Redistributing More than Food? Food Access and Agency in German Food Rescue Organizations

Abstract In Germany, food rescue organizations (FROs) – including traditional food pantries and complementary food-sharing initiatives – redistribute surplus food to a new consumer base. While food pantries typically aim to reduce food insecurity, food-sharing initiatives emphasize environmental sustainability by reducing food waste. However, the extent to which both FRO types pursue organizational targets to address the needs of socioeconomically disadvantaged populations and aim to contribute to food security, particularly in terms of access and agency, is underexplored. This study examines FROs’ objectives through Luhmann’s concept of inclusion via organizational communication, applying a Theory of Change (ToC) framework. Based on 22 semi-structured interviews with managers from both FRO types in a Bavarian district, analyzed using Grounded Theory, the findings reveal heterogeneous and sometimes conflicting goal orientations toward access and agency across and within traditional and complementary FROs, and across all ToC levels. The findings indicate tensions but also synergies between material support and normative goals, shaped by differing views of beneficiaries as either passive recipients or active participants. Traditional FROs emphasize food access with limited user agency, while complementary FROs promote both access and agency to support ecological aims. Hence, both navigate overlapping social, ecological, and institutional responsibilities, with potential implications for users’ food security experiences.