Enhancing Fruit and Vegetable Access
Enhancing Fruit and Vegetable Access
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food systems summit brief
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food systems summit brief
These broad and sweeping changes are not Public investment in agriculture is shown to
without interruption: The COVID-19 pandemic and impact the growth of production through the private
previous economic shocks and natural disasters have sector, but different types of investment produce
disrupted many aspects of food systems and diets over different results for different foods in different con-
time27-29. Such disruptions particularly affect fruits and texts46, so we need to know more about how specific
vegetables because of their specific labour, storage investments such as in breeding, production subsidies,
and transport requirements30 with at least temporary and extension support play out in food environments
impacts of different shocks documented on the live- for different fruits and vegetables. Acknowledging the
lihoods of fruit and vegetable producers and on fruit imbalance of power between food system actors, illus-
and vegetable prices and consumption28, 29, 31, 32. These trated by disparities between budgets of processed
shocks have affected the diets and livelihoods of mar- food producers47 and public investment in healthy
ginalised populations differently to those with econom- foods such as fruits and vegetables18, is necessary in
ic or social power, further exacerbating inequity33-35. order to make transparent and health-positive poli-
cy, regulation and investment. Public policy shaping
Opportunities for research and action
food environments – such as mandating vegetables
Each of these big-picture policy and political in institutional meals (schools, workplaces, hospitals),
drivers has created food system ‘lock-ins’36 which setting incentives for healthy retail, and regulating
have tended to steer away from pathways prioritis- food system actors48-50 – is seen to improve intakes in
ing fruits and vegetables, and away from agronomic some contexts. Similarly, land rights are a key issue for
and food system paradigms – such as agroecology, sustainable food access and production51 and we need
a right to food, or food as a commons rather than a to know more about how these issues affect fruits and
commodity37-39 – that might promote a return to more vegetables. For all of these analyses, better data and
diverse production systems. Policy decisions can start contextual knowledge on diverse fruits and vegetables
with evidence: We need to know more about how in different systems is needed, particularly in low-
different production and distribution systems, based and middle-income countries, to inform businesses,
in different social and political traditions, drive the policy-makers, practitioners, workers and activists in
availability and accessibility of fruits and vegetables making decisions within food systems.
in food systems, and how they weather shocks to
provide healthy diets sustainably and equitably. But Push factors: Production and post-harvest power
ultimately while data and evidence can reveal nuance By the data we have, global fruit and vegeta-
in the issues and their solutions, food policy decisions ble production is insufficient to meet the WHO dietary
are political (and ideally ethical) in reality, depending recommendations and has been since global records
on priorities and tolerances of the actors involved in began: in 1965 sufficient fruits and vegetables (≥400
making those decisions40. Bringing together people g/day) were available for 17% of the global popula-
with a stake in food systems to debate and decide pol- tion, increasing to 55% in 201552. Supply varies widely
icy, explicitly recognising disparities in power among between contexts: in Africa, only 13% of countries
them in contributing to outcome and decisions, is like- have an adequate aggregate vegetable supply while
ly to lead to the most context-specific and equitable in Asia 61% do7. This is despite the fact that fruits and
policy in practice when done well41-43. vegetables are valuable: the annual farmgate value
A starting point for addressing the lack of of global fruit and vegetable production is nearly $1
fruits and vegetables in food system policy is ‘reverse trillion and exceeds the farmgate value of all food
thinking’, putting the dietary outcomes we want from grains combined (US$ 837 billion)53. Most fruits and
food systems up-front in responsive food policy-mak- vegetables (about 92%) are not internationally traded,
ing and legislation, and working towards incentivising but still the international trade in fruits and vegetables
systems that create these19. A difficulty in achieving was valued at US$ 138 billion in 2018.
this vision is that different actor coalitions frame food Fruit and vegetable production needs to
system issues and priorities differently according to increase particularly in regions with low consumption,
their interests and beliefs, so there is no single nar- together with accompanying measures to prevent
rative to work towards40, 44, and coherent diet and losses, to provide enough for healthy diets52. Scaling
food system policy will require policy sectors to work production is not straightforward, as fruits and vege-
together in non-traditional ways45. There is therefore tables have specific attributes – in terms of seasonal
a need to better understand how public and private and agro-climatic differences, labour and input needs,
decision-makers make food system choices and how knowledge and expertise, and storage and distribution
other food system actors influence these, and impli- – that mean there are particular trade-offs to consider.
cations for fruits and vegetables across food systems. While we can in theory produce healthy diets within
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food systems summit brief
planetary boundaries2, achieving national food-based can be an advantage in diverse systems where differ-
dietary guidelines has been found to be incompatible ent foods become available at different times, or a
with climate and environmental targets in a majority challenge where there are gluts and shortages leading
of 85 countries studied54, and producing more fruits to price change over the year78, 79.
