Establishing Farmers Markets in San Diego County: What Local Governments Can Do

Establishing Farmers Markets in San Diego County: What Local Governments Can Do Produced for the County of San Diego, Health and Human services Agency Developed by the International Rescue Committee July 2016

Establishing Farmers Markets in San Diego County: What Local Governments Can Do Produced for the County of San Diego, Health and Human Services Agency Developed by the International Rescue Committee July 2016 The International Rescue Committee (IRC) responds to the world s worst humanitarian crises and helps people to survive and rebuild their lives. Founded in 1933 at the request of Albert Einstein, the IRC offers lifesaving care and life-changing assistance to refugees forced to flee from war or disaster. At work today in over 40 countries and 22 U.S. cities, we restore safety, dignity and hope to millions who are uprooted and struggling to endure. The IRC leads the way from harm to home. Cover Photo: Shoppers peruse vegetables on sale at the New Roots stand run by the International Rescue Committee at the City Heights Farmers Market. Source: Sandy Huffaker/IRC. Additional Credits: The New York Times This document was produced as part of the County of San Diego s Nutrition Education and Obesity Prevention (NEOP) Program. This material was funded by USDA s SNAP-Ed program, an equal opportunity provider and employer. For CalFresh call information, call 2-1-1.

I. Introduction Across the nation, there is greater awareness of the need for a healthy food system, one that provides access to healthy food but also addresses factors such as where food comes from, how it is grown, and how (and how much of) it is disposed. Increasingly, communities and experts are seeing food sovereignty as a core element of a healthy food system. According to the U.S. Food Sovereignty Alliance, food sovereignty is, the right of peoples to healthy and culturally appropriate food produced through ecologically sound and sustainable methods, and their right to define their own food and agriculture systems. 1 Additionally, at the First Global Forum on Food Sovereignty, food sovereignty was identified as, put[ting] the aspirations and needs of those who produce, distribute, and consume food at the heart of food systems and policies rather than the demands of markets and corporations. 2 Farmers markets are a key component of a healthy local food system, and one that fosters food sovereignty. They provide significant economic, social, and cultural opportunities and contribute to community health and wellness. Farmers markets are defined as a food market where local farmers sell fruit and vegetables -- sometimes along with meat, cheese, and bakery products -- directly to consumers. Even markets with a smaller number of vendors can make a positive impact in communities where there is limited access to healthy and culturally appropriate food. The multiple co-benefits of farmers markets include: Improved health: increased access to locally grown, healthy food, especially in urban environments where local, healthy food can often be hard to access; increased fruit and vegetable consumption 3,4 ; and increased physical activity Positive economic impacts: job creation 5, business incubation, and job skills development 6,7 ; recirculation of local dollars 3 ; and increased home values 8 Reduction of negative environmental impacts: reduced shipping distance; less time that produce is held in cold storage; less packaging; reduced water, fertilizer and pesticide use when produce is grown seasonally, and when farmers use environmentally-friendly farming practices Increased opportunities for community building and social cohesion 9,10 Increased education and awareness about healthy foods and the food system, especially when customers and youth are exposed to new and unique foods and methods of preparation Despite common misconceptions, farmers markets can provide affordable produce for lowincome shoppers. Additionally, farmers markets often fill the gap of access to fresh produce that is prevalent in underserved communities. According to a 2013 study of farmers markets located in low-income neighborhoods, sixty percent of shoppers believed that the market offered better prices than the grocery store. For residents who didn t shop at the farmers market, only seventeen percent of them saw price as a barrier. 11 Local governments in San Diego have the opportunity to do more to support farmers markets, especially in communities where access to fresh fruits and vegetables is limited. San Diego County s local governments can support farmers markets by explicitly referencing farmers markets in their policy language, reducing regulations on farmers markets, and implementing policies and programs to promote federal food assistance programs functioning within farmers markets. Establishing Farmers Markets in San Diego County: Page 1

