Artigos

Conteúdo (article):

SOCIAL ASSISTANCE AND CITIZENSHIP UNITS: DIETARY AND NUTRITION GUIDELINES FOR MENU PLANNING
Short title: MENU PLANNING GUIDELINES

UNIDADES SOCIOASSISTENCIAIS E DE CIDADANIA: DIRETRIZES ALIMENTARES E NUTRICIONAIS PARA O PLANEJAMENTO DE CARDÁPIOS
Título Resumido: DIRETRIZES PARA O PLANEJAMENTO DE CARDÁPIOS

UNIDADES DE ASISTENCIA SOCIAL Y DE CIUDADANÍA: DIRECTRICES NUTRICIONALES PARA LA PLANIFICACIÓN DE MENÚS
Título breve: DIRECTRICES PARA LA PLANIFICACIÓN DE MENÚS

Rita de Cássia Ribeiro. Departamento de Nutrição, Escola de Enfermagem, Universidade Federal de Minas Gerais, e-mail: ritaribeirojacobs@gmail.com, ORCID: https://orcid.org/0000-0001-5217-086X

Bruna Vieira de Lima Costa. Departamento de Nutrição, Escola de Enfermagem, Universidade Federal de Minas Gerais, e-mail: brunavlcosta@gmail.com, ORCID: https://orcid.org/0000-003-3552-7729

Nathalia Sernizon Guimarães. Departamento de Nutrição, Escola de Enfermagem, Universidade Federal de Minas Gerais, e-mail: nasernizon@gmail.com, ORCID: https://orcid.org/0000-0002-0487-0500

Ana Beatriz Leão Silva. Nutricionista, Universidade Federal de Minas Gerais. e-mail: anabeatriz.silva7494@gmail.com, ORCID: https://orcid.org/0009-0009-1781-635X

Rosana Maria Calazans. Secretaria Municipal de Segurança Alimentar e Nutricional. Prefeitura Municipal de Belo Horizonte, Minas Gerais, e-mail: rosanamaria@pbh.gov.br, ORCID: https://orcid.org/0000-0002-1419-8105

Izabel Cristina Corrêa Barcelos. Secretaria Municipal de Segurança Alimentar e Nutricional. Prefeitura Municipal de Belo Horizonte, Minas Gerais, e-mail: ibarcelos@pbh.gov.br, ORCID: https://orcid.org/0000-0002-1419-8105

Giovana Ridolfi Aburachid. Secretaria Municipal de Segurança Alimentar e Nutricional. Prefeitura Municipal de Belo Horizonte, Minas Gerais, e-mail: giovana.nutri@pbh.gov.br, ORCID: https://orcid.org/0009-0003-5810-5630

Túlio Neves de Oliveira. Secretaria Municipal de Segurança Alimentar e Nutricional. Prefeitura Municipal de Belo Horizonte, Minas Gerais, e-mail: tulioneves@pbh.gov.br, ORCID: https://orcid.org/0000-0003-0780-3415

Bruna Emanuella Benfica Cirilio. Secretaria Municipal de Segurança Alimentar e Nutricional. Prefeitura Municipal de Belo Horizonte, Minas Gerais, e-mail: brunaemanuella@pbh.gov.br, ORCID: https://orcid.org/0000-0003-0351-1175

Simone Cardoso Lisboa Pereira. Departamento de Nutrição, Escola de Enfermagem, Universidade Federal de Minas Gerais, e-mail: simoneclpereira@gmail.com, ORCID: https://orcid.org/0000-0001-9261-2597

Abstract: This research deals with the development of dietary and nutrition guidelines for the planning and evaluation of menus in social assistance and citizenship units. The topic is especially important because there are currently no specific guidelines establishing the parameters for meal provision in these highly complex public facilities. The methodology included the collection of information on the institutional menu preparation and evaluation process in a Brazilian metropolis and a bibliographic review of recommendations for adopting and promoting an adequate and healthy diet in Brazil. Thirteen guidelines were formulated, structured around three core elements (qualitative, quantitative and good practices) encompassing the human right to food and adequate and healthy meals, sustainability and the environment and strategic menu planning and good production practices. Each element respects the general purpose of the recommendation and is underpinned by an in-depth theoretical framework. These guidelines can serve as a key public management tool and a regulatory framework to guide the efficient use of financial resources allocated to the production and provision of healthy meals to socially vulnerable people.
Key-words: Menu planning, Government regulation, Nutrition policy, Food Assistance.

