Unpacking “the surprise chain”: the governance of food security during the COVID-19 pandemic in Melbourne, Australia

Food systems are being affected by multiple shocks related to climate change, the COVID-19 pandemic and geopolitical events. Food prices and food insecurity are rising globally as a result, raising questions about the effective governance of food security during shocks. This paper critically examines the governance of food security in Melbourne, Australia during a major food system shock, the COVID-19 pandemic. It draws on document analysis and 34 stakeholder interviews with 41 participants from government, industry and civil society between May 2020 and March 2021. The paper examines the role of these actors in governance mechanisms for two important aspects of food system governance during the COVID-19 pandemic, continuity of food supply and delivery of emergency food relief. Clark et al.’s (2021) “governance engagement continuum” is used to show how civil society groups were excluded from these formal governance mechanisms, instead establishing their own spaces of “self-governance”. The resilience aims associated with these governance mechanisms are also analyzed using Zurek et al.’s (2022) “three R’s” (robustness, recovery and reorientation) framework. Our study highlights the significant role of food industry actors in the continuity of food supply and delivery of emergency food relief, and it shows the vulnerabilities of emergency food relief that depends on industry food “surpluses” as a model for addressing food insecurity during food system shocks. We conclude that greater government leadership is needed in the governance of food security during food system shocks, and in implementation of legislative and policy approaches that are grounded in the human right to food.