The County of San Diego, Health and Human Services Agency (HHSA) is working to address these policy opportunities and promote a healthy local food system in collaboration with the region s local governments, food systems advocates, and communities. Towards that end, HHSA s Nutrition Education and Obesity Prevention (NEOP) program contracted with the International Rescue Committee (IRC) to implement the Community Agriculture Planning Project (CAPP). As part of the CAPP, IRC developed a series of four white papers that focus on different aspects of creating a healthy food system in the San Diego region. The other three white paper topics address: community gardens, urban farms, and increasing land access for community agriculture. The healthy food system white paper series was developed to assist San Diego County s local governments, along with the communities and organizations that work with them, to address these policy opportunities in order to improve the health and wellbeing of residents and address food sovereignty, while also supporting the local economy. This work supports the County s overall Live Well San Diego vision for advancing policy, systems, and environmental changes that create healthy, safe, and thriving communities. In the sections that follow, the white paper discusses the state of farmers markets across the San Diego region, identifies local challenges, and offers best practices and recommendations for jurisdictions to consider. The best practices are examples from around the nation and were selected because of their potential replicability in San Diego County. II. Existing Conditions According to the County of San Diego s Agriculture, Weights, and Measures Department, there are forty-four certified farmers markets across the county. This does not include farm stands (twenty-seven farm stands are listed on the Farm Bureau website). ChangeLab Solutions recently produced a report, Healthy Food in Every Neighborhood: A Policy Scan of Local Jurisdictions in San Diego County. 12 This report provides a scan of municipal policies and ordinances from the nineteen jurisdictions in San Diego County related to key elements of the food system to identify gaps and opportunities. As it relates to farmers markets, the countywide policy scan found the following: Sixteen cities and the County of San Diego have farmers markets currently in operation. Eleven cities and the County of San Diego have language supporting farmers markets in their general plan. Eleven cities, and the County of San Diego have language supporting farmers markets in their municipal code. One city and the County of San Diego explicitly allow farmers markets by right on private property. No cities have policies addressing acceptance of WIC and SNAP/EBT benefits at farmers markets. Establishing Farmers Markets in San Diego County: Page 2

While most cities across San Diego County support the operation of farmers markets, many policy opportunities exist such as allowing markets by right on private property, and creating policies that address acceptance of WIC and SNAP/EBT benefits. The benefits of farmers markets, as well as the programs that help markets serve disadvantaged populations, are valued deeply by many communities and thousands of families in San Diego County. Local government support for farmers markets and for incentives that serve a broad range of community members results in a more equitable, sustainable, and healthy local food system. III. Challenges The regulatory landscape plays an integral role in whether or not markets can open easily and quickly, and whether or not farmers markets can be sustained. Other factors that impact market success include: variables affecting consumer access (e.g., acceptance of WIC or SNAP/EBT benefits), the local government s zoning code language, and market logistics such as location, organizational structure, institutional support, and market oversaturation. Food Assistance Programs and Markets San Diego County farmers markets are located in all types of communities; however, there are a limited number of markets in low-income communities. Among the forty-one markets, only sixteen of them accept SNAP/EBT. 1, 2 Additionally, only seventeen markets accept vouchers from the Senior Farmers Market Nutrition Program and/or the Women, Infants, and Children (WIC) Farmers Market Nutrition Program. The small number of markets participating in these programs impacts access to healthy, fresh produce and food sovereignty. A variety of reasons may be attributed to the lack of SNAP/EBT use at most markets such as confusion related to SNAP/EBT and WIC eligibility and program requirements, as well as management concerns about cost implications and logistics. Local governments in partnership with other organizations can play a role in addressing these concerns with market outreach and education. Policies, programs, and/or funding to support and educate market managers about why it is important to accept SNAP/EBT and WIC benefits and about the logistics involved would go a long way to ensure healthy food access for all. In addition, acceptance of SNAP/EBT and WIC benefits increases the amount of money spent locally to support farmers. Zoning Code Language In some jurisdictions, zoning codes do not specifically identify farmers markets, or markets are grouped in with other temporary uses. This can be an issue because, if zoning codes do not specify how a property can be used and if the market is not permitted, then use of that land for a farmers market can be considered illegal. On the other hand, when farmers markets are referenced with other temporary uses (e.g., street fairs), the farmers and markets are usually 1 The Supplemental Nutrition Assistance Program (SNAP) was previously called the Food Stamp Program. CalFresh is the name of the SNAP program in California. 2 Electronic Benefit Transfer (EBT) is the electronic system through which SNAP benefits are distributed nationally. In California the card is called the Golden State Advantage and acts as an electronic debit card for food assistance dollars. Establishing Farmers Markets in San Diego County: Page 3

