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Food-sensitiveplanning andurban designA conceptual framework for achievinga sustainable and healthy food systemMarch 2011

2011 David Lock Associates, University of Melbourne andNational Heart Foundation of AustraliaAll rights reserved: No part of this publication may be reproduced in any form withoutpermission of the copyright owners. Enquires requiring permissions should be directed tocopyright@heartfoundation.org.auAuthors: Jenny Donovan*, Kirsten Larsen* and Julie-Anne McWhinnie*Contact:David KlingbergDavid Lock Associates (Aust) 61 3 9682 8568davidk@dlaaust.comKirsten LarsenVictorian Eco-Innovation LabUniversity of Melbourne 61 3 8344 91890425 794 848klarsen@unimelb.edu.auHeart Foundation (Victoria) 61 3 9321 5400activeliving.vic@heartfoundation.org.auISBN: 978-1-921748-22-6Citation: Donovan J, Larsen K and McWhinnie J. Food-sensitive planning and urban design: Aconceptual framework for achieving a sustainable and healthy food system. Melbourne: Reportcommissioned by the National Heart Foundation of Australia (Victorian Division), 2011.Acknowledgements: Many thanks to all the people who provided comments, information andinsights into the development of this report. In particular we would like to thank the followingpeople for their contributions and critical feedback:Fiona Barker-Reid University of MelbourneRuth BeilinUniversity of MelbourneTrevor BudgeLa Trobe UniversityRachel Carlisle*Heart FoundationPeta ChristensenCultivating CommunityJane DixonAustralian National UniversityFerne EdwardsAustralian National UniversityNigel FlanniganUniversity of MelbourneFiona FlorakxVicHealthJulie FrancisDepartment of Transport, Victorian GovernmentVeronica Graham Department of Health, Victorian GovernmentLiam HodgettsCasey City CouncilJoel Meadows*Heart FoundationKathy McConnellFood Policy Coalition, Deakin UniversityPamela MorganMaribyrnong City CouncilLee Choon Siauw Health Promotion ConsultantAdam Smith*David Lock AssociatesErnestine Thompson VicHealthLukar ThorntonDeakin UniversityMichael VeldersARUP (Brisbane)Leon Yates Department of Planning and Community Development,Victorian Government*Project team members.This resource has been made possible with funding from the National Heart Foundation ofAustralia (Victorian Division) and VicHealth.All hand-drawn sketches and artwork in this resource were done by Jenny Donovan, DLA.Disclaimer: The interpretations and conclusions contained in this report are those of the authorsand do not represent the views of David Lock Associates (Aust), the University of Melbourne orNational Heart Foundation of Australia. While care has been taken in preparing the content ofthis material, David Lock Associates, the University of Melbourne, the Heart Foundation andtheir employees cannot accept any liability, including for any loss or damage, resulting from thereliance on the content, or for its accuracy, currency and completeness.2 Food-sensitive planning and urban design

Food-sensitive planningand urban designForewordThis document asserts that our cities need a new agenda of ideas andinitiatives to create better, more sustainable places to live.Most publications addressing how we should planand design our cities start from the premise that thereis much wrong with our cities. They point out thatthe way we organise space requires an increasingreliance on the motor car, consumes more landon the edges and demands more and more energy– all part of a road to ruin. Predictions about theincreasing numbers of people who will live incities add to the growing chorus insisting on theneed for new directions and innovative solutions.Food-sensitive planning and urban design doesnot simply assert that we have a problem in ourcities, but sets out to identify new ways of tacklingissues, providing a suite of ideas and innovationsthat cities should now embrace. It tackles a topicthat has little precedent as an agenda for theplanning of cities in Australia. It also sets out ahost of reasons why we should add food to thecore elements of the planning and design of oururban areas. This approach will not only improvethe liveability of our cities, but will also deliverFood-sensitive planning and urban design a more sustainable food system. This resourcegoes beyond advocacy and assertion: it providespractical examples of what could and should bedone to make our cities more food productive,healthier, better and more equitable places to live.Through their collection of ideas and their callfor a new agenda in the planning and designof our cities, the authors have sought to bridgea gap: a gap which exists between the currentplanning of our cities and the need for better andmore sustainable food systems. Food should beon the urban planning and design menu. Thisresource outlines how consideration of food inplanning and urban design can improve foodsystems and contribute to other aspirations ofplanning and urban design.Food – how it is produced, secured, transported,processed, marketed, accessed, regulated,consumed and wasted, its contribution to theeconomy and jobs, and what it does to our1

