Putting Food Systems onto the EU policy agenda

As Europe confronts mounting environmental, social and public health crises, the way we produce, distribute and consume food is under intense scrutiny. From access to food and health inequalities to climate breakdown and biodiversity loss, our food systems are at the heart of some of the EU’s most pressing challenges.

And with over 75% of Europeans living in urban areas, it is cities that are not only feeling the impact most acutely but are also stepping up with some of the most innovative solutions.

Urban leaders are demonstrating that fairer, healthier and more sustainable food systems are not only possible, they are already taking shape. From pioneering public procurement practices to cutting food waste and boosting short supply chains, cities are at the forefront of food system transformation.

However, despite their achievements, cities remain marginalised in EU food governance. If the EU wants to meet its ambitions, it must work hand in hand with local governments and formally recognise their leadership.

In 2024, the European Commission convened a Strategic Dialogue on the Future of Agriculture and Food. It brought together a range of stakeholders, from businesses and researchers to NGOs and farmers, and produced a bold shared vision for 2040: calling for a system that delivers affordable, sustainable and healthy food, respects planetary boundaries, and supports fair livelihoods across the supply chain.

Among its key outcomes was the recommendation to create a new European Board for Agriculture and Food (EBAF), a consultative body meant to guide EU policy on food and agriculture through inclusive dialogue. However, no local authority representation was selected as part of the Board. The exclusion of cities from the EBAF is a missed opportunity.

This concern was deepened when, in early 2025, Christophe Hansen, the new European Commissioner for Agriculture and Food, presented the Vision for Agriculture and Food. The Vision falls short in two main areas.

First, it continues to treat agriculture in isolation, failing to adopt a comprehensive food systems approach. Second, while it acknowledges the role of cities, it relegates their involvement to a single annual dialogue, offering no concrete mechanisms for engagement or support.

This marks a step backwards from the inclusive ambition of the Strategic Dialogue and signals that the Commission still does not fully recognise the transformative role cities play in shaping sustainable food systems.

This absence is particularly stark when considering the scope and success of urban innovation in food policy. Take Milan. The city played a key role in the Food Trails project, aligning local food policies with the EU Food 2030 strategy. Through the Milan Urban Food Policy Pact (MUFPP) and by chairing the Eurocities Working Group on Food, Milan stresses the need to integrate food systems into wider urban planning and sustainability efforts.

Leuven became a shareholder in a digital platform that connects local farmers directly with restaurants and supermarkets, supporting local agriculture while boosting resilience and transparency in the food supply chain. The city has also adopted a policy to make municipal farmland available to citizen-led sustainable agriculture projects.

As part of Guimaraes’ commitment to reach climate neutrality by 2030, the city developed a strategy which promotes waste separation, community composting, and sustainable food consumption, particularly among children.

Lille Metropole is working to reduce food waste in school canteens through a programme that aims to support 200 canteens by 2029. By 2024, 40 canteens had already participated, with a 30% reduction in food waste achieved within a year.

Warsaw focuses on improving the donation process for surplus food from small restaurants to food banks, enhancing storage and distribution to prevent waste. And Tallinn’s circular economy plan includes innovative measures such as food cupboards, which collect surplus food from citizens and businesses for redistribution. The city works with the Foodbank to deliver food to those in need, and requires public event organisers to follow food waste prevention guidelines.

These local actions are not isolated. They reflect a broader trend across Europe where cities are experimenting, innovating and collaborating to build food systems that are good for the people and the planet.

Through networks such as the Milan Urban Food Policy Pact and Eurocities, or projects such as Food Trails and Cleverfood, municipalities are exchanging knowledge, influencing national debates, and delivering measurable impact. Importantly, they are showing a growing commitment to policies that tackle food systems in a holistic manner, tackling environmental, social and health challenges simultaneously.

Food waste is a key area where cities are helping deliver on EU-wide goals. With the European Commission proposing targets to reduce food waste by 10% in processing and manufacturing and 30% per capita in retail, food services and households by 2030, the role of cities in reaching these targets is essential.

Urban authorities have unique competencies – from managing school canteens and public procurement to operating waste services and running awareness campaigns – that directly influence how much food ends up in the bin.

In cities like Guimaraes, community-based redistribution programmes help tackle food insecurity while reducing waste. Lille Metropole has partnered with local businesses to collect and repurpose unsold food, showing how circular economy models can be embedded into city operations. In Tallinn, digital tools and educational initiatives empower citizens to track and reduce their food waste at home.

These local approaches are essential to closing the loop – and to ensuring that food waste is addressed not just as an environmental issue, but as a social and economic one too. These three cities were also invited to present their work and impact at the EU Platform on Food Losses and Food Waste in Brussels, showcasing how local action can drive systemic change.

Despite their leadership, cities are often constrained by outdated regulation, lack of funding and insufficient policy coherence. Public procurement, in particular, holds immense transformative potential. Yet legal and administrative barriers prevent cities from fully leveraging procurement to prioritise healthy, sustainable and local food. The upcoming revision of the Public Procurement Directives is a crucial opportunity to unlock this potential and align procurement policy with EU health and climate goals.

There is also an urgent need for greater policy coherence. Food cannot be treated in isolation from public health, environment or social policy. The EU School Scheme and the EU Child Guarantee, for example, have the potential to support healthy eating habits in children, but their impact will remain limited unless better integrated with local food strategies.

Looking ahead, the Commission must seize the opportunity to move from symbolic gestures to genuine collaboration. This starts with giving cities a real seat in EU food governance and providing sustained opportunities for engagement beyond an annual dialogue. It also means expanding EU funding mechanisms to support local experimentation, living labs, and social innovation in food systems, and ensuring that cities have the tools they need to drive sustainable change across key policy areas, including but not limited to public procurement.

Eurocities is looking forward to the Food Dialogue which is expected to be convened by the European Commission at the end of 2025, presenting an opportunity to highlight the need for improved policy coherence and exchange between EU, national and local authorities.

Europe’s food future depends on bold, joined-up action – and cities are already showing the way forward. The EU must not just acknowledge this leadership, but actively support and invest in it. By working in partnership with cities, the EU can build food systems that are resilient, inclusive and capable of meeting the urgent challenges of our time.