the power of
produce
,
Now more than ever
,
.
But when a head of lettuce costs more than a bag of potato chips, it’s easy
to see why the healthiest choice may not always be the easiest choice—and why,
when shoppers have a limited budget, putting healthy food on the table can
simply be out of reach.
In fact, only 1 in 10 American children eats enough fruits and vegetables, and one-third are overweight or obese.
Without access to healthy, affordable food, Americans are at a higher risk for a host of diet-related diseases like
obesity, diabetes and heart disease. In 2014 alone, the U.S. spent over $160 billion on food insecurity-related illness.
And when families can’t afford to buy fresh produce, they’re not the only ones who suffer: American farmers
are losing their livelihood, and rising health care costs affect every taxpayer.
But we can change that.
Healthy food incentive programs for shoppers who rely on SNAP—a simple idea that started at farmers markets
and has grown to supermarkets and other retailers—are helping to change this equation by empowering
families to make healthier choices. Through these initiatives, we can make fresh produce more affordable
for families with lower incomes in communities across the country.
And when the millions of Americans struggling with poverty start bringing home more healthy
food, we see their communities start to benefit, too: Area farmers gain new customers and make
more money, small businesses thrive, and more food dollars stay in the local economy.
2
“As a result of [incentives], I
absolutely purchase and consume
more fresh vegetables and fruit. I’ve also
tried different kinds of vegetables that
I’ve never had before. Every time I go to
the market I learn something new.”
–Gail Lang, 65,
oklahoma farmers market shopper
,
3
Healthy Food
Incentives 101
Fruits and vegetables should be accessible to all Americans. But people who
rely on SNAP (food stamps) are currently left out of the equation, and unfairly, they
tend to pay more for groceries than higher-income shoppers. Since 1980, the relative
price of fruits and vegetables has gone up 40 percent, and the relative price of
processed foods has gone down 20–30 percent. So while everyone may want to eat
well, finances too often limit families’ ability to make healthy choices.
Healthy food incentives were designed to make fresh fruits and vegetables more
affordable for shoppers who use SNAP.
These SNAP incentives—often taking the form of a coupon, token, debit card or
electronic discount—allow shoppers to purchase high-quality fruits and vegetables,
try new foods, and experience a positive shopping experience.
This new purchasing power enables families to boost their food dollars and not just
bring home a larger quantity of food, but a better quality of food.
SNAP incentives simultaneously increase consumption of nutritious produce and
stimulate local economies by unlocking demand for fruits and vegetables. Moreover,
when linked to local agriculture, the benefits expand to support the foundation of
local economies and the livelihood of American farmers: As shoppers buy more
food for their families, farmers make more money, serve more customers, sell
more food, and grow more food.
By providing financial incentives on produce purchases, we can ensure
that families no longer need to choose between eating healthy and
eating enough.
History of SNAP Incentives
$2 NYC Health Bucks coupons
introduced by the New York City
Health Department. For every $5
spent at farmers markets using
SNAP, recipients receive a $2
coupon to use at market on fresh,
locally grown produce.
Project for Public
Spaces seeds multiple
incentive pilots
across the East Coast.
Wholesome Wave
launches in 2007,
building a national
network that today
includes 1,400 sites
across 49 states.
The Farm Bill authorizes
$20 million for the Healthy
Incentives Pilot (HIP) project
in Massachusetts, which
determined that recipients of
SNAP incentives in a range of
retail venues ate 26% more
fruits and vegetables than
their peers.
Fair Food Network
launches Double Up
Bucks, which becomes
first statewide program
in Michigan and national
model in 20+ states.
Also pioneers incentives
in grocery stores.
What is SNAP?
SNAP stands for the Supplemental
Nutrition Assistance Program,
formerly known as food stamps.
To receive benefits, SNAP-eligible
participants receive an EBT card,
which can be used for most food
purchases at supermarkets, corner
stores and other food retailers.
Created in 1939, SNAP is
America’s largest and most crucial
safety net against hunger; over
44 million Americans rely on
SNAP to eat and feed their
families, including
19.2 million
children and 5.3
million seniors.
4
2004
2006
–2007
2008
2009
Incentives are offered in a variety of settings in high-need areas across the country:
national supermarkets, small grocery stores, corner stores, farmers markets, mobile
markets and innovative pop-ups.
