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In eg a ing s a egies o Budapes and Lisbon's sus ainable, heal hy, and
esilien ood sys ems. Lessons lea ned and s eps o wa d
Vanda Pózne ¹, Bálin Balázs¹, É a Bánsági¹, Rosá io Oli ei a³, Ca olina Capi ão²,
Rod igo Fe ei a-San os², Os aldo San os²
¹En i onmen al Social Science Resea ch G oup (ESSRG), Hunga y
²En i onmen al Heal h Beha io Labo a o y, Ins i u e o En i onmen al Heal h, Lisbon
School o Medicine, Uni e si y o Lisbon (En iHeB Lab, FMUL), Po ugal
³Ins i u e o Social Sciences, Uni e si y o Lisbon (ICS–UL), Po ugal
DOI 10.3217/978-3-99161-033-5-015, CC BY 4.0
h ps://c ea i ecommons.o g/licenses/by/4.0/deed.en
This CC license does no apply o hi d pa y ma e ial and con en no ed o he wise.
Abs ac . This wo k elies on he expe iences ga he ed om u ban ood planning policy
design in wo Eu opean ci y egions, Lisbon and Budapes , conside ing u ban and pe i-
u ban ood p oduc ion landscapes as he basis o sys emic app oaches. Da a analysis
comp ised ou complemen a y app oaches: 1, a desk esea ch phase (na a i e
li e a u e e iew and his o ical analysis o ood policies a ec ing he ci y egions); 2,
quali a i e in e iewing wi h di e en g oups o s akeholde s (including, o ins ance, ci y
adminis a ion ep esen a i es); 3, ci y- egional and dis ic -le el ood en i onmen
mapping ac i i ies wi h ep esen a i e s akeholde s, wi h a conside able p opo ion o
ulne able g oups om wo neighbou hoods; and 4, wo wo kshops ex ending o a
isioning, sys em unde s anding and a s a egic planning phase. Resul s sugges
di e en ways and de i es o in eg a e local ood policy measu es in o cu en planning
policies. Al hough ood policies and planning a e bes done h ough in eg a ed
app oaches holis ically add essing mul iple pu poses and po en ially con lic ing u ban
planning agendas and s a egies, hey a e a a i y o many easons. Ne e heless, i will
be poin ed ou how cu en ly a ailable u ban planning p ac ices can enable a ood
planning policy and s a egy ha in eg a es social, economic, cul u al, clima e, and
biodi e si y- ela ed policies. Cu en good p ac ices o inno a i e u ban planning policy
measu es will be discussed using he FoodCLIC p ojec ’s assessmen amewo k,
p oposing an in eg a ed app oach o ans o m u ban ood sys ems and en i onmen s in
he Eu opean ood ansi ion amewo k.
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1. In oduc ion
U ban ood planning has eme ged as a c i ical a ea o ocus o ci ies wo ldwide in he
ques o sus ainable, heal hy, and esilien ood sys ems. This s udy explo es he
in eg a ion o ood policy measu es in o u ban planning in wo Eu opean ci ies, Budapes
and Lisbon. These ci y egions p o ide con as ing ye in o ma i e case s udies on how
u ban and pe i-u ban ood p oduc ion landscapes can se e as ounda ional elemen s o
sys emic app oaches o ood sys em planning.
Ou cu en global ood sys ems a e cha ac e ised by complex p oduc ion, dis ibu ion,
and consump ion ne wo ks ha ha e e ol ed signi ican ly o e he pas cen u y (Clapp,
2020). D i en by complex in e ac ions be ween en i onmen al, social, economic, and
poli ical ac o s, he ood sys em now aces se e al c i ical challenges. Inno a ion in ood
sys ems is impe a i e o add ess hese challenges, equi ing a e-e alua ion o land use
p ac ices. This includes p io i ising he enhancemen o plan p oduc ion, educing
eliance on animal husband y, and p ese ing soil heal h and biodi e si y (Tilman and
Cla k, 2014).