2 bodies and the planet – is now a major issue forhouseholds, communities, cities and regions.Food production is increasingly dependent onscarcer and costlier water supplies, and on finiteresources, such as fossil fuels and productiveagricultural land in and around our cities. Foodhas now become central to addressing climatechange and sustainability. However, for thosewho do not grow it, food is usually viewed as acommodity that is always there. Food comes onshelves at supermarkets, over the counter at takeaway food outlets, or is served at restaurants. Thereis now a massive disconnect between where andhow our food is grown and the way we live ourlives in cities. Food-sensitive planning and urbandesign advocates for us to get in much better touchwith the most basic of human needs and to onceagain make food production and improved accessto it part of urban living.Similar calls are beginning to be heard herein Victoria. The May 2010 report of the OuterSuburban/Interface Services and DevelopmentCommittee of the Victorian Parliament Inquiry intoSustainable Development of Agribusiness in OuterSuburban Melbourne noted that there was growingevidence “on the need to incorporate foodproduction and distribution within the planning ofurban communities. Typically, food has not beenan area of interest for urban planning, nor has foodbeen considered within metropolitan strategies.”2In a report prepared for the Growth AreasAuthority in March 2008, A Strategic Frameworkfor Creating Liveable New Communities, Sue Westand Marnie Badham identified that access toaffordable food is now a priority in building newcommunities and that people need the opportunityto shop locally for fresh fruit and vegetables andto grow, produce and sell local foods.”3Our current formal system of planning originatedin the overcrowded cities of the nineteenthcentury, where the industrial revolution producedunhealthy places. Concerns about the healthof residents were a major driving force in thedevelopment of improvements in urban designand regulation of land use and development.Ironically, again, concerns about the health andsustainability of our cities are driving calls torediscover the local food system and to createresidential environments more in touch with food– where everyone can access food and places toreadily obtain fresh, healthy food. A 2005 editionof the UK-based journal Architectural Design (vol.75, no. 3) was devoted to the topic ‘Food andthe City’. Helen Castles in the editorial to thatissue wrote, “if clean drinking water and publicsanitation were the main obstacles to socialprogress in the 19th century city, a healthy dietand access to fresh food for all promises to beone of the hottest issues for the 21st century”1.In that same publication, guest editor Karen Frankobserved, ‘it is time for the architectural andurban design planning professions to support andenhance the city’s multiple functions as diningroom, market and farm’.The formal recognition that food needs to be onthe agenda when we plan and design our citiesis gathering momentum both in Australia andoverseas. Food-sensitive planning and urbandesign is not only timely, but needs to be in thetoolkit of every planner and urban designer whocares about the future of our cities and wants tobe part of making better cities. Getting buy-in onhaving food as a core strategic element by thosewho run the planning system is a bigger task. Thisresource may well be seen in the future as a keyelement in getting to that goal.Trevor BudgeConvenerCommunity Planning and Development ProgramLa Trobe University, BendigoFood-sensitive planning and urban design

ContentsHow to use this publication4 Section56671. Introduction What do we mean by ‘Food’?Planning and FoodThe food systemProblems in the food system today589 Section121212Emerging issues with the food system8Climate change8Vulnerability to peak oil8Loss of land8Resource scarcityBarriers to planning for Food2. Defining Food-sensitive planning and urban design Putting FSPUD in contextFSPUD principlesWhat does FSPUD mean for the food system?12 Producing Food13 Processing and transporting Food13 Consumer access and utilisation13 Waste, recycling and post-use management131510Helping to reconcile competing objectives13 Health and fairness14 Sustainability and resilience14 Livelihoods and opportunity14 Community and amenityThe FSPUD matrix Section3. Opportunities and characteristics of FSPUD 16 Section4. Putting FSPUD into practice 2020Influencing strategy and policy development20 Reviewing the State Planning Policy Framework21 Reviewing the Local Planning Policy Framework21 Amending local by-laws21 Applying FSPUD principles to other planningand urban design policies and strategies Section345. Case studies and precedents 33Case study index References 6624 Applying FSPUD at the different stepsin the planning process24 Strategic planning27 Statutory planning29 Detailed design of the public realm31 Budget setting31 Cultivating culture change60Useful resources Appendices 6767 Appendix 1: Problems in the food system today71 Appendix 2: Emerging issues74 Appendix 3: The challenges for FSPUDFood-sensitive planning and urban design 3

