April 08, 2026
Regulation and challenges of the plant-based market in Brazil
Carolina Moran Berto; Matheus Luís Docema
Summary prepared by the ResumeAI tool, an artificial intelligence solution developed by the Pecege Institute focused on synthesis and writing.
The contemporary scenario of the food industry in Brazil and worldwide presents a continuous transformation, driven by new consumer profiles seeking alternatives to animal-based proteins. This movement, although not following a linear trajectory, reveals a notable increase in the offering of products developed to meet diverse demands, from ethical motivations to concerns about public health and environmental sustainability (Ferrari, 2022). Historically, the first generation of products aimed at the non-meat-eating public was fundamental in meeting the basic needs of vegetarians and vegans. However, it is observed that the current driver of innovation and growth in this sector is the flexitarian consumer. These individuals, who choose to reduce their consumption of animal proteins without completely eliminating them from their diet, drive the evolution of the sensory quality of analogous products. By maintaining the consumption of animal-based products, flexitarians present a high level of demand regarding the flavor, aroma, and texture of plant-based alternatives, seeking experiences that faithfully mimic conventional products (Broad, 2020).
Understanding this market requires a clear distinction between the movements that sustain it. Veganism is configured as an ethical and political stance that seeks, as far as possible and practicable, to exclude all forms of exploitation and cruelty to animals, encompassing not only food but also clothing and other spheres of consumption. Vegetarianism, on the other hand, focuses on the exclusion of animal-based products strictly within the food domain. In contrast, flexitarians frequently resort to plant-based alternatives, known as plant-based products, as a way to balance their diet (Sociedade Vegetariana Brasileira, 2003). Such products are defined as analogous to animal-based ones, being formulated from plant-based ingredients that aim to mimic the organoleptic properties of meats, seafood, milk, eggs, and dairy products. For this substitution to be considered effective by the market, the use of raw materials offering nutritional, functional, and sensory properties comparable to traditional products is imperative (ANVISA, 2022).
The development of these foods involves sophisticated and innovative technological processes. The objective is to increase the protein content and enhance the functional characteristics of plant-based ingredients, making them suitable for the formulation of complex analogues (Evangelista, 2022). Among the techniques employed, texturization stands out as a crucial process, as it confers a fibrous structure and chewability similar to animal meat. This stage is decisive in bringing the consumption experience closer to that provided by traditional products, ensuring sensory acceptance by an increasingly discerning public (Pires et al., 2006). Innovation in the sector primarily aims to expand the globally available protein sources, contributing to food security through alternatives that generate less environmental impact. This growth is sustained by a triad of factors: the pursuit of healthier diets, awareness of planetary limits, and ethical issues related to animal welfare (Sha and Xiong, 2020).
Despite technological advancements and commercial expansion, the plant-based product industry in Brazil faces a significant bottleneck in the regulatory sphere (GFI Brasil, 2020). To date, Brazilian legal frameworks lack specific legislation that exclusively governs this product category. Although these foods are subject to general regulations on sanitary surveillance, labeling, and good manufacturing practices established by the Brazilian Health Regulatory Agency (Anvisa), the absence of clear parameters regarding sales denomination, minimum composition, and nutritional equivalence creates a state of legal uncertainty. For manufacturers, the lack of regulatory guidelines hinders industrial planning and innovation; for consumers, the gap results in information asymmetry, potentially leading to misconceptions about the true nature and benefits of the purchased products (ANVISA, 2022).
This regulatory deficiency creates room for confusion regarding the identity of foods, especially concerning the use of terms traditionally associated with products of animal origin. Furthermore, the dissemination of health or sustainability claims without standardized criteria can mislead consumers (Silva, 2025). Given the urgency to organize this market, the construction of a robust regulatory framework becomes necessary. Such a framework must ensure food safety, promote fair competition among the different players in the production chain, and safeguard the fundamental right of the consumer to clear, precise, and adequate information. The current scenario demands a deep analysis that connects the sector’s growth to regulatory hurdles and the real perception of those who consume these products in the national territory.
The analysis of the regulatory, technological, and market landscape of plant-based food analogues in Brazil was carried out through an exploratory and descriptive study. The methodological procedure was based on an exhaustive bibliographic and documentary review, aiming to identify regulatory gaps and ongoing institutional efforts. The scope of the documentary analysis focused on the absence of definitive and consolidated regulations, assessing the risks of unfair competition and information asymmetry. The investigation included monitoring proposals for regulatory frameworks and public consultations that seek to discipline the segment, allowing for a technical understanding of the identity and quality requirements being developed by the competent bodies.