To participate, shoppers using SNAP benefits swipe their EBT cards and receive a token,
paper coupon, digital coupon or discount when purchasing an eligible item. For example,
when a family spends $20 of their SNAP benefits at a participating farmers market, they
could get an additional $10 to spend on locally grown fruits and vegetables. This means
they can bring home $30 worth of food for just $20, increasing their purchasing power by
50 percent. Many programs across the country even match purchases dollar for dollar.
Over time, programs have adopted one of two basic approaches: Shoppers either earn incentive dollars when
they purchase SNAP-eligible items and may use those incentives on future produce purchases; or they receive an
immediate price discount on produce purchased with SNAP. Programs often include additional nutrition education,
recipes and shopping tips.
The Food Trust launches
Philly Food Bucks at
Philadelphia farmers
markets, ultimately leading
to a 300% increase in
market SNAP sales.
A two-year independent
evaluation at 500+
farmers markets in 24
states plus D.C. finds
that incentives boost
healthy eating and
support farmers.
Farm Bill funding includes $100
million over five years for
the Food Insecurity Nutrition
Incentive (FINI) program to boost
SNAP dollars when they’re spent
on fresh fruits and vegetables at a
variety of retail settings.
As of 2018, SNAP incentive
programs are active in
nearly all 50 states
and are being utilized
everywhere from small
rural farmstands to large
chain supermarkets.
working together
for success
Healthy food incentives are a true team
effort, bringing together stakeholders
from a variety of sectors to increase SNAP
recipients’ purchasing power and drive
local economies.
5
Public health
advocates
Nutrition
educators
Government
entities
Shoppers
Farmers
Small
businesses
Grocers
2010
2013
2014
2018
NATIONAL SNAPSHOT:
Incentive Innovations Across the Country
Texas
Community leaders
bring incentives to
farmers markets and
rural grocery stores
Washington
Large grocery
chain runs incentive
and produce
prescription programs
in 168 stores
Oregon
Cohesive
branding
and program
design unifies
30 individual
incentive
programs
California
Statewide nutrition
incentive program
with $5 million state
investment
New Mexico
First state to commit
annual support of
incentive programs;
inspires similar
partnerships in 10
states and growing
Nebraska
State Department of
Agriculture and SNAP-Ed
team up on incentives
with farmers markets,
mobile markets, CSAs
and the state grocers
association
6
“Liberty is realized when
all people have real
choices of what they can
feed their families.”
–Gus Schumacher, early
pioneer of healthy food
incentives, founding board
chair of Wholesome Wave
Iowa
New electronic
incentive processing
technology launches
at farmers markets
Alabama
Food banks and grocers integrate
incentives with mobile markets
and online ordering/delivery
mississippi &
tennessee
Multi-state effort
engages urban and
rural communities at
grocery, farmers market
and clinic settings
Pennsylvania
Statewide Food Bucks network expands
partnerships and sees significant
increase in produce sales at new
supermarket and corner store settings
Early adopters,
beginning as early as
2004 in New York
City, Lyn n, MA and
Takoma Park, MD,
have paved the way
for incentive programs
nationwide
Ohio
Partnership with the Ohio
Department of Health demonstrates
benefit of collaboration between
nutrition incentive programs, state
government and public health efforts
Michigan
Double Up Food Bucks
is oldest statewide
incentive program,
working in 250+ sites
from farmers markets
to grocery stores,
all with strong local
sourcing
Kansas &
Missouri
First-ever multi-
state incentive
effort launches
in America’s
heartland
Maine
Collaboration
with local
healthy food
access nonprofits
enables Maine
Harvest Bucks
to increase
affordability even
in the state's most
rural areas.
7
Healthy food incentives benefit
families by:
•
Improving access to healthy,
affordable food
•
Increasing purchasing power for
and consumption of nutritious
fruits and vegetables
•
Integrating federal nutrition
and education programs
•
Supporting long-term dietary
improvements
“The farmers who participate
are simply more successful. They
have more customers. That means
they make more money. It is a
win-win for everybody.”
