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# Strategic Approach to Food System Resiliency from Community-based Initiatives During the Covid-19 Pandemic

Juan Camilo Sánchez Gil¹[0000-0002-3315-6568], Martha Alicia Cadavid Castro ²[0000-0001-7084-8742], Luis Alirio López Giraldo³[0000-0002-9667-6341], Guillermo León Moreno Soto⁴[0000-0003-1400-710X]

1,2,3,4 Universidad de Antioquia, Calle 67 #53-108, Medellín, Colombia

juan.sanchez9@udea.edu.co

**Abstract.** Although the Covid-19 pandemic triggered a significant public health challenge to humanity, measures like lockdowns let to cascading effects that impacted the food system to such extent, that its rebuilding became an imminent issue. As part of the food system, “of alternative food networks (AFNs) and emergency food networks (EFNs) did not escape to that change. In fact, because of their predominant community-based background, they highlighted their local capabilities as an asset for the food system to be adaptive from supply chain disruptions during the crisis. Concerned by the exacerbation of food insecurity, which because of the magnitude of crisis could not be exclusively handled by public-private established organizations, these stakeholders supported on social solidarity to keep service levels as stable as possible, not only by struggling to keep their already existing supply and distribution channels running, but also creating new ones. Through a case study approach, this paper characterises and analyses eight community-based initiatives that either rebuilt or started up a food supply chain during the Covid-19 outbreak peaks in Medellín, Colombia. In addition, based on a prospective planning approach, this research identified change factors that had the potential to become a long-term capability to install resiliency in the food system when future threats set on. Finally, a strategic approach is developed as an input to impact local food security risk policies through disaster risk reduction under the frame of preparedness, as well as for the food system resiliency in non-emergency contexts.

**Keywords:** Food system resiliency, Alternative food networks, Emergency food networks, Prospective planning, Disasters.

## 1 Introduction

Tackling the exacerbation of food insecurity in Colombia during the Covid-19 pandemic demanded a transdisciplinary view that understood the complexity of the Multiple variables that made the risk of getting the disease not the only concern. In a country where 47,9% of the workforce was employed informally [1] prior to the pandemic and 54% of households suffered from food insecurity [2], measures such as lockdowns, were effective for flattening the outbreak curve. However, such measures were
not considered with regard to guaranteeing the risk of food insecurity for those who ceased working, indeed, would not increase. Despite the efforts of national, regional, and local governments, and the philanthropy from private sector to maintain food accessibility and availability to the demanded levels, food supply chain disruptions remained an added constraint. To contribute to this challenge, the University of Antioquia gathered researchers from the School of Nutrition and Dietetics, the Department of Industrial Engineering, and the Faculty of Nursing, who could provide a systemic vision from food security, supply chain disruptions, and anthropology, to formulate and execute a research project whose objective was to design strategies to impact food sovereignty and safety from the rebuilding of alternative and emergency food networks. Two types of community-based organisations present in Medellín, starting on the changes adopted them by the Covid-19 pandemic and similar potential threats.

Community-Based Food Organisations (CBFOs) play a key role when responding to food security crisis triggered either by political, economic, or ecological threats. CBFOs, as agents of critical food guidance from the bottom-up, provide alternative solutions to food systems' failures and recognising the central role food plays in the life of communities [3]. These organisations arise from the grassroots level with the purpose of building community-based food systems shaped by values of food security, food sovereignty, and food justice [4]. This research characterizes the state of alternative food networks (AFNs) and emergency food networks (EFNs) during the Covid-19 lockdowns periods, as well as the capacities installed, and the changes adopted to deal with the food supply chain disruptions. The research methodology is then introduced prior to presenting the programs and projects that outline the results. Finally, a discussion and concluding remarks highlight the importance of coping with the risk food crisis during slow onset disaster triggered by future threats that not necessarily will have to be biological.

## 2 Alteration of the food system during the Covid-19 pandemic in Colombia

The health crisis caused by Covid-19 pandemic has affected food systems, which are increasingly globalized, risking access to basic foods for people in vulnerable conditions. Not only were food supply chains affected by lockdowns, but further impacts affecting the slow down in economic global scale were evident when referring to a reduction in income of lower socioeconomic groups.