and vegetables may require more land, water and
chemical inputs than producing staple foods in some Opportunities for research and action
contexts55, with one third of all greenhouse gas emis- Clearly, more availability of a variety of fruits
sions produced by the food system56. Various studies and vegetables is needed for everyone to meet recom-
show widespread misuse of agricultural chemicals, mendations. This can be achieved through increased
particularly on high-value vegetables, creating hazards production, though there are trade-offs between
for farm workers, consumers and the environment57. environmental sustainability and providing for diets:
Foodborne diseases caused by biological contamina- Sustainable intensification using a wide range of
tion of food are also an important threat to public approaches according to social, political and agro-eco-
health particularly in low- and middle-income coun- logical context to improve yields or protect against
tries, and fruits and vegetables are among the riskiest climate changes without environmental degradation
foods for biological hazards58. has been suggested53, 80 though further understanding
Seed or planting stock is a key input into fruit of the implications of different approaches to fruit
and vegetable production, though it is a contested and vegetable production is needed. Organic agricul-
area: Some see the introduction of (often proprietary) ture meets goals on a range of environmental factors,
improved varieties of fruits and vegetables as neces- including reduced chemical contamination of diets,
sary to transform the fruit and vegetable sector to one but it has weaknesses in terms of lower productivity
with increased volumes of regularly available quality and reduced yield stability81, and the subsidisation of
products53, 59-61. Others stress the importance of local chemical inputs makes it appear less profitable. Sup-
or cultural seed-saving and exchange of planting mate- porting the availability of planting material through
rial for conserving farmer independence, agricultural formal (breeding and seed companies) and infor-
diversity and food sovereignty26, 62, and debates about mal (seed saving and sharing networks) channels is
the primacy of breeders’ rights or farmers’ rights are important53.
ongoing63-65. Beyond inputs, labour requirements in The economic value of fruits and vegetables
fruit and vegetable production are considerably higher is a strong incentive for their production, but much
than in cereal production, with labour costs making up of this value is captured by large global firms rath-
more than 50% of production costs depending on the er than smallholders, despite over 80% of fruit and
food grown, related to more skilled and intensive field vegetables being grown on smallholder family farms
operations66, 67. This is a positive for food system work- (< 20 hectares) in LMICs67. The smallholder nature
er incomes, but extension services are often geared to of many fruit and vegetable producers and traders
staple crops, with little support for fruit and vegetable provides challenges and opportunities for vegetable
producers, limiting formal training opportunities68. supply82, and the complexity of systems of traders and
Beyond the farm, post-farmgate midstream employ- the heterogeneity of smallholders and their support
ment in developing regions constitutes roughly 20% of needs (particularly peri-urban vegetable producers or
rural employment69, 70; it is assumed that many small- women, who may not be engaged in formal extension
holders also engage in midstream fruit and vegetable systems83, 84) means that agricultural policy very often
chain operations, such as trade and processing, but does not adequately support the twin goals of healthy
fruit and vegetable value chains have not been a focus food production and livelihood development85. Aggre-
of this work so more knowledge is needed in this area. gation or contract farming are commonly used to
Of food produced for human consumption, reduce transaction costs and risk, and to sell to mod-
around a third by volume or a quarter by calories is ern channels such as supermarkets where demand
either lost (before retail) or wasted (after purchase)71. for fruits and vegetables is growing86, 87, though the
Highly perishable fruits and vegetables have the impacts of commercialisation on the diets of commer-
highest rates of loss and waste, usually in the range cial farmers themselves are mixed88. Farmer extension
of 40-50%72, 73. Local production is therefore central, needs to be strengthened53 and we need more docu-
and in many contexts ultra-local home-based fruit and mented understanding of how informal sectors and
vegetable production and wild plant gathering are formal small- and medium enterprises involved in fruit
important strategies74, 75, as are ‘under-utilised’ spe- and vegetable processing, distribution and retail can
cies and many traditional fruits and vegetables that deliver more on desired food system outcomes. These
are often left out of data, policy and extension76, 77. need further research to understand how they play
Fruits and vegetables are particularly seasonal, which out in fruit and vegetable systems.