Resumo: Esta pesquisa trata da elaboração de diretrizes alimentares e nutricionais para o planejamento e avaliação de cardápios ofertados em Unidades Socioassistenciais e de Cidadania. O tema é especialmente importante porque não há orientações específicas que estabeleçam os parâmetros para oferta de refeições nestes equipamentos públicos de alta complexidade. A metodologia contou com informações sobre o processo de elaboração e avaliação dos cardápios institucionais numa metrópole brasileira, e com o levantamento bibliográfico referente às recomendações para adoção e promoção da alimentação adequada e saudável no Brasil. A partir daí, foram formuladas 13 diretrizes ancoradas nos eixos qualitativo, quantitativo e de boas práticas, que contemplaram o direito humano à alimentação adequada e saudável, a sustentabilidade e meio ambiente, o planejamento estratégico de cardápios e as boas práticas de produção. Cada eixo respeita o propósito geral da recomendação e tem por base um referencial teórico aprofundado. Fundamentadas assim, as diretrizes podem constituir uma ferramenta essencial na gestão pública, um marco regulatório para nortear o uso eficiente de recursos financeiros para a produção e a oferta de refeições saudáveis às pessoas em situação de alta vulnerabilidade social.
Palavras-chave: Planejamento de cardápio, Regulamentação governamental, Política nutricional, Assistência alimentar.

Resumen: Esta investigación trata sobre la elaboración de directrices alimentarias y nutricionales para la planificación y evaluación de los menús ofrecidos en las Unidades de Asistencia Social y Ciudadanía. El tema es especialmente importante porque no existen orientaciones específicas que establezcan los parámetros para la oferta de comidas en estas instalaciones públicas de alta complejidad. La metodología se basó en información sobre el proceso de elaboración y evaluación de los menús institucionales en una metrópoli brasileña, y en una revisión bibliográfica sobre las recomendaciones para la adopción y promoción de una alimentación adecuada y saludable en Brasil. A partir de ahí, se formularon 13 directrices basadas en los ejes cualitativo, cuantitativo y de buenas prácticas, que contemplaban el derecho humano a una alimentación adecuada y saludable, la sostenibilidad y el medio ambiente, la planificación estratégica de los menús y las buenas prácticas de producción. Cada eje respeta el propósito general de la recomendación y se basa en un marco teórico profundo. Así fundamentadas, las directrices pueden constituir una herramienta esencial en la gestión pública, un marco regulatorio para orientar el uso eficiente de los recursos financieros para la producción y el suministro de comidas saludables a personas en situación de alta vulnerabilidad social.
Palabras clave: Planificación de menús, Normativa gubernamental, Política nutricional, Asistencia alimentaria.