D awing on ex ensi e expe iences om u ban ood planning policy design, his s udy
examines he speci ic s a egies employed in Budapes and Lisbon. I le e ages a mul i-
ace ed da a analysis app oach, encompassing ou complemen a y me hods: a desk
esea ch phase, quali a i e in e iews wi h ci y adminis a ion ep esen a i es, ci y-
egional and dis ic -le el ood en i onmen mapping ac i i ies, and wo wo kshops
ocused on isioning, sys em unde s anding, and s a egic planning.
The indings highligh di e se me hods and pa hways o in eg a ing local ood policy
measu es in o u ban planning policies. Despi e he ecognised need o holis ic and
in eg a ed app oaches ha add ess mul iple and po en ially con lic ing u ban planning
agendas, such s a egies s ill need o be disco e ed (Mo gan, 2009; Sonnino, 2016).
The e o e, his s udy illus a es how cu en u ban planning p ac ices can be ha nessed
o de elop ood planning policies and s a egies encompassing social, economic,
cul u al, clima e, and biodi e si y- ela ed objec i es.
Adop ing sys emic app oaches o u ban and pe i-u ban ood p oduc ion landscapes
in ol es ecognising and le e aging he in e dependencies be ween u ban de elopmen ,
ood sys ems, and en i onmen al sus ainabili y. This in eg a ed app oach is essen ial o
building esilien ci ies ha can e ec i ely mee he ood needs o g owing u ban
popula ions while sa egua ding biodi e si y and enhancing he o e all well-being o bo h
human and non-human ac o s.
Using he FoodCLIC p ojec ’s assessmen amewo k, his wo k discusses cu en bes
p ac ices and p oposes an in eg a ed app oach o ans o ming u ban ood sys ems. The
lessons lea ned om Budapes and Lisbon p o ide aluable insigh s in o he Eu opean
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ood ansi ion amewo k, showcasing inno a i e u ban planning policy measu es ha
can d i e he u u e o sus ainable u ban ood en i onmen s. This s udy will compa e he
use o he FoodCLIC amewo k in wo ci ies, and desc ibe lessons lea ned du ing hese
p ocesses, aking s ock o speci ici ies, needs, and esou ces mapped in each con ex .
2. The FoodCLIC P ojec and Assessmen F amewo k
FoodCLIC1 is an EU- unded Ho izon Inno a ion Ac ion P ojec ha s a ed in 2022 and
uns un il 2027. The p ojec ’s p ima y goal is o c ea e esilien u ban ood en i onmen s
ac oss Eu ope. I akes ac ion in 8 ci y egions, whe e municipali ies and local esea ch
ins i u ions wo k oge he o ans o m u ban ood en i onmen s and ood sys ems o be
en i onmen ally sus ainable, heal hy, jus , and accessible.
The amewo k's ounda ion is he CLIC concep , g ounded in sys ems hinking and
ans o ma ional lea ning. This concep was de eloped by Sonnino and Milbou ne (2022)
and p esen s an inno a i e and in eg a ed amewo k designed o guide in e en ions in
u ban ood en i onmen s ha deli e sus ainabili y Co-bene i s, s eng hen u al-u ban
Linkages, enhance social Inclusion, and os e new Connec ions be ween ood and o he
complex sys ems. The e o e, i is a no ma i e amewo k emphasising ou key
dimensions: social, en i onmen al, spa ial, and sec o al in eg a ion.
I.
Figu e 1. CLIC amewo k @FoodCLIC P ojec
1 FoodCLIC EU Ho izon Inno a ion Ac ion P ojec : h ps:// oodclic.eu/ (accessed a 15.05. 2024)
264
In he subsequen sec ion, we will in oduce he ou pilla s o in eg a ion based on he
p ojec 's p oposal2.
Co-bene i s. The concep o ‘co-bene i s’ acknowledges ha sus ainabili y s a egies
aimed a pa icula economic, social, o en i onmen al objec i es can posi i ely o
nega i ely impac o he aspec s o a sys em, leading o syne gies o ade-o s.
