City Council - City Service & Innovation Technology Committee Hearing on Docket #1791

Meeting Date: November 20, 2025, at 02:00 PM Governing Body: Boston City Council - Committee on City Services and Innovation Technology Type of Meeting: Public Hearing Attendees:

• Councilor Enrique Pepén (Chair)
• Councilor Liz Breadon
• Council President Ruthzee Louijeune
• Councilor Edward Flynn
• Councilor Brian Worrell
• Councilor Henry Santana
• Councilor Benjamin Weber
• Councilor John Fitzgerald
• Councilor Sharon Durkan
• Aliza Wasserman, Director, Office of Food Justice
• Elijah, Office of Economic Opportunity and Inclusion
• Darren Lita, Board Co-President, Dorchester Food Co-op
• Maxwell Cheesum, Assistant Executive Director, Maverick Land and Community Services
• Ellen May, Chapter President, NTEU 255 (USDA FNS)
• Jack Kensla, Political Director, United Food and Commercial Workers (UFCW) Local 1445
• Shawna Weaver, Boston Food Access Council Steering Committee (Virtual)
• Terry Trotman, Neighborhood Food Action Collaborative & Boston Food Access Council (Virtual)
• Brianna Acosta, Project Manager, Vital Connections (Virtual)
• Will Hanson, Lead Advocate Volunteer, Allston Brighton Health Collaborative (Public Testimony) Absent: Councilor Gabriela Coletta Zapata (Letter of absence)

Executive Summary

The City Council Committee on City Services and Innovation Technology convened a public hearing on Docket #1791 to discuss the role of publicly owned grocery stores in addressing food insecurity in Boston. The discussion highlighted the growing food access crisis, exacerbated by rising food prices and federal SNAP benefit reductions. Panelists from the Office of Food Justice, Office of Economic Opportunity and Inclusion, community-owned grocery stores, and labor unions provided insights into existing city initiatives, challenges faced by non-profit grocers, and potential models for public intervention. Key themes included the need for sustainable, community-led solutions, the impact of corporate greed on food affordability, and the importance of addressing systemic issues like low wages and transportation barriers.

Agenda Item: Docket #1791 - Order for a hearing to discuss the role of publicly owned grocery stores in addressing food insecurity.

Opening Statements from Councilors

• Councilor Enrique Pepén (Chair):
  • Opened the hearing at 2:04 PM.
  • Announced the hearing is being recorded and live-streamed.
  • Stated the purpose of the hearing: to discuss Docket #1791, "Order for a hearing to discuss the role of publicly owned grocery stores in addressing food insecurity."
  • Acknowledged the sponsors: Councilors Liz Breadon, Ruthzee Louijeune, and Gabriela Coletta Zapata.
  • Noted the referral date to the committee: October 6, 2025.
  • Expressed concern over the closure of Daily Table in Mattapan and the strain on food pantries due to SNAP changes.
  • Highlighted the connection between food insecurity and composting discussions, emphasizing the need to reduce food waste.
• Councilor Liz Breadon:
  • Filed the hearing due to the ongoing food access crisis and increased food insecurity, particularly after federal SNAP cuts.
  • Emphasized that publicly owned grocery stores are one of many potential solutions.
  • Expressed a desire for a comprehensive conversation to improve food access for Boston residents.
• Council President Ruthzee Louijeune:
  • Filed a similar hearing order focusing on supporting non-profit grocers and exploring alternative models like municipally-owned stores.
  • Stressed the timeliness of the hearing given rising food prices and reduced SNAP benefits.
  • Highlighted the resilience of community-driven models despite challenges, citing the closure of Daily Table.
  • Advocated for supporting local solutions through funding, zoning, permitting, and partnerships.
  • Mentioned learning from other cities like Atlanta and Madison, Wisconsin.
  • Emphasized "Food is medicine. Food is health."
• Councilor Edward Flynn:
  • Expressed strong support for the Office of Food Access and advocated for increased funding.
  • Highlighted the work of non-profits like the Women's Lunch Place, which provides culturally appropriate food.
  • Stated that a city-owned grocery store might not be the answer, but increased support for the Office of Food Access and non-profits is crucial.
• Councilor Brian Worrell:
  • Thanked colleagues and panelists for addressing food insecurity.
  • Expressed a desire to listen and learn how to combat food insecurity in Boston.
• Councilor Henry Santana:
  • Thanked the lead sponsors for the hearing.
  • Acknowledged food insecurity as a persistent issue for low-income and public housing residents.
  • Expressed openness to exploring city-owned grocery stores while emphasizing support for existing non-profits and community leaders.
  • Commended the Office of Food Justice for their ongoing work.