Introduction
Access to an adequate diet is a fundamental right, inherent to human dignity and embodied in the Brazilian Federal Constitution1, which states that the government shall adopt the policies and actions necessary to promote and guarantee food and nutrition security (FNS) for the population2.
Two public policies in Brazil are particularly relevant when it comes to food and nutrition insecurity among socially vulnerable populations: the National Social Assistance Policy (PNAS)3 and the National Food and Nutrition Security Policy (PNSAN)4.
Established in the Federal Constitution (Articles 203 and 204)1, regulated by the Organic Social Assistance Law (LOAS)5 and institutionalized in the PNAS, social assistance in Brazil is organized into the Unified Social Assistance System (SUAS). This policy guarantees rights, implements programs and provides services and benefits to prevent and reduce social and personal risk, protect vulnerable individuals and families, create measures and opportunities for socialization and social inclusion and monitor social exclusion and risks among the population.
Ideally, the concept of FNS – consolidating principles, proposals and political commitments – should promote the conditions necessary to ensure that all people meet the six basic attributes of an adequate and healthy diet: sufficiency, stability, autonomy, sustainability, equity and quality. In this respect, the Organic Food and Nutrition Security Law (LOSAN)⁶ advanced the Brazilian concept of FNS by creating the PNSAN and the Food and Nutrition Security System (SISAN) with the aim of integrating government and civil society efforts to formulate and implement policies and actions to combat hunger and promote FNS, defining the rights and duties of the government, families, businesses and society4.
It is therefore possible to identify similar aggregating points in the trajectory of FNS and social assistance policies, since they are policies that resulted from relationships between the state and society, which influence social reality and involve various actors in a range of matters involving varying interests, including economic, cultural and social issues.
Social assistance services in Brazil include provisional Social Assistance and Citizenship Units (USCs), whose characteristics vary according to each facility’s target audience. These units aim to provide continuous comprehensive protection to families and/or individuals with fragile or broken family and community ties3. USCs should provide comprehensive care and protection, guaranteeing accommodation, social interaction, autonomy, safety and access to an adequate and healthy diet.
With regard to food assistance in USCs, there are no specific guidelines establishing parameters for meal provision, which can hamper menu planning and evaluation and the material and financial management of the meal production process. This gap hinders the alignment and integration of SUAS and SISAN agendas, increases transaction costs and deepens the debate on the practices and challenges faced in intersectoral relations in the territory.
The establishment of dietary and nutritional parameters is essential to ensure FNS and the provision of adequate, healthy and sustainable meals, meeting the specific nutritional requirements of different age groups and considering local food culture and good food production practices. Furthermore, in the context of decentralized public policy, guidelines can help inform decision-making and actions that facilitate and standardize the food planning process for socially vulnerable populations.
It is important to stress that actions that guarantee FNS in USCs have the potential to promote intersectorality, which is strongly encouraged in legal instruments7, and that USC menu planning guidelines can complement, promote and help coordinate actions within the scope of the SUAS, Unified Health System (SUS) and SISAN. Furthermore, the SUAS operates at federal and municipal level, with municipal public facilities providing capillarity, reinforcing the importance of common parameters as a tool for promoting dietary and nutritional planning tailored to the local reality.
The objective of this study was therefore to formulate dietary and nutrition guidelines for USC menu planning that are capable of becoming a regulatory framework and supporting dietary and nutrition actions in this area.

