Public food procurement, EU sustainability criteria

Framework structure and scope

The Sustainable Public Procurement (SPP) framework builds upon existing Green Public Procurement (GPP) criteria established in 2008, which focused primarily on environmental aspects, by coherently integrating health, nutrition, and animal welfare considerations into a comprehensive sustainability approach. The criteria encompass modifications to existing EU GPP provisions where information is outdated or requires clarification, alongside entirely new criteria covering socio-economic issues in the form of technical specifications, award criteria, and contract performance clauses (García-Herrero et al., 2025). The document acknowledges that population health constitutes an essential sustainability component, given that unhealthy diets contribute to non-communicable diseases, increased healthcare expenditure, social disparities, and environmental degradation (FAO, 2023).

The analysis underlying these criteria drew from extensive review of relevant literature and experiences already operative at Member State level, revealing the richness and variety of measures currently implemented (García-Herrero et al., 2024; Agora Agriculture and IDDRI, 2025). The development process involved comprehensive hotspots analysis across the entire value chain and sustainability dimensions, highlighting the most relevant areas requiring intervention, including those not or only partially addressed by current EU GPP criteria. Significantly, the framework underwent extensive consultation with over 200 stakeholders active in food procurement, including national and local authorities, food business operators, civil society organisations, and academic institutions, ensuring that criteria reflect practical realities whilst maintaining scientific rigour (García-Herrero et al., 2025).

Organic food products: enhanced flexibility and market development

The revised criteria for organic food products address stakeholder concerns regarding supply-demand gaps, particularly for certain products and regions where domestic capacity for organic production remains insufficient. The framework introduces critical flexibility by allowing producers undergoing organic conversion – according to Regulation (EU) 2018/848 – to participate in public procurement, potentially accelerating growth in domestic supply of organic products. Core criteria propose that 20-60% by mass (or 30-70% by value) of total food and drink products purchased comply with organic standards, while comprehensive criteria exceed 50% by mass (or 60% by value) (García-Herrero et al., 2025). The guidelines emphasise that contracting authorities should establish appropriate thresholds through market dialogue, allowing progressive implementation facilitating uptake and adaptation to market dynamics over time.

Research demonstrates that increasing organic food procurement together with reduction of animal-based products does not necessarily lead to increased meal costs. Organic food procurement represents the oldest element of sustainable public procurement in Europe, and the Vision for Agriculture and Food reiterates its importance as a useful demand-side incentive. The framework provides concrete examples from Member States including Austria’s progressive objectives to achieve 55% organic procurement by 2030, Denmark’s successful programme that achieved significant organic uptake in public sector kitchens, and Madrid’s nurseries which utilise 100% organic products for key food groups (García-Herrero et al., 2025).

Fishery and aquaculture: comprehensive sustainability criteria

The SPP framework significantly enhances criteria for fishery and aquaculture products, recognising that existing provisions focus heavily on commercial certification schemes which may not fully account for critical sustainability aspects including seasonality of fish stocks, seabed impacts from fishing methods, and traceability of feed used in aquaculture. Core criteria mandate that no fish products originate from species and stocks identified in ‘fish to avoid’ lists reflecting the state of fish stocks in different regions, while comprehensive criteria require that products originate from stocks within safe biological limits, addressing environmental impacts including over-fishing, biodiversity loss, and responsible resource use (García-Herrero et al., 2025).

The guidelines encourage contracting authorities to develop specific ‘fish to avoid’ lists for their particular situations while considering seasonality of wild fish stocks. Simultaneously, authorities may provide lists of underutilised marine and aquaculture species whose stocks are healthy but not subject to overfishing due to consumer preferences or market dynamics, including products from low-trophic fisheries such as mussels, clams, and small fish (García-Herrero et al., 2025). Verification prioritises stock assessments by the International Council for the Exploration of the Sea, followed by contracting authority-developed avoidance lists, with commercially available certifications such as Marine Stewardship Council and Aquaculture Stewardship Council serving as tertiary verification mechanisms. Animal welfare standards for aquaculture products receive explicit attention (García-Herrero et al., 2025).

Animal welfare: species-specific requirements

The Sustainable Public Procurement (SPP) framework establishes comprehensive animal welfare criteria targeting specific animals and encompassing the entire rearing lifecycle including housing, transport, and slaughter. For poultry (broilers), technical specifications mandate use of slow-growing breeds with daily average gain below 50 grams per day, controlled atmospheric stunning using inert gas or multi-phase systems, prohibition of cages, and stocking density not exceeding 33 kilograms per square metre (García-Herrero et al., 2025). Pork procurement requires that animals’ tails have not been docked, with preference for non-surgically castrated pigs; where castration occurs, anaesthesia and analgesia must be employed. For all animals, transport time between primary producer and slaughterhouse shall not exceed eight hours maximum.

