Designing metropolitan food reserve portfolios for urban food resilience: A policy-design case from Surabaya, Indonesia
DOI:
https://doi.org/10.47818/DRArch.2026.v7i2210Keywords:
city-region food systems, collaborative governance, food reserves, metropolitan planning, urban food resilienceAbstract
Urban food resilience is often treated as a question of agricultural production, staple stock availability, or emergency food aid. Such interpretations are useful but incomplete for dense metropolitan regions whose food security depends on household coping capacities, neighborhood retail systems, civic redistribution networks, market information, municipal logistics, and inter-regional procurement. This article develops a qualitative policy-design case study of Surabaya, Indonesia, to examine how metropolitan food reserves can be planned beyond conventional stockholding. Using a documentary archive consisting of a 2022 food-reserve focus group discussion report, presentation materials, coordination notes, food-station and food-bank models, local food-security mapping, and urban baseline records, the study codes stakeholder inputs by problem domain, actor mandate, reserve function, spatial scale, and implementation risk. The analysis shows that Surabaya’s favorable food-security classification coexists with structural dependence on external supply, limited urban agricultural land, long market chains, food-quality concerns, storage and budget risks, and fragmented reserve governance. Rather than treating sustainable home-food garden areas, women's farmer groups, family welfare and empowerment groups, city food units, food banks, food stations/municipally owned food enterprises, and inter-regional procurement as separate alternatives, the article reconstructs them as a collaborative food reserve portfolio. The contribution is conceptual and policy-design oriented: it reframes urban food reserves as a multi-scalar governance architecture composed of material stocks, social provisioning, surplus redistribution, city-region logistics, rules, data, and emergency capacities. The model is best read as a pilotable planning framework, not as evidence of program impact, and is intended to help planners translate fragmented food-security instruments into coordinated, monitorable resilience functions.
Downloads
References
Ansell, C., & Gash, A. (2008). Collaborative governance in theory and practice. Journal of Public Administration Research and Theory, 18(4), 543-571. https://doi.org/10.1093/jopart/mum032
Badan Pangan Nasional. (2024a). NFA dorong peningkatan sinergi dan kolaborasi Perum Bulog untuk menjaga stabilitas pasokan dan harga beras. Badan Pangan Nasional.
Badan Pangan Nasional. (2024b). Perpanjangan relaksasi HET beras medium dan premium untuk menjaga stabilitas pasokan di pasar tradisional dan retail modern. Badan Pangan Nasional.
Badan Pangan Nasional. (2024c). Blusukan di Pasar Nambangan Surabaya, Kepala NFA dan Pj Gubernur Jatim pastikan kondisi pangan stabil dengan pasokan yang aman. Badan Pangan Nasional.
Badan Pangan Nasional. (2024d). Peraturan Badan Pangan Nasional Nomor 4 Tahun 2024 tentang Perubahan atas Peraturan Badan Pangan Nasional Nomor 6 Tahun 2023 tentang Harga Pembelian Pemerintah dan Rafaksi Harga Gabah dan Beras. Badan Pangan Nasional.
Badan Pemeriksa Keuangan Republik Indonesia. (2024). Peraturan Badan Pangan Nasional Nomor 4 Tahun 2024. Database Peraturan BPK.
Badan Pusat Statistik. (2026). Rata-rata konsumsi perkapita seminggu menurut kelompok padi-padian per kabupaten/kota. Badan Pusat Statistik.
Badan Pusat Statistik Kota Surabaya. (2025). Kota Surabaya dalam angka 2025. BPS Kota Surabaya.
Badan Pusat Statistik Provinsi Jawa Timur. (2025). Luas panen, produktivitas, dan produksi padi menurut kabupaten/kota di Provinsi Jawa Timur, 2024. BPS Provinsi Jawa Timur.