–james haydu, director
see-la markets, los angeles
8
Incentives can also be a boon for
American farmers by:
•
Attracting SNAP recipients and
farmers to the market, thereby
increasing SNAP redemptions
and overall farmers market sales
•
Providing a gateway for beginning
farmers
•
Offering new direct and wholesale
marketing opportunities
•
Stimulating farm expansion in both
acreage and crop diversity
Communities win by:
•
Stimulating local economies in a
new, innovative, sustainable way
•
Giving public nutrition assistance
programs the opportunity to
address hunger, health and local
food systems simultaneously
•
Allowing rural and urban
communities to gain new and
lasting connections, resulting in
resilient economic growth
•
Reducing health care costs
SNAP INCENTIVES: A TRIPLE WIN
Healthy food incentives support a triple bottom line, helping families bring home more nutritious food, supporting
American farmers and keeping more food dollars in the community.
impact by the numbers
In a 2008 Massachusetts study, SNAP recipients who received
incentives
increased their fruit and vegetable
consumption by 26%.
Lowering the cost of fruits and vegetables could
reduce the
percentage of overweight Americans from
68% to 13%, and shed billions in health care costs.
In California, 80% of Market Match participants reported that
their family’s health had improved as a result of
the program.
In a 2015 study, over 3/4 of farmers market shoppers using
incentives reported that they were
buying or eating more
fruits and vegetables.
Farmers and grocers across the country have reported an increase
in produce sales
—
in one instance, a 48% increase from
before the program started.
For every $100 spent at a farmers market, $62 stays in the local
economy, and
$99 stays in the state.
:
Federal Program Allows
for National Expansion
The Agricultural Act of 2014, also
known as the Farm Bill, authorized $100
million to create the Food Insecurity
Nutrition Incentive (FINI) program. This
competitive grant program supports
the launch and scaling of incentive
programs in diverse retail settings across
the country. Modeled after numerous
pilot programs across the country, FINI
represents a major investment by the
federal government to expand incentive
programs. These healthy food incentives
also directly complement the USDA’s
SNAP-Ed, WIC and FMNP programs,
maximizing impact to communities.
In 2015, the National Institute of Food
and Agriculture (NIFA) at USDA launched
FINI to increase the purchasing power
of shoppers using their SNAP benefits
to purchase fruits and vegetables at
farmers markets and other types of
healthy food retailers, including grocery
stores and mobile markets. As of 2017,
USDA had awarded 90 FINI grants to
nonprofit organizations and government
entities around the country that are
dedicated to improving the health of
families that receive SNAP benefits by
making healthy food more affordable,
as well as supporting farmers and local
economies. Projects funded through
FINI have enabled the development of
innovative technologies, partnerships,
and systems necessary to implement
incentives. In addition, grantees have
raised millions in other public and
philanthropic dollars to match or exceed
federal dollars.
9
Pennsylvania’s decades-long dedication to healthy food access and nutrition education has paved the way
for SNAP incentives to succeed in the Keystone State. In Philadelphia, The Food Trust has opened numerous
farmers markets in underserved communities and has helped bring healthier items to the city’s many corner
stores. At the statewide level, the Pennsylvania Fresh Food Financing Initiative provided financial incentives to
grocery stores and other healthy food retailers across the state to open or expand.
The Philly Food Bucks program emerged as a natural next step, launching in 2010 as a core component of
the Philadelphia Department of Public Health’s Get Healthy Philly initiative. For every $5 spent using SNAP
at participating markets, customers receive a $2 bar-coded Philly Food Bucks coupon for fresh fruits and
vegetables. This program increased SNAP sales for local farmers by 300 percent.
In 2015, The Food Trust launched a statewide Food Bucks network expansion, working with regional partners
to implement new SNAP incentive programming across Pennsylvania. For example, the Pittsburgh anti-poverty
organization Just Harvest, along with the Greater Pittsburgh Community Food Bank, launched a successful
program that now operates at over 30 farmers market and mobile market sites in greater Allegheny County.