charged additional costs (e.g., permit fees) that are associated with managing markets. In more extreme cases, the lack of zoning codes related to farmers markets may make it impossible for the market to function at all. Ideally, zoning codes will allow markets to operate in most zones and/or make it easy for a market to apply for a variance if necessary (e.g., an industrial zone that functions more like a business zone). Market Logistics and Support Local governments can support long-term market viability. Market operators are often faced with operational challenges related to the structure of the organization, including: funding, administration, institutional support, and general costs. Market funding can be difficult to obtain for numerous reasons: location, market saturation, and staff capacity to write grants. Administration challenges such as limited staff capacity can result in less marketing and outreach. Additionally, fewer staff put a strain on opportunities to identify community or institutional support and recruit new vendors to grow the market. Local and state fees, staffing, and rent all contribute to the logistical and financial challenges involved. As a result, it is very difficult for markets to function on revenue alone. IV. Best Practices There is an abundance of farmers market model policies and programs from across the nation. Local governments and community organizations continue to identify novel opportunities to establish farmers markets, support existing farmers markets, and provide opportunities for lowincome community members to access farmers markets. The examples outlined in Table 2 have been selected to address San Diego County s local challenges, and offer both short- and long-term solutions. Policies Policies are the most effective way to create systemic change. It is imperative to identify existing policies that are relevant to the local context and/or can be scaled to fit the local context. The following are examples from around the nation of policies and/or planning language related to farmers market development, expansion, and access that can be applied to a number of local governments in San Diego County. Table 1: Policy Examples Policy City Details Link Urban Agriculture Ordinance Seattle Farmers Market Ordinance San Diego, CA Seattle, WA Regulations specific to: daily farmers market stands, weekly farmers markets, and full-time farmers markets. Farmers market permitting costs will be dramatically reduced. Reduced fees for street closures. Use of public property allowed and fees reduced. Streamlines the permit application process. http://www.sandie go.gov/developm entservices/industry/ pdf/urbansummar ytable.pdf http://clerk.seattle.gov/~legislativeit ems/ordinances/ Ord_123090.pdf Establishing Farmers Markets in San Diego County: Page 4

San Francisco Farmers Market Ordinance Seasonal Market/Farm Stand, and Food Peddler Licenses Farmers market policy language Massachusetts Food Trust Program (MA H 4375) San Francisco, CA Milwaukee, WI San Jose, CA State of Massachusetts Requires all markets in the city to accept all forms of payment from food assistance programs, namely Food Stamp/EBT cards. Allows Parks/Rec land to be considered as a possible venue for future markets. The Seasonal Market/Farm Stand License covers a stationary farmers market or farm stand at a community garden or commercial farming enterprise that is allowed according to the municipal code (i.e., community gardens are a permitted use in residential zones; commercial farming enterprises are a special use in residential zones). Food Peddler License covers a pushed, pedaled, pulled or motorized vehicle or from a carried container. Someone wanting to have a mobile fresh produce cart must have this type of license. This could also apply to a temporary farm stand on one s block (i.e., not on the community garden site). Adopted policy goals in their city-wide general plan (2011) to increase residents access to healthy food, including support for farmers markets. Prioritized streamlining the farmers market permit process. Defined a Small Certified Farmers Market allowing them by right in most areas of the city. Markets cannot operate for more than six hours a day, limiting potential nuisance effects (like traffic or noise). Larger markets (15+ vendors) still must apply for a Special Use Permit, which is less burdensome than a Conditional Use Permit but still ensures review by planning department staff. Requires all new farmers market applicants either to accept WIC/EBT or to allow a third party to operate onsite redemption. Established program to provide financing opportunities to increase access to healthy food. Once funded it would support activities, including development, renovation and expansion of supermarkets, farmers markets, food hubs and urban agriculture. The law appropriated $2 million to support food ventures, including farmers markets, primarily in low-and moderate-income communities, and requires cooperation with the Massachusetts Food Policy Council to promote and develop markets within these communities. http://sfgov.org/sit es/sfgov.org.sffoo d/files/migrated/ft p/uploadedfiles/sff ood/policy_report s/farmersmarkets.pdf Seasonal Market and Farm Stand License: http://city.milwauk ee.gov/imagelibr ary/groups/cclice nses/applications/ ccl-foodtemp1.pdf Food Peddler License: http://city.milwauk ee.gov/imagelibr ary/groups/cclice nses/foodpeddle rapplication.pdf www.sanjoseca.g ov/documentcent er/home/view/47 4 www3.sanjoseca. gov/clerk/agenda/ 20120814/201208 14_0403.pdf https://malegislatu re.gov/bills/188/h ouse/h4375 Programs Programs are an ideal complement to policy solutions. Table 2 outlines examples of programs run by local governments that provide support for farmers market operations (e.g., a SNAP/EBT Establishing Farmers Markets in San Diego County: Page 5