Battersby, J. (2013). Hungry cities: A critical review of urban food security research in sub-Saharan African cities. Geography Compass, 7(7), 452-463. https://doi.org/10.1111/gec3.12053
Béné, C. (2020). Resilience of local food systems and links to food security: A review of some important concepts in the context of COVID_19 and other shocks. Food Security, 12, 805_822. https://doi.org/10.1007/s12571-020-01076-1
Candel, J. J. L. (2014). Food security governance: A systematic literature review. Food Security, 6, 585-601. https://doi.org/10.1007/s12571-014-0364-2
Chambers, R. (1994). The origins and practice of participatory rural appraisal. World Development, 22(7), 953-969. https://doi.org/10.1016/0305-750X(94)90141-4
Cohen, M. J., & Garrett, J. L. (2010). The food price crisis and urban food (in)security. Environment and Urbanization, 22(2), 467-482. https://doi.org/10.1177/0956247810380375
Dinas Ketahanan Pangan dan Pertanian Kota Surabaya. (2024). Laporan Peta Ketahanan dan Kerentanan Pangan (Food Security and Vulnerability Atlas - FSVA) Kota Surabaya Tahun 2024. Pemerintah Kota Surabaya.
Emerson, K., Nabatchi, T., & Balogh, S. (2012). An integrative framework for collaborative governance. Journal of Public Administration Research and Theory, 22(1), 1-29. https://doi.org/10.1093/jopart/mur011
Ericksen, P. J. (2008). Conceptualizing food systems for global environmental change research. Global Environmental Change, 18(1), 234-245. https://doi.org/10.1016/j.gloenvcha.2007.09.002
Food and Agriculture Organization of the United Nations. (2023). Building sustainable and resilient city region food systems: Assessment and planning handbook. FAO. https://doi.org/10.4060/cc5184en
Haysom, G. (2015). Food and the city: Urban scale food system governance. Urban Forum, 26(3), 263-281. https://doi.org/10.1007/s12132-015-9255-7
Horst, M. (2017). Food justice and municipal government in the USA. Planning Theory & Practice, 18(1), 51-70. https://doi.org/10.1080/14649357.2016.1270351
Kementerian Pertanian Republik Indonesia. (2026). Gudang sewa Bulog terisi penuh, Mentan Amran optimistis swasembada pangan menguat. Kementerian Pertanian Republik Indonesia.
Krähmer, K., Dansero, E., & Pettenati, G. (2024). Towards sustainable and sufficient city region food systems: Reflections from the case study of Turin, Italy. Sustainability, 16(19), 8569. https://doi.org/10.3390/su16198569
Lambie-Mumford, H. (2013). “Every town should have one”: Emergency food banking in the UK. Journal of Social Policy, 42(1), 73-89. https://doi.org/10.1017/S004727941200075X
Luger, J., Cohen, N., & Moragues-Faus, A. (2025). Transformative urban food governance: How municipal staff coordinate urban living labs for sustainable food systems. Local Environment. https://doi.org/10.1080/13549839.2025.2486297
Manderbach, J., Tanzer, M., Breitmeier, H., & Schwindenhammer, S. (2025). Sustainable urban food system policies as a new realm for transnational city networks. International Journal of Urban Sustainable Development, 17(1), 120-135. https://doi.org/10.1080/19463138.2025.2495577
Moragues-Faus, A., & Battersby, J. (2021). Urban food policies for a sustainable and just future: Concepts and tools for a renewed agenda. Food Policy, 103, 102124. https://doi.org/10.1016/j.foodpol.2021.102124
Moragues-Faus, A., Clark, J. K., Battersby, J., & Davies, A. R. (2024). The potential of urban food governance to transform lives, cities, and the planet. Global Food Security, 40, 100751. https://doi.org/10.1016/j.gfs.2024.100751
Morgan, K. (2015). Nourishing the city: The rise of the urban food question in the Global North. Urban Studies, 52(8), 1379-1394. https://doi.org/10.1177/0042098014534902
Mourad, M. (2016). Recycling, recovering and preventing food waste: Competing solutions for food systems sustainability in the United States and France. Journal of Cleaner Production, 126, 461-477. https://doi.org/10.1016/j.jclepro.2016.03.084
Papargyropoulou, E., Lozano, R., Steinberger, J. K., Wright, N., & Ujang, Z. B. (2014). The food waste hierarchy as a framework for the management of food surplus and food waste. Journal of Cleaner Production, 76, 106-115. https://doi.org/10.1016/j.jclepro.2014.04.020
Pemerintah Kota Surabaya. (2024a). Pastikan ketersediaan stok bahan pokok jelang Ramadan, Pemkot Surabaya segera gelar Pasar Murah di 322 titik. Pemerintah Kota Surabaya.