Conside ing co-bene i s helps us o iden i y and add ess con lic s o in e es among
s akeholde s wi h di e se iewpoin s, os e ing collabo a ion and alignmen owa d
sha ed goals.
Linkages. Linkages encompass sys ems' dynamic lows, connec ions, and in e ac ions,
emphasising luidi y o e igid bounda ies. This concep in oduces a e i o ial dimension
o co-bene i s, highligh ing he impo ance o ( e)es ablishing o enhancing posi i e
spa ial, socio-cul u al, economic, and en i onmen al ela ions be ween communi ies and
locali ies and b idging u ban- u al di ides. Viewing linkages unde sco es he
in e connec edness be ween u ban and u al a eas, e aming he u al landscape as an
in eg al and aluable componen o u ban spaces ha equi es p o ec ion a he han
exploi a ion.
Inclusion. The concep o inclusion emphasises empowe ing di e se communi ies
h ough inc eased pa icipa ion, local leade ship, and owne ship o ini ia i es while
highligh ing he signi icance o knowledge plu alism. Knowledge plu alism in ol es
le e aging di e se knowledge sou ces and hei unde lying alues, p o iding aluable
insigh s in o ans o ma i e possibili ies.
Connec i i ies. Connec i i ies e e o he physical and i ual ela ionships be ween ou
ood consump ion p ac ices and b oade public goods such as heal h, well-being, he
en i onmen , and he wel a e sys em, all go e ned a a ious le els. Recognising he
signi icance o hese connec i i ies is c ucial o add essing he igidi ies, di isions, and
gaps wi hin he cu en sys em ha hinde he de elopmen o in eg a ed ood policies.
This awa eness sheds ligh on he agmen a ion o esponsibili ies ac oss mul iple
depa men s, minis ies, and s a e agencies and he powe imbalances among ac o s
wi hin he ood sys em and ac oss go e nance le els.
This me hodological amewo k behind he en i e FoodCLIC p ojec has guided esea ch
ac i i ies.
2 FoodCLIC P ojec G an Ag eemen No.101060717 - HORIZON-CL6-2021-COMMUNITIES-01
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3. Me hods
In his s udy, ou p ima y goal was o compa e he use o he FoodCLIC amewo k, which
aims o c ea e in eg a ed s a egies, in wo di e en ci ies. We also desc ibed lessons
lea ned du ing he p ocess, aking in o accoun he speci ici ies, needs, and esou ces
mapped in each con ex .
To achie e his objec i e, we adop ed a comp ehensi e, mul i-phase design ha allowed
us o analyse and unde s and u ban ood policies and en i onmen s ho oughly. Ou
me hods we e chosen o cap u e a holis ic iew o he u ban ood landscape, conside ing
a ious dimensions and s akeholde s in ol ed. Fo ha pu pose, we used ou
complemen a y app oaches, which a e de ailed below. While ou app oach
encompassed mul iple esea ch me hods, including desk esea ch, ood en i onmen
mapping, and wo kshops, we ecognise he need o s eamline ou indings o e ec i ely
g asp he speci ic a ea o in eg a ion possibili ies. The e o e, a e a sho in oduc ion o
he me hods, his epo will p ima ily del e in o he ou comes ocused on each case
s udy.
3.1. Desk Resea ch Phase
The i s phase in ol ed ex ensi e desk esea ch, including a na a i e li e a u e e iew
and a his o ical analysis o ood policies o he a ge ci y egions. This s ep aimed o
ga he exis ing knowledge and con ex ualise he cu en ood policy landscape. The
na a i e li e a u e e iew p o ided a b oad o e iew o he academic and policy
discou se su ounding u ban ood sys ems, while he his o ical analysis aced he
e olu ion o ood policies o e ime. This phase se he g oundwo k by iden i ying key
hemes, policy shi s, and his o ical in luences ha ha e shaped ood en i onmen s in
u ban a eas.