incentive program run by a city). Additionally, the examples include other program support provided by local governments such as: potential access to funding opportunities, marketing support, and streamlined permitting and licensing processes. Table 2: Program Examples Program City Details Link MadMarket Double Dollars Incentive Program Kansas Farmers Market Promotion Act (KS S 120) Homegrown Minneapolis and City of Minneapolis Farmers Market websites Madison, WI State of Kansas Minneapolis, MN SNAP incentive program housed by City. Offer a dollar for dollar match for all EBT transactions (up to $25) at multiple participating farmers' markets. Sets up a central registry of farmers markets to be maintained by the Department of Agriculture. Allows department to promote and encourage farmers market. Farmers market operators can register at no cost. Allows agency to apply for any grants or funding opportunities to promote farmers markets. Both websites serve as an online one-stop shop resource with information about how to create a farmers market, apply for licenses, take advantage of the EBT & Market Bucks Initiative program. http://www.cityofmadiso n.com/mayor/doubledoll ars/ http://www.kslegislature.org/li_2014/b2013_14/ measures/documents/s b120_enrolled.pdf http://www.minneapolis mn.gov/sustainability/ho megrown/farmersmarke ts http://www.minneapolis mn.gov/health/inspectio ns/farmersmarket V. Recommendations The following recommendations are based on the research of best practices and on the gaps and needs for farmers market solutions in San Diego s local governments: By adopting relevant policy language specific to farmers markets; Reducing and/or creating flexible regulations; and Implementing policies and programs that require farmers markets to accept SNAP/EBT and WIC benefits. The extensive list of examples in the tables above elucidates the numerous measures through which local governments can support farmers markets through policies and programming. Although programming may not be possible for every city in San Diego County, every city should at least have policies specific to farmers markets. Below are a number of suggestions on how local governments in San Diego County can help support long-term market viability. Adopt Supportive Policy Language Define farmers markets in the zoning code. Add language about farmers markets to the municipal code, including definitions and operating standards. Establishing Farmers Markets in San Diego County: Page 6

Add language about farmers markets to the general plan. Since the general plan lays out the vision for the jurisdiction, this document can encourage policymakers to create and amend policies that support urban agriculture. Prioritize market sites though planning language. Help steer markets to locations where there is greater need such as near schools, transit centers, or in neighborhoods where there is a lack of fresh produce outlets. Use this to help plan for new markets in the future. Adopt policies or practices that allow for farmers markets on underutilized public property. See San Francisco farmers market ordinance in Table 1 and the Seattle farmers market ordinance in Table 1. Remove Barriers and Create Opportunities Expand zones where farmers markets are permitted and/or remove requirements for a conditional use permit or a temporary permit if one is currently required. Ensure markets are located close to transit stops or ensure transit routes can connect shoppers to their markets. This has the dual benefit of increasing access to healthy food and promoting active transportation. Create policies that allow for various sized markets to cater to community needs. Small markets might be better suited for smaller communities or for organizations or businesses seeking to cater to a small population or workforce (e.g., such as a hospital, church, senior center, or school). See San Jose s farmers market policy language in Table 1. Make Markets Accessible Require or encourage acceptance of SNAP/EBT benefits at all markets. See San Francisco farmers market ordinance and San Jose s farmers market policy language in Table 1. An additional example is Los Angeles ordinance language is currently being drafted. See Los Angeles Policy Food Council website and marketing materials: http://goodfoodla.org/policymaking/working-groups-2/farmers-markets-for-all/ and http://goodfoodla.org/wp-content/uploads/2016/04/ebt-faq-2.pdf House a Market Match program within the City or provide support to existing Market Match programs. See the MadMarket Double Dollars Incentive Program in Table 2. Additional examples include the Seattle Fresh Bucks program: http://www.seattle.gov/environment/food/fresh-bucks, and the New York City Health Bucks program: http://www.grownyc.org/greenmarket/ebt/healthbucks. Actively Support and Promote Create a one-stop-shop for farmers markets within the local government to make it easier for people to access resources, navigate regulations, and apply for permits. This could be as simple as a website, or as much as a permanent staff position. A website with key information and relevant contacts can be very helpful. The Chicago farmers markets website is one example: http://www.cityofchicago.org/city/en/depts/dca/supp_info/farmers_market.html Establishing Farmers Markets in San Diego County: Page 7