In the city of Medellín, the food crisis revealed that food insecurity manifests itself as the result of profound social inequities and the configuration of precarious sustainable food supply systems in times of pandemic lockdowns. Such a situation came along with actions by civil society that took place independently from state and corporate actions. The strategic objective (prior to the pandemic) of the Food Security Plan of the Municipality of Medellín 2016-2028 was to promote stability, sufficiency, efficiency, and autonomy in the food system. At a local level, the strategies proposed in the plan acquired higher priority in the pandemic context, such as, the improvement of institutional capabilities to food supply within a city-region approach and the development of a food supply system focused on vulnerable populations.
The pandemic revealed and combined hidden needs along with insufficient state re-
sponses. The alteration of the food system during the Covid-19 pandemic in Colombia
brought with it an increase in food poverty and increasing structural social inequality.
For example, the impact on food supply chains generated waste from the loss of per-
ishable products. It was not just this waste of essential foods that came along with the
food system disruption. The restrictions on the mobility, the temporary closure of
schools, the Venezuelan migration whose workforce participation enlarged even more
the informal economy, created the necessary conditions for Colombia to be seen by the
FAO as one of the countries in the Latin America region at risk of hunger.

In this context, the responses of civil society to face the health crisis that would come
along with the food crisis, took place fundamentally on two fronts: the initiatives of the
alternative food networks and the solidarity actions of community-based organizations
who exposed new emergency food networks. The arise of these civil society initiatives
are justified on the insufficient response from governmental programs and existing
emergency food networks to the social challenges caused by the lockdowns and the
structural inequality of Colombian society. Hence the importance of describing and an-
alysing these initiatives grounds not only on the response capabilities of civil society
during new slow onset disasters, but also to guide it towards redefining public policies.

## 2.1 Alternative and emergency food networks

Alternative food networks, unlike conventional food systems, operate with short
distances between consumers and producers, manage small-scale agriculture with ho-
listic or organic methods, and are committed to social, economic, and environmental
dimensions of sustainable food production, distribution, and consumption. Examples
of AFN experiences are farmers' markets, local food markets, fair trade markets [5],
farm stores, farm sales, box delivery schemes, community garden initiatives [6]. In
Colombia, the AFN have been promoted to include farmers in local markets, and con-
solidate environmental protection strategies, disseminating agroecology as a strategy
of food and nutritional sovereignty and security. However, just like it happened all
around the world, given the restrictions to contain the Covid-19 pandemic, local urban
outdoor markets were forced to close [7]. This triggered crop loss and negative impacts
on sales, prices, and income for small producers, as early documented by Harris et al.
[8]; This led them to develop new distribution channels and the incursion into digital
media with very few resources and capabilities. [9].

Similarly, on health crises like the Covid-19 pandemic, CBFOs have evolved to re-
define the emergency food system through the uprise of community-based emergency
food networks as an add-in to existing organization types, from more formal organiza-
tions such as food banks to less informal ones such as food pantries [10].
## 3 Research method

This study was conducted throughout 3 stages. Stage 1 carried out to characterize the state of the AFN and the EFN under study, during the initial periods of the Covid-19 lockdowns in Medellín, Colombia. Following a qualitative perspective analysed 8 case studies; four of which operated as AFN and four as EFN. In addition, the division of public policies for food security and nutrition of Medellín’s municipality was also interviewed in relation to their role in the AFN. The selection criteria of the AFN were driven by three conditions: that they had run operations (minimum five years) prior to and during the pandemic, that they had presence in Medellín and its metropolitan area, and that they had carried out food production and distribution involving fresh food diversity, either produced through agroecological practices or in the process of achieving so and setting short food supply chains. Likewise, EFN chosen had to comply with either of the two following conditions even if they were led by individuals, groups, or organizations, both public and private: that they had emerged spontaneously from a community-based approach as a response to the pandemic’s food crisis, or from a non-philanthropic established organization whose purpose was not to carry out food aid actions prior to the pandemic.

The selection of the initiatives under study was carried out using the stakeholder mapping technique. People and civil society organizations who were considered to have a key role in developing initiatives to address food requirements during the pandemic’s lockdowns were identified. This facilitated the identification of key informants who led the initiatives analysed, as well as their purposes, interests, and actions. As a result of this technique, it was possible to ensure the representativeness of the cases chosen for the study, basing on the understanding of the phenomenon studied from a descriptive and comparative approach rather than ensuring statistical representativeness. By using the constant comparison method, categories and indicators were identified according to the type of stakeholder chosen as key informant, which led to inquire about similarities and differences among the initiatives analysed and introduced as follows.