3.2. Quali a i e In e iewing
In he second phase, quali a i e in e iews we e conduc ed wi h ep esen a i es om ci y
adminis a ions. These semi-s uc u ed in e iews aimed o gain in-dep h insigh s in o he
pe spec i es and expe iences o policymake s and adminis a o s di ec ly and indi ec ly
in ol ed in designing and implemen ing ood policies. The in e iews ocused on
unde s anding ci y adminis a ions' challenges, successes, and u u e aspi a ions in
managing u ban ood sys ems. This quali a i e da a en iched he s udy by p o iding
nuanced, inside iewpoin s on he p ac icali ies o policymaking and implemen a ion.
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3.3. Ci y-Le el and Dis ic -Le el Food En i onmen Mapping
The hi d phase in ol ed ci y- egional and dis ic -le el ood en i onmen mapping
ac i i ies. These mapping ac i i ies we e conduc ed in wo neighbou hoods pe ci y
egion, cha ac e ised by a signi ican p opo ion o ulne able socie al g oups.
Rep esen a i e s akeholde s, including esiden s, communi y leade s, and ood e aile s,
we e engaged in mapping he local ood en i onmen s. This pa icipa o y app oach
aimed o cap u e a de ailed and localised unde s anding o ood accessibili y, a ailabili y,
and quali y wi hin hese neighbou hoods. The mapping ac i i ies highligh ed spa ial
dispa i ies and speci ic challenges ulne able g oups ace, in o ming a ge ed policy
ecommenda ions.
3.4. Wo kshops: Visioning, Sys em Unde s anding, and S a egic Planning
The inal phase consis ed o wo wo kshops designed o ex end he indings om he
p e ious phases in o ac ionable s a egies. The wo kshops in ol ed di e se pa icipan s,
including policymake s, communi y ep esen a i es, esea che s, p ac i ione s, and o he
s akeholde s. The i s wo kshop ocused on isioning and sys em unde s anding, whe e
pa icipan s collabo a i ely de eloped a sha ed ision o he u u e o u ban ood
sys ems and iden i ied i al le e age poin s o change. The second wo kshop was
dedica ed o s a egic planning, whe e conc e e ac ion plans we e o mula ed based on
he insigh s and isions gene a ed. These wo kshops acili a ed a collec i e app oach o
p oblem-sol ing and s a egic hinking, ensu ing ha he p oposed solu ions we e holis ic
and g ounded in he eali ies o he local con ex .
The in eg a ion o hese ou complemen a y app oaches p o ided a obus amewo k
o analysing u ban ood policies and en i onmen s, leading o well-in o med and
con ex ually ele an ecommenda ions.
4. U ban ood planning policy in wo Eu opean ci ies
Food policies and u ban ood planning a e c i ical componen s o sus ainable u ban
de elopmen . As ci ies g ow and popula ions become mo e u banised, ensu ing ood
secu i y, p omo ing heal hy die s, and minimising he en i onmen al impac o ood
sys ems a e inc easingly impo an . E ec i e u ban ood planning equi es he in eg a ion
o ood policies in o b oade u ban s a egies, add essing issues such as ood access,
sus ainabili y, and communi y engagemen (Mo agues-Faus and Ba e sby, 2021; Janin,
Nzossié and Racaud, 2023).
This sho compa a i e analysis examines he implemen a ion o he FoodCLIC
amewo k in wo Eu opean ci y egions: Budapes and Lisbon. While bo h ci ies a e
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wo king owa ds imp o ing hei u ban ood sys ems, each con ex 's cha ac e is ics imply
di e ences and adap a ions in hei app oaches, le el o in eg a ion in ood policies and
u ban ood planning e o s, and communi y engagemen s a egies. By explo ing hese
di e ences, his analysis aims o highligh he s eng hs and challenges o each ci y's
app oach, p o iding insigh s ha could in o m u u e u ban ood policy de elopmen s.
Budapes
Budapes 's ood policies a e p ima ily shaped by na ional egula ions, wi h local ini ia i es
playing a supplemen a y ole. The ci y has adi ionally ocused on ag icul u al policies
due o Hunga y's s ong ag a ian his o y. Budapes 's u ban ood policy is less de eloped
han o he Eu opean ci ies, wi h limi ed s a egic in eg a ion o ood sys ems in o b oade
u ban planning amewo ks. Budapes p omo es and is ecognised o i s local a me s'
ma ke s, and ci y dwelle s ind i essen ial o suppo small-scale a me s and inc ease
access o esh, local p oduce. Howe e , he impac o hese ma ke s is o en limi ed o
speci ic neighbou hoods, no ully add essing he needs o he en i e u ban popula ion.