Complementing the documentary phase, a qualitative study was conducted to profile and understand the perception of a group of Brazilian consumers. The data collection instrument consisted of a structured questionnaire with 19 questions, predominantly multiple-choice, administered via a digital platform between September 16 and 21, 2025. The sample included the voluntary participation of 53 individuals, who responded anonymously, ensuring the spontaneity of their accounts. The objective of this stage was to obtain direct insights into the acceptance of plant-based analogues and the understanding of the nomenclature used at the point of sale. In accordance with current ethical guidelines, the research was conducted with the inclusion of an Informed Consent Form, ensuring that all participants were aware of the academic and voluntary nature of their collaboration.
Data collection was organized into specific thematic areas. The first area addressed demographic and socioeconomic profiles, collecting information on age group, gender, education level, monthly income, and geographic location. The second area focused on the consumption of plant-based products, investigating eating habits, protein intake frequency, and purchasing motivators, such as health and ethics. The third area explored habits and perceptions, assessing the role of plant-based products in the daily diet. The fourth area dealt with communication and nomenclature, measuring consumers’ understanding of labels and market terminology. Finally, the fifth area analyzed price and purchase intent, verifying the financial limit consumers set for acquiring these alternatives compared to animal-based products. The data obtained served as the basis for a thorough discussion on the challenges hindering the mass adoption of these proteins in the national market.
The plant-based product market in Brazil, while not a recent phenomenon, has undergone a significant transition from a niche to an attempt at industrial scale. Initially, the offering was limited and based almost exclusively on soy, with sensory characteristics that were not very appealing to the average palate. With the evolution of consumer demands, which began to require products more aligned with sustainability and animal welfare, the industry intensified investments in research and development. Between 2019 and 2025, the sector registered important milestones, such as the emergence of startups focused on food innovation and the acceleration of the environmental agenda in the post-pandemic period. This movement reflects a structural shift, with large companies diversifying portfolios to include plant-based meats, dairy, and eggs, seeking to meet global nutritional guidelines and decarbonization commitments made for the coming decades.
Studies indicate that the production of analog plant-based meat generates considerably lower environmental impacts than the production of beef, pork, or chicken (GFI Brazil, 2022). However, the participation of these products in global sales is still modest when compared to conventional animal protein. In 2023, while the total sales volume of conventional meat reached approximately 410 million tons, plant-based meat accounted for only 656 thousand tons globally. This moderate growth is accompanied by high operational costs, which range from specialized factory infrastructure to complex distribution and logistics channels. Often, these costs are not fully absorbed by the chain, which keeps final prices high and requires constant capital injections to maintain operations (Euromonitor, 2023).
Despite the structural challenges, projections for the sector are optimistic, suggesting that alternative proteins could represent between 11% and 21% of the global meat market by 2035 (Boston Consulting Group, 2021). In Brazil, the consolidation of this market depends on overcoming barriers related to price, sensory quality, and, especially, the level of information available to consumers. The qualitative research conducted with 53 participants revealed that the plant-based market interacts in a complex way with the country’s socioeconomic disparities. The results showed that 60% of respondents are female, and the majority (53%) are between 31 and 40 years old. This data suggests that women may be at the forefront of the search for diets perceived as more ethical and healthier, possibly due to the historical role they play in managing family health and household food choices.
The geographical concentration of consumers is also a relevant factor, with 81% of participants residing in the Southeast Region. Historically, this region concentrates the highest human development indices and facilitated access to innovation and distribution centers, making the consumption of specialized products a predominantly urban and regionalized phenomenon. Furthermore, the educational level of the sample was exceptionally high, with 62% holding postgraduate degrees and 25% with complete higher education. This educational profile correlates directly with the ability to internalize complex topics, such as preventive nutrition and animal ethics, which appear as the main purchase drivers. For this group, environmental and ethical issues cease to be mere abstract concepts and begin to guide lifestyle choices.
Socially, the research demystified the idea that the market is sustained only by strict vegans or vegetarians, as only 8% of participants identified with these groups. Surprisingly, 79% of respondents have tried some plant-based product that simulates animal-based food. The plant-based burger has consolidated itself as the most consumed item, cited by 74% of participants. This data reinforces the product’s characteristic as a convenience item and easy to incorporate into the diet, facilitating experimentation by those who consume animal protein daily (85%) or a few times a week (13%). The identified consumption pattern is, therefore, one of occasional experimentation rather than full substitution.