(1) Solidarity barter: One EFN case where people within the same neighborhood delivered food donations to a table located in a public space. These donations are available to those in need, under the premise of “if you have spare food, donate it, if you lack of it, take it.” (2) Food aid kits delivery: Two EFN cases, one of them civilian oriented and the other one set up by a public organization that received monetary or in-kind donations to configure food packages and deliver it to prioritized beneficiaries. (3) Food stamps: One EFN case that used its resources to offer stamps redeemable for food in supermarkets close to the homes of the beneficiaries. (4) Farmers’ organizations: Three AFN cases that grouped farmers. They were chosen to contrast experiences during the Covid-19 pandemic, one just born prior to the pandemic, another one struggling to stay on the market, and a third one reattempting to emerge during the pandemic. (5) Community garden: An AFN case of community gardens, supported by the Food and Nutritional Security team of the Municipality, which was also interviewed to understand the policies and initiatives developed by the local government during COVID-19 pandemic.
Based on the stakeholder mapping technique and the previous representativeness criteria, a decision was made on the number of key informants required, using the data saturation point. The saturation is based on the continuous review of the information provided by the key informants in the interviews until establishing that the new interviews tend to repeat (saturate) the data of the information previously obtained. By returning the information to the stakeholders and their participation in the next stage of the research, possible interpretation biases were eliminated and the data to be used in the prospective analysis was validated.

On stage 2, the strategies, initiatives, and the necessary interventions to run operations in both, AFN and EFN in the context of the Covid-19 lockdowns, were identified. The scope of this stage was to identify change factors, which are the main facts or phenomena that determined the evolution or transformation of both kinds of network, which aim at driving future scenarios. Finally, stage 3 projects the redefinition of AFN and EFN so that they permanently appropriate some of the characteristics and capabilities developed during the crisis, to make them more resilient in the future. Thus, prospective planning techniques were used: Regnier abacus principle, structural analysis, and stakeholders mapping, which together, allowed to envision interventions that would contribute to closing the gap between the current and an ideal scenario.

## 3.1 Semi-structured interviews and open coding

Two interview guides were designed, one for the AFN and for the EFN, considering eight categories of analysis that were identified as a result of documented analysis carried out by the transcapillary research team and their expertise. These categories, presented in Table 1, outlines the structure of the nine semi-structured interviews that were conducted, reaching 231 transcribed pages among all.

<table><caption>**Table 1.** Driving categories to the characterization process</caption><thead><tr><td>Category of analysis</td><td>Characterization</td></tr></thead><tbody><tr><td>Governance</td><td>Complex set of relationships resulting from the mutual exchange of rules, ideas, and knowledge, which, in turn, serve a set of interests</td></tr><tr><td>Stability</td><td>Refers to physical, economic, and social access to food in a timely and permanent manner</td></tr><tr><td>Normativity</td><td>Norms that define, or should define, authorities or organizations for the functioning of the food system</td></tr><tr><td>Information</td><td>Production, transfer and transformation of data and knowledge</td></tr><tr><td>Technology</td><td>New digital technologies as an important resource in the information flow and communication in the food system</td></tr><tr><td>Logistics</td><td>Stakeholders, processes, and resources necessary to materialize the flow of food in the supply chain</td></tr><tr><td>Quality and safety</td><td>Guarantees offered so that food does not cause harm.</td></tr></tbody></table>
<table><tr><td>Sustainability</td><td>Environmental, social, and cultural dimensions of supply and distribution in food systems</td></tr></table>

The open coding took place by first selecting the units of analysis for each interview transcription, and then, defining categories and codes that best represented the concept or fact in it. Next, analytical memos were developed for each unit of analysis, from which were identified the change factors that had the capability of installing resiliency in the food system under study. Thus, for both AFN and EFN distinct change factors were identified, which will be introduced in the results section.

## 3.2 Prospective planning

The aim of this methodological moment was to design future scenarios for the re-building of alternative and emergency food networks based on the changes adopted with the Covid - 19 pandemic, through a prospective relational analysis from the change factors identified, supported by a participatory approach with the stakeholders involved in the object of study. Three moments were addressed to achieve so: 1) prioritization of change factors, 2) future scenarios and 3) strategic design.

Gaston Berger [11] defined prospective as "the science that studies the future in order to understand it and being able to influence it". When carrying out a prospective approach, it is recognized as a systematic, participatory process that builds a long-term vision for current decision-making and the mobilization of joint actions. As for this, Medina [12] states that in prospective approaches, there are "social dialogue methods to better channel civilian participation and social power in the territory", promoting the social construction of future from the various territorial dynamics contextualized and located in daily life. Indeed, the alternative and emergency food networks were addressed in this research pursuing the interaction at various scales that "supposes a structured and systematic reflection about the future alternatives of a country, territory, sector or institution, through organized interaction with experts, networks and communities, based on a dialogue based on facts and data" [12].

With respect to the first moment, identification and prioritization of factors of change, 35 factors of change were identified for the alternative food supply and distribution system and 19 for the solidarity system, which arise from the diagnostic process explaining the current situation, but also the analysis of future issues that may have a favourable or unfavourable impact on the object of study in the medium or long term, depending on the decisions taken in the present.

