CHCI Policy Brief - Congressional Hispanic Caucus Institute
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CHCI Policy Brief
DEVELOPING THE NEXT GENERATION OF L ATINO L EADERS ®
March 2019
Food Insecurity and Food Waste:
We are Feeding Landfills Instead of Hungry People
By María Cecilia Pfund, CHCI-PepsiCo Foundation Nutritional Health Graduate Fellow
Executive Summary liability on the Bill Emerson Good landfill. Recovering food could be a
Samaritan Act. This is the policy that solution to help alleviate hunger
The United States, being one of the ranked high on all criteria items while improving the environment. Tax
richest nations, still has 40 million reviewed: efficacy, cost effectiveness credits, encouraging food recovery,
people struggling with food insecurity and sustainability. Even though a and banning organic waste in landfills
and depending on food assistance thorough approach to hunger and are effective ways legislators address
programs to have food on their tables. wasted food is needed to solve these food waste. Reducing food waste and
The budget for the 15 federal domestic issues, we need to start somewhere, feeding hungry Americans is a timely
food and nutrition assistance programs and we need to do it soon. If we start social, economic and environmental
to help reduce hunger was $98.6 rescuing food to feed the hungry, we issue. These two issues, food waste and
billion in FY 2017.1 On the other hand, can set up a model of win-win for food insecurity, that deeply affect our
the dollar value of wasted food in the everyone. As a leader nation, we are society and environment could be an
United States has reached an annual obliged to anticipate the future and opportunity for doing good while
cost of nearly $218 billion.2 To feed the proactively create a better one in a solving the problems.
growing population, we will need more sustainable way.
food and less waste. Beyond hunger Description of the Problem
and cost, food waste also has a Introduction
negative impact on the environment. Food Insecurity and Hunger
Food production uses up resources We are at a historic time that is calling Food insecurity is the lack of reliable
including water, soil, land, nutrients, for action to feed people and reduce access to enough food for a healthful
petrol. Food waste contributes to air food waste. Some examples of official- life.7 Hunger is a symptom of food
pollution because decomposing food ly declared goals related to these insecurity, but it is not limitedly
produces methane, which is 20 times issues include the United Nations’ experienced by those who struggle
more powerful at trapping atmospher- Sustainable Development Goals 2 and with food insecurity. Anyone may
ic heat than carbon dioxide (CO2). 12 (to end world hunger3 and to halve experience hunger. Feeding America,
food waste at the retail and consumer a major hunger-relief organization
Fortunately, progress in food rescue levels by 20304); the U.S. Food Loss and operating nationwide, defines hunger
has been increasing, albeit slowly; yet Waste 2030 Champions Initiative, as “the personal, physical sensation of
barriers remain. Policy choices could which aims to reduce food waste by discomfort for need of food.”8 In the
reduce those barriers. A first step 50% by 2030;5 and the formal agree- United States, approximately 1 in 8
towards food rescue is to make people ment signed on October 2018 Americans are food insecure, including
aware of the effect each food waste “Winning on Reducing Food Waste more than 12 million children.9 Work-
decision has on the environment and Initiative”, between the United States ing families in a variety of circumstanc-
to hold everyone accountable for their Department of Agriculture, Environ- es that result in food insecurity and
actions. mental Protection Agency (EPA), and hunger, may not qualify for federal
Food & Drug Administration.6 assistance.10
Based on the analysis described in this
paper, the best policy to promote at Millions of people are food insecure Food Insecurity in the Latino
the moment would be to extend the while millions of pounds of food fill the Community
The opinions expressed in this paper are solely those of the author and do not represent or reflect those of the
Congressional Hispanic Caucus Institute (CHCI).Latinos experience higher rates of food methane and CO2 absorb solar radia- storage, and temperature considera-
-insecurity than the general population tion and contribute to global warming. tions).
(see Figure 1). While 12% of white, non • Temporal and spatial factors (e.g.,
-Hispanic children face food insecurity, Agriculture uses up 70% of all the the time needed to deliver food to a
25% Latino children are at risk of water used throughout the world; new destination, and the dispersion
hunger. Moreover, Latinos are more therefore, food waste translates as of food loss among millions of
prone to suffer diet-related health wasting a scarce resource needed for households, food processing plants,
conditions, making food security a daily living. When we throw out one and foodservice locations).
crucial priority to improve their health kilogram of beef, we are also wasting • Individual consumers’ tastes, prefer-
status and reduce healthcare costs.11 50,000 L of water used to produce that ences, and food habits (e.g., throw-
Additionally, Latinos are less likely to meat.15 In terms of land damage, ing out milk left over in a bowl of
receive SNAP (formerly Food Stamps) approximately one-third of the world’s cereal).