Methodology
Belo Horizonte, the capital of Minas Gerais in the Southeast of Brazil, has a population of approximately 2,315,5609 and a Municipal Human Development Index of 0.81010. Food and nutrition actions focused on social assistance are managed by the Secretariat for Social Assistance, Food Security and Citizenship under the Subsecretariat for Food Security and Nutrition. Within this subsecretariat, the Office for Food Assistance and Emergency Actions is responsible for planning, executing, monitoring and evaluating the technical food and nutrition actions developed by municipal and partner USCs, including menu planning for different target audiences and age groups, including individuals with special dietary requirements8.
Given the lack of standardization of dietary and nutrition planning in USCs, we used the working reality of a capital city in Brazil as a reference for proposing this regulation. We therefore conducted a descriptive study of the development of nutritional guidelines for menu planning. In July 2024, there were 91 USCs under contract with Belo Horizonte City Council (BHCC) in institutional shelters, refuges, youth hostels and post-hospital discharge units, benefiting 3,800 people, including 2,471 beneficiaries and 1,329 staff.
With regard to food assistance, the partnership with the BHCC enables USCs to receive planned menus, food and training on good production practices for staff responsible for preparing meals. For example, in 2023, average monthly expenditure on food was R$485,714.34 and the annual budget was R$ 5,828,572.39.
The data were collected between January and June 2023, comprising information on the institutional menu preparation and production process (menu composition, food types and quantities per capita and fact sheets) and on the purchase and distribution of food to USCs (suppliers and food purchase and delivery frequency). We also conducted on-site technical visits to talk to nutritionists and food handlers in order to obtain a more comprehensive insight into the processes involved.
We conducted a bibliographic review of recommendations related to the adoption and promotion of adequate and healthy diets in Brazil, including the following: the National Food and Nutrition Policy11, Dietary Guidelines for the Brazilian Population12, Regional Foods in Brazil13, Dietary Guidelines for Brazilian Children under 2 Years of Age14 and the National School Meals Program (PNAE)15. These documents were read in detail to identify the fundamental points that should guide menu preparation for the different target audiences served by USCs, which became benchmarks for the drafting of the guidelines, namely: the human right to food and adequate and healthy meals, sustainability and the environment, strategic menu planning and good production practices, forming the basis of the three core elements established in this study for USC menu planning.
Nutritional recommendations were tailored to the specific characteristics of each age group served by USCs in accordance with the relevant scientific literature. Energy values (kcal) were based on the recommendations of the National Academies of Sciences, Engineering, and Medicine16, considering the low active physical activity level. For percent of daily energy intake for carbohydrates, total lipids and proteins, we used the acceptable macronutrient distribution ranges17. For saturated fatty acids as a percentage of total recommended energy intake, we used the World Health Organization recommendations18. For total dietary fiber, we used the recommended dietary allowances19. The estimated average requirements for iron (mg), calcium (mg), vitamin A (mcg) and vitamin C (mg) were based on the recommendations of the National Academies of Sciences, Engineering, and Medicine19-21. For sodium (mg), we used the dietary reference intake22.
The menu planning guidelines encompassed the daily number of planned meals and menu structure based on the type and number of food items that should be offered in each meal. Finally, a search of relevant literature on meal production management23,24 and good meal production practices25,26 was performed so that the guidelines could be applied in a practical and efficient manner in the units.
Regarding ethical issues, we used secondary data on menu planning provided by the BHCC’s Subsecretariat for Food Security and Nutrition, which is part of the Secretariat for Social Assistance, Food Security and Citizenship, and the relevant literature11-14,16-27, meaning that the study did not require ethical approval, as provided by the regulatory norms and standards established by the National Health Council28.