The prioritization process included the analysis of key factors, which aims to identify the phenomena that have the capacity to structurally influence the future of the alternative and solidarity systems, by any action taken in response to them; but without ignoring that they belong to a system where all the variables or phenomena are dynamically related; because of these characteristics, they are considered strategic variables.

For the prioritizing process, two techniques were implemented. Firstly, structural analysis, as presented by Godet [13], which allows a collective structuring and thinking of a system, offering the possibility to outlining the alternative and emergency networks, supporting on a matrix that relates all the constituent elements of such system. The second technique used was Regnier Abacus, which allowed the consultation of stakeholders and experts using a colour code (red, yellow, and green) [13, 14] collect
their opinions on the change factors that contribute the most to the rebuilding of alter-
native and emergency food networks. As a result of triangulation from both techniques,
three strategic lines, and one line, were achieved for the alternative and emergency food
networks, respectively. These results drive the guidelines to defining both the future
scenario and the strategic design.

The second moment was the design of scenarios, according to Godet [13], “a future scenario is a set formed by the description of a future situation and a path of events that allow moving from an original situation to a future one”. A scenario simultaneously meets five conditions: relevance, coherence, plausibility, importance, and transparency” [13]. This moment of construction of the scenario is based on the results obtained by the interviews carried out, the characterization of case studies, the prioritization of change factors, and the reading and analysis of future trends.

The third moment was the strategic deployment, defined as the set of actions ex-
pressed in programs and projects that seek to consciously close the gap between the
future scenario and the current one. From the prospective planning, it was possible to
identify possible scenarios and their feasibility based on the stakeholders’ interests and
from the needed mechanisms to reach them.

4 Research Results

The three phases through which the research method was carried out allowed to reach specific outcomes not only for each phase but for each of the two types of initiatives under study. Subsection 4.1 characterizes how the community-based initiatives belonging to AFN adapted themselves to keep their operations on running. Thus, change factors identified through the open coding are summarized to highlight the impact that these factors could have on installing resiliency capabilities in AFN. This then leads to the outcomes of the prospective planning approach by outlining a future narrative scenario that, although written in present tense, implies how AFN should be in the future if change factors managed to install resiliency capabilities. Finally, the strategic design outlines strategic lines of action, which are deepened by programs and projects. Subsection 4.2 presents the same content structure as to subsection 4.1, outlining the results for the community-based case studies that belong to the EFNs.

4.1 The adaptation of alternative food networks

Despite the difficulties in connectivity and access to digital technology, and the fact
that some knowledge transfer processes were interrupted by the pandemic, a highlight-
ing new production and transfer of information and knowledge in agroecology, logistics
processes and waste management was identified. Likewise, the flow of information and
communication were identified as an important resource, which along with logistics,
caused a redirection of the food supply chain through new consolidation points and an
increase in last mile deliveries. In such a situation, to guarantee the quality and safety
of food, non-certified new biosafety protocols were adopted, applied to all phases of
the supply chain. Regarding stability, it was found an increase in crops for self-con-
sumption, the substitution of certified seeds and agrochemicals for other inputs availab-
le on farms such as native seeds and composting, alongside changes in eating habits.
From environmental, social, and cultural dimensions of sustainability, the characteriza-
tion of AFN revealed critical issues in the process of urbanization of rural areas that put
the proximity of food supply chains at risk, as well as problems with the excessive use
of plastic bags and other materials during the pandemic. Finally, from the governance
perspective, the purpose of linking organizational capabilities and strengthening coop-
eration between producers, distributors and consumers was identified as a result of the
articulation with solidarity economy sectors, making producers and food distributors
not feeling included in the regulations defined by governmental institutions, as is the
case of farmers markets. In addition, the fact that regulations on public food purchases
have not turned into opportunities, triggered a setback in their application during the
pandemic.

