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Addressing food poverty in systems: governance of food assistance in three European countries

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Abstract

Emergency food poverty relief is one of the possible entry points to understanding food poverty in affluent societies, whereas the visibility of food poverty relief initiatives has evolved, together with large-scale food recovery organizations and networks aiming at reducing and valorising surplus in food systems. There is a substantial diversity of actors and resources involved, resulting in differently shaped initiatives and programs. It can be described as a continuum encompassing third sector initiatives, large and small businesses, and institutional intervention programs: by bringing together institutions, companies, organisations and civil society, public-private food assistance addresses food poverty in a way that is not viable by any of these actors alone and by adopting context specific governance arrangements. This paper contributes to this debate with the analysis of governance relations in food assistance initiatives across different European countries (Italy, The Netherlands and Ireland). By approaching food assistance from a systems perspective, we further the understanding of these initiatives and their modes of governance. The case studies offer a mapping of food assistance by identifying functions and outcomes, actors and resources involved, and the links the initiatives have to those elements, thus highlighting where collaborative food poverty reduction takes place that goes beyond traditional boundaries. Food assistance initiatives are a civil initiated response shaped by and complementing the social welfare and food systems in which they are embedded. The interpretation of food assistance functions leads to challenging the boundaries of food assistance and potentially triggering innovative approaches to improving food and nutrition security. Discussions show that while they have managed to find innovative and collaborative governance solutions to address the very immediate issues rather effectively, they do not negate the need for food system transformation to address the ultimate reasons for food poverty.

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Notes

  1. A Scopus search using key words “food banks” and “food poverty” yields 366 document results, with an exponential increase from 2007 to 2018.

  2. See e.g. Kim (2015) for a comparison of governance across US and South Korea, and González-Torre and Coque (2016) on different profiles of food banks in Spain.

  3. https://www.eurofoodbank.org/en/impact-and-beneficiaries accessed on 17.12.17

  4. For a more comprehensive reading of the forces that in the last half century have shaped the global food economy and embedded many social and ecological inequalities in it, we suggest Clapp (2016) and McKeon (2014).

  5. For example, in both Italy (Santini and Cavicchi 2014) and Finland (Silvasti 2015) the situation is that the national government, through its (agricultural and rural policy) agencies, operates directly with civil society and faith-based organisations to ensure widespread coverage of FEAD food distribution.

  6. Further detail on the case study in Italy is available in Arcuri, S., Galli F., Brunori G. 2016. “Local level analysis of FNS pathways in Italy: food assistance in Tuscany. Transmango: EU KBBE.2013.2.5–01 Grant Agreement no: 613532. Available here: https://www.researchgate.net/publication/309196346_local_level_analysis_of_fns_pathways_in_italy-the_case_of_food_assistance_in_tuscany

  7. Good Samaritan Law, n. 155 approved on 16/07/2003 - Regulation on the Distribution of foodstuffs for purposes of Social Solidarity - Art. 1. The recognised organisations (such as non-profit organisations of social utility (…), which carry out, for charitable purposes, free distribution of food products to the needy shall be treated as final consumers, for the proper state of transportation, storage and use of food” (Authors’ translation).

  8. A new income measure is starting in December 2017 for the first time, introduced by the current government. The actual impact of such a measure will be visible in the medium term.

  9. Further detail on the case study in the Netherlands is available in Hebinck A., Villarreal G., Oostindie H., and Hebinck P. 2015. D2.2 Transmango National Report: The Netherlands. TRANSMANGO: EU KBBE.2013.2.5–01 Grant agreement no: 613532. http://transmango.eu/publications.

  10. Further detail on the case study in Ireland is available in Carroll, B., and O’Connor D. 2016. “Local” Level Analysis of FNS Pathways in Ireland. Exploring Two Case Studies: Cork Food Policy Council and Bia Food Initiative. TRANSMANGO: EU KBBE.2013.2.5–01 Grant agreement no: 613532. https://transmango.files.wordpress.com/2017/09/d6-2-individual-case-study-reports.pdf

  11. During the conducting of this research in spring and summer 2016, this initiative was known as Bia Food Initiative. In October 2016, it was rebranded and launched as Food Cloud Hubs.

  12. Origin Green is a certification programme which aims to promote the sustainability of Irish food production practices. Food manufacturers must set a number of sustainable practice targets, one of which might be to divert surplus food from waste streams, thus satisfying social and environmental targets. Engaging with FCH facilitates working towards such targets.

  13. FEAD is a social programme, the objectives of which are to address European Union’s citizens’ most basic needs, for food and other items. Its key aim is to tackle the causes and outcomes of poverty and social exclusion (Caraher 2015).

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Acknowledgements

This research is part of the project “Assessment of the impact of global drivers of change on Europe’s food security” (TRANSMANGO), granted by the EU under 7th Framework Programme, theme KBBE.2013.2.5-01, Grant agreement no: 613532.

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Author notes

  1. Francesca Galli and Aniek Hebinck contributed equally to this work.

Authors and Affiliations

  1. Department of Agriculture, Food and Environment, University of Pisa, via del Borghetto 80, 56124, Pisa, Italy

    Francesca Galli

  2. Stockholm Resilience Centre, Stockholm University, Stockholm, Sweden

    Aniek Hebinck

  3. Food Systems Group, Environmental Change Institute, University of Oxford, Oxford, UK

    Aniek Hebinck

  4. Rural Sociology Group, Wageningen University, Wageningen, The Netherlands

    Aniek Hebinck

  5. Healthy and Positive Ageing Initiative, Department of Health, Government of Ireland, Dublin, Ireland

    Brídín Carroll

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Correspondence to Francesca Galli.

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Galli, F., Hebinck, A. & Carroll, B. Addressing food poverty in systems: governance of food assistance in three European countries. Food Sec. 10, 1353–1370 (2018). https://doi.org/10.1007/s12571-018-0850-z

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