How to use this resourceThis resource lays out a framework of ideas for consideration by allthose who collectively forge our cities and towns, so that we can beginto develop a shared understanding of what ‘food-sensitive planningand urban design‘ (FSPUD) is, and the contribution it can make tothe liveability and sustainability of our cities and towns. It has beendeveloped with particular reference to the planning context in Victoria,yet this does not preclude its use by those in other states and territories.Food-sensitive planning and urban design iswritten for a diverse audience, including planners,architects, urban designers, engineers, policymakers, community members and electedrepresentatives. Each of these groups has valuableperspectives about the development process,but differing levels of experience with food andplanning. They will also have different needs oruses for this work.Given this diversity, the resource is laid out as amanual, with clearly demarcated sections that canbe ‘dipped into’ to provide ideas or supportingarguments as needed. It can also be read frombeginning to end, depending on the interests andtime resources of the reader.Section 1 sets the scene. It introduces the foodsystem and some basic concepts and ideas abouthow planning and the food system interact. It alsoprovides some insights into the issues that makeplanning for food a pressing issue, and outlinessome barriers to prioritising food in contemporaryplanning practice.Section 2 describes FSPUD. It outlines theconcept of FSPUD and suggests a series ofprinciples to guide its application. It alsointroduces the FSPUD matrix – a tool for relatingthe stages of the food system to the objectives ofplanning and urban design.Section 3 provides tangible examples of FSPUD,by identifying a broad range of activities anddiverse opportunities using the FSPUD matrix.In doing so, it suggests what communities andenvironments that reflect FSPUD principleswould look like, and provides some accessibleinterventions that the reader may wish to consider.4 Section 4 outlines ways FSPUD can be put intopractice at the different stages in the planningprocess, and provides some pointers as to howinterested parties can cultivate an interest inplanning for food among their colleagues and peers.Section 5 offers a series of case studies andprecedents to illuminate some of the possibilitiesthat arise from considering food in planningand urban design. This is not intended to bea comprehensive set of examples. There arehundreds of inspiring and creative examples ofhow people are using food to reinvent their livingspaces and communities, and only a limitednumber could be included here. Instead, thissection is intended to inspire and challenge thereader to consider what might be achievable.Food-sensitive planning and urban design isintended to provide a catalyst for further discussionand to facilitate cross-fertilisation of ideas –leading to the development of new ideas andactions. It can also be used as a tool to advocatefor change. It draws on insights from academia,governance and practice in the disciplines ofplanning, urban design, sustainability and health.While this resource does not intend to providedefinitive answers about how food can be woveninto every planning decision, it does providedirections worthy of investigation. The focus isparticularly on urban areas (including regionalurban areas), and their relationship with theirhinterlands, because these are areas of both hightension and opportunity. Broader regional andrural land use issues are touched upon, but are notthe focus, of this resource.Food-sensitive planning and urban design