**Change factors.** For codification purposes, the change factors identified throughout the interviews' open coding analysis are the following: (1) Networking strengthening among producers, distributors, and consumers. (2) Changes in food markets structures. (3) Inclusion of the initiatives of alternative producers and distributors in new markets and public food purchasing. (4) Local articulation for a diverse, stable, and accessible food availability. (5) Governmental and community-networks support to producers and distributors for the development of markets. (6) Production for self-consumption and local supply. (7) Interinstitutional and intersectoral coordination. (8) Consolidation of family and community-based peasant agriculture. (9) Adaptation and expansion of farmers markets in the metropolitan area. (10) Education for responsible and conscious consumption. (11) Logistics changes. (12) Access to resources for food production and marketing. (13) Knowledge transfer and exchange of experiences. (14) Adequate transportation of food produced by agroecological, family and community farming. (15) Changes in income and poverty. (16) Participation and incidence in public policy. (17) Regulation for the protection of food production. (18) Contextualized application of tax and health regulations. (19) Transformations in food practices. (20) Institutional and community networks capabilities. (21) Food loss and waste management. (22) Adequacy of farmers markets regulation. (23) Food traceability and access to certifications. (24) New digital technologies with connectivity, access, and proper use. (25) Changes in dietary diversity. (26) Dynamics of road accessibility and connectivity in the metropolitan area. (27) Transition to agroecological production. (28) Changes in the basic food basket costs. (29) Territorial inequalities (30) Agroecological education. (31) Use of biodegradable and sustainable packaging. (32) Change in the proportions and severity of food insecurity. (33) Changes in population and demographic dynamics. (34) Transformations in lifestyles. (35) Environmental sustainability.

**Future scenario narrative.** Alternative food networks have been contributing in-
creasingly to the nutrition and food safety (NFS) of Medellín. This is the result of a
strengthening process that has consolidated it into a feasible, resilient, and sustainable
food system, even in emergency situations that cause disruptions in the system's supply
chain. This process was made possible due to both the governmental and non-govern-
mental institutions, and society in general, who have understood the importance of hav-
ing community-based capabilities for the food supply system in the territory, which has
led to greater institutional and civilian support. The participation of the stakeholders of alternative food networks in the design and implementation of public policies related to food has resulted in a greater incidence of these, which has expanded the opportunities and improved the deployment capabilities of lower socioeconomic communities, small producers, and alternative dealers. Overall, this has enhanced progress in guaranteeing the human right to adequate food for the population, based on the food sovereignty of the territory.

One of the most key results of this process is the strengthening of the alternative markets, which are now more feasible in social, economic, and environmental terms. This has contributed to a better functioning of the food supply chain. Thus, healthy eating is now understood by society and governmental institutions as a fundamental right, which is guaranteed based on the food sovereignty of the territory. Consequently, with the increase in the contribution of the alternative networks in the subregion, the assurance of health eating has been reinforced in relation to the nutritional quality, safety and cultural suitability of the food consumed.

Similarly, with a greater emphasis on food sovereignty, progress was made in reducing the inequality gaps between rural and urban communities in the territory, through the implementation of public policies that prioritize peasant agriculture and agroecology. These policies made possible a greater connection to small agroecological producers and local peasant communities with individual, collective, and institutional consumers in the metropolitan area, which has contributed to reducing food insecurity in the urban population, mainly with lower income and purchasing power.

**Strategic design.** Three strategic lines were identified, each of these has the following structure: aim, programs, and projects.

*Line 1: Development of alternative food markets.* The aim of this line is to strengthen alternative food markets to ensure its operations in emergency contexts while reaching economic, social, and environmental benefits. Line 1 programs and projects are listed in Table 2.

<table><caption>**Table 2.** Line 1 programs and projects to development of alternative food markets</caption><thead><tr><td>Program</td><td>Projects</td></tr></thead><tbody><tr><td rowspan="3">Expanding the participation of the alternative networks in food markets.</td><td>Capabilities to contributing to the quality of state food assistance services</td></tr><tr><td>Farmers, green and agroecological markets throughout the metropolitan area</td></tr><tr><td>Farmers, family, and community agriculture and agroecology supplying conventional food markets.</td></tr><tr><td rowspan="4">Accessing resources to strengthen food production and distribution.</td><td>More urban spaces for small-scale and low-volume subsistence horticulture</td></tr><tr><td>Access to resources to improve the marketing of crops</td></tr><tr><td>Community banks of supplies, tools and equipment.</td></tr><tr><td>Adequate advice and technical assistance.</td></tr><tr><td rowspan="2">Adapting the regulation to strengthen alternative food networks.</td><td>Permanence of transitory norms.</td></tr><tr><td>New regulatory developments to institutional support.</td></tr><tr><td></td><td>Strengthening traditional educational strategies on alternative food networks.</td></tr></tbody></table>
<table><tr><td rowspan="2">Educating for healthy, conscious, and responsible consumption.</td><td>Alliances with the cooperative and solidarity sector</td></tr><tr><td>Keeping and transforming food practices.</td></tr></table>

*Line 2: Changes in the supply chain.* The aim of this line is to better operate the supply chain of alternative food networks in the metropolitan area, by improving its resilience in emergency situations and contribute to its economic and environmental sustainability in non-emergency contexts. Line 2 programs and projects are listed in Table 3.

