their fruits, vegetables and
food in neighbourhoods by developing other farm products to residents, Greenmarket helps preserve farmland for the
zoning and/or financial incentives that future. Many restaurants also obtain ingredients at these markets, and
municipal governments could use to students participate in educational programs.
attract food retail operations to targeted http://www.cenyc.org/HTMLGM/maingm.htm

26


4.2 Increase Urban Agriculture 4.3 Restrict Unhealthy Foods in
Programs Identified neighbourhoods
Another way for people to have Some jurisdictions in North America
access to healthy food is for them to are attempting to limit the proliferation
grow it themselves, in backyards, of high-energy, low-nutrient foods (i.e.
community garden plots, or rooftop “fast food”) in the immediate vicinity
gardens. Waterloo Region has a of schools (Brunner, 2005). The
healthy start in establishing these rationale is that dietary habits formed
kinds of initiatives. Additional efforts in adolescence are often maintained
can make the urban agriculture for life, and that helping children and
option and its multiple health benefits youth form good dietary habits will
available to more people. For example, help prevent chronic disease.
at present, the City of Kitchener has
a grant program to support the
establishment of community gardens UBC “Soil to Salad Bar” School program
which could be adopted by other This program gets inner-city Vancouver school children involved in growing,
municipalities. harvesting and preparing their own salad greens and other vegetables. UBC
Farm is a 40-hectare student-run operation on the University of British Columbia
There may also be opportunities to (UBC) campus. It integrates sustainable land management and food production
encourage community and rooftop practices with education, community development, research and innovation.
gardening initiatives through Official UBC Farm is forging ties with community groups and neighbourhoods, and is
Plans and zoning by-laws, by trading affiliated with the University’s Faculties of Agricultural Sciences, Forestry, and
off height or parking restrictions for Science. http://www.publicaffairs.ubc.ca/media/releases/2002/mr-02-68.html
garden space.

27


Objective 5: To increase the viability of farms that sell food to local markets in order to preserve
rural communities and culture
The future health of Waterloo The Farmers’ Market Nutrition Program (FMNP)
Region’s food system and its rural The WIC (Women, Infants and Children) Program provides supplemental
communities is dependent on farmers foods and nutrition education at no cost to low-income pregnant, breastfeeding
being able to earn a reasonable and non-breastfeeding post-partum women, and to infants and children up to
living from agriculture. Strengthening 5 years of age who are at nutritional risk. The FMNP was established in
the viability of farms that sell food 1992, to provide fresh, unprepared, locally grown fruits and vegetables to WIC
locally takes advantage of the unique participants, who can purchase these with FMNP coupons. This also serves to
mixed, small farm profile evident in expand the awareness, use of and sales at farmers’ markets. Other WIC
Waterloo Region. programs educate participants on how to select, store and prepare the fresh
fruits and vegetables they buy with their FMNP coupons. A similar program
has been piloted in Kitchener (ROWSS, 2005).
http://www.fns.usda.gov/wic/FMNP/FMNPfaqs.htm

Possible Strategies:

5.1 Increase Farm-gate Sales
Waterloo Region has a rich tradition of
farm-gate sales of fresh produce. The Buy
Local! Buy Fresh! Map has made this
tradition more visible to residents, and has
begun to have an impact on participating
farms. There is much room for expanding
this area.

5.2 Expand Local Farmers’ Markets
Despite the success of Waterloo Region’s
farmers’ markets, challenges remain.
Often vendors are not Waterloo Region
farmers and/or sell produce that is not
locally grown and sometimes local
produce at the markets competes against
cheaper imports of the same products. At
least one local market is trying to address
this through a market by-law preventing
the selling of imported products when
local products are in season.

28


5.3 Establish Farm-to-School (and more of their ingredients from local chronic diseases (OSNPPH, 2004).
other public institutions) Programs farms to produce fresh and more Such programs also strengthen the
Several schools across North nutritious meals. Evaluations have viability of local farming operations.
America are trying to improve the shown the programs to produce These kinds of programs could be
quality of their cafeteria food by measurable changes in children’s implemented in university and hospital
eliminating high-fat, high-salt, low diets, which have affected classroom cafeterias, or indeed any corporate
nutrient food choices and sourcing behaviour and could help prevent lunchroom, with similar results.

Farm-to-University Food Service
University or College food service departments have an important influence over students' eating habits and health. Farm
to college projects offer opportunities for increasing farmer income, supporting the local economy and the environment, and
improving students' eating habits. By purchasing directly from local farmers, they can help local farms stay in business and
keep dollars in the local economy. Each farm to college project is unique to the college or university where it is based. A
list of active farm-to-college programs in the United States and Canada is at http://www.farmtocollege.org/.

5.4 Enable On-Farm Processing Facilities
Currently, land zoned as agricultural pays a lower rate of tax than
land zoned for commercial or industrial uses. Farmers seeking to
build a processing (e.g. canning, freezing, or washing and
peeling) facility on their land face the prospect of engaging in a
process to have a portion of their land re-zoned and paying a
higher rate of tax on that land.