Pemerintah Kota Surabaya. (2024b). Pemkot Surabaya optimalkan Gerakan Pasar Murah: Solusi jitu hadapi kenaikan harga bahan pokok. Pemerintah Kota Surabaya.
Pemerintah Kota Surabaya. (2024c). Pemkot Surabaya upayakan seluruh UMKM mamin memiliki sertifikasi halal. Pemerintah Kota Surabaya.
Pothukuchi, K., & Kaufman, J. L. (2000). The food system: A stranger to the planning field. Journal of the American Planning Association, 66(2), 113-124. https://doi.org/10.1080/01944360008976093
Poulsen, M. N., McNab, P. R., Clayton, M. L., & Neff, R. A. (2015). A systematic review of urban agriculture and food security impacts in low_income countries. Food Policy, 55, 131_146. https://doi.org/10.1016/j.foodpol.2015.07.002
Satterthwaite, D., McGranahan, G., & Tacoli, C. (2010). Urbanization and its implications for food and farming. Philosophical Transactions of the Royal Society B, 365(1554), 2809_2820. https://doi.org/10.1098/rstb.2010.0136
Satu Data Surabaya. (2024a). Bab V: Pertanian, peternakan dan perikanan. Pemerintah Kota Surabaya.
Satu Data Surabaya. (2024b). Bab VI: Industri. Pemerintah Kota Surabaya.
Satu Data Surabaya. (2026). Luas lahan pertanian yang diusahakan menurut jenis pengairan per kecamatan; produksi dan luas panen tanaman pangan dan sayuran. Pemerintah Kota Surabaya.
Schneider, F. (2013). The evolution of food donation with respect to waste prevention. Waste Management, 33(3), 755-763. https://doi.org/10.1016/j.wasman.2012.10.025
Sonnino, R. (2016). The new geography of food security: Exploring the potential of urban food strategies. The Geographical Journal, 182(2), 190-200. https://doi.org/10.1111/geoj.12129
Sonnino, R., Tegoni, C. L. S., & De Cunto, A. (2019). The challenge of systemic food change: Insights from cities. Cities, 85, 110-116. https://doi.org/10.1016/j.cities.2018.08.008
Tarasuk, V., & Eakin, J. M. (2005). Food assistance through surplus food: Insights from an ethnographic study of food bank work. Agriculture and Human Values, 22(2), 177-186. https://doi.org/10.1007/s10460-004-8277-x
Tendall, D. M., Joerin, J., Kopainsky, B., Edwards, P., Shreck, A., Le, Q. B., Krütli, P., Grant, M., & Six, J. (2015). Food system resilience: Defining the concept. Global Food Security, 6, 17_23. https://doi.org/10.1016/j.gfs.2015.08.001
United Nations Environment Programme. (2024). Food Waste Index Report 2024: Think eat save - Tracking progress to halve global food waste. UNEP.
Vara-Sánchez, I., Gallar-Hernández, D., García-García, L., Morán Alonso, N., & Moragues-Faus, A. (2021). The co-production of urban food policies: Exploring the emergence of new governance spaces in three Spanish cities. Food Policy, 103, 102120. https://doi.org/10.1016/j.foodpol.2021.102120
Zezza, A., & Tasciotti, L. (2010). Urban agriculture, poverty, and food security: Empirical evidence from a sample of developing countries. Food Policy, 35(4), 265_273. https://doi.org/10.1016/j.foodpol.2010.04.007
Downloads
Published
Issue
Section
License
Copyright (c) 2026 Medea Ramadhani Utomo, Yayuk Yuliati
This work is licensed under a Creative Commons Attribution 4.0 International License.