<table><caption>**Table 3.** Line 2 programs and projects to changes in the supply chain</caption><thead><tr><td>Program</td><td>Project</td></tr></thead><tbody><tr><td>Adapting the logistics process for the direct connection between producers and consumers.</td><td>Institutionalization of small networks to trade aggregated supply of crops obtained by small and medium producers from farmers, family, and community agriculture.<br>Development of supply chain models customized according to consumers' preference.</td></tr><tr><td>Minimizing food loss and waste.</td><td>Characterising and tackling food loss and waste in alternative networks.<br>Subsistence crops and short distribution circuits to reduce food losses and waste.<br>Alliances with food banks and other philanthropic stakeholders.<br>Partnerships to prevent food loss and waste during crisis</td></tr><tr><td>Adapting transportation of farmers, family, and community agriculture towards agroecology practices.</td><td>Last mile delivery model safe and sustainable<br>Community participation in last mile deliveries<br>Alliances with the transport cluster of the traditional food networks.</td></tr><tr><td>Food traceability and access to certifications for food safety and quality.</td><td>Promotion and facilitation of traceability and certifications<br>Promotion and protection of participatory guarantee systems</td></tr><tr><td>New digital technologies with connectivity, accessibility, and proper use.</td><td>Diagnosing and finding solutions<br>Developing capacities with ICT<br>Youth promoting the adoption of new technologies for producer-consumer direct food trading.</td></tr></tbody></table>

*Line 3: Development of territorial capacities.* The aim of this line is to develop the necessary territorial capabilities, to improve the resilience of the alternative food networks in emergency situations and its contribution to guaranteeing the human right to adequate food Medellín. Line 3 programs and projects are listed in Table 4.

<table><caption>**Table 4.** Programs and projects of the line development of territorial capacities</caption><thead><tr><td>Program</td><td>Project</td></tr></thead><tbody><tr><td rowspan="4">Strengthened networks of producers, distributors, and consumers.</td><td>Aggregating the supply of logistics resources.</td></tr><tr><td>Aggregating the food offer.</td></tr><tr><td>Fair trade alliances.</td></tr><tr><td>Interaction with other stakeholders of the alternative networks and social movements.</td></tr></tbody></table>
<table><tr><td>Interinstitutional and intersectoral articulation for a healthy and sustainable diet.</td><td>Coordinating food supply between institutions and clusters<br>Alliances and agreements to enhance research on alternative food supply</td></tr><tr><td>Participation and incidence in food public policies</td><td>Participation of stakeholders from civil society and alternative networks in the diagnosis and planning of public policies for a healthy and sustainable diet.<br>Ensuring instances and mechanisms for direct participation of civil society and alternative networks in defying public food policies.</td></tr><tr><td>Strengthening farmers, family, and community agriculture</td><td>Inclusion in local and regional food and nutrition security plans.<br>Continuity of food production and distribution in emergency situations.<br>Reaching the autonomy of farmers, family, and community agriculture.<br>Access to irrigation resources for agricultural production.</td></tr><tr><td>Knowledge transfer and dialogue of knowledge in the alternative food networks</td><td>Deepening the dialogue of knowledge and the exchange of experiences.<br>Research and social appropriation of knowledge.</td></tr><tr><td>Development of governmental institutional capabilities to achieve a healthy and sustainable food supply</td><td>Improving government's understanding of the alternative food networks.<br>Development of public-private partnerships for the trading of healthy foods.<br>Establishment of a food supply observatory.</td></tr><tr><td>Transition towards agroecological production</td><td>Networks of agroecological producers and distributors.<br>Encouraging the transition to agroecology.</td></tr><tr><td>Organization and consolidation of rural territories</td><td>Implementation of public policy instruments for healthy and sustainable food supply.<br>Incentives for the protection and development of environmental conservation areas and food production.<br>Coverage and quality in the supply of utility services in the rural areas.<br>Adequate infrastructure to potentiate capabilities of rural areas.</td></tr><tr><td>Territorial articulation for a diverse, stable, and accessible food availability</td><td>Strengthen relations of regional and domestic interdependence.<br>Food supply commercial alliances.</td></tr></table>

## 4.2 The arise of new emergency food networks

As to governance, the EFN under study rose spontaneously driven by the social consciousness and mechanical solidarity from structural social capital in response to the social and economic phenomena that had a direct impact on food security of a distinct community. Its management is based on relational capabilities and the linking of different stakeholders in the form of synergistic alliances that strengthen social capital or organizational partners. Outsourcing practices were recurrent on organizational/community-based initiatives, which allowed successful outcomes to reaching a much larger
geographic coverage than established emergency food assistance programs. As to sta-
bility, different mechanisms for receiving donations such as wire transfers, in kind do-
nations, volunteering, and logistics infrastructure such as equipment, utensils and trans-
portation. Although the overall donations were abundant at the beginning of the lock-
downs, they decreased over time despite the worsening of the outbreak, which affected
the food supply rate. Regarding normativity, it was identified a structured set of internal
operating rules when it comes to organizational/community-based emergency food net-
works, whereas new norms were created jointly in civil society community-based emer-
gency food networks. Regarding external regulations, mobility, and transit restrictions
affected the performance of all both EFN.