The ci y aces challenges ela ed o ood secu i y, pa icula ly o ulne able g oups.
While he e a e ini ia i es o suppo low-income esiden s, such as ood banks and social
g oce y s o es, hese e o s a e o en agmen ed and need comp ehensi e policy
backing. En i onmen al sus ainabili y is an eme ging ocus, wi h e o s o educe ood
was e and p omo e o ganic a ming. Howe e , he in eg a ion o sus ainabili y goals in o
u ban ood policies emains in i s nascen s ages.
Budapes 's u ban planning has ye o ully inco po a e ood sys ems hinking. Limi ed
coo dina ion be ween u ban planne s and ood policy s akeholde s esul s in missed
oppo uni ies o c ea e syne gies be ween ood p oduc ion, dis ibu ion, and consump ion
wi hin he ci y's spa ial planning s a egies.
Lisbon
The ci y o Lisbon has his o ically been ed by i s hin e land, which supplied esh ood o
he u ban popula ion un il hal o he 20 h cen u y. Fo his eason, when u ban ood
planning s a ed o be esea ched, i was done a he me opoli an scale (Oli ei a and
Mo gado, 2016). In 2018, 38% o he land use o he Lisbon Me opoli an A ea (LMA)
was dedica ed o ag icul u al, supplying 12% o Po ugal's o al ood p oduced and
consumed. Howe e , he ope a ion o his ood sys em is no subjec o any egula ions
in e ms o spa ial planning o land use managemen , and i s impac on sus ainabili y
ansi ion in he egion s ill needs o be adequa ely known. How o d i e ood ansi ion in
he LMA, in which 18 municipali ies a e in eg a ed, has hus a isen as a p ominen
ques ion. In 2019, wi hin a li ing lab con ex , he i s s eps we e aken o his e y
challenging pa hway, in which he de ini ion o a ood ansi ion s a egy was iden i ied as
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he p io i y o sow he seeds o a ood planning p ocess (Oli ei a, 2022). In 2023, a Food
T ansi ion S a egy (FTS) was es ablished o ope a e collabo a i ely and o co-de ine a
se o long- e m objec i es acco ding o a ision o 2030 and a collabo a i e ac ion plan
(Oli ei a e al., 2023). The Lisbon Me opoli an Au ho i y is pa o se e al in e na ional
ne wo ks, such as he Milan U ban Food Policy Pac , due o he in luence o FoodLink.
This ood policy ne wo k was i al in in luencing a s a egic app oach o u ban ood
sys ems planning in which 40 public and p i a e en i ies a e cu en ly in ol ed and
engaged in he FTS implemen a ion.
This achie emen in he egional con ex was also possible due o he in luence o
FoodLink in he egional s a egic design, namely he Lisboa 2030 Regional S a egy,
which has been in ope a ion since 2020 as he p ima y guiding documen o he egional
ood ansi ion. I con ibu es o he objec i es o cohesion and con e gence in he coun y
and Eu ope h ough he ole ha his sys em plays in economic g ow h, in educing
e i o ial and social asymme ies, and in pu suing go e nance solu ions ha ac i ely
in ol e s a egic egional playe s, he public, p i a e, and associa i e sec o s in he
me opoli an egion.
Bea ing in mind ha he FTS pu sues a mul i-sec o , mul i-scale, and mul i-ac o
app oach, his policy ool should ha e a posi i e impac on es o ing he dynamics o
weal h c ea ion and on in e nal and ex e nal egional cohesion, mainly h ough inc easing
dynamism be ween u ban, pe i-u ban, and u al e i o ies, in andem wi h he blue
economy. A he same ime, he FTS is an oppo uni y o in eg a e sec o al policies such
as hose ela ing o he e i o y, he economy, heal h, ag icul u e, and he en i onmen ,
c ea ing oppo uni ies and syne gies wi h an e ec on inno a ion and e i o ial
compe i i eness, pa icula ly in he con ex o he 2021-2027 unding amewo k and he
challenges se o 2030 - 2050, pa icula ly wi hin he amewo k o he Eu opean G een
Deal.