or other federal nutrition programs. total agricultural land area grows food • Economic factors (e.g., costs to
The Latino population is expected to that ends up being wasted.16 Moreover, recover and redirect uneaten food to
continue growing, making food- monocropping and converting wild another use).
insecurity a growing problem for the lands into agricultural areas are
U.S.12 common agricultural practices that Additionally, consumers also face daily
adversely affect biodiversity.17 challenges to make food rescue the
Wasted Food is Harming the Envi- norm. Part of it is cultural and societal
ronment Challenges to Rescue Food norms, but some of the obstacles are
Food waste harms the environment, Rescuing food is not an easy task, and intrinsic, which could be greatly
creating negative externalities currently it is easier and cheaper for improved through more education to
(transaction costs resulting from an businesses to throw out food rather the public on how to efficiently use the
action such as food production or than designing a plan to rescue it and food they buy. The current factors
disposal) throughout the food supply incur on the costs of storage, packag- causing consumer-related food waste
chain.13 Negative externalities use up ing, transportation, and labor to include:
valuable resources including water, successfully bring the food to those in
soil, land, nutrients, petrol, and create need of it. Similarly, people are prone • Macro-environmental context, such
air pollution. Nevertheless, the burden to waste food due to a variety of as food safety laws and subsidies
on the natural resources consumed are factors. Below is a list of the most • Insufficient skills to manage food
not fully internalized in the price of common contributing factors that appropriately
food. If food waste was a country, it make rescuing food challenging, • Reduced value to food for food
would be the third, right after USA and according to researcher Jessica itself, more value placed on the
China, in largest greenhouse emis- Aschemann-Witzel, who carefully social aspects and references of
sions.14 This occurs because food waste reviewed research studies on this topic food
produces methane, which is 20 times and is an expert in this matter.18 • Large portion sizes
more powerful heat-trapping gas than • Social norms, such as associating
carbon dioxide (CO2). Greenhouse gas- • Technical factors (e.g., the perishable
rescuing of food with stingy or
es such as nature of most foods, food safety,
cheap
Potential Solution: Rescue
Food to Feed Hungry People
Feeding hungry people with food that
would have otherwise been wasted is
also called reusing food. As depicted
on the following page in Figure 3,
reusing/rescuing food to feed hungry
people is only second to source
reduction—avoiding generating the
waste in the first place. This means that
if we have generated surplus food,
according to EPA’s Food Recovery
Hierarchy, the top most priority is to
use it to feed people. Acting in this
manner not only helps to reduce food
waste, but decreases food production
Source: Alisa Coleman-Jensen et al., “Household Food Security in the United States in 205, Statistical needs.19
Supplement,” USDA, September 2016 as cited in Center on Budget and Policy Priorities. (n.d.). Lati-
no households have higher food insecurity than nation as a whole [Figure].
2Figure 2: Food Recovery Hierarchy States”. Additionally, one hour of food
rescue efforts and one hour of directly
serving those who are food insecure at
facilities that receive food donations
would be required to receive the
certificate suggested on this policy to
be required for everyone who needs to
take ServSafe across USA.
Extend liability of the Bill Emerson
Good Samaritan Act to protect
donors who wish to donate or sell
food at a reduced price directly to
individuals in need.
The Bill Emerson Good Samaritan Act
is the main federal law that protects
food donors from being sued. Current-
ly the Bill Emerson Good Samaritan Act
protects food donors to non-profit
organizations serving people in need,
and all food donated must be provided
for free.23 The benefit of this law is that
fear of being sued is one of the top
Source: United States Environmental Protection Agency
reasons given by food service
operations to avoid donating food.
Currently the United States spends Currently, to start and keep food
approximately $100 billion annually on Offering food directly to individuals in
service operations in business, owners
food assistance programs. If 15% of and employees need to complete need could help lessen the cost of
the wasted food in USA was instead processing the food, while also offer-
certain requirements including certifi-
rescued, 25 million people would be ing opportunities for new and creative
cates and licenses in food handling.
fed, and if 30% of our food was business models within or outside the
The requirements are regulated at a
rescued, the amount of food would be food service establishment. Additional-
state and local level, so they vary from
enough to feed all people struggling ly, food donor establishments may
place to place. Additionally, there is a
with food insecurity.20 want to offer the food to people they
uniform training required for employ-
already know in the community or
ees nationwide: ServSafe Certification
Implementation of Strategies to for Food Handling and Safety.21 individuals who come to ask for food
Rescue Food for themselves. If we want to promote
Reducing barriers to food rescue could The ServSafe Certification entails food food donations by reducing apprehen-
increase the amount of food that is safety training by the food service sion of being sued, it is critical that we
actually rescued. For instance, policy industry for itself. ServSafe® is the make this law as strong as possible to
could require every food service most recognized food safety training establish a stronger support and
establishment to declare how much program in the United States by feder- expansion of food rescue efforts.
