According to the Food Waste Index Report 2024 (by the UN Environment Programme), estimates suggest that well over US$1 trillion worth of food is wasted each year; this represent more than one third of all the food that is produced globally, using a quarter of the world’s agricultural area.

It’s definitely a food security matter, but also an environmental one: food waste is responsible for an estimated 8-10 per cent of greenhouse gas emissions, as environmental impacts accrue across the life cycle of food products, food waste at the consumer level presents the highest burden.

In Europe, the situation mirrors the global trend. EUROSTAT reports indicate that around 59 million tonnes of food waste are generated annually within the EU. On a per capita basis, this translates to about 132 kilograms of food wasted per person each year. These figures are alarming, considering the EU's commitment to sustainability and efficient resource use.

These statistics are particularly significant in the context of the Sustainable Development Goal No. 12, which aims to ensure sustainable consumption and production patterns, whose Target No. 12.3 specifically seeks to halve per capita global food waste at the retail and consumer levels and reduce food losses along production and supply chains by 2030.

Despite efforts, achieving this target remains a significant challenge for both the EU and the global community.

According to the UN SDG’s report 2023, globally no improvement was made compared to 2016. Also, looking at the EU, reports by Eurostat say no progress has been made since 2020: rather than decreasing, the overall amount of food waste has increased, even after 2020 (which was clearly a peculiar year due to the pandemic).

In response to the growing concern over food waste, the EU has implemented several measures and policies since 2012 aimed at mitigating the problem.

The EU legislative framework evolved from the first acts calling for a strong action against food waste, the Communication no. 571/2011 of the Commission which invited Member States to halve the disposal of edible food waste by 2020 and the Resolution 2175 in 2012 of the European Parliament, which asked the Commission to take concrete actions to reduce food wastage, to the directive 2018/851 which introduced a common legal definition of “food waste” and tasked Member States to reduce by 50 % the per capita global food waste at the retail and consumer levels and to reduce food losses along production and supply chains by 2030, while encouraging food donation and other redistribution for human consumption.

Looking at the first delusional results of the EU-wide monitoring of food waste levels, in July 2023 the Commission proposed to amend the Waste Framework Directive (directive 2008/98/CE).

Despite the existing legal obligations in the WFD and the supporting activities of the Commission [...] action taken to date in Member States is disparate and has not allowed a significant reduction of food waste levels, as demonstrated by the relative stability of municipal waste levels since 2012 and Eurostat estimations. More specifically, the full potential for reducing food waste is not realised as underlying behavioural and market drivers of food waste generation are not adequately addressed in national strategies and roadmaps.

The proposal aims to bring a turning point in the EU policy framework against food waste, by introducing binding targets to Member States to reduce food waste by 30% per capita at the retail and consumer levels, and by 10% per capita in processing and manufacturing, both by 2030 compared to 2020 levels.

The proposed directive also calls for enhanced cooperation among stakeholders and the integration of food waste reduction strategies into national policies, providing a list of measures Member States should take.

However, the effectiveness of these measures depends on their implementation at the national and local levels, as well as the engagement of all stakeholders in the food supply chain. In addition, it's very remarkable to emphasise that introducing binding targets means enabling the EU to initiate infringement proceedings against Members that will fail to meet the goals.

One of the critical challenges in addressing food waste is the lack of homogeneity in data collection and reporting. Current reports often rely on estimates rather than real measured data leading to inconsistencies that hinder effective policymaking and benchmarking progress.

If we look at the already mentioned Food Waste Index Report 2024, we can find that even if the EU is the largest region-wide collation of food waste data available worldwide, «the authors [of the Report] have not been able to validate each individual datapoint. It is possible that some EU Member States reporting for the first time have not submitted full and accurate data … In some cases, the data is known to have inaccuracies in scope or method. This includes where countries have used estimates or indicated that their definitions differ for some sectors».

For example, Italy did provide a food service estimate to Eurostat, but this was removed from this dataset due to the known limitations in scope, as it was representative of only a small part of the food service sector.

Accurate measurement of food waste is essential for setting realistic targets and developing effective strategies. In the EU we are not only dealing with a problem of inadequate results achieved: we have to deal with a problem of proper measurement of data and, even before that, of defining what is “food waste”. We are dealing with a measurement challenge and a connected definitional challenge.

Indeed, there is not a universally accepted definition of food waste and loss. The FUSIONS (Food Use for Social Innovation by Optimising Waste Prevention Strategies) project, funded by the EU, identified over 100 different definitions across countries and organizations. This diversity in definitions leads to discrepancies in what is considered food waste, the stages of the supply chain it encompasses, and the types of food products included.

In an effort to standardize, the EU has adopted its own definition: food waste refers to “all food, as defined in Article 2 of Regulation (EC) No 178/2002 of the European Parliament and of the Council, that has become waste”.

The logic was more or less this: we have a definition of “food”, we have a definition of “waste”, let's combine them and we have the definition of “food waste”. 

Easy to think, easy to say, easy to explain: but, really easy to apply? Easy to measure?