The e o e, he planning o he me opoli an ood sys em aligns wi h he p oduc i e
specialisa ion obse ed in he LMA e i o y, speci ically in business se ices, anspo ,
logis ics and dis ibu ion, ene gy, he en i onmen , he ag i- ood indus y, educa ion, and
heal h. Hence, i is unde s ood ha he inc ease o alue chains om he p oduc ion,
p ocessing, dis ibu ion, consump ion, and ea men o ood was e is an inno a i e
app oach o he e i o y whe e he dynamics o local and egional ood sys ems ake
place, wi h a posi i e impac on he sus ainabili y and esilience o he egion in he
con ex o clima e change. In his con ex , he LMA will also play an impo an ole in
implemen ing he s a egic amewo k o he Me opoli an Plan o Adap a ion o Clima e
Change, pa icula ly abou he sec o al objec i es o adap ing he ag icul u al, o es y,
and ag i- ood sec o s, in plan and animal e ms, and p omo ing p oximi y ood supply
ci cui s be ween p oduce s and consume s, based on he conse a ion and sus ainabili y
o soil, wa e , biodi e si y, and landscape esou ces. This plan also includes agendas o
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which he implemen a ion o he FTS is gea ed, such as he sec o al me opoli an
agendas o economic adap a ion, ene gy and ene gy secu i y, wa e esou ces, human
heal h, coas al zones, and he sea.
To sum up, ood policies in Budapes a e less in eg a ed in o u ban planning and need
o be mo e cohesi e. While he e a e local ini ia i es o suppo ood access and
sus ainabili y, hese e o s need a cohesi e policy amewo k and s a egic di ec ion. On
he o he hand, he Lisbon Me opoli an A ea exhibi s a mo e ad anced and in eg a ed
app oach o u ban ood policies, wi h comp ehensi e s a egies ha align wi h b oade
u ban sus ainabili y goals. The exis ence o a egional ood policy ne wo k ha
pa icipa es in in e na ional ne wo ks and i s commi men o inno a i e ood solu ions se
i apa as a leade in u ban ood planning.
5. The case s udy o Budapes
Fo he Budapes case s udy, we ocused on p esen ing he esul s o ou quali a i e
in e iews. This selec i e app oach was adop ed o p o ide a concen a ed analysis o
s akeholde s' pe spec i es and insigh s on he po en ial in eg a ion o u ban ood
planning and policy wi hin he ci y adminis a ion, unde s anding hei ole, challenges,
and oppo uni ies in shaping u ban ood en i onmen s.
Th ough quali a i e in e iews, he En i onmen al Social Science Resea ch G oup
(ESSRG) aimed o cap u e nuanced iewpoin s, challenges, and oppo uni ies pe cei ed
by ci y adminis a o s, policymake s, and ele an ac o s in he u ban de elopmen a ena.
We can p esen a concise ye comp ehensi e unde s anding o he landscape by
ocusing on hese in e iew esul s. This enables a ocused discussion on he easibili y
and pa hways o in eg a ing ood conside a ions wi hin ci y go e nance amewo ks.
We conduc ed 17 semi-s uc u ed in e iews in he Mayo 's O ice, ac oss a ious
depa men s o he Municipali y o Budapes , and wi hin companies ei he pa ially o ully
o e seen by he Municipali y; we sough o engage in dialogue wi h ele an
s akeholde s. Al hough we we e open o discussions wi h a b oad ange o indi iduals,
ou p ima y ocus was on hose likely o in luence ood- ela ed ma e s, pa icula ly u ban
planne s and hose esponsible o managing he ci y's g een spaces. The s akeholde s
we in e iewed a e shown in his able.
