FDA’s Closer to Zero Initiative: Translating Toxicology into Infant Food Policy

Overview

The Closer to Zero initiative is the U.S. FDA’s science-driven plan to reduce infants’ dietary exposure to toxic heavy metals – particularly lead, arsenic, cadmium, and mercury to as low as reasonably achievable.^[1] It establishes action levels (guidance limits) for these contaminants in baby foods, reflecting toxicological risk benchmarks and what is feasible for industry to attain.^[2] For example, the FDA’s January 2025 final guidance set lead action levels at 10 ppb for most infant foods and 20 ppb for root vegetable-based and dry cereal products.^[3] The program is iterative and evidence-based, meaning standards will be tightened over time as new data emerge.^[4] Unlike a regulation that outright bans contaminants, Closer to Zero relies on guidance and industry cooperation to progressively decrease heavy metal content without compromising nutritional adequacy or product availability.^[5] This article reviews the initiative’s scope and limits, the toxicological rationale behind current action levels, how exposure data and testing methods inform policy, comparisons with global standards (see Table in Global Benchmarks and Harmonization), implications for food manufacturers and retailers, and the future policy outlook, including remaining evidence gaps. By translating cutting-edge toxicology into concrete safety standards, Closer to Zero aims to support clinicians, quality assurance professionals, manufacturers, retailers, and regulators in the shared goal of safer infant nutrition.

What Closer to Zero Is and What It Isn’t

Closer to Zero is an FDA-led multi-year action plan (launched in 2021) to continually reduce levels of environmental heavy metals in foods for babies and young children. It is not a one-time fix or an immediate “zero tolerance” rule, but rather a phased, iterative process that evaluates scientific data, sets interim goals, consults stakeholders, and updates standards over time.^[6] The initiative focuses on contaminants that are unavoidable in the food supply – heavy metals naturally present in soil, water, and air that crops uptake – aiming to drive those as low as possible, without eliminating nutritious foods from children’s diets.^[7][8] Importantly, Closer to Zero is grounded in guidance and risk-based action levels rather than formal regulatory limits.

Action levels, as defined by the FDA, are the contaminant concentrations at which a food may be regarded “adulterated” under the law (FD&C Act §402(a)(1)).^[9] They are not permissible “safe” levels; any detectable amount of lead, arsenic, etc., is potentially concerning, but action levels signal a threshold for enforcement discretion.^[10][11] For instance, if lead in a baby food exceeds the action level (e.g., 10 ppb in a fruit puree), the FDA may consider the product adulterated and subject to recall.^[12] However, even below that level, manufacturers are expected to minimize heavy metals as much as possible. Closer to Zero does not replace existing regulatory obligations – companies must still comply with preventive controls and ensure food safety under the FDA Food Safety Modernization Act (FSMA) rules.^[13] In other words, the FDA doesn’t need a published action level to act against a product with unsafe levels; the initiative simply provides transparent targets to spur industry improvements. The Closer to Zero plan also does not tell parents to avoid certain foods altogether. FDA explicitly advises against abruptly eliminating foods like rice cereal or carrots from an infant’s diet, since variety and good nutrition can mitigate heavy metal risks.^[14] For example, sufficient iron, calcium, and an overall balanced diet can reduce absorption of lead in the body.^[15] The guidance covers commercial baby and toddler foods (generally <2 years old) such as purees, yogurts, grain mixes, and cereals – typically those sold in jars, pouches, tubs, or boxes.^[16] Notably excluded are infant formulas (which are regulated separately), and certain categories like teething biscuits or puff snacks (for which the FDA is still gathering data).^[17] Juices have their own draft guidance (e.g., proposed 10 ppb lead for apple juice). Thus, Closer to Zero is a targeted initiative: it is neither a blanket ban nor a consumer advisory list, but a policy framework aligning regulatory oversight with the latest toxicological science to incrementally lower contaminant exposures in early childhood.

