Can Public Procurement Lead Us to a Meat-Free Future?

Public institutions, such as schools, hospitals, prisons, and military bases, serve millions of meals every day. This makes governments some of the largest food purchasers in the world. With such immense buying power, the question arises: could public procurement be used as a tool to promote more sustainable, plant-based diets and reduce meat consumption?

This idea is not just theoretical. It is increasingly being discussed in legal, environmental, and policy circles. The concept of leveraging public procurement law to encourage meat-free meals is gaining momentum. But while the potential is significant, the path forward is anything but simple.

The promise and pitfalls of public procurement

Public procurement refers to the process by which governments and public sector bodies purchase goods, services, and works from the market to meet public needs. It is governed by a complex legal framework that emphasizes transparency, competition, and value for money. However, these rules typically focus on how to buy rather than what to buy. This distinction is crucial when considering how procurement might be used to influence dietary choices.

Despite these limitations, public procurement holds promise as a policy tool. By introducing mandatory criteria—such as requiring a certain number of vegetarian or plant-based meal days per week—governments can lead by example. This approach not only reduces the environmental footprint of public food services but also helps normalize plant-based eating, particularly among younger generations who are still forming their dietary habits.

However, the effectiveness of public procurement is constrained by several factors. One of the most significant challenges is the high degree of discretion granted to individual contracting authorities. Across the European Union, thousands of public buyers operate independently, each with their own priorities and constraints. This fragmentation makes it difficult to implement consistent, impactful policies at scale.

Moreover, public procurement is only a small part of the overall food system. The majority of meat consumption occurs in the private sector, beyond the reach of public procurement policies. This means that while procurement can set an example, it cannot, on its own, drive a comprehensive shift toward a meat-free future.

A broader strategy is needed

To truly reduce meat consumption and promote plant-based diets, public procurement must be part of a broader, more integrated strategy. Economic instruments play a critical role in this context. For example, removing subsidies for meat production at both the EU and national levels could significantly alter market dynamics. Research suggests that eliminating these subsidies could significantly increase the price of beef, potentially encouraging producers to shift toward cereal or plant-based production.

Taxation is another powerful tool. Adjusting value-added tax (VAT) rates or introducing emissions-based taxes on meat products could help internalize the environmental costs of meat production and consumption. However, the effectiveness of such measures varies depending on the type of meat and the price elasticity of demand. For instance, consumers might respond to higher beef prices by switching to cheaper meats like poultry, which may still carry significant environmental impacts.

Education and public awareness campaigns are equally important. By informing citizens about the health and environmental benefits of plant-based diets, governments can help shift consumer preferences over time. School meal programs, in particular, offer a unique opportunity to introduce children to a wider variety of healthy, sustainable foods.

Designing rules that deliver impact

If public procurement is to play a meaningful role in this transition, the rules governing it must be carefully designed. One key question is whether procurement criteria should be mandatory or voluntary. While voluntary guidelines offer flexibility, they often lack the enforcement power needed to drive real change. Mandatory requirements, on the other hand, can ensure compliance and send a clear signal to the market.

To be effective, these rules must focus on the actual environmental impact of the products being procured, rather than simply on the appearance of sustainability. This means developing specific, technically sound definitions, such as what constitutes a “meat-free” meal, and applying them consistently across jurisdictions.

A phased approach may be the most practical way forward. For example, regulations could introduce a transition period during which the number of plant-based meal days in public institutions is gradually increased. This would give suppliers and consumers time to adapt, reducing resistance and ensuring a smoother implementation.

Evidence from recent studies supports this approach. A conjoint experiment conducted among Finnish citizens found that while vegetarian and plant-based meat alternatives are currently the least popular lunch options, there is moderate support for introducing one meat-free day per week in schools. Interestingly, the study also revealed low public support for policies that directly affect meat prices, but stronger support for tighter regulation of the meat industry. These findings suggest that policies which remove the option of choosing meat, rather than simply offering alternatives, may be more effective in driving change.

The role of Law and Economics in green procurement

From a law and economics perspective, the effectiveness of green public procurement depends on whether the environmental benefits outweigh the societal and economic costs. These costs include higher product prices, increased transaction costs, and potential reductions in market competition. There is also the risk of unintended consequences, such as increased private meat consumption if public institutions reduce their meat offerings too aggressively.

Transparency around these variables is essential. Policymakers must be able to assess whether public procurement is the most efficient tool for achieving sustainability goals, or whether other instruments might deliver greater impact at lower cost.

A meat-free future through policy synergy

Public procurement alone cannot deliver a meat-free future. However, it can play a vital role when combined with other policy measures. The best way forward may involve learning from local examples and scaling up successful initiatives through national or EU-wide legislation.

One promising model is the introduction of sector-specific laws that mandate vegetarian meals in public institutions, provided that there is political will to drive the change. These laws could be designed with built-in transition periods and aligned with broader agricultural, fiscal, and animal welfare policies.

Ultimately, the goal is to create a coherent policy framework that reduces the incentives for meat production and consumption while promoting plant-based alternatives. This requires coordinated action across multiple levels of government and sectors of society.

The next time you find yourself eating a meal in a public institution, take a moment to consider the broader implications of what’s on your plate. That simple meal could be part of a much larger movement, one that’s reshaping our food systems, protecting our planet, and promoting healthier lives for all.