Supermarkets and corner stores have provided exciting new venues to test out coupon programs for shoppers
who receive SNAP benefits. The Food Trust’s partnership with The Fresh Grocer enabled Food Bucks to be
distributed in a large grocery store in Pennsylvania for the very first time, and
increased produce purchases among users by almost 50 percent. Meanwhile,
after the corner store Olivares Food Market joined the Food Bucks
Network, the store showed a 175 percent increase in produce items
sold. In some cases, supermarkets, corner stores and farmers
markets may serve as redemption sites for Food Bucks Rx, a fruit
and vegetable prescription program conducted in collaboration
with health care partners.
The statewide network continues to provide opportunities for
members to connect and contribute to greater knowledge
sharing that will support the continued success of SNAP
incentive programs.
case studies
10
:
,
In 2016, the city of Flint, MI, made national headlines as it was discovered that residents,
including thousands of children, had been exposed to toxic lead levels from the city’s
water supply. In the wake of this public health crisis, one of the most promising—and
proven—solutions to emerge involved not water, but good food. Indeed, one of
the best ways to support city residents now and for years to come is to ensure good
nutrition. Vitamin C, iron and calcium—so abundant in fresh fruits and vegetables—are
critical in limiting the effects of lead exposure.
Double Up launched at the Flint Farmers’ Market in 2011. At the time, it was the first program
in the country to offer incentives electronically. By 2015, customers redeemed more Double Up
incentives at the Flint Farmers’ Market than at any other market in the state. Starting in June 2016, Fair Food
Network expanded and enhanced its Double Up Food Bucks SNAP produce incentive program in Flint to
reach more children and families with more healthy foods. And at participating Landmark grocery stores—
where more than 80 percent of store sales are with SNAP benefits—owners had to double the amount of
fruits and vegetables they carried to keep up with customer demand.
In response to the water crisis, Fair Food Network has made Double Up available in more locations and
running year-round at all sites, rather than seasonally. Double Up benefits are also now transferrable across
sites, meaning a family can take the benefits they earn at a participating grocery store and spend them at the
farmers market or mobile grocer, or vice versa. Double Up is now reaching an estimated 40 percent of SNAP
households in Flint, up from 9 percent in the 2015/2016 season. And the benefits ripple out, as Double Up
continues to support Michigan growers as well as local participating businesses.
11
“Anything we can do to get
people healthier and stretch
dollars further is good.”
–u.s. sen. john boozman, r-arkansas
:
’
Wholesome Wave’s statewide network model is now making it easier for 1.6 million Ohioans in
poverty to afford fruits and vegetables at farmers markets and supermarkets alike.
When Ohio farmers markets first experimented with nutrition incentives, there was little coordination among
the early programs in Columbus, Cincinnati and Cleveland. A three-year FINI grant has enabled Wholesome
Wave to work with partners in all three cities to develop the Ohio Nutrition Incentive Network, a multi-sector
coalition designed to amplify the reach and impact of Ohio’s nutrition incentive program, Produce Perks.
Amy Baskes, who developed central Ohio’s nutrition incentive program, says unifying disparate initiatives has
created efficiency. “That appeals to everyone running these programs, and together we have the ability to
leverage greater investments and ultimately serve more residents.”
Pearl Market in downtown Columbus began offering incentives in 2015. One Tuesday afternoon, a Columbus
resident named Robin took advantage of the program while on the hunt for onions and peppers: “I can
double my money here, and I know it is wholesomely grown and healthier,” she said. “I think it’s just
an amazing, amazing thing.”
The number of farmers markets offering Produce Perks in Columbus and Franklin county
quickly doubled. Today the program reaches more than 4,000 Ohio families and
expanded its reach by 153 percent between 2015 and 2016. Nearly 100 farmers
markets now offer incentives across Ohio. Since 2015, Produce Perks has increased
sales for over 830 farmers and producers, with more than $345,000 spent on
healthy, local food.
These FINI impacts inspired the Ohio Department of Health (ODH) to make a
pioneering investment of $800,000 in the Produce Perks program and a new produce
prescription pilot. Now ODH is working with Wholesome Wave and the Ohio Nutrition
Incentive Network to expand Produce Perks into grocery stores, offering convenient,
affordable, healthy food seven days a week.
12
“Our produce sales have
increased. We’re providing more
varieties of fresh fruits and
vegetables for our customers.”