wasted food it generated, and how al, state, and local health jurisdictions.
much food it rescued. Another option The training provides information Require all facilities that receive
is to require food labels to report the about food hazards and proper food food remuneration from USDA
greenhouse emissions, water and land handling practices, which is essential to Including Child and Adult Care Food
effects on each food label. keep food safe and this plays a key Program (CACFP) and National
role in food rescue. 22 School Lunch Program (NSLP) to
Potential Policies plan food rescue programs and
The new food rescue training and food report data on food donated and
Require food rescue training and insecurity awareness certification wasted.
food insecurity awareness would take advantage of technology The USDA provides grants to states to
certification to work or start food and already available resources. It manage programs for facilities that
service operations, and an optional would be provided by passing an meet certain requirements. Therefore,
recognition certificate for those who online or written exam which would to receive reimbursement for food in
complete at least 40 hours annually test the content of the “Comprehensive federally funded programs criteria
of community service with direct Resource for Food Recovery Programs” including nutritionally balanced and
experience in these issues. and the latest report on “USDA’s safe food must be met. Below, is a
Household Food Security in the United brief description of the two major
3programs that feed students across the Extending the liability on Bill Emerson Recommendation
United States. Good Samaritan Food Donation Act is
the best option despite lacking mone- Even though a thorough approach to
• CACFP—Daily, 3.3 million children tary incentives for making food rescue hunger and wasted food is needed to
receive nutritious meals and the preferred choice for businesses. solve these issues, we need to start
snacks through CACFP. The Nevertheless, without imposing a somewhere, and we need to do it
program also provides meals and requirement on establishments, it soon. All policies suggested would
snacks to 120,000 adults who provides a way to develop new food greatly benefit our society and
receive care in nonresidential adult rescue models through food dona- increase food rescue efforts. Promot-
day care centers. CACFP also offers tions. Overall, this policy would greatly ing food rescue demands a combina-
meals to children residing in benefit society and the environment, tion of supporting awareness, provid-
emergency shelters, and snacks reducing burdens on food production ing education on the topics, and
and suppers to youths participat- and hunger. providing liability protection and
ing in eligible afterschool care incentives to take action.
programs.24 Policy 2: Provide Food Rescue
• NSLP—NSLP is an assisted meal Training and Food Insecurity Extending the liability on the Bill
program operating in public and Awareness Certificates. Emerson Good Samaritan Food
nonprofit private schools and This policy has some promise because Donation Act by providing liability
residential child care institutions.25 it is moderately effective, it has protection to donors who wish to
It provides nutritionally balanced, potential to save businesses money, donate or sell food at a reduced
low-cost or no-cost lunches to and is sustainable. The main benefit is price directly to individuals in need
over 30 million children each increased awareness and sensitivity offers the best combination among the
school day.26 about food insecurity and food waste options presented. This amendment
issues, which stimulates implementa- scores high on all considered factors;
Any requirement established by the tion of food rescue initiatives. efficacy, cost effectiveness and
USDA for participation is met with full sustainability. It is highly effective
compliance because otherwise they do On the other hand, this policy would because it would help increase
not receive reimbursement. Therefore, not be as efficient on achieving its goal opportunities for food donations by
if there was a requirement for each because of adding new certifications, decreasing obstacles, particularly
state to submit to the USDA a food which requires coordination and liability-related. It is cost effective
rescue plan as well as reports on planning and may hinder execution. because it could increase profit for
wasted and rescued food, the agency Additionally, these certifications food that otherwise would be wasted,
would have access to a baseline data require an investment in education and while saving valuable resources.
nationwide on what is currently done. testing materials, as well as personnel Finally, it is also highly sustainable
Moreover, it could be a trigger for to oversee the process. because it promotes ways to save food
schools to be more conscious on how and reduce waste, promoting
much food they are currently wasting Policy 3: Require facilities receiving responsible stewardship of resources
and consequently be moved to act and USDA food reimbursement to plan already available.
implement food rescue interventions. food recovery programs.