The existing Regional Official Policies Plan allows farmers to
establish on-farm businesses provided the business is compatible
with, and clearly remains secondary to, the main farm operation.
FoodShare Toronto Farm-to-School Salad Bar Research may be needed to identify why more farms do not take
With childhood obesity on the rise, and increasing advantage of this opportunity, or to identify whether the existing
disconnect between food production and urban life, regulations still pose a barrier to farms.
the salad bar approach seems sensible. The Salad
Bar Program aims to increase children’s consumption
of fresh fruits and vegetables, and to purchase these
locally where possible. Statistics gathered from these
programs demonstrated that when healthy, seasonal
food is presented to them daily, in a way they like,
children can change the way they eat. The foods are
prepared in advance and do not have to be heated.
http://www.foodshare.net/publications_09.htm

29


Objective 6: To strengthen the local food economy

To meet consumer demand for local food and help make it Possible Strategies:
more economically viable for farms to sell to local markets, 6.1 Encourage Local Food Processing Industry
certain gaps in our local food economy need to be Although there is a market for fresh, unprocessed fruits
addressed. Retailers (including restaurants, institutions, and vegetables, the realities of today’s lifestyles and our
and grocery stores) demanding it, have very few sources seasonal climate require that food products undergo a
of local food that meet their criteria in terms of volume, certain degree of processing to attain a viable market
quality, and processing. share. Decisions to invest in food processing facilities, are
driven by market forces. Currently, those forces are not
creating food processing facilities to serve exclusively local
markets. Municipal and private partners need to come
together to identify ways to stimulate entrepreneurial
development in this area.

The Seasoned Spoon restaurant at Trent University
The Seasoned Spoon is a very successful student-run café co-op that opened on Trent University's Symons Campus.
Homemade soup and baked goods are prepared as often as possible with locally sourced ingredients. The not-for-profit
Seasoned Spoon has 10 paid staff members, and functions as a co-operative. The purpose is to support local agriculture,
and to serve as an educational opportunity. http://www.trentu.ca/opirg/seasonedspoon/

6.2 Establish Incubator Kitchens to Food Retail operations
A shared-use commercial kitchen is a type of business incubator where caterers, street cart vendors, farmers, and
producers of specialty/gourmet food items can prepare their food products in a fully licensed and certified kitchen. Kitchen
incubators usually offer technical assistance in food processing as well as general business management skills, and the
opportunity to form shared services cooperatives for marketing, distribution, and supply purchasing. They are particularly
useful for preparing locally-sourced food for use in farm-to-cafeteria programs.

30


6.3 Encourage Local Food Distribution Sector 6.4 Establish a Local Food Label
In addition to building an infrastructure for processing local A 2003 survey of Waterloo Region residents found that
foods, a healthy community food system requires specialty 71.3% of residents said they would buy more local food if it
distributors who focus on healthy local products. The were labeled as such. One of the recommendations of the
recently-established Elmira Produce Auction Co-operative Growing Food and Economy Advisory Committee was to
is a promising start in this direction, as it provides one “initiate a process for Waterloo Region branding of locally
location where re-sellers, distributors and caterers purchase grown and processed products” (HCA, 2003). Foodlink
wholesale quantities of fresh produce. Similar initiatives Waterloo Region and Region of Waterloo Public Health
could expand into other areas of the Region and/or expand co-own rights to the logo on the Buy Local! Buy Fresh!
into preserved or processed local foods in the off-season. Map, and have done some research with WLU students
into the viability of expanding the brand for other uses
(ROWPH, July 2005). Further research may explore the
possibilities of a label that defines "local" more broadly
than Waterloo Region.

County Taste the Season
Country Taste the Season is a food wholesaler and distributor that markets foods to and from the South East region of
England. Over 70 different independent food and drink companies from four counties supply their products through this
co-operative local food distribution scheme. With support from the counties of Kent, Sussex, Surrey, and Hampshire, this
enterprise is an example of a successful public-private partnership. http://www.countyproduce.co.uk/

31


Objective 7: To forge a dynamic partnership to
implement the Community Food System plan

Many of the interventions suggested in this interim report
are beyond the jurisdiction of the Region of Waterloo.
The goal of achieving a healthy food system for Waterloo
Region will require that many different organizations
endorse the plan and co-operate in pursuing its aims.

A body comprised of diverse stakeholders in Waterloo
Region’s food system, such as Regional and local
municipal planners, Foodlink Waterloo Region, Waterloo
Federation of Agriculture, economic development, food
system entrepreneurs, etc., will be necessary to advance
the strategies and policy options developed.

Section 5: Conclusion
The concept of broad community been produced in an environmentally of the local food system today, and
food system planning is providing an sustainable way and that sustains our documents the impacts it is having
integrated response to the seemingly rural communities. on public health. Section 3 points out
disparate food-related problems some trends for the future, highlighting
affecting public health. A healthy The interim report Towards a Healthy challenges and opportunities presented
community food system approach Community Food System for by population growth and demographic
goes beyond individual behavioural Waterloo Region integrates the change. Section 4 provides objectives
change, and examines the broader findings of a number of local studies and preliminary strategies to guide
context in which food choices occur. relating to local agriculture, rural further planning in Waterloo Region.
It seeks to build healthy communities health, food availability, buying
by considering the ways in which practices, environmental issues and
social, economic and environmental dietary intake of the population. In
conditions determine health. The goal Section 1, the connection is made
is to create a system in which all between a community food system
residents have access to, and can approach and the social, economic
afford to buy safe, nutritious, and and environmental determinants of
culturally-acceptable food that has health. Section 2 describes the state

32


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