The Toxicology That Drives Action Levels

Underpinning Closer to Zero’s limits is a substantial body of toxicological evidence on the harms of heavy metals in early life. Infants and toddlers are uniquely vulnerable: their small body mass, rapidly developing organs, and higher intake of food per body weight can magnify the impact of a given contaminant dose.^[18] Critical neurological development occurs in the first years of life; even low-level lead or arsenic exposures can result in measurable deficits. In fact, health authorities agree that no safe blood lead level in children has been identified – even blood lead concentrations under 5 µg/dL (historically considered “low”) are associated with reduced IQ and attention span.^[19] Lead is a potent neurotoxin that can cause irreversible cognitive and behavioral impairments in children, and epidemiological studies show that incremental exposure confers incremental harm without a clear threshold.^[20] Accordingly, FDA has moved away from any notion of a “tolerable” lead intake and instead uses a risk-based approach: it established an Interim Reference Level (IRL) for lead, essentially an intake level (in µg/day) linked to a very small predicted IQ loss in children.^[21] This IRL – updated in 2022 with the latest data – helped inform the new lead action levels, to keep average exposures below the level corresponding to, for example, an estimated 1 point IQ decrement in a tiny fraction of children.^[22][23] In setting 10 ppb and 20 ppb lead cutoffs, FDA projected meaningful reductions in dietary lead exposure while balancing achievability.^[24]

Topic	Summary
Inorganic Arsenic	Infant exposure primarily from fish and seafood; neurotoxicity (cognitive and motor deficits) is well-documented via Minamata and epidemiological data.[25] Due to prenatal and infant susceptibility, FDA / EPA fish advisories focus on species selection rather than numeric limits.[26] FDA commissioned the 2024 NAS review on seafood and child neuro-development[27]; regulatory responses under review include updating fish guidance or expanding controls.[28] No general mercury limits exist for non-seafood infant foods; risk management is dietary-guidance-based, balancing omega-3 benefits versus methylmercury hazards.[29] Overall, Closer to Zero integrates toxicological rigor IQ-loss endpoints for lead/arsenic, cancer + organ toxicity for cadmium/arsenic, and risk-benefit mitigation for methylmercury anchored by Interim Reference Levels for evidence-based, health-protective regulation.[30]
Cadmium	Also Group 1 carcinogen; bioaccumulates in kidneys and bones, with chronic exposure causing nephrotoxicity and skeletal effects.[31] Even sub-toxic doses can disrupt neurodevelopment, calcium metabolism, and collagen synthesis in infants.[32] Found in grains, cereals, root crops, and shellfish.[33] FDA’s 2023 toxicological reassessment is redefining safe intake benchmarks to support cadmium action levels.[34] The EU already enforces stringent limits (e.g., 5 µg/kg in infant formula powder). U.S. alignment under Closer to Zero will likely adopt similarly protective thresholds once data validation concludes.
Mercury (Methylmercury)	Infant exposure primarily from fish and seafood; neurotoxicity (cognitive and motor deficits) is well-documented via Minamata and epidemiological data.[35] Due to prenatal and infant susceptibility, FDA / EPA fish advisories focus on species selection rather than numeric limits.[36] FDA commissioned the 2024 NAS review on seafood and child neurodevelopment[37]; regulatory responses under review include updating fish guidance or expanding controls.[38] No general mercury limits exist for non-seafood infant foods; risk management is dietary-guidance-based, balancing omega-3 benefits versus methylmercury hazards.[39] Overall, Closer to Zero integrates toxicological rigor—IQ-loss endpoints for lead/arsenic, cancer + organ toxicity for cadmium/arsenic, and risk-benefit mitigation for methylmercury anchored by Interim Reference Levels for evidence-based, health-protective regulation.[40]

From Bench to Shelf: Exposure, Testing, and Variability

Translating toxicology into policy means bridging research and real-world exposure, understanding contamination variability, refining testing, and assessing exposure. FDA modeled infant exposure by combining consumption data with contaminant levels in foods.^[41] Surveys such as the Toxic Elements Program and Total Diet Study analyzed hundreds of infant food samples for heavy metals,^[42][43] identifying key contributors: rice cereals as major inorganic arsenic sources ^[44]; sweet potatoes and carrots for lead and cadmium; and fruit juices containing lead or arsenic, depending on water or concentrates. By 2018, 76% of infant rice cereals were below 100 ppb arsenic (vs. ~36% in 2011–2013),^[45] showing improved sourcing and processing. Yet, some children consuming rice cereals daily could still approach or exceed interim reference doses.^[46]