Section 1. IntroductionFSPUD is an approach to planning and urbandesign that explicitly addresses the way food isproduced, moved, processed and consumed,to create places that make it easy for people tomeet their food needs. FSPUD also considershow meeting food needs can contribute to otherobjectives of planning and urban design, classifiedin this resource as: health and fairness sustainability and resilience livelihoods and opportunity community and amenity.* Drawing on VEIL’s work in sustainable urban systems, Kirsten Larsenoutlined the need and opportunities for integrating food into sustainableurban developments and suggested some preliminary definitions andprinciples to shape the idea of Food Sensitive Urban Design.51. IntroductionThis work builds on the healthy built environmentfocus that the Heart Foundation has pioneeredover the past 15 years4 and the concept ‘foodsensitive urban design’ coined and articulated byVEIL in 2008.* SectionFood is a basic human need. This resource has been prepared to considerhow the traditional concerns of planning and urban design can bereconciled with the imperative to make sure that everyone has access toadequate, nutritious, safe and tasty food, now and in the future.What do we mean by ‘Food’?For the purposes of this resource, wecapitalise the word Food to refer to anaspirational subset of food that is:† required for a healthy and nutritious diet,and is adequate, safe, culturally appropriateand tasty produced, processed, transported, marketedand sold without adverse environmentalimpacts, and that contributes to healthy soilsand waterways, clean air and biodiversity provided through means that are humaneand just, with adequate attention to theneeds of farmers and other workers,consumers and communities.When the term ‘food‘ is used withoutcapitalisation, it means all food and foodproducts and refers to a more generaldescription, e.g. the current food system.† Adapted from the definition of a ‘sustainable food system’ provided byAPHA (2007).6Food-sensitive planning and urban design 5

Planning and FoodThe Planning and Environment Act 1987 providesthe legislative basis for planning in Victoria. Itstates that the purpose of the Act is “to establish aframework for planning the use, development andprotection of land in Victoria in the present andlong term interests of all Victorians”.7The State Planning Policy Framework seeksto “ensure that the objectives of planning inVictoria (as set out in Section 4 of the Planningand Environment Act 1987) are fostered throughappropriate land use and development planningpolicies and practices which integrate relevantenvironmental, social and economic factorsin the interests of net community benefit andsustainable development.”*Provision of Food is a central concern toensure net community benefit and sustainabledevelopment, particularly in relation to thepresent and long-term interests of Victorians.This framework provides the basis – perhapsan imperative – for consideration of Food inplanning and urban design. SectionThe food system1. IntroductionThe American Planning Association defines foodsystems as “the chain of activities beginning withthe production of food and moving on to includethe processing, distributing, wholesaling, retailingand consumption of food and eventually thedisposal of waste”. Each stage in the process hasland use implications that require appropriate andadequate land. Planning frameworks and decisionstherefore influence each of the four key stages inthe food system, as outlined below.1. Producing food. This typically occurs on landdedicated solely to the purpose of producingfood. Food production in Australia oftenmakes use of large areas of continuous land inregional areas to increase economies of scalewith the intention of increasing efficiency.Land productivity (and viability for foodproduction) is determined by many factors,including availability and quality of labour,soil, water, nutrients and energy sources, anddiversity of plant species.2. Processing and transporting food. This typicallyrequires extensive infrastructure to facilitatetreatment systems and transport, often requiringsignificant inputs of water, materials (e.g. forpackaging), labour and energy. Some of thisinfrastructure is dedicated solely to supportingthe food system (e.g. rail freight lines from highgrain-producing areas). Access to suitable landand resources for production and other supplychain functions has a strong influence onwhere food processing occurs. The integratednature of modern economies, and readilyavailable and inexpensive fossil fuels, haveenabled transportation infrastructure to supportwidespread movement of food around theworld, enabling some communities to access thecheapest food from the global market.3. Consumer access and utilisation.Like many countries throughout theworld, Australia has experienceda trend towards urbanisation,which means many people areboth physically and culturallyseparated from the sources of theirfood. Most Australians – includingthose in regional and farmingcommunities – get their food fromsupermarkets and outlets (eatingout venues) and are eating morehighly processed foods. ‘Fooddeserts’ (areas of limited or no access tofood within walking distance of wherepeople live or work) can exist even in denseurban areas or outer suburban expanses. Foodaccess and utilisation also requires people tohave spaces to store and prepare food, as wellas the interest and ability to do so.4. Waste, re-use and post-use management.A lot of food is wasted at every stage of the foodsupply chain. Post-consumption waste is typicallydealt with in facilities committed solely to thatfunction: sewage farms, land-fill, incinerators,etc. As food waste – along with many wastesalong the supply chain – is organic, it can betreated and used to produce both energy andfertilisers (compost). However, these facilities areoften not welcomed near urban areas and thecosts of moving the product can be prohibitive –making it difficult for producers to access it.* clause 10.0286 Food-sensitive planning and urban design