Opening Testimony from Panelists

• Aliza Wasserman, Director, Office of Food Justice:
  • Stated that food prices are 25% higher nationally than in 2021 and 35% higher than in 2019.
  • Reported that 47% of Boston residents experienced challenges accessing nutritious food in 2024, according to the Greater Boston Food Bank.
  • Emphasized that the emergency food system is at capacity due to federal resource cuts, including SNAP eligibility changes and delays.
  • Highlighted the Greater Boston Collaborative Food Access Hub in Roxbury, which has distributed 1.5 million meals and 164,000 pounds of recovered food, serving 20,000 people monthly.
  • Mentioned grants to 12 food access and recovery organizations to expand cold storage and transportation infrastructure, expected to impact residents by the end of 2026.
  • Discussed the Double Up Food Bucks program, which provides SNAP recipients with 50% off fresh fruits and vegetables at six participating stores (East Boston, Roxbury, Dorchester), leveraging nearly $1 million in SNAP purchases.
  • Noted the program's federal funding through June, matched by city funds, and plans for expansion to Mattapan, Roxbury, or Dorchester.
  • Highlighted the Farmers Market Coupon Program (2022-2025), which used ARPA funds to provide over $1.5 million in coupons for fresh food at 20+ farmers markets.
  • Described a planning committee with 10 farmers markets and community organizations to assess and improve affordability and accessibility of farmers markets.
  • Mentioned the city's partnership with the Mayor's Office, Office of Neighborhood Services, Small Business Office, Human Services, BPHC, and BPS to provide information and resources during SNAP benefit delays.
  • Stated that the city and Boston Foundation raised over $3 million to support food access organizations.
  • Emphasized that food insecurity is addressed across multiple city departments, including Boston Public Schools (50,000 free, scratch-cooked meals daily) and Age Strong (meals for older adults).
  • Discussed the Community Outreach Leaders program, piloting peer-to-peer outreach for state and federal nutrition programs.
  • Advocated for maintaining and expanding state programs like the Healthy Incentives Program (HIP) and Mass Department of Agricultural Resources Food Security Infrastructure Grants.
• Elijah, Office of Economic Opportunity and Inclusion:
  • Stated that Boston has a "caring food policy agenda" to improve food access, support local production, and strengthen distribution.
  • Highlighted the use of city funding, federal grants, and private partnerships to fortify the local food system.
  • Mentioned the Greater Boston Collaborative Food Access Hub as an example of collaborative infrastructure reducing hunger and waste.
  • Stated that the Office of Economic Opportunity and Inclusion assisted over 300 food-related businesses through Small Business Relief Funds, Main Streets partners, and the Legacy Business Program.
  • Emphasized that supporting these businesses strengthens a food ecosystem providing accessible, culturally relevant food.

Questions from Councilors to Office of Food Justice and Office of Economic Opportunity and Inclusion