Results and discussion
One of the main actions related to food provision in USCs, menu planning can be an important tool for promoting health and food and nutrition education and ensuring FNS.
Dietary and nutrition guidelines should consider the epidemiological, social, economic and environmental context in which the population lives. They should be clear, objective and culturally acceptable, and encourage the enjoyment of healthy eating among all population and age groups29.
Box 1 presents the USC menu planning guidelines divided into three core elements: i) qualitative, ii) quantitative and iii) good meal production practices. Each core element reflects the purpose of the recommendation and the theoretical framework adopted.
[Insert Box 1]
The qualitative element of USC menu planning is underpinned by the perspective that an adequate and healthy diet is a basic human right2, which implies regular and permanent access to biologically and socioculturally appropriate food, guided by sustainable production practices11,12,33. These principles are embodied by the Dietary Guidelines for the Brazilian Population12 and LOSAN6, which encompasses recommendations ranging from food choices to the act of eating and commensality34.
Qualitative dietary and nutrition recommendations should be based on the NOVA food classification, which classifies foods into natural, minimally processed, processed and ultra-processed. Natural foods are unaltered foods obtained directly from plants or animals. Minimally processed foods are natural foods minimally altered before purchase, for example grains, roots and tubers, flours, vegetables, meat and fish. Processed foods are made essentially by adding salt or sugar to natural or minimally processed foods, such as vegetables and tubers preserved in brine, tomato extract or concentrate, fruit in syrup or candied fruit, dried meat and bacon, canned sardines and tuna, and cheeses. Ultra-processed foods are products that are manufactured using a series of processes and various ingredients, many of which are exclusively industrial formulations35.
In the context of USC menu planning, it is suggested that menus should contain sweet and savory culinary preparations composed of natural or minimally processed foods prepared using culinary ingredients. Culinary ingredients (oils, salt and sugar) should be used in small amounts for seasoning and cooking foods and to create culinary preparations, and ultra-processed foods should be avoided.
Emphasizing the fact that human nutrition should be based on the consumption of natural and minimally processed foods, changes made to the PNAE15 in February 2025 increased the percentage of financial resources allocated to the purchase of foods in these categories, from 75% to 80% in 2025 and to 85% from 2026. In addition, at least 50 different types of foods in these categories must be purchased annually. These percentages and parameters can also serve as a basis for menu planning in USCs.
In this respect, it is recommended that whole fruits be offered in at least two of the daily meals. Menus should contain at least four daily servings of vegetables/tubers in different forms of culinary preparation, such as raw vegetables in salads or cooked/sautéed vegetables served with main dishes and as side dishes, to encourage their consumption12,14,36.
Fruits and vegetables include a diverse group of foods of plant origin that provide dietary fiber. The consumption of these foods is associated with a lower incidence of chronic noncommunicable diseases such as cardiovascular disease, diabetes mellitus, systemic arterial hypertension and obesity. Furthermore, the consumption of fruits and vegetables in USCs provides essential micronutrients, containing sources of phytochemicals that act as antioxidants and anti-inflammatory agents37-39.
Meat should be offered using a variety of cooking methods, preferably being roasted, boiled and grilled, but rarely fried. Diversifying cooking methods improves the palatability of meat, making meals more varied and enjoyable40,41.
The use of processed foods should be limited, being included only in small quantities as ingredients in culinary preparations or as part of freshly prepared meals or dishes made using minimally processed foods35. Depending on the target audience and age (i.e., drug users, the elderly), foods such as cookies, ice cream, cakes, yogurt, bread and other baked goods may be included.
The PNAE15 also restricts sugar for schoolchildren as a key measure to promote healthy eating habits among students and combat public health problems such as childhood obesity and chronic noncommunicable diseases. In addition, as from 2025, it is recommended that foods with front-of-package nutrition labeling showing high sugar, sodium and saturated fat content should not be purchased or provided.
Culinary preparations must be aligned with sustainability and environmental preservation goals. Urbanization, deforestation, land use, depletion of natural resources and climate change are factors that influence the stability of food systems, hampering access to and the availability and consumption of food42,43. Priority should therefore be given to the use of foods from family farms produced using sustainable practices and containing minimal amounts of physical, chemical and biological contaminants44. Furthermore, other legal frameworks7,15 also recommend that actions involving the provision of food and meals should prioritize products purchased from local and/or regional family farms.
In addition, the use of all the parts of culinary ingredients, such as peels, stalks and seeds, is also encouraged. The integration of these principles seeks to foster agriculture based on sustainable agricultural practices that enhance the resilience of livelihoods and ecosystems and reduce greenhouse gas emissions/remove greenhouse gases from the atmosphere45. Menu planning should therefore be aligned with the sustainable development goals (SDGs), specifically SDG 2 (Zero Hunger and Sustainable Agriculture) and SDG 12 (Responsible Consumption and Production)46.
The quantitative element advocates the provision of sufficient food to promote health and prevent food and nutrition-related diseases. Menus therefore need to provide enough energy and nutrients to fully meet the nutritional requirements of the target audience served by USCs, in accordance with the recommendations for each stage of life (Table 1).
[Insert Table 1]
It is worth highlighting that culinary preparations should be prepared based on technical preparation sheets (TPSs)47 to ensure the necessary amount of food for meal production and pre-established portions that meet the nutritional requirements of individuals. TPSs are essential tools for unit management and play a key role in ensuring service standardization, quality control and efficiency48.