The guidelines note that some Member States provide very specific animal welfare criteria with different provisions per animal and livestock system, often accompanied by lists of animal welfare labels deemed equivalent in requirements to procurement criteria (García-Herrero et al., 2024). The framework acknowledges stakeholder concerns regarding absence of a comprehensive EU-level animal welfare label, which would facilitate harmonised approaches. Award criteria propose proportional point allocation for tenders where eggs in shell are labelled ‘free range’, and where meat and dairy products comply with recognised certification schemes addressing general aspects, housing, density, minimum antibiotic use, slaughter, maximum transportation time, and access to pasture for dairy cows (García-Herrero et al., 2025).

Sustainable agricultural management practices

The guidelines introduce entirely new criteria targeting sustainable agricultural practices beyond organic certification, recognising that various management approaches can deliver environmental benefits. Award criteria encompass integrated pest management practices limiting synthetic pesticide use, water management techniques including efficient irrigation systems and rainwater harvesting, soil conservation practices such as reduced tillage and cover cropping, and biodiversity enhancement measures including maintenance of hedgerows and buffer strips (García-Herrero et al., 2025). These criteria acknowledge that while organic farming receives considerable attention in procurement policies, other sustainable practices merit recognition and incentivisation.

Points are proportionally awarded to tenders demonstrating agricultural management practices that reduce environmental impact beyond conventional methods, with verification requiring third-party certification, audit reports, or detailed documentation of practices employed. The framework recognises that sustainable agricultural management encompass practices addressing climate change mitigation, biodiversity conservation, water resource protection, and soil health enhancement. This approach provides contracting authorities with flexibility to reward various sustainability pathways whilst encouraging continuous improvement in agricultural practices (García-Herrero et al., 2025).

Working conditions and social inclusion

The Sustainable Public Procurement (SPP) framework introduce contract performance clauses addressing working conditions throughout the supply chain, recognising that labour rights constitute a critical sustainability dimension often insufficiently addressed in existing frameworks. The criteria require contractors to demonstrate compliance with International Labour Organisation (ILO) core conventions, provide safe and healthy working environments, ensure fair wages and working hours, prohibit child labour and forced labour, and guarantee freedom of association and collective bargaining rights (García-Herrero et al., 2025). Additionally, the framework promotes reserved contracts for social enterprises employing workers with disabilities or disadvantaged workers, consistent with Article 20 of Directive 2014/24/EU (European Parliament and the Council, 2014).

Verification mechanisms include provision of relevant certifications or audit reports demonstrating compliance with labour standards, supplier declarations confirming adherence to requirements, and monitoring systems ensuring ongoing compliance throughout contract execution. The document acknowledges that certain supply chains – such as tea, coffee, cocoa, exotic fruit and fruit juices, tomatoes, fishery and aquaculture products, etc. – present critical issues with regard to social and labour conditions, necessitating further investigation into the extent to which existing certifications adequately cover these critical issues. The guidelines emphasise that addressing working conditions throughout supply chains contributes not only to social sustainability but also to economic sustainability by promoting fair and ethical business practices (García-Herrero et al., 2025).

Short supply chains and local food systems

The Sustainable Public Procurement (SPP) criteria address short supply chains through contract performance clauses and strategies facilitating farmers’ access to contracts, while acknowledging scholarly debate regarding the environmental benefits of local food systems. The guidelines emphasise that ‘local’ procurement must be carefully defined to ensure genuine sustainability benefits, noting that geographical proximity alone does not guarantee environmental advantages. Contract performance clauses encourage subdivision of tenders into smaller lots or direct contracts, making procurement more accessible for small and medium enterprises involved in short supply chains, thereby strengthening links between urban centres and local rural communities (García-Herrero et al., 2025).

The framework proposes several best practices facilitating farmers’ participation including pre-procurement market engagement to identify barriers to small-scale farmer participation, reserved contracts for producers employing disadvantaged workers, subdivision of tenders into smaller lots corresponding to specific food types, Dynamic Purchasing Systems enabling qualified suppliers to join at any time and supply quantities they produce, and support for BioRegions or Organic Districts where farmers, citizens, and public authorities collaborate on sustainable resource management (García-Herrero et al., 2025). These approaches aim to diversify food supply chains, strengthen food security, and provide opportunities for small and medium enterprises whilst avoiding prescriptive geographical restrictions that might conflict with procurement directives.