• Councilor Breadon:
  • Good Food Purchasing Ordinance: Confirmed it applies to food purchases by other city departments (e.g., Age Strong, Veterans Affairs).
  • Monopolies in Food Chain: Asked about intervening in rising food costs due to monopolies.
    • Response (Aliza Wasserman): Requires regional collaboration; national organizations like the Center for Good Food Purchasing are exploring "power of procurement." Mentioned potential state legislation to strengthen antitrust acts.
  • Food Deserts and Zoning: Discussed food deserts in Allston-Brighton (e.g., Oak Square, Brighton Center) and the loss of grocery stores to general retail (e.g., CVS). Asked about working with the planning department on zoning reform.
    • Response (Aliza Wasserman): Planning department's upcoming needs assessment will include mapping grocery stores to understand neighborhood access.
    • Response (Elijah): Planning has historically helped enable groceries, and reducing regulatory burdens can help private operators.
• Council President Louijeune:
  • SNAP Recipient Zip Codes: Asked for clarification on the six zip codes with 50% of Boston's SNAP recipients and sales.
    • Response (Aliza Wasserman): Confirmed they are in Roxbury, Dorchester, Mattapan, and Hyde Park; offered to provide specific zip codes. Data on specific markets for SNAP sales is not publicly available.
  • Feasibility Studies for Municipal Groceries: Asked if the Office of Food Justice could conduct or commission a study similar to those in Chicago, Minneapolis, or Madison.
    • Response (Aliza Wasserman): Unsure if additional knowledge would be gained but could investigate.
  • Advantages of City-Owned Groceries: Asked about potential benefits of the city leaning into creating or sponsoring grocery stores, especially in high-need neighborhoods.
    • Response (Aliza Wasserman): Would need to learn more about how such a model would work.
    • Response (Elijah): Historically, planning has helped enable groceries, and reducing regulatory burdens can help private operators.
  • Challenges of Non-Profit Grocers: Asked about the difficulties faced by non-profit grocers like Daily Table and Dorchester Food Co-op, and how the city can help.
    • Response (Aliza Wasserman): Difficult for smaller independent stores to achieve economies of scale. Margins are very low, and it takes 8-10 years for a grocery store to break even. Discussed collaborating with Metropolitan Area Planning Council and other cities.
    • Response (Council President Louijeune): Suggested rent as a major operational cost that city intervention could address.
• Councilor Worrell:
  • Healthy Incentives Program (HIP): Asked for an explanation of HIP and why only 10% of SNAP recipients use it.
    • Response (Aliza Wasserman): HIP provides an additional $40-$80 monthly (depending on household size) for fresh fruits and vegetables purchased with SNAP at authorized farmers markets, farm stands, or mobile markets.
    • Reasons for low uptake: Lack of awareness, inconvenience of locating markets, and insufficient state-level promotion. The BPHC and Office of Food Justice are conducting promotional events.
    • HIP in high-need areas: Believes most farmers markets in Dorchester, Mattapan, Roxbury, and Hyde Park are HIP-eligible; DTA finder maps vendors.
  • Community Gardens: Asked about assessments of community gardens and efforts to increase production.
    • Response (Aliza Wasserman): Would need to confer with colleagues in Grow Boston.
• Councilor Weber:
  • SNAP Benefit Adequacy: Asked what the city can do to compensate for insufficient SNAP benefits, even when fully paid.
    • Response (Aliza Wasserman): Exploring municipal roles in helping eligible residents meet work requirements for SNAP recertification, potentially through community organizations.
  • Questions for City-Run Grocery Store: Asked what questions need to be answered before opening a city-run grocery store.
    • Response (Elijah): Many operational challenges (supply chains, volume, customer demand) would need to be addressed. Feasibility assessments are possible, but the industry is tough due to thin margins.
  • Public-Private Partnerships: Asked about the feasibility of public-private partnerships, citing Atlanta's model.
    • Response (Elijah): Not familiar with Atlanta's model but interested in learning more.
• Councilor Fitzgerald:
  • Publicly Owned vs. Inviting Existing Markets: Questioned the difference between setting up a publicly owned grocery store and attracting consumer-friendly existing markets.
    • Response (Elijah): The goal is broad food affordability. Zoning reforms (e.g., Article 80) could lead to private grocers keeping prices contained.
  • Investment in Non-Profits: Asked about the total public investment in initiatives like the Dorchester Food Co-op and Nubian Square.
    • Response (Elijah): Dorchester Food Co-op received at least $100,000 for capital expenses. Total figures would require further research.
    • Councilor Fitzgerald: Expressed concern about financial struggles of city-backed initiatives and learning from past experiences.
• Councilor Pepén (Chair):
  • Blueprint for City-Run Grocery: Asked if any existing city-managed entities or municipalities could serve as a blueprint.
    • Response (Elijah): Not aware of direct analogies.
  • Partnerships with Other Grocery Stores: Asked about partnering with other grocery stores, especially for vacant spaces like the former Daily Table in Mattapan.
    • Response (Elijah): Offices are in communication about business recruitment for such spaces.
    • Response (Aliza Wasserman): Offices are in communication about those specific spaces.

Closing Remarks from Office of Food Justice and Office of Economic Opportunity and Inclusion

• Aliza Wasserman: Appreciated the Council's deep concern for the issue.
• Elijah: Thanked the Council for their work and dedication.