Our collective ability to fulfill any of these tasks isdependent on making sure the environment withinwhich they occur is ecologically healthy. The foodsystem is fundamentally reliant on healthy soilsand river systems, insects for pollination, andpest management, which are in turn supported byhealthy native vegetation and biodiversity.Problems in the food system todayFood-sensitive planning and urban design The production, distribution and consumptionof food all make a significant contribution to ourenvironmental impact. The impacts of the foodsystem are usually considered within regionallandscapes and waterways, but these implicationsflow through into the food we eat. Whileless tangible to urban households than directelectricity and water use, their impacts are muchgreater. For example: 50% of a household’s water use is contained inthe food its inhabitants consume, compared to11% directly used in the house and garden16 28% of household greenhouse gas emissionsare from food – compared to 20% from directhousehold energy use (e.g. lighting, heating,cooling), and 10% from transport (not includingemissions from food storage or preparation, ortransport to access food)17 over 40% of household residual rubbish sent tolandfill in Melbourne is food organics.§1. IntroductionDisparities in income, transport, physical accessto retail outlets, and varying levels of retail outletexposure may make it difficult for some people toeasily access Food and stay healthy. One Victorianstudy showed that increased variety of fast foodoutlets within a 3 km road network distance fromindividual respondent’s homes is linked with likelypurchasing of fast food.* A survey of 19 Melbournelocal government authorities showed that peoplein low and middle socioeconomic areas weremore likely to be exposed to fast food outlets thanthose in high socioeconomic areas.† In terms ofstore proximity (distance from residents’ homesto the nearest store), advantaged neighbourhoodsin Melbourne have been shown to have a shortertravelling distance to the nearest supermarketor fruit and vegetable store compared withdisadvantaged areas.‡Low-density urban expansion can result incommunities with limited financial resources beingdependent on cars or longer travel times to accessFood. The increasing costs of transport, particularlyfor those in fringe suburbs experiencing financialhardship, can exacerbate this situation.15 Thesefactors can contribute to locking people into a cycleof deprivation and so compound their disadvantage. SectionFor many people in Australia, food consumptionis contributing to alarmingly high levels of diseasesuch as cardiovascular disease and cancer.9 Riskfactors, such as obesity, high cholesterol levels andhypertension (high blood pressure), that contributeto chronic disease are increased by high intakesof total kilojoules (energy), saturated fat and salt,and low fruit and vegetable intake. Easy accessto healthy food choices where people live, workand play is important to help maintain health andprevent chronic disease. Access to healthy foodsis more difficult when areas have a low range ofhealthy and affordable foods available via foodretail and food-service outlets. Food insecurity– lack of regular access to safe, nutritionallyadequate, culturally acceptable food from nonemergency sources10 – appears to be increasing:53 out of 79 Victorian local government areas havereported that one in 20 of their residents ran outof food in the previous 12 months and could notafford to buy more.11 The design of our cities andtowns, and specifically enabling Food provisionand access, is an issue that planners and urbandesigners can positively influence.In terms of store density, advantagedneighbourhoods were shown to have a greaternumber of supermarkets and fruit and vegetablestores within a 2 km buffer zone from home.14A more detailed investigation of the problems inthe food system today can be found in Appendix 1.* This was a multilevel cross-sectional analysis of 2547 individualsfrom 49 census collector districts in Melbourne, looking at totalnumber and variety of fast food chain outlets (including RedRooster, McDonald’s, KFC, Hungry Jacks and Pizza Hut) within3 km of the respondent’s road network distance.12† A total of 4913 residents in 50 small areas across 19 localgovernment areas of Melbourne were surveyed.13‡ Food store locations, food variety and price within stores werecompared across 45 Melbourne neighbourhoods of varyingsocioeconomic disadvantage.14§ Derived from audits of household residual (rubbish) bins conductedby a number of Melbourne councils between 2006 and 2008.Industrial food waste contributes 21% of the waste to landfill inVictoria (852,000 tonnes in 2006–07). Avoiding, recovering andreprocessing this material (rather than landfilling) provides asignificant greenhouse gas reduction benefit, in the order of300–500 kg of CO2-equivalent per tonne of organics recovered.187