Comprehensive nutritional criteria

The Sustainable Public Procurement (SPP) guidelines establish extensive nutritional criteria designed to align public procurement with dietary guidelines and promote healthier food choices, representing an innovative integration of health considerations into sustainability frameworks. For salt, technical specifications mandate that daily intake not exceed two grams for children and five grams for adults, with proportional allocation based on percentage of meals consumed in public canteens (García-Herrero et al., 2025). Specific provisions require that salt not be freely available for adding to prepared food for children under 18 years, only unsalted nuts and seeds be offered, and foods containing more than one gram of salt per 100 grams not be provided. For bread, maximum salt content is limited to one gram per 100 grams for most age groups, with stricter limits (0.3 grams per 100 grams) for infants and young children under three years (García-Herrero et al., 2025).

For fat content, technical specifications ensure that total fat does not exceed 30% of total energy in menus offered throughout the catering day, with saturated fatty acids limited to less than 10% of total energy. High-quality vegetable oils such as sunflower, soybean, rapeseed, and olive oils are mandated for cooking and food processing, while highly saturated vegetable oils including palm and coconut oils should be avoided. Nuts and seeds (20-30 grams) must be offered on at least 40% of catering days, with appropriate safety precautions for children under five years. Deep-fried products are prohibited for children under 18 years and limited to twice weekly for other age groups (García-Herrero et al., 2025). For free sugars, the guidelines mandate that intake be as low as possible, with specific targets of less than 5% of total energy for children aged 3-18 years and less than 10% for adults, whilst foods and beverages containing free sugars should be completely avoided for infants and children under three years (García-Herrero et al., 2025; EFSA, 2022).

The nutritional criteria encompass detailed provisions for preferred carbohydrate sources, requiring that grains and grain products be offered in whole-grain form on at least half of catering days, with whole-grain bread as the sole bread option on at least half of catering days. A variety of fresh vegetables and fruits must be offered daily, with minimum requirements of five portions daily in 24-hour catering settings. Pulses must be provided as main dishes on at least 20% of half-day catering days and 40% of 24-hour catering days, recognising their importance as protein sources and their relatively low environmental impact (García-Herrero et al., 2025).

For meat products, the SPP framework requires that contracting authorities limit red meat servings based on Food-Based Dietary Guidelines from each Member State, recognising variation in national recommendations. Processed meat must be offered sparingly, with restrictions ensuring it constitutes no more than 25% of dishes when included, and is only offered if explicitly deemed appropriate by Member State guidelines. The criteria emphasise that high-temperature cooking methods should be avoided to minimise production of potentially hazardous compounds, with preference for low-temperature cooking and pre-trimming of visible fat before cooking (García-Herrero et al., 2025).

Fishery and aquaculture products must be offered at minimum once weekly in half-day catering (with oily fish every other week) and twice weekly in 24-hour catering (with at least one oily fish option), recognising the nutritional importance of long-chain omega-3 polyunsaturated fatty acids whilst acknowledging potential risks from contaminants. For dairy products, half-day catering must offer a portion of milk or dairy products daily, while 24-hour catering must provide them twice daily. Award criteria incentivise reduction of cheese consumption through adaptation of recipes, portion control, and offering cheese as optional toppings rather than integral ingredients. Alcohol provisions are particularly stringent, prohibiting alcoholic drinks completely in educational and clinical settings, restricting their use in meal preparation for those under 18 years, and limiting serving sizes to maximum 10 grams of pure alcohol per container in settings where adult consumption is permitted (García-Herrero et al., 2025).

Food waste prevention and monitoring

The Sustainable Public Procurement (SPP) guidelines establish comprehensive food waste prevention criteria recognising that reducing waste contributes simultaneously to environmental protection, economic efficiency, and social responsibility. Technical specifications require contractors to implement waste prevention plans including forecasting and planning measures to minimise overproduction, proper storage and stock rotation systems to prevent spoilage, flexible portion sizing options enabling consumers to request appropriate quantities, and redistribution systems for surplus food to charitable organisations. Award criteria incentivise innovation in waste reduction, including dynamic menu planning based on actual consumption patterns, improved inventory management systems employing predictive analytics, and adoption of technologies facilitating food redistribution (García-Herrero et al., 2025).

The framework emphasises importance of monitoring sustainability indicators at different levels, enabling public authorities to evaluate environmental, social, and economic impacts of procurement decisions. Monitoring criteria require contractors to establish systems tracking key performance indicators across multiple dimensions including quantities of organic, fair trade, and locally sourced products procured; compliance rates with nutritional criteria; food waste quantities and redistribution rates; greenhouse gas emissions from food procurement and service operations; water consumption; and social indicators including employment conditions and inclusion of disadvantaged groups. This comprehensive monitoring approach supports evidence-based refinement of procurement strategies whilst demonstrating accountability to stakeholders and facilitating comparison across different procurement contexts (García-Herrero et al., 2025).