A core goal of Closer to Zero is advancing analytical precision. FDA and stakeholders employ highly sensitive techniques like ICP-MS to detect heavy metals (arsenic, lead, cadmium, mercury) at single-digit ppb levels.^[47] FDA’s lead guidance references validated ICP-MS methods to ensure compliance.^[48] Manufacturers also use ICP-MS or atomic absorption for quality control, including speciation analysis of inorganic arsenic in rice.^[49] As testing improved, it revealed that even “healthy” crops (e.g., brown rice, spinach) can naturally accumulate metals via soil uptake data essential for setting action levels and screening ingredients.

Ultimately, toxicologists set safety benchmarks, analysts measure exposure, and policymakers define feasible action levels.^[50] Manufacturers must maintain production below these levels using best-available testing. FDA’s “cycle of continual improvement” ensures re-evaluation: once limits are met, exposure data and technology advances will guide whether lower reference and action levels are justified.^[51] This iterative process keeps policy aligned with emerging science for safer infant foods.

Global Benchmarks and Harmonization

Heavy metal limits for infant foods are a global focus, requiring alignment for multinational producers. The European Union (EU) maintains some of the world’s strictest standards through Regulation (EC) No. 1881/2006. In 2021, the EU reduced lead limits in baby foods to 20 ppb (from 50 ppb) and 10 ppb for infant formula powder.^[52] FDA’s Closer to Zero mirrors or exceeds these, setting 10 ppb for most baby foods and 20 ppb for root vegetables and dry cereals.^[53][54] The EU’s fruit juice limit is 50 ppb, while the FDA proposed 10 ppb for apple juice more stringent, though not finalized. EU limits for general foods remain higher (≈100 ppb).^[55]

For inorganic arsenic, Codex sets 200 ppb in polished rice,^[56] while both EU and FDA cap infant rice cereal at 100 ppb,^[57][58]showing scientific convergence. However, Codex has no infant-specific arsenic standards beyond rice, and U.S. guidance for other foods is forthcoming. The EU recommends ≤10–15 ppb arsenic in infant juices, aligned with drinking water standards.

Cadmium standards diverge more: the EU enforces 5 ppb for infant formula and 20 ppb for other baby foods[32].^[59] Codex lacks a baby food cadmium limit, and FDA’s draft guidance (expected 2025) may align with the EU’s precautionary approach.^[60] JECFA’s tolerable daily intake (~0.8 µg/kg) underscores the need to minimize exposure, particularly since grains are globally traded.

Mercury standards focus on methylmercury in fish. Codex and EU specify limits by species (~0.3–1 mg/kg)[51]. While the FDA may not set baby food mercury levels, it continues to advise selecting low-mercury fish, consistent with Codex guidance.

International harmonization is advancing: Codex’s 0.01 mg/kg lead limit in infant formula (2014)^[61] was adopted globally, with the EU and FDA both matching this threshold.^[62] For arsenic, Codex benchmarks have driven similar alignment across the U.S., EU, and China. Convergence reduces regulatory burden and prevents “standard shopping.”

Domestically, several U.S. states, California, Maryland, New York, Virginia, and Illinois, mandate testing and disclosure of lead, arsenic, cadmium, and mercury in baby foods.^[63] California requires QR codes linking to heavy metal test results.^[64] While these laws reference FDA guidance, they promote transparency and adherence to the strictest limits. Internationally, Canada mirrors U.S.–EU arsenic and lead levels, while Australia/New Zealand are revising older, higher limits (1 mg/kg in rice).^[65] Overall, regulatory trends indicate a global tightening and harmonization of heavy metal standards in infant foods based on toxicological evidence and achievable reductions.

