City governments are increasingly incorporating urban and peri-urban agriculture into their policies and programs, a trend seen as advancing sustainability, development, and food security. Urban governance can provide new opportunities for farmers, but it also creates structures to control their activities, lands, and purposes.

This study focused on Mexico City, which is celebrated for its agricultural traditions and policies. The study examined: 1) the functions of urban and peri-urban agriculture that the Government of Mexico City (GMC) manages and prioritizes; 2) how the GMC’s policies have framed farmers, and how that framing affects farmers’ identity and purpose; and 3) how the inclusion of agrarian activities and lands in the city’s climate-change adaptation plan has created opportunities and obstacles for farmers. Data was collected through participant observation of agricultural and conservation events, informal and semi-structured interviews with government and agrarian actors, and analysis of government documents and budgets.

Analysis of policy documents revealed that the GMC manages agriculture as an instrument for achieving urban objectives largely unrelated to food: to conserve the city’s watershed and provide environmental services. Current policies negatively frame peri-urban agriculture as unproductive and a source of environmental contamination, but associate urban agriculture with positive outcomes for development and sustainability. Peri-urban farmers have resisted this framing, asserting that the GMC inadequately supports farmers’ watershed conservation efforts, and lacks understanding of and concern for farmers’ needs and interests. The city’s climate plan implicitly considers farmers to be private providers of public adaptation benefits, but the plan’s programs do not sufficiently address the socioeconomic changes responsible for agriculture’s decline, and therefore may undermine the government’s climate adaptation objectives.

The findings illuminate the challenges for urban governance of agriculture. Farms do not become instruments for urban sustainability, development, and food security simply because the government creates policies for them. Urban governments will be more likely to achieve their goals for agriculture by being transparent about their objectives, honestly evaluating how well those objectives fit with farmers’ needs and interests, cultivating genuine partnerships with farmers, and appropriately compensating farmers for the public benefits they provide.

Scholars have highlighted the role of disturbance and crisis, including disasters, in enabling systemic change towards sustainability. However, there are relatively few empirical studies on how individuals and organizations are able to utilize disasters as opportunities for change towards sustainability. This dissertation addresses three questions applied to two case studies: First, what changes were pursued in the aftermath of disasters, and to what extent did these changes contribute to sustainability? Second, how were people (and their organizations) able to pursue change towards sustainability? Third, what can be learned about seeing and seizing opportunities for change towards sustainability in disaster contexts and about sustaining those introduced changes over time?

The research entailed the creation of a theoretical framework, synthesizing literature from disaster studies and sustainability transition studies, to enable cross-case comparison and the appraisal of sustainability outcomes (Chapter 1). The framework was applied to two empirical case studies of post-disaster recovery: the 2004 Indian Ocean Tsunami in Aceh, Indonesia (Chapter 2), and the 2010-2012 series of earthquakes in the greater Christchurch area, New Zealand (Chapter 3).

The research revealed no systemic change towards sustainability in either case, although change towards sustainability was pursued in various areas, such as housing, educating, caring, and engaging in governance. Opportunities for sustainability emerged at different points following the disaster; change processes are ongoing. The sustainability changes were supported by “Sustainability Change Agents” (SCAs): people who were able to see and seize opportunities for change towards sustainability in the midst of disaster. SCAs were characterized as individuals with various attributes, starting with an ability to perceive opportunities, catalyze others to support this risk-taking endeavor, and stay in the endurance race. The study concludes with some recommendations for interventions to inform pre-disaster sustainability planning. These avenues include a toolbox and a curricular approach that would educate and enable students as future professionals to see and seize opportunities for change towards sustainability in disaster contexts (Chapter 4).