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food systems summit brief
Better availability can also be achieved by an increase of fruit and vegetable consumption by
addressing food loss and waste: in low-income coun- income across geographical regions is confirmed in
tries through addressing on-farm pests and diseases, many studies, indicating that a low income is a barrier
pre-maturity harvesting due to climate shocks or sea- to fruit and vegetable consumption for some8, 99, there
sonal gluts, and inappropriate post-harvest handling, is only a weak association between incomes and fruit
transport and storage; and in middle/high-income and vegetable consumption, where on average (across
countries addressing quality grading standards set by 52 countries) 82% of the poorest quintile consume too
retailers72. Packaging of perishable fruits and vege- few fruits and vegetables and 73% of the wealthiest
tables can limit losses89 but also contributes to envi- quintile do12. As incomes rise, the consumption of
ronmental pollution and greenhouse gas emissions56, meat, dairy and ultra-processed foods rise much fast-
90
. More understanding is needed of the production, er than that of vegetables, and vegetable purchase in
processing and distribution options and trade-offs, some contexts changes little across income groups,
and of food loss and waste, specifically for fruits and hence vegetable consumption is relatively inelastic
vegetables in different contexts. to income past a certain level13; though fruits may be
Physical availability of food varies depending more consumed at higher incomes. With little change
on functioning supply chains, whether short or long. in consumption of vegetables across income groups in
Food deserts and swamps associated with poorer some contexts100, affordability is not the largest driver
diets occur where there is a lack of available fresh of consumption for all.
foods for local purchase, and exist particularly in Even if vegetables are available, accessible
poorer urban areas91. Physical access is a key driver of and affordable, most people still do not consume
purchase (and by extension, consumption), with lack large enough quantities12, particularly if they are not
of fresh food outlets making consumption of fresh considered an acceptable or desirable food choice, for
produce harder92, and conversely living close to veg- instance due to food safety or contamination concerns,
etable vendors making vegetable purchase more like- taste preferences, or cultural appropriateness101-103.
ly93, suggesting that local access options are important Low desirability of fruits and vegetables is particularly
in shaping diets. a problem among children and adolescents, with data
across 73 countries showing that between 10-30% of
Pull factors: People power students do not eat any vegetables at all in a quarter
While availability of, and physical access of these countries104.
to, sufficient fruits and vegetables is an important
pre-requisite, there are other factors at the socio-eco-
Opportunities for research and action
nomic and personal level that also impact their role in Addressing affordability of fruits and vegeta-
diets. Reviews of research suggest that in low-income bles is key to creating an environment where all can
countries similar determinants play a role in food access a healthy diet, and affordability can come from
choices as in high-income countries, at individual level a combination of lower retail prices (through pro-
(income, employment, education level, food knowl- ductivity improvements, reduced postharvest losses,
edge, lifestyle, time), in the social environment (family or increased market efficiency for stable prices) and
and peer influence, cultural factors), and in the physi- higher incomes (from inclusive economic growth and
cal environment (food expenditure, lifestyle)94. social safety nets)105. Cheap food is not necessarily
Food prices interact with incomes to deter- good for healthy diets, fair livelihoods or biodiverse
mine whether households can afford the components environments, so a focus on raising people up through
of a healthy diet, and fruits and vegetables, along with fair wages is important106. Price subsidies of fruits and
animal-source foods, are the most expensive element vegetables is a policy option that is popular with the
of a healthy diet by many metrics95, 96 comprising public in some contexts107, and there is evidence that
around 40% of the cost of a healthy diet97, though price incentives to make fruits and vegetables more
these costs tend to vary with season78. Fruits and veg- directly affordable have worked to increase consump-
etables are unaffordable for many, with 3 billion peo- tion108, 109. These affordability interventions where
ple unable to afford diverse healthy diets97. Fruits and fruits and vegetables are largely purchased can be
vegetables appear more affordable when comparing combined with promoting home and community pro-
prices per micronutrient, where they are likely to be a duction or facilitation of foraging where the context
relatively low-cost source of varied vitamins, minerals, allows110-112.
and phytonutrients98 – but this is not how most fami- Alongside ability to afford fruits and vegeta-
lies choose their food. bles, the challenge is to enhance consumer choice
Beyond a certain income level, affordability is of and preference for these foods. There is clear
not a driving factor for everyone everywhere: While evidence that focusing on education at all levels is a
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food systems summit brief
key component for modifying behavioural changes and that there are multiple potential routes towards
in general113; and nutrition literacy, social norms for solutions that sometimes clash on ideals. Food system
healthy eating, and self-efficacy are key components actions to make fruits and vegetables more available,
of health-related behaviour change114 – though we affordable, accessible and desirable through policy,
know less for fruits and vegetables in particular. Nutri- push and pull mechanisms comprise various options
tion literacy programs generally target women, who working at macro (global and national) meso (institu-
are in many contexts custodians of household nutri- tional, city and community) and micro (household and
tion, but there may also be a need for community-tar- individual) levels. Examples of actions from the review
geted messages to change social norms115. Promoting above are laid out in the table below.