Considering the factors described Conclusion
Policy Evaluations above, this policy is highest in cost
effectiveness and sustainability. The Wasted food and food insecurity is
All the policies discussed above could main advantage of this policy is the costing the Untied States too much
increase food recovery efforts. Each focus on evaluation and monitoring money and suffering. It is time to act
one has its own strengths and weak- through data collection that it and feed the hungry from the large
nesses, in terms of overall efficiency, promotes—all of which could be used abundance we have. If we expand food
cost effectiveness and sustainability. to create new and more efficient food rescue efforts to feed the hungry, we
rescue programs. can all win. Considering the large
Policy 1: Extend the liability on the impact our developed nation has on
Bill Emerson Good Samaritan Act. Nevertheless, the efficiency of this the world, it is our duty to lead with
This is the best policy recommendation policy is lower because there is no policies and behaviors that create a
while taking into consideration certainty that food programs will future through proactively addressing
efficiency, cost effectiveness and follow their planned food rescue issues that threaten our basic needs.
sustainability, ranking high on all of programs. Also, many institutions
them. It would be the easiest to carry already struggle to keep up with all
out because it builds on a law already the regulations and reports required
established with a long record of of them to; therefore, this policy may
success. This policy would provide impose too much burden on the food
opportunities for more financial and service staff.
social win-win cases.
47
Endnotes Feeding America. "What Is Food Insecurity in
America?" https://
https://tabletotable.org/food-rescue-and-the-
law/.
1 hungerandhealth.feedingamerica.org/. Accessed 21
Farm Policy News. "As Farm Bill Stalls Over Taylor, Joe. "What Licenses Do I Need to Start
January 10, 2019. https://
SNAP, USDA-ERS Report Captures Details of the a Restaurant Business?" Chron.com. Last modi-
hungerandhealth.feedingamerica.org/
Program." https://farmpolicynews.illinois.edu. fied October 12, 2010. https://
understand-food-insecurity/.
Last modified March 18, 2018. https:// smallbusiness.chron.com/licenses-need-start-
8
farmpolicynews.illinois.edu/2018/03/farm-bill- Feeding America. "What Is Food Insecurity in restaurant-business-3039.html.
stalls-snap-usda-ers-report-captures-details- America?" (n.d). 22
program/. FoodHandler. "ServSafe Training." https://
9
Ibid foodhandler.com. Accessed February 10, 2019.
2
ReFED. "27 Solutions to food waste." ReFED. 10 https://foodhandler.com/servsafe-training/.
Accessed January 10, 2019. https:// Ibid
23
www.refed.com/?sort=economic-value-per-ton. 11 Harvard Food Law and Policy Clinic. "Legal Fact
Feeding America. "Hispanic and Latino Hunger Sheet: The Bill Emerson Good Samaritan Food
3
United Nations Statistics Division. "Goal 2: End in America" https://www.feedingamerica.org. Donation Act." https://www.refed.com. Accessed
Hunger, Achieve Food Security and Improved Accessed January 10, 2019. https:// January 22, 2019. https://www.refed.com/
Nutrition and Promote Sustainable Agriculture www.feedingamerica.org/hunger-in-america/ downloads/Emerson-Act-Legal-Fact-Sheet.pdf.
— SDG Indicators." https://unstats.un.org/sdgs/ latino-hunger-facts.
24
report/2016/goal-02/. Accessed Decem- 12 USDA- FNS. "Why CACFP Is Important." Food
Feeding America. "Hispanic and Latino Hunger and Nutrition Service. Last modified September
ber 30, 2018. https://unstats.un.org/sdgs/ in America". (n.d.)
report/2016/goal-02/. 22, 2014. https://www.fns.usda.gov/cacfp/why-
13
FAO. Food Wastage Footprint. Impacts on cacfp-important.
4 United Nations. "Sustainable Consumption and Natural Resources. www.fao.org, 2013. http:// 25
Production." https://www.un.org/ USDA. "The National School Lunch Program."
www.fao.org/docrep/018/i3347e/i3347e.pdf. Food and Nutrition Service. Last modified No-
sustainabledevelopment/. Accessed Janu-
ary 22, 2019. https://www.un.org/
14
TOMRA. "It is Time to End Food Waste." Last vember 2017. https://fns-prod.azureedge.net/
sustainabledevelopment/sustainable- modified 2017. sites/default/files/cn/NSLPFactSheet.pdf.
consumption-production/. 15 26
School Nutrition Association. "School Meal
Move for Hunger. 2016
5
EPA. "United States Food Loss and Waste 2030 Trends & Stats." https://schoolnutrition.org.
16
Champions." US EPA. Last modified November 9, Ibid Accessed February 10, 2019. https://
2018. https://www.epa.gov/sustainable- 17 schoolnutrition.org/AboutSchoolMeals/
Ibid
management-food/united-states-food-loss-and- SchoolMealTrendsStats/.
18
waste-2030-champions. TOMRA. 2017
19
6
FDA. "Trump Administration Launches “Winning Becker, Anthony. "Introduction to Environmen-
on Reducing Food Waste” Initiative." U S Food tal Policy." WordPress. Last modified November
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Newsroom/PressAnnouncements/ reduce-reuse-recycle/.
ucm623790.htm. 20
Mehnert, Jaime. "Food Rescue and The Law."
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