Emerging issues with the food systemIntensifying drivers of change are compoundingthese problems. Four key areas – climate change,vulnerability to peak oil, loss of land and resourcescarcity – are outlined below. SectionClimate change1. IntroductionAustralia’s climate is changing due to greenhousegases that are already in the atmosphere19, andprojected impacts up to 2030 are consideredunavoidable. Global greenhouse gas emissionshave been increasing at a rate higher than theworst-case scenario (no action) projected by theInternational Panel on Climate Change (IPCC) in2000. This is likely to mean that the projectedimpacts of climate change are conservative20. Foodproduction is already being significantly affectedby climate change, particularly through reducedand unpredictable rainfall, increasing temperaturesand heatwaves, and extreme weather events(including wind, frosts and hailstorms).21,22,23Vulnerability to peak oilThe cost and availability of fossil fuels arecritical to the food system, through direct useof fuel on farms, dependence on fossil fuels inthe manufacture of fertilisers and agriculturalchemicals, and in the distribution of food,including both movement of food through supplychains and how consumers access their food. Animminent global oil-supply crunch and continuedprice volatility will present significant challengesto many existing businesses and consumers,8 and will require significant changes to foodproduction and supply chains. Implicationscould include local suppliers becoming morecompetitive as fuel prices increase, and a need tore-evaluate ‘just-in-time’* supply chains.24Loss of landAgriculturally productive land is coming underincreasing pressure from competing uses, particularlyto accommodate growing urban populations.25The conversion of high-quality agricultural land(typically near cities) to urban use increases thedependence on less productive land for foodproduction and increases transport distances.Resource scarcityOur food system is also grappling with scarcity and/or cost of critical resources, such as water, energyand non-renewable sources of agrochemicals andfertiliser. The decline and degradation of thesecritical resources is being recognised globally as themajor challenge to equitable provision of adequateFood to growing populations.These trends are examined in more detail inAppendix 2.* Just-in-time supply chains are those where stock is ordered anddelivered as it is required, rather than keeping additional stock onthe premises.Food-sensitive planning and urban design

However, it is in this context that a new role forour cities is emerging. The planning of cities andtowns provides a concentration of critical resourcesthat are needed to provide food (particularly water,nutrients and labour). Many of these resources aretypically either not recognised or are consideredas waste and removed as quickly as possible (e.g.stormwater, greywater, organic wastes and sewage).Food production is heavily dependent on a rangeof agrochemicals26 that are vulnerable to resourcedepletion, particularly nitrogen (derived usingnatural gas) and phosphorous fertilisers. Urbanorganic wastes from cities could contribute newfertiliser sources.27,28,29There are rapidly emerging opportunities for citiesand their surrounding regions, that can plan,design and build Food systems that take advantageof urban and interface areas.Barriers to planning for FoodPolitical will. Planners typically advise or advocatefor a course of action that will eventually bedecided by an elected representative of the widercommunity. Ultimately these elected representativesare responsible for the way priorities are weighedup, and have to answer to their electorate for theirdecisions. If that electorate does not place a highpriority on the need to plan for food, there may notbe the political will to follow that through in theirdecisions, no matter what the planners advise.Food-sensitive planning and urban design Conflict with other priorities. Some plannersfeel that planning for Food, when it is consideredat all, is a subset of sustainability. This means itis given a relatively low priority when weighingplanning for Food with other worthy objectives ofplanning (e.g. accommodating all the urban usesneeded to support our wellbeing). Furthermore,there are relatively few tools available to measurethe impacts of planning decisions on foodconsiderations, but several measures for otherpriorities (such as measuring the available landsupply for housing). Elements with strong evidenceand data available tend to receive a higher priority.Policy vacuum. There is no explicit recognitionof planning for food within the Planning andEnvironment Act, or the State Planning PolicyFramework, which would strengthen the casefor considering impacts of decisions on Food.However, Municipal Public Health and WellbeingPlans do present opportunities for securing foodsystems and therefore potential for includingconsider

rediscover the local food system and to create residential environments more in touch with food - where everyone can access food and places to readily obtain fresh, healthy food. A 2005 edition of the UK-based journal Architectural Design (vol. 75, no. 3) was devoted to the topic 'Food and the City'. Helen Castles in the editorial to that

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