Agenda Item: Public Testimony and Panel Discussion

Opening Statements from Panelists

• Darren Lita, Board Co-President, Dorchester Food Co-op:
  • Stated Dorchester Food Co-op is the only community-owned grocery store in Boston, founded over 10 years ago.
  • Emphasized collective empowerment, community ownership, and culturally competent offerings (e.g., peanut oil, bok choy, local produce).
  • Provides free meeting space, culturally competent cafe, bulk services, and is environmentally conscious.
  • Located in one of the first climate-friendly buildings with affordable housing above.
  • Members (one-time $100 payment) vote on board members and receive discounts.
  • Faces challenges with shopper numbers and administrative hurdles for SNAP/WIC.
• Maxwell Cheesum, Assistant Executive Director, Maverick Land and Community Services:
  • Organization founded in 2007, serving East Boston, particularly public housing residents.
  • Food program expanded during the pandemic due to unmet needs.
  • Usage of food programs has more than doubled since November.
  • Provides distributions at their site, Humana Elementary School, and a nearby church.
• Ellen May, Chapter President, NTEU 255 (USDA FNS):
  • Disclaimed that views are personal, not representing USDA FNS.
  • USDA FNS Northeast Regional Office (45 employees) provides oversight for 16 federal nutrition programs across New England, NY, and US Virgin Islands.
  • Expressed concern about the planned closure of the Northeast Regional Office, which would hinder support for state agencies administering SNAP and child nutrition programs.
  • Shared personal experience of facing disciplinary action for speaking publicly about government shutdown impacts on federal employees and SNAP/WIC.
  • Confirmed SNAP/WIC benefits are accepted at any store meeting FNS requirements.
• Jack Kensla, Political Director, UFCW Local 1445:
  • Representing over 800,000 grocery workers nationally, including 1,000 at nine Stop & Shop locations.
  • Attributed food insecurity to "unchecked corporate greed" and the non-enforcement of the Robinson-Patman Act (1930s), which prevented discriminatory discounts to large retailers.
  • Noted the rise of food deserts after the 1990s and the decline of independent grocers.
  • Discussed challenges of municipal grocery models: high costs of warehousing, transportation, cold storage, and real estate.
  • Proposed the Municipally Owned, Privately Operated (MOPO) model as a successful approach, mitigating costs by municipal ownership while leveraging existing private logistics.
  • Suggested reducing self-checkout machines to combat retail theft and increase cashier jobs.
  • Advocated for labor peace agreements and prevailing wage requirements in city-backed grocery initiatives.
  • Cited the New Jersey Food Desert Relief Act (2021) as a model, providing up to 40% financing for new grocery stores in food deserts, with requirements for WIC/SNAP access and fresh food offerings.
  • Emphasized market analysis to avoid competing with existing unionized or independent grocers providing good jobs.
• Terry Trotman, Neighborhood Food Action Collaborative (NFAC) & Boston Food Access Council (BFAC) (Virtual):
  • Highlighted the significant need for food, evidenced by long lines at food distributions.
  • Noted that many people are unaware of HIP benefits on their EBT cards.
  • Mentioned community fridges (Claiborne Street, Millet Street) and the Edgewater Food Forest in Mattapan as community-led initiatives.
  • NFAC and BFAC appreciate the hearing, viewing it as a critical step to address food access inequities.
  • Stated that community members are skeptical of publicly owned grocery stores due to lack of clarity, historical distrust of government, and fear of unsustainability.
  • Urged the city to ensure interventions are reliable, sustainable, rigorously planned, and community-centered.
  • Advocated for broad, frequent, and accessible communication.
  • Suggested learning from other municipalities like New York City and Worcester.
• Shawna Weaver, Boston Food Access Council Steering Committee (Virtual):
  • Echoed Terry Trotman's remarks and offered to answer questions.
• Brianna Acosta, Project Manager, Vital Connections (Virtual):
  • Supported Terry Trotman's statement on behalf of NFAC and BFAC.