Regarding nomenclature, 51% of participants expressed a preference for the term “Hambúrguer vegetal” (plant-based burger), rejecting more technical or restrictive denominations. This indicates a search for clarity and a product identity that integrates into everyday language. Although 62% state that nomenclature influences the purchase decision, 81% declared that they have never mistakenly purchased a plant-based product, believing it to be of animal origin. This result suggests that, despite the lack of official standardization in labeling, the current consumer is attentive to the information present on packaging and can distinguish categories at the point of sale.
The financial issue, however, remains the central point of resistance. Even in a sample where 60% of participants have an income higher than five minimum wages, the willingness to pay more for a plant-based product is low. Only 15% of respondents would accept paying a premium compared to conventional animal protein, while 21% categorically stated they would not buy a plant-based burger regardless of the price. This scenario indicates that the product has not yet convinced the majority of the population to justify the extra cost, being perceived as having an intrinsic value disproportionate to its market price. For real penetration into the Brazilian food matrix to occur, the product needs to be price-competitive, overcoming the barrier of convenience experimentation to become a regular habit.
In the regulatory field, Brazil is moving to fill the existing gap. ANVISA included the regulation of plant-based products in its Regulatory Agenda for the 2024-2025 biennium (ANVISA, 2023). In parallel, the Ministry of Agriculture and Livestock, through the Department of Inspection of Plant-Based Products, has advanced in formulating its own framework, materialized in Portaria 831 of 2023. This proposal establishes rigorous criteria for identity, quality, and labeling, setting minimum requirements that include the mandatory use of authorized ingredients and compliance with current microbiological standards. The norm aims to prevent products from having strange odors or characteristics incompatible with their intended sale, as well as defining rules for nomenclature.
Internationally, the regulatory debate is intense. In France, in 2020, an attempt was made to restrict the use of terms such as “meat” or “milk” for plant-based products, but the measure was challenged, and in 2023, the Court of Justice of the European Union ruled that Member States cannot impose additional restrictions on labeling rules already established by the bloc. Thus, France revoked its restrictions, aligning itself with the European directive that allows the use of established terms as long as they are accompanied by a clear indication of the plant-based origin. In the United States, the Food and Drug Administration permits the use of these terms, requiring only that the indication of plant-based origin be highlighted so as not to mislead the consumer (Diaz, 2024). The Codex Alimentarius, an international reference, does not yet have specific guidelines, which keeps the global scenario in constant evolution.
The absence of a definitive standard in Brazil generates three fundamental problems: information asymmetry, legal uncertainty, and unfair competition. Asymmetry occurs when the consumer does not have access to clear data on nutritional equivalence, potentially being misled by generic health claims without technical backing (Silva, 2025). Legal uncertainty affects enforcement, as the lack of uniform guidelines hinders the coordinated action of health surveillance agencies. Furthermore, the emergence of autonomous state legislations can fragment the national market, imposing logistical costs and operational barriers for companies operating in multiple states.
Unfair competition is aggravated by an unequal tax structure. While plant-based analogues are burdened by high ICMS, PIS, and Cofins taxes, many animal-based products benefit from subsidies or more favorable tax regimes. This disparity impacts the final price and limits the competitiveness of plant-based alternatives. Another relevant cultural challenge is the centrality of meat in the Brazilian diet, where the food represents not only nutrition but social status and identity. For the average consumer, removing meat from the plate requires a complete rethinking of eating practices, which generates resistance to change (GFI Brasil, 2019). Furthermore, the frequent association of plant-based products with ultra-processed foods raises concerns about the actual healthiness of these alternatives, demanding full transparency in formulations.
It is concluded that the objective was achieved, as the detailed analysis showed that the plant-based product market in Brazil is undergoing a phase of technical expansion, but still encounters deep structural, regulatory, and cultural barriers. The absence of specific legislation compromises standardization and legal certainty, favoring information asymmetry and unfair competition, especially given a tax burden that disadvantages plant-based analogs compared to animal protein. The qualitative research confirmed that, although interest in ethical and sustainable alternatives is growing, consumption remains concentrated in high-income and highly educated strata, being limited by the high price and the strong cultural tradition of meat consumption in the country. The strengthening of the sector therefore depends on the urgent implementation of a robust regulatory framework, fiscal incentives that promote competitive equity, and continuous investments in technological innovation to improve sensory quality and reduce production costs, ensuring that these products cease to be items of occasional experimentation and become accessible and safe options in the Brazilian food matrix.
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Executive summary from the Final Course Work of the Specialization in Agribusiness of the MBA USP/Esalq
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