Implications for Manufacturers and Retailers

The Closer to Zero initiative imposes direct operational responsibilities on infant food manufacturers. These companies must now demonstrate full compliance with the FDA’s action levels (and similar global standards), not only to avoid enforcement but also to maintain consumer trust. With heightened public and regulatory scrutiny, manufacturers have adopted comprehensive heavy metal testing as part of their standard quality assurance procedures.

For instance, Gerber – the largest U.S. baby food brand – reports testing every batch for heavy metals, running over 100 quality checks per product, and screening ingredients from more than 100 suppliers.^[66] They claim to test for over 500 potential toxins, including metals, using state-of-the-art methods.^[67] Testing occurs both at the ingredient intake stage (to block contaminated lots) and at the finished product stage (to verify compliance).

Manufacturers are also taking proactive measures to control contamination at the source. They increasingly source raw materials from regions with low soil contaminant levels.^[68] Practices such as rotating crops, choosing low-arsenic rice fields, and adjusting soil pH to immobilize cadmium have proven effective.^[69] Newer innovations, such as CRISPR-assisted breeding of low-uptake plant varieties, biochar soil remediation, and nanoparticle-based chelation, are emerging as promising methods to reduce heavy metal absorption at the agricultural level.

Process Stage / Metal	Key Mitigation Techniques
Sourcing (Arsenic, Cadmium, Lead)	Select crops grown in low-contaminant soil regions; apply soil pH management and biochar amendments to immobilize metals.[70][71]
Crop Selection (Arsenic)	Use rice varieties with low arsenic uptake; apply CRISPR gene-editing to limit root absorption.[72]
Supplier Control (All metals)	Implement supplier certification programs; require analytical proof of soil and crop metal levels.[73]
Processing – Sorting & Filtration (Lead, Mercury)	Optical sorting, nanofiltration membranes, and magnetic adsorption to remove metal particulates. [74]
Processing – Grain Refinement (Arsenic)	Polishing and parboiling rice to remove arsenic-rich outer layers often achieving <100 ppb levels.[75]
Product Testing (All metals)	Routine batch testing for >500 toxins; multi-stage verification of raw and finished products.[76]
Transparency & Labeling (All metals)	QR-coded data access and public test disclosures; blockchain tracking of metal testing results. [77][78]
Retail & Inventory Management (Lead)	Routine lot verification, retailer-initiated testing, and digital recall alerts to prevent shelf contamination.[79]

Retailers, including major chains like Target and Walmart, are both sellers and manufacturers (through private-label baby foods) and thus share legal obligations to meet Closer to Zero limits. Many now require suppliers to provide certificates of compliance or adhere to stricter internal limits. Some retailers have pledged to stock only products that satisfy Closer to Zero thresholds, while those in California and other states are implementing QR-code-based transparency systems for consumers.^[80]

However, practical barriers persist. Investigations show that while some firms offer instant QR access to heavy metal data, others require multiple verification steps.^[81] Retailers, as the direct consumer interface, may face reputational risks if safety data are inaccessible.

Moreover, recall management has emerged as a critical issue. Following the 2023 recall of over 25,000 units of lead-tainted baby food, some products lingered on shelves due to ineffective communication and long expiration dates.^[82] To prevent recurrence, retailers may adopt automated lot tracking, AI-based anomaly detection, and predictive risk mapping, novel digital tools for proactive contamination control.

In essence, both manufacturers and retailers form a tightly linked defense chain against heavy metal exposure. Those who go beyond compliance, embracing technological innovation, data transparency, and supply chain rigor, are likely to gain competitive and reputational advantages in a market where consumer confidence is paramount.

Policy Outlook and Evidence Gaps

As of October 29, 2025, the FDA’s Closer to Zero initiative is progressing but incomplete. Draft guidance for arsenic and cadmium action levels in baby foods is expected in 2025, with finalization likely by 2026.^[83] These may expand beyond infant rice cereal (100 ppb) to other products like fruit–grain blends and teething biscuits, while cadmium limits could target root vegetable snacks or mixed meals. Mercury policy will remain focused on fish consumption advice as the FDA and EPA review the 2024 National Academy of Sciences seafood report.^[84] Any new mercury limits in purees or toddler snacks appear unlikely, with emphasis instead on promoting low-mercury fish choices.