Questions from Councilors to Panelists

• Councilor Breadon:
  • Optimal Scale for Urban Grocery Store: Asked about the optimal size for an urban grocery store, considering real estate costs and product range.
    • Response (Jack Kensla): Smaller footprints mean fewer options, often curtailing fresh produce. MOPO model can cut upfront costs.
    • Response (Darren Lita): Criticized corporations like Whole Foods and Stop & Shop for not prioritizing community. Emphasized that co-ops face systemic barriers (e.g., SNAP/WIC administrative burden) designed to hinder smaller entities.
    • Response (Maxwell Cheesum): Highlighted the logistical impact of a loading dock for scaling operations, distinguishing grocery stores from bodegas.
  • Squares and Streets and Displacement: Asked about concerns regarding displacement of smaller independent grocers due to redevelopment.
    • Response (Darren Lita): Stated co-ops are an addition, not a displacement, to address systemic problems.
• Council President Louijeune:
  • New Jersey Food Desert Relief Act: Asked Jack Kensla for more insight into the New Jersey model.
    • Response (Jack Kensla): The act provides financing for up to 40% of costs for new grocery stores in food deserts, with a 7-year investment period for sustainability. Includes requirements for WIC/SNAP access, labor peace agreements, and prevailing wages.
  • Challenges of Community Grocers: Asked Darren Lita about challenges at Dorchester Food Co-op and how the city can help.
    • Response (Darren Lita): Lack of consistent support from elected officials post-opening. Relies on donations and grants due to low shopper numbers. Pricing is a major challenge. Emphasized the need for "active participation" from members and the community (e.g., shopping, volunteering, grant writing). Highlighted the co-op's unique offerings (local products, free meeting space, library).
    • Response (Council President Louijeune): Suggested exploring recurring smaller membership payments.
• Councilor Weber:
  • Impact of SNAP Changes: Asked Ellen May about the impact of HR1 changes on SNAP eligibility in Boston.
    • Response (Ellen May): Changes extend work requirements for "able-bodied adults without dependents" to ages 18-64 (previously 18-60). Veterans and homelessness exemptions were removed. Cannot speculate on specific numbers but summarized the changes.
  • Food Deserts in Boston: Asked panelists to identify food deserts and where intervention would be most effective.
    • Response (Maxwell Cheesum): East Boston, Roxbury, Mattapan, Dorchester have food deserts. Noted that areas are food deserts because they are unprofitable for market-driven solutions, requiring continuous public investment.
• Councilor Fitzgerald:
  • Sustainability of Funding: Expressed concern about the long-term sustainability of funding for initiatives given changes in political leadership and priorities.
    • Response (Ellen May): SNAP benefits generate significant economic activity ($1.54-$1.80 per $1 spent), which can help sustain markets.
    • Response (Maxwell Cheesum): Food is prevention for health conditions; initial investment can lead to long-term savings in healthcare costs. Grocery models are more efficient than food banks, providing continuous access and customer choice.
    • Response (Darren Lita): Criticized misallocation of funds (e.g., military budget) and emphasized that "we could demand more from our elected officials." Highlighted the connection between food insecurity and structural drivers of health, not just social. Mentioned food prescription programs (e.g., Atrius Equity Foundation partnership with Upham's Corner Health Center).
    • Response (Jack Kensla): Once a benefit is in place and relied upon, it's difficult to take away, providing some stability.
• Councilor Pepén (Chair):
  • Dorchester Food Co-op Funding and Location: Asked about the co-op's funding structure and the process for securing its location.
    • Response (Darren Lita): Funded by donations, grants (city, federal), and member capital (over 2,300 members). Location was a "win-win" in a new, environmentally conscious development with affordable housing. Initial capital was used for operations due to low shopper numbers.
  • Partnerships and Outreach: Asked about partnerships with Boston Public Schools family liaisons and community health centers for outreach.
    • Response (Darren Lita): In contact with liaisons and Main Streets, but limited by volunteer capacity. Emphasized the need for community members to volunteer and spread awareness.
    • Response (Councilor Pepén): Highlighted the cultural aspect of food choices and the need to break cycles of unhealthy eating.
    • Response (Darren Lita): Emphasized agency and collective power, stating that the issue is systemic, not individual.
    • Response (Ellen May): Noted that federal programs like SNAP Education (which funded food prescription programs and community gardens) were casualties of HR1, creating gaps for city government to fill.
    • Response (Brianna Acosta): Suggested redirecting wealth from other industries (e.g., Big Pharma, healthcare) through policy. Emphasized community-led design and engagement (e.g., NFAC's Food Resource Advocates).
    • Response (Terry Trotman): Reiterated the visible need for food, long lines at pantries, and the importance of utilizing existing resources like vacant Daily Table locations.
    • Response (Maxwell Cheesum): Advocated for universal programs (like free school lunch) to avoid means-testing inefficiencies and stigma. Highlighted the efficiency of grocery models with inherent feedback loops compared to non-profit food models.

Public Testimony

• Will Hanson, Allston Brighton Health Collaborative:
  • Thanked everyone for their work.
  • Shared a personal story about the importance of local, affordable produce (Johnny D's) for mental and physical well-being.
  • Emphasized "food access is community care" and the importance of proximity.
  • Mentioned the Allston Brighton Health Collaborative's work with the planning department on transportation and temporary food kiosks.
  • Highlighted areas like Oak Square lacking resources.

Closing Statements from Panelists and Councilors

• Ellen May: Reaffirmed that federal employees prioritize feeding people and that means-testing creates inefficiencies.
• Council President Louijeune: Thanked all participants, especially Ellen May for her bravery. Emphasized that "our system writ large is the issue" and the need for structural changes.
• Councilor Pepén (Chair): Thanked all panelists for their work and insights, emphasizing the importance of the topic for Boston residents and the Commonwealth. Stated that this is an ongoing conversation.

Official Actions and Decisions

• No official actions or votes were taken during this hearing, as it was for discussion purposes only.
• The hearing on Docket #1791 was adjourned.