–jeffrey perez, general manager
c-town supermarket, hartford, ct
:
The California Market Match program empowers shoppers with lower incomes to make
healthy food choices by overcoming financial barriers. Founded in 2009, Market Match
provides matching funds so that people who receive SNAP benefits can buy twice as
many fruits and vegetables at farmers markets, produce stands and CSAs. Led by the
Ecology Center and implemented through a consortium of 50 farmers market and
community-based organizations statewide, the program has grown from an initial 44
markets and $300,000 in SNAP and incentive sales to nearly 300 locations, 180,000
customer interactions and over $4 million in sales.
The program supports job creation, local economic development and civic engagement,
which are all co-benefits of farmers markets. Market Match also helps stabilize and support
rural communities by providing an additional income for small and midsize farmers selling at
farmers markets. Market Match's consortium structure allows for program consistency, anchoring
dozens of different groups throughout the state around a common goal. It also allows small and low-capacity
organizations and markets to access federal and state grant funds that might not otherwise be accessible to them.
The Ecology Center and the Market Match consortium have encouraged policies at the federal and state level
that would fund and expand California incentive programs. In 2017, $5 million in California state funds were
approved by the legislature for expanding California incentive programs.
Overall, California Market Match has been a win-win-win—for low-income Californians, farmers and the economy.
13
:
’
Mike Beal is Chief Operating Officer of Balls Food Stores, a locally owned third-
generation grocer in the Kansas City metro area.
“We started with five stores doing Double Up Food Bucks in 2015 and expanded
to 14 stores the following year. [The program] gives us a unique position in the
market to offer something to customers that’s great for them and good for our
partners, the farmers.
All of our team is committed to [nutrition incentives]. We go over the top to find
ways to advertise it, to make it known. We’ve got signage throughout the store for
customers. I heard feedback from our customers to our cashiers last year that some
families had switched to produce for snack items. The produce department is one of the
healthiest places that you can shop. I don’t know of anything negative that comes out of the
produce department! And Double Up is also great from a business perspective. We increased
our local produce sales in participating stores 12 to 15 percent.
There’s a movement in the country for local foods. All the industry talks about it. Produce that’s grown in the
area is fresher. But that can be hard on low-income families. [Incentives fit] right into that movement to eat
healthier and support local growers. In the end, you’re helping customers with their families and their lives by
offering the program. If that’s not reason enough to participate, honestly, I question why you’re in this business.
At the end of the day, for small grocers like us, being part of the community is one of the things the big boys
can’t do. It’s a win-win. There is no downside.”
— Excerpted from Fair Food Network’s Voices of Double Up Across America
to day 42
. ,
.
.
Incentives are active in nearly every state, in thousands of
farmers markets and grocery stores nationwide. And a growing
body of research shows that they work. These programs:
•
increase revenue for farmers and small businesses
•
demonstrate a change in eating habits
•
allow shoppers to fill their baskets with more fruits and vegetables
•
support the local economy
•
can reduce health care costs long-term
Through support from the public and private sectors, incentive
programs are expanding, while new technology and systems are
being developed to be more efficient and reach more people.
Healthy food incentives transform Americans’ purchasing power
and keep our communities thriving. Let’s ensure that every family
can make the healthy choice the easy choice.
14
,
Fair Food Network is founded on the belief that vibrant local food systems create health and
economic opportunity for all. A national nonprofit, we pioneer solutions that support farmers,
strengthen local economies, and increase access to healthy food—especially in our most
underseved communities. Fair Food Network’s Double Up Food Bucks program is a national
model for healthy food incentives. Active in 23 states and growing, it is helping low-income
families bring home more healthy food while supporting American farmers. To learn more,
visit fairfoodnetwork.org.
Wholesome Wave is a national nonprofit making fruits and vegetables affordable for the
people who need them most. When people can afford produce, they buy it. And when
the millions of Americans struggling with poverty eat more fruits and vegetables, we see
immediate improvements for families and farmers—and enormous long-term gains for public
health, local economies, and the environment. Wholesome Wave’s innovative initiatives reach
half a million under-served consumers, as well as thousands of farmers annually, in 49 states
and counting. To learn more, visit wholesomewave.org.
The Food Trust’s mission is to ensure that everyone has access to affordable, nutritious food
and information to make healthy decisions. Working with neighborhoods, schools, grocers,
farmers and policymakers, we’ve developed a comprehensive approach to improved food
access that combines nutrition education and greater availability of affordable, healthy food.