In relation to information, the data for selecting beneficiaries came from multiple
sources such as community leaders and databases that were set mainly through phone
calls. There was evidence of access to technologies for communication between leaders
such as phone calls, virtual meeting platforms, email, social networks, as well as initi-
atives to store beneficiaries' information and photographic records to verify the deliv-
ery of donations as evidence to donors. Regarding logistics, inventories were empiri-
cally managed given the available human and infrastructure resources, which had no
logistics background indeed. Primary and secondary transportation was carried out us-
ing own or borrowed private vehicles as well as vehicles made available as in-kind
donation. Conversely, the necessary actions to guarantee food quality and safety were
conditioned by accessibility to re-sources such as physical infrastructure, adequate
transportation, and qualified human resources. However, volunteers did implement in-
ventory control strategies such as the application of the first in, first out technique
(FIFO) as well as inventory turnover of perishable food to prevent loss and waste. From
a cultural sustainability point of view, most EFN under study sought to supply and dis-
tribute food according to the food culture of territories. Finally, although environmental
sustainability was not considered a priority, the use of plastics for packaging of dona-
tions was avoided, preferring recycling packaging materials as a strategy to reduce en-
vironmental impact.

**Change factors.** The open coding carried out to the transcriptions of the four semi-
structured interviews revealed findings that, according to the interviewees, had the po-
tential to make changes, either because they stated it explicitly or because they outlined
particular facts proving so. (1). Alliances for supply and distribution of material con-
vergence. (2) Assistance to population not prioritized by governmental response. (3)
Local food purchasing. (4) Unification of logistics information systems. (5) Strength-
ening physical infrastructure for managing material convergence. (6) Training on dis-
aster management. (7) Income and poverty changes. (8) Strengthening internal relation-
ship management. (9) Donated food safety insurance. (10) Strengthening social aware-
ness and solidarity. (11) Affordability of commodities in the food market. (12) Tracea-
bility and transparency in the donation process. (13) Social networks to promote dona-
tions. (14) Measures for ensuring supply from urban and rural vegetable gardens. (15)
Encouragement of tax regulations for individual donors. (16) Environmental sustaina-
bility during supply and distribution of donations. (17) De-regulation of last mile re-
strictions for food donations. (18) Volunteering regulation for emergency food supply
and distribution. (19) Changes in social vulnerability from economic protection.
**Future scenario narrative.** Medellín and its metropolitan area have been contributing to guarantee adequate, safe, and sustainable food to its population during emergencies. This is the outcome from understanding how emergency food networks are capable of orchestrating supply and distribution thanks to the interdependent work of social, community, governmental, institutional, and corporate stakeholders, who consolidated alliances to minimize risks and address vulnerability in food security.

Closing the gaps in access to food during supply chain disruptions in the food system in Medellín was possible due to the development of capabilities for emergency response based on what was learned from the Covid-19 pandemic. The development of response capabilities was greatly benefited from the enhancement of the disaster preparedness stage, which encouraged and ensured the integration of response capabilities from structural social capital by aggregating resources and actions with the remaining stakeholders of the National Unit for Disaster Risk Management.

The consolidation of information systems set as an optimal tool for the collecting, storing, and processing key information for decision making. In this sense, local food purchasing by community-based emergency food networks gained special relevance, which was reached due to the inclusion of small local producers, individuals or associated, as food suppliers during the emergency response. The relaxation of tax regulations encouraged civilian donors to join community-based food emergency networks, including access to certificates for tax discount purposes.

Alliances with local food suppliers allowed an increase in the delivery of highly perishable fresh food, for which it was necessary to take actions to guarantee quality and safety. Some of these actions were the creation and implementation of a traceability system, supported by the information system described above, as well as for monitoring and control of contaminants present in food.

This is how capabilities were developed based on a collective purpose to combine actions and resources for supplying emergency food to vulnerable populations during disaster scenarios, focusing on the population not prioritized in governmental food assistance programs. In emergency food networks, the capacity for internal relationships, the consolidation of an information system and reciprocity in data management are the foundation to generate rapid and effective responses.

**Strategic design.** A single strategic line was identified, which has the following structure.

*Line: Development of response capabilities to food crisis such as the Covid-19 pandemic.* The aim of this line is to develop capabilities to respond to health, environmental and anthropic threats in Medellín, to guarantee the human right to adequate food. Line programs and projects are listed in Table 5.