Create outreach and marketing where policy foundations are already very strong in order build awareness and support of farmers markets. For local governments who have not yet addressed farmers markets in their municipal codes and/or general plans, it is ideal to start with the basics by developing new language and/or tweaking existing language. Local governments who already address farmers markets can build on that momentum by advancing more comprehensive policies or by creating and expanding city-housed programs. VI. Conclusion It is not difficult to start a farmers market in most jurisdictions across San Diego County, but it is an ongoing struggle to create markets that are financially sustainable and provide equal access to all community members. By developing policies and programs specifically for farmers markets, local governments can make it easier to establish a new market, help sustain existing markets, provide access to more markets for a diverse population, and help keep local dollars in our communities. Local governments within San Diego County are perfectly poised to take action and should have a vested interest in providing fertile ground for markets to thrive given their positive economic, social, health, and environmental impacts. Farmers markets are one of many avenues through which communities and individuals can define their local food system and what foods are available to them in the pursuit to achieve food sovereignty. VII. Resources ChangeLab Solutions. 2013. From the Ground Up: Land Use Policies To Protect And Promote Farmers' Markets. Available at: http://www.changelabsolutions.org/sites/default/files/from_the_ground_up- Farmers_Markets_FINAL_20130415.pdf ChangeLab Solutions. 2015. Healthy Food in Every Neighborhood: A Policy Scan of Local Jurisdictions in San Diego County. Available at: www.healthyworks.org/foodpolicyresources National Policy & Legal Analysis Network to Prevent Childhood Obesity. 2009. Establishing Land Use Protections for Farmers Market. Available at: http://www.cailg.org/sites/main/files/fileattachments/resources establishing20land20use20protections20for20farmers2720markets_fin al_091203.pdf San Diego County Certified Farmers Markets, San Diego County Farm Bureau: http://sdfarmbureau.org/buylocal/farmers-markets.php Certified Farmers Markets, County of San Diego Department of Ag, Weights and Measures: http://www.sandiegocounty.gov/awm/farmers_markets.html University of California Agriculture and Natural Resources. Meeting the Needs of Urban Agriculture in California. Available at: http://ucanr.edu/sites/urbanag/files/215416.pdf Establishing Farmers Markets in San Diego County: Page 8

1 http://usfoodsovereigntyalliance.org/what-is-food-sovereignty/ 2 http://usfoodsovereigntyalliance.org/what-is-food-sovereignty/ 3 Brown, K.H. and Jameton, A.L. 2000. Public health Implications of urban agriculture. Journal of Public Health Policy 21(1):20 39. 4 Bellows, A., Brown, K., and Smit, J. 2005. Health benefits of urban agriculture. A paper from the members of the Community Food Security Coalition s North American Initiative on Urban Agriculture [Internet] 1 27. Available at: http://www.co.fresno.ca.us/uploadedfiles/departments/behavioral_health/mhsa/health%20benefits%20of%20urban%2 0agriculture%20(1-8).pdf. 5 Farmers Market Coalition. Why Farmers Markets. Available at: http://farmersmarketcoalition.org/wpcontent/uploads/2013/08/whymarkets_august2013.jpg 6 Feenstra, G. 2007. The roles of farmers markets in fueling local economies. Gastronomic Sciences 1(7):56 67. 7 Conner, D.S., Knudson, W.A., Hamm, M.W., and Peterson, H.C. 2008. The food system as an economic driver: Strategies and applications for Michigan. Journal of Hunger and Environmental Nutrition. 3(4):371 383. 8 Voicu, I. and Been, V. 2008. The effect of community gardens on neighboring property values. Real Estate Economics 36(2):2414 2263. 9 Golden, S. 2013. Urban Agriculture Impacts: Social, Economic, and Health Literature Review. Compiled for UC Division of Agricultural and Natural Resources. Available at: http://asi.ucdavis.edu/programs/sarep/publications/foodand-society/ualitreview-2013.pdf. 10 Ober Allen, J., Alaimo, K., Elam, D., and Perry, E. 2008. Growing vegetables and values: Benefits of neighborhood based community gardens for youth development and nutrition. Journal of Hunger and Environmental Nutrition 3(4):418 439. 11 Project for Public Spaces and Columbia University Institute for Social and Economic Research and Policy (ISERP). Farmers Markets as a Strategy to Improve Access to Healthy Food for Low-Income Families and Communities, 2013, www.pps.org/wp-content/uploads/2013/02/rwjf-report.pdf 12 ChangeLab Solutions. 2015. Healthy Food in Every Neighborhood: A Policy Scan of Jurisdictions in San Diego County. Establishing Farmers Markets in San Diego County: Page 9