Public and political pressure continues to shape the policy landscape. The 2021 Congressional subcommittee report criticized the FDA’s pace and proposed stricter limits (5 ppb lead, 10 ppb arsenic)[69], echoed by advocacy groups such as Healthy Babies Bright Futures (HBBF).^[85] The proposed Baby Food Safety Act (2021) sought even tighter limits (e.g., 15 ppb arsenic in cereal, 5 ppb lead in baby foods).^[86] Although not enacted, its provisions influenced several state laws. If FDA delays persist, renewed federal or state-level regulation is possible, though industry favors a unified national standard.

Key evidence gaps remain. The most critical is the cumulative risk from concurrent exposures to multiple metals—lead, arsenic, cadmium—whose combined neurotoxic effects may be additive or synergistic. Current FDA risk assessments consider each metal separately.^[87] Developing a cumulative framework akin to pesticide mixture assessments is a priority. Another gap is understanding bioavailability and speciation, as nutrient interactions (e.g., calcium or iron reducing lead absorption) and chemical transformations affect toxicity.^[88] FDA continues evaluating arsenic speciation data to refine future risk models.^[89]

Analytical advances are also needed. While ICP-MS provides precise detection, the FDA and partners are exploring rapid or low-cost field testing to enable on-site screening in production facilities. Such tools could enhance preventive control. Parallel research focuses on agronomic mitigation, including crop breeding, soil remediation, and processing innovations. USDA’s ARS and NIFA fund projects to reduce arsenic in rice and cadmium in vegetables, though breeding and remediation efforts may take years.

Ultimately, real progress will be measured by reductions in biomarkers, blood lead, and urinary arsenic in U.S. infants and toddlers. Early data trends are promising, but linking improvements directly to Closer to Zero will require longitudinal analysis. The initiative’s trajectory points toward comprehensive, science-based standards for all four metals, supported by advancing toxicology, exposure science, and technology. Closer to Zero remains a dynamic, iterative effort continually evolving as evidence strengthens.

Conclusion

FDA’s Closer to Zero initiative represents a pivotal shift in infant food safety policy – one that tightly intertwines toxicological science with regulatory action. In condensing decades of research on heavy metal toxicity into pragmatic guidance levels, the FDA has given the baby food industry clear targets that are grounded in health protection. The effort underscores that “safe enough” is a moving target: as we learn more about even minuscule exposures affecting neurodevelopment, policy must relentlessly push contaminant levels closer to zero. At the same time, the initiative balances this ideal with real-world feasibility, leveraging improved testing and best practices so that nutritional quality is preserved. We have reviewed how Closer to Zero defines what is (and isn’t) expected, the scientific rationale driving each metal’s action level, and how those standards stack up internationally. The take-home for professionals in clinical, quality, manufacturing, retail, and regulatory roles is that heavy metal risk in baby foods is now actively managed through a preventive, data-informed approach. For manufacturers and retailers, compliance with these evolving standards isn’t just about avoiding enforcement – it’s about brand integrity and consumer trust in a sector that caters to the most vulnerable consumers. For regulators and scientists, Closer to Zero provides a framework that can adapt as evidence grows, making it a potential model for addressing other food contaminants in the future.

As of late 2025, we stand at an inflection point: initial benchmarks (like lead 10 ppb) are in place, and more are imminent, but the work is ongoing. Success will ultimately be measured by real reductions in infants’ exposure and, hopefully, tangible health benefits such as improved developmental outcomes. The current evidence suggests that every step closer to zero – no matter how incremental – is worth it. Continued collaboration is key: FDA’s inclusive process invites input from academia, industry, healthcare, and consumer groups,^[90] and this collective engagement will help fill remaining knowledge gaps and ensure feasible solutions. In conclusion, Closer to Zero is more than a regulatory initiative; it is a commitment to continual improvement in food safety, translating cutting-edge toxicology into practical measures that safeguard children’s development. By maintaining the momentum and scientific rigor, we can foresee a future where heavy metal hazards in baby food truly become as close to zero as possible, fulfilling our duty to the next generation.

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