<table><caption>**Table 5.** Programs and projects of the line Development of response capabilities to food crisis such as the Covid-19 pandemic.</caption><thead><tr><td>Program</td><td>Project</td></tr></thead><tbody><tr><td>Food supply and distribution capabilities of emergency food networks</td><td>Developing humanitarian logistics competences for emergency food networks</td></tr><tr><td rowspan="2">Supply and distribution information systems</td><td>Identification of beneficiaries</td></tr><tr><td>Fast and efficient communication channels</td></tr></tbody></table>
<table><tr><td rowspan="3">Strengthening social capital response capabilities to supply and distribute emergency food</td><td>Live together to serve</td></tr><tr><td>Cooperation agreements to strengthen solidarity action</td></tr><tr><td>Tax benefits to encourage donations to community-based emergency food networks</td></tr><tr><td>Local purchases during slow on-set disasters</td><td>Strategies for safe last mile delivery of local food</td></tr><tr><td rowspan="2">Material convergence safe handling</td><td>Physical infrastructure for food storage</td></tr><tr><td>Strengthening the quality and safety guarantee of food donations.</td></tr><tr><td rowspan="3">Donations with environmental sustainability</td><td>Sustainable packaging</td></tr><tr><td>Reducing food loss and waste</td></tr><tr><td>Waste management and disposal</td></tr></table>

## 5 Discussion

The transdisciplinary approach required by the response to the Covid-19 pandemic and its consequent lockdown constituted not only a research challenge but also a propositional challenge. The initiatives of Colombian civil society described and analysed above contemplate concrete responses to intervene food crisis, emergency situations, or the convergence of both. The AFN studied adapted their production and distribution system during the lockdown to maintain their operations. In this context, change factors were identified exposing their potential to develop resiliency, which range from the inclusion of initiatives in new markets, public food purchasing, production for self-consumption and local supply, to participation and influence in public policies. Likewise, the organizational and community-based emergency food networks studied created a supply and distribution system almost from scratch yet proving remarkable capabilities to developing resiliency to the food system during crisis, which range from transferring humanitarian logistics knowledge to civil society, to strengthening the internal relations frame to avoid conflicts among volunteers.

The future scenario narrative and the strategic design of both AFN and organizational/community based EFN matched the need for programs and transversal projects to appropriate, access and use ICT to timely close the gap between producer and consumer and between donors and beneficiaries, respectively. Indeed, some programs and projects identified in this study expose the relationship between ICT and society as in alternative food networks they seek the promotion of ICT for trading products, the characterization of current state of ICTs' appropriation, and identifying the digital tools that represent opportunities for new trading channels for alternative markets. Likewise, programs and projects that seek the creation of information systems represent opportunities to collect, store and process information necessary for decision making within emergency food initiatives. Also, government's support in the creation of digital platforms and strategies for information management that favours the updating, dissemination, and transfer of data within emergency food networks arises a strong capability to installing resiliency in the food system.
The use of the prospective planning approach made it possible to suggest a future
narrative scenario about how AFN and community-based EFN should be. This scenario
indicates that the consolidation of a feasible, resilient, and sustainable food system re-
quires a continuous supply chain, even in emergency situations. To achieve this, it is
necessary to undertake an articulated work process in the territory between governmen-
tal institutions and non-governmental organizations, and civil society in general. A pro-
cess in this direction must encompass democratic participation in the design and imple-
mentation of public policies related to food risk policies.

6 Conclusions

The necessary actions to give resilience to the food system aimed at developing and strengthening capacities in humanitarian logistics; the creation of alliances for the supply of local and healthy food and the optimization of own and shared resources; the strengthening of physical infrastructure for the safe collection and storage of donations; and finally, the creation of information systems that strengthen communication between the stakeholders involved, collect information on processes and resources (necessary and available) and facilitate operational decision-making and selection of beneficiaries. These strategic actions require the interdependent work of social, community, governmental, institutional, and corporate stakeholders to guarantee their effectiveness. Studying the food system of the city of Medellín during the Covid-19 pandemic using the strategic-prospective approach by a transdisciplinary team of researchers allowed the generation of public policy guidelines for programs and projects related to food supply at a local scale. These guidelines also seek to significantly reduce the risks of disasters triggered by future threats that would restrict access to food. The change factors and the future narrative scenarios identified through the combination of qualitative and quantitative methodological strategies must be consolidated in the design of public policies and, for this, the strengthening of the democratic participation of community stakeholders is required, in a dialogue of knowledge with government and academic stakeholders.

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