To learn more, visit thefoodtrust.org.
select resources and bibliography
Photos courtesy of Dave Tavani for The Food Trust; Fair Food Network; and Mpu Dinani/A-Game Photography. Special thanks to the
Ecology Center and Fitzgerald Canepa, LLC for their contributions to this piece. Copyright The Food Trust 2018
Suggested citation: “The Power of Produce: Healthy Food Incentives Empower Families, Support Farmers and Lift Up Communities,”
The Food Trust’s Center for Healthy Food Access, Fair Food Network & Wholesome Wave (2018), thefoodtrust.org/uploads/media_
items/the-power-of-produce.original.pdf
15
American Journal of Preventive Medicine,
“Dissemination of Technology to Evaluate Healthy
Food Incentive Programs” sciencedirect.com/
science/article/pii/S0749379716303932
American Journal of Preventive Medicine,
“Increasing Use of a Healthy Food Incentive:
A Waiting Room Intervention Among Low-
Income Patients” sciencedirect.com/science/article/
pii/S0749379716305827
Fair Food Network, “Double Up Bucks:
A Five-Year Success Story” fairfoodnetwork.
org/wp-content/uploads/2016/09/FFN_
DoubleUpFoodBucks_5YearReport.pdf
Kate Fitzgerald, Fitzgerald Canepa, LLC, “FINI
Grant Program: 2015 Results” fairfoodnetwork.org/
resources/fini-grant-program-2015-program-results
Farmers Market Coalition, “Farmers Markets
Stimulate Local Economies” farmersmarketcoalition.
org/education/stimulate-local-economies
Farmers Market Coalition, “Year One of the USDA
FINI Program” report farmersmarketcoalition.
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among-snap-customers-at-the-farmers-market
Food Research & Action Center, FACTS: SNAP
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snap-strengths.pdf
Maine Policy Review, “Healthy Food
Access and Affordability: We Can Pay the
Farmer or We Can Pay the Hospital”
wholesomewave.org/sites/default/files/wp-content/
uploads/2014/07/maine_policy_review.pdf
Massachusetts Department of Health
and Human Services, “History of the Healthy
Incentives Pilot” mass.gov/eohhs/consumer/
basic-needs/food/snap/hip/history-of-the-healthy-
incentives-pilot.html
New York City, Farmers Market Guide
www1.nyc.gov/site/doh/health/health-topics/cdp-
farmersmarkets.page
New York City Health Department, Farmers
Market Programs report www1.nyc.gov/assets/doh/
downloads/pdf/cdp/farmers-market-report-11.pdf
Preventing Chronic Disease, “Improving Fruit
and Vegetable Consumption Among Low-Income
Customers at Farmers Markets: Philly Food
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pcd10.120356
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With Continued Participation in a matched
Monetary Incentive Programme at Local
Farmers’ Markets in Low-income
Neighbourhoods in San Diego, California”
ncbi.nlm.nih.gov/pubmed/28756784
USDA, Characteristics of Supplemental Nutrition
Assistance Program Households: Fiscal Year 2015
Summary fns-prod.azureedge.net/sites/default/files/
ops/Characteristics2015-Summary.pdf
USDA, FINI Grant Program Guidelines
www.fns.usda.gov/snap/FINI-Grant-Program
USDA, “Food Assistance National Input-Output
Multiplier Model and Stimulus Effects of SNAP”
ers.usda.gov/webdocs/publications/44748/7996_
err103_1_.pdf?v=41056
USDA, Healthy Incentives Pilot backgrounder
www.fns.usda.gov/hip/healthy-incentives-pilot
USDA, SNAP Resources www.fns.usda.gov/pd/
supplemental-nutrition-assistance-program-snap
Washington State Department of Health, 2015–17
FINI Progress Report doh.wa.gov/Portals/1/
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Wholesome Wave and Project for Public Spaces,
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wholesomewave.org/sites/default/files/wp-content/
uploads/2014/10/Double-Value-Coupon-Program-
Diet-Shopping-Behavior-Study.pdf
For additional copies or citations, contact The Food Trust:
thefoodtrust.org 215-575-0444