Implementation support and capacity building

Recognising that stakeholders frequently cite lack of tools, skills, and operational guidelines as barriers to implementing sustainable procurement, the framework provides extensive implementation support. This includes guidance on Life Cycle Assessment methodologies, specifically recommending the Environmental Footprint methods endorsed by the Commission, which allow comparison of products for informed decision-making concerning environmental impacts across supply chains. The framework acknowledges that whilst Life Cycle Assessment represents a pivotal methodology for identifying hotspots and supporting environmental performance monitoring, certain limitations persist in capturing positive externalities of specific farming practices or fishery activities.

The guidelines emphasise that gradual and incremental implementation of criteria can prove beneficial for effective uptake, with adequate training alongside available support and tools constituting key enablers. The framework concludes with dedicated sections on possible tools and recommendations supporting adoption of sustainable public procurement criteria, including strategies for implementing nutritional criteria, monitoring and evaluation protocols at different governance levels, market dialogue procedures facilitating interaction between contracting authorities and suppliers before procurement procedures commence, and approaches for stakeholder participation and involvement. The guidelines stress that criteria must form part of broader procurement policies and strategies, with setting clear objectives in policy and organisational strategy representing the first step towards sustainable public procurement (García-Herrero et al., 2025).

Conclusions

These comprehensive EU guidelines represent a milestone in transforming European food systems toward sustainability. The voluntary framework allows authorities to adapt sustainability criteria to regional needs while promoting convergence around core principles, providing scientifically grounded, practical tools that can harmonize sustainable procurement across Member States and accelerate market transformation.

Implementation will directly result in public authorities procuring more sustainable food, which incentivizes supply chains – from farmers to industry – to enhance product sustainability while facilitating adoption of healthier diets from sustainable sources. Beyond direct procurement impacts, the demand pull will stimulate market supply for sustainable products, improving availability and access to sustainable food in non-public settings, promoting sustainable choices by all food system actors, and encouraging sustainable diets across society.

Sustainable public procurement shapes favorable, transparent food environments, steers consumer behavior particularly in educational settings, and increases sustainability across entire value chains. The framework complements numerous policy instruments influencing sustainable consumption – from agricultural policies and environmental measures to nutrition and animal welfare – implemented at local, national, and EU levels, comprehensively addressing environmental, social, and economic dimensions.

Dario Dongo

Photo by Toa Heftiba on Unsplash

References

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• FAO. (2023). Europe and Central Asia – Regional Overview of Food Security and Nutrition 2023: Statistics and trends. https://doi.org/10.4060/cc8608en

• García-Herrero, L., Pérez Cornago, A., Casonato, C., Sarasa Renedo, A., Bakogianni, I., Wollgast, J., Gama Caldas, M., Maragkoudakis, P., & Listorti, G. (2025). Criteria for sustainable public procurement (SPP) for food, food services, and vending machines (JRC139495). Publications Office of the European Union. https://doi.org/10.2760/0895877

• García-Herrero, L., Casonato, C., Perez Cornago, A., Sanyé-Mengual, E., Sarasa Renedo, A., Bakogianni, I., Wollgast, J., Gama Caldas, M., Maragkoudakis, P., & Listorti, G. (2024). Overview and analysis of sustainable product procurement criteria in the EU food sector. Publications Office of the European Union, Luxembourg. JRC139598. https://data.europa.eu/doi/10.2760/1286793

• EFSA NDA Panel (EFSA Panel on Nutrition, Novel Foods and Food Allergens), Turck D, Bohn T, Castenmiller J, de Henauw S, Hirsch-Ernst KI, Knutsen HK, Maciuk A, Mangelsdorf I, McArdle HJ, Naska A, Pelaez C, Pentieva K, Siani A, Thies F, Tsabouri S, Adan R, Emmett P, Galli C, Kersting M, Moynihan P, Tappy L, Ciccolallo L, de Sesmaisons-Lecarre A, Fabiani L, Horvath Z, Martino L, Munoz Guajardo I, Valtuena Martınez S and Vinceti M. (2022). Scientific Opinion on the tolerable upper intake level for dietary sugars. EFSA Journal 2022;20(2):7074, 337 pp. https://doi.org/10.2903/j.efsa.2022.7074

• European Parliament and the Council (2014). Directive 2014/24/EU of the European Parliament and of the Council of 26 February 2014 on public procurement. Current consolidated version: 01/01/2024 http://data.europa.eu/eli/dir/2014/24/oj