It is precisely with the definition of waste that we face a major problem.

Scholars throughout EU have spilled tons of ink debating what is "waste," especially in relation to that material that becomes waste because of the will of the holder who discards or intends to discard it even though that material is still perfectly usable. How much this debate has generated litigation in courts across the EU! The EU simply solved the definitional problem of “food waste” diving into another and far more complex definitional problem about “waste” itself.

This is not only a theoretical problem.

The EU's definition of food waste is intrinsically linked to the general definition of waste, which is already a subject of debate and varies across legal and regulatory frameworks. This connection means that food waste is often approached primarily from a waste management perspective, focusing on disposal rather than prevention.

Secondly, a waste-based approach tends to prioritize environmental objectives, such as reducing landfill use and greenhouse gas emissions, while potentially neglecting the intrinsic value of food as a resource for human consumption.

This perspective may lead to policies that favor diverting food waste to alternative uses like bioenergy production or animal feed, which, while beneficial from a waste reduction standpoint, do not address the issue of preventing edible food from being wasted in the first place.

The focus on waste management rather than food preservation can also result in insufficient application of the waste hierarchy. The hierarchy prioritizes prevention and reuse (e.g., redistribution to people in need) over recycling and energy recovery.

Policies centered on waste reduction may inadvertently overlook strategies that prevent food from becoming waste in the first place, such as improving supply chain efficiency, adjusting portion sizes, or enhancing consumer education about food storage and expiration dates.

The research project “DEFOWA – The need for a uniform Definition of FOod WAste at international and national level”, led by a research team of the University of Pavia among the ONFOODS Network is aimed properly to evaluate existing legislation and policies, in strict connection with the legal definition of food waste, and to collect feedbacks from policy makers and other public and private stakeholders, with the final aim to suggest how to appropriately modify such legislation in force and when and how to introduce new and more effective rules.

Within the project, a survey was launched to collect considerations and experiences from food business operators and stakeholders in Italy about any legal obstacles they find in designing and implementing measures and policies to prevent and reduce food waste and loss. The survey is still open to all stakeholders that wants to contribute.

The preliminary results of the survey are revealing nearly all companies that reported facing legal obstacles in implementing anti-waste measures have identified food legislation — especially concerning hygiene and labeling — as the primary barrier, rather than waste regulations. This trend persists when participants are asked to propose policies or regulations that would incentivize waste reduction.

Considering the failures to meet, so far, food waste reduction targets, it is evident how the EU intends to make a decisive change by introducing only one relevant novelty: the setting of binding targets on Member States. No news on the horizon about policies and concrete measures to be implemented.

We must remember that while it’s true that in the EU currently 55% of food waste comes from household consumption, the second largest contribution (19%) comes from the production and processing stages of the supply chain, while catering contributes to the extent of 11% and distribution 8%.

Despite that, policies and measures proposed in the EU seem to completely ignore the considerable contribution by food production and processing, focusing almost entirely on domestic consumers, catering and redistribution.

Yet, the drivers arising from the behaviors of food chain operators are certainly more easily addressable through accountability measures that require businesses to plan their operations considering their contribution to food waste generation.

Studies have proven that inadequate systems of control in production and processing are one of the most frequently cited drivers leading to food waste; closely related to inadequate production and processing control are suboptimal operation and ease of use of equipment, but also suboptimal use of packaging and labelling, while appropriate use will help in the reduction of food waste by maintaining product quality.

Addressing the complexities of food waste requires an integrated approach that transcends traditional policy silos. An effective solution involves strengthening the connection between EU, national, and local policies to create a cohesive framework that encompasses both food and waste legislation. This integration ensures that policies are not working at cross-purposes and that all aspects of the issue are being addressed comprehensively.

Adopting a supply chain approach is critical. This means involving all stakeholders, including producers, processors, distributors, retailers, and consumers. By focusing on the entire food supply chain, policies can target specific stages where waste is most prevalent and implement tailored strategies.

For example, at the production and processing stages, interventions might include improving forecasting and inventory management, investing in better storage facilities, and promoting secondary markets for imperfect produce.

Introducing obligations for planning and reduction among food sector operators is another key strategy. This could involve mandatory food waste reduction targets and requiring the implementation of waste prevention plans. Incentivizing innovation in packaging, processing, and preservation technologies can also play a significant role in reducing waste.

Furthermore, integrating food waste reduction into broader sustainability and food safety strategies can amplify the impact.

Food waste is a multifaceted issue that requires a comprehensive and coordinated response. While the EU has taken significant steps through policy initiatives and directives, challenges remain in defining, measuring, and effectively reducing food waste.

By recognizing the limitations of current definitions and approaches, and by integrating policies across all levels and sectors, Europe can move towards a more sustainable and efficient food system.

Ultimately, the goal should not be merely to reduce the amount of waste produced but to value food as a precious resource that should be conserved and utilized primarily for human nourishment. By embracing a holistic approach that incorporates environmental, economic, and social considerations, the EU can lead the way in global efforts to combat food waste and achieve Sustainable Development Goal No. 12.