The preparation of menus that prioritize foods rich in heme iron, such as meat and fish, and foods that are sources of non-heme iron49, such as legumes and leafy greens, together with absorption enhancers such as vitamin C, is crucial to ensure adequate iron intake. Furthermore, the inclusion of foods that are rich in vitamin A, carotenoids and calcium makes a significant contribution to children\'s health and well-being. Implementing these principles in menus, especially for children and adolescents, can help prevent nutrient deficiencies and promote healthy development15.
To meet the daily nutrient recommendations, menus should consist of six meals: breakfast, morning snack, lunch, afternoon snack, dinner and supper, according to the specific requirements of each age group and following the structure suggested in Table 2. Having six meals a day is a nutritional and dietary strategy that offers a number of potential benefits, such as improved nutritional status, better hunger control and a more balanced nutrient intake50.
[Insert Box 2]
With regard to good production practices related to USC menu planning and food donation management, it is recommended that meal production practices should follow the hygiene and sanitary standards and regulations governing good meal production practices established by the National Health Surveillance Agency25.
It is worth noting that the burden of waterborne and foodborne diseases (WBFDs) on public health and economies has often been underestimated due to underreporting and difficulty in establishing causal relationships between food contamination and the resulting illness or death51. The World Bank report on the economic burden of foodborne diseases indicated that the total productivity loss associated with foodborne disease in low- and middle-income countries was estimated at US$95.2 billion per year, and the annual cost of treating foodborne illnesses is US$15 billion52.
Biological contaminants are the leading cause of WBFDs. Many of the risks associated with biological contaminants can be controlled or eliminated by using safe food handling practices, meaning that ongoing training on proper handling procedures for food handlers is essential52. The literature highlights the importance of knowledge of good practices, emphasizing that training is an essential tool for food handlers and the need for periodic training.
With regard to the proper disposal of solid waste, waste production should be limited by adopting the 3Rs concept: R1 means reduction, with the aim of minimizing waste across all production processes; R2 refers to reuse, which entails the direct use of waste52; R3 consists of recycling the remaining waste that cannot be used directly as a raw material or energy source54.
Based on the same principle, it is recommended to use the waste pyramid model known as the food waste recovery hierarchy, created by the US Environmental Protection Agency to control the high volume of food waste. The pyramid has six levels: (1) waste prevention; (2) donation of surplus to food banks and vulnerable people; (3) use of food waste to produce animal feed; (4) industrial use; (5) use for composting; and (6) disposal in landfills55,56. Interventions based on this model can provide a cascade of formation that has a positive impact on all those involved. In addition, providing information about the costs of food waste helps change consumer behavior and encourages consumers to adopt preventive strategies56. In Brazil, the management of solid waste is governed by the National Solid Waste Policy57.
The guidelines presented in this study were drafted in the form of rules and principles. The rules are strict in that they define the minimum standards that must be met. While setting essential universal parameters, the principles can be tailored according to local social reality, resource availability and biodiversity. These characteristics mean that this set of guidelines is applicable to various contexts throughout the country.
The establishment of guidelines of this nature directly impacts process standardization, improves the efficiency of the use of financial resources, reduces transaction costs and facilitates food purchasing and staff training. Furthermore, each guideline can be used as an indicator, enabling the monitoring and evaluation of the reach of public policies directed at the target audiences of USCs.
Finally, it is important to stress that this set of dietary planning guidelines complements the actions of the SUAS, expands comprehensive care for people in situations of vulnerability and experiencing rights violations, optimizes ongoing FNS interventions and contributes to the integration7 of the SUAS, SUS and SISAN information systems, improving the quality of care and action and service management.
This study has some limitations. The research concentrated on gathering theory-based information and guidance for the development of USC menu planning guidelines. No practical menu planning tests were performed. It is important to stress that the particularities and specific characteristics of each USC should be considered when organizing menus and these guidelines should therefore be treated as a general guide for menu planning.

Final considerations
The creation of dietary and nutrition guidelines oriented towards public policies for socially vulnerable individuals and families is an important initiative that supports the management of intersectoral projects and programs. These guidelines can improve the efficiency of the use of public financial resources allocated to the production and provision of healthy meals to these individuals.
From this perspective, these guidelines represent the pursuit of progress in equipping public managers responsible for planning and evaluating meals served in USCs.
This set of dietary and nutrition guidelines can also provide the basis for a regulatory framework, which needs to be discussed in a democratic setting with the representation of all stakeholders. The foundation is in place, with each of the proposed guidelines being developed with rigor, flexibility and a sound theoretical basis.
Finally, in times of social and climate insecurity, anchored in qualitative, quantitative and best practices core elements, this work is unprecedented and enables the implementation of the human right to food in the context of national social assistance policies, FNS and the promotion of an adequate, healthy and sustainable diet.

Acknowledgements
The author Nathalia Sernizon Guimarães is grateful to the National Council for Scientific and Technological Development (CNPq) for granting a research output scholarship [Process: 309183/2025-1].

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