traditional or under-utilised vegetables that are famil- It is unlikely that these are all the options
iar was seen as a key policy option for healthy diets available to orient food systems towards fruit- and
and environmental sustainability among an expert vegetable-rich diets, but these are the options that
opinion Delphi panel116, and the latest generation of appear in the academic literature, albeit with varying
food-based dietary guidelines start to move in this levels of evidence. In addition, there are two import-
direction – but these efforts should better consider ant over-arching considerations when considering
cultural acceptability and may require promotional action options: 1) Acknowledging that power shapes
efforts to increase the willingness of consumer to food systems, from concentration of economic and
shift their tastes to new or forgotten foods117. Food political power in a few global agri-food businesses,
composition data is lacking for many indigenous spe- through to marginalisation of certain groups in soci-
cies, limiting the opportunity to develop appropriate eties from accessing healthy diets, so this needs to
nutritional messaging and promote wider use 118, 119. be considered in terms of both inclusive processes in
Beyond appeals to public health, better deciding policies and actions and in assessing their
understanding is required of consumers’ preferences equity impacts26, 125. 2) There will be trade-offs among
and behaviours with respect to these foods and what food system outcomes, so starting with a focus on
kinds of incentives might promote more consumption healthy diets is important but understanding how
in different contexts. Strategic placement of fruit and food system decisions then impact fair livelihoods
vegetables in retail outlets is found to have a moder- and sustainable environments is key126. We do not yet
ately significant effect on increasing fruit or vegetable know enough to formulate clear actions to address
servings120, and early exposure to fruits and vegeta- these trade-offs, but they need to be acknowledged
bles through schools may shape future preferences and openly debated by those taking food system deci-
for healthier diets121. Marketing is a key factor shaping sions.
desirability, but is consistently applied for ‘hedonic’
(processed) rather than ‘healthy’ (nutrient-dense)
foods122. On marketing issues, much is known about
high-income countries123 but less about low- and mid-
dle-income contexts where these approaches (under-
standing market segments and speaking to issues of
desirability, aspiration, emotion and imagination) can
be adapted for fruits and vegetables124.
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food systems summit brief
Policy • R&D investment • Zoning and marke�ng regu- • Protected foraging rights
• Right to food legisla�on la�on • Land rights
• Food safety regula�on • Priori�sing F&V in ins�tu�o-
nal food procurement plans
Push • Produc�on subsidies • Quality F&V plan�ng ma- • Home & community
• Efficiency through breeding terial (formal and informal gardens
and technology systems)
• Support to diverse • Pre- and post-harvest prac�-
alterna�ve produc�on ces and packaging
paradigms • Improving market access,
• Infrastructure development shortening food supply
• Fair finance access chains
• F&V extension and training
• Support to fresh food outlets
These actions are likely to be foundational to which we are aware, and very little about the rest; we
creating food systems change towards enabling fruit- know there are disparities in diets in different con-
and vegetable-rich diets. Each of these actions will texts, but less how to address the political, social and
not change diets when implemented alone, however; equity determinants of who gets to eat fruits and veg-
rather packages of actions need to address particular etables; we know much about the technical produc-
limitations to fruit and vegetable consumption. These tion and market aspects of fruits and vegetables, but
need to be considered in context, in light of an under- less about bottlenecks in bringing these to low- and
standing of food system issues and bottlenecks limit- middle-income countries; and we don’t know enough
ing healthy diets in different places and for different about how these things change with context or over
people. It is likely that the best way to start is to bring time. Work drawing on different academic traditions,
together diverse groups of people interested in these including valuing traditional and tacit knowledge, is
issues at the different levels, to understand the issues needed to join the dots. Food systems enabling fruits
and options from different perspectives and together and vegetables in healthy diets are not only a tech-
prioritise which actions should be undertaken first nical issue, but bring up very real political, social and
in their own context. This is not easy, given inherent ethical questions that societies will have to address,
power disparities among interested parties, but with alongside a reliance on evidence. Having these conver-
care and inclusion a strategy, policy or plan can be sations though the lens of equity, to address the needs
made to move towards enabling fruit and vegeta- of both winners and losers of food systems change,
ble-rich food systems. will be a vital part of the UNFSS process towards
To guide better action, we need more evi- enabling fruit and vegetable-rich food systems for
dence and understanding. We know a lot about a healthy diets for all.
small fraction of the fruit and vegetable species of
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food systems summit brief
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Food Systems Summit Briefs are prepared by researchers of Partners of the Scien�fic Group for the United
Na�ons Food Systems Summit. They are made available under the responsibility of the authors. The views
presented may not be a�ributed to the Scien�fic Group or to the partner organisa�ons with which the
authors are affiliated.
The authors are:
Jody Harris, World Vegetable Center.
Bart de Steenhuijsen Piters, Wageningen Economic Research.
Stepha McMullin, World Agroforestry, a partnership of CIFOR-ICRAF, and CGIAR FTA.
Bajwa Babar, CABI.
Ilse de Jager, Wageningen University and Research.
Inge D. Brouwer, Wageningen University and Research, and CGIAR-A4NH.
For further informa�on about the Scien�fic Group,
visit h�ps://[Link] or
contact info@[Link]
@sc_fss2021
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