Food policy

Professor Corinna Hawkes, City, University of London (Centre for Food Policy)

 

They are the questions we so often hear: what works to reduce childhood obesity? What can we do? While answers to these questions vary, to date they’ve largely been about offering up evidence of specific actions: a sugar tax, front-of-pack labelling, interventions in schools, banning fast food takeaways, teaching cooking skills.

Proponents of each of these approaches argue in their favour on the basis of the evidence they have. Yet even where positive impacts of these actions are shown, questions can be raised about what constitutes sufficient impact. If a sugar tax is associated with reformulation and lower consumption, that’s good impact, right? Well, it’s not enough for people who want to see 100% proof that obesity has been influenced.

To be fair, there has been an important shift in this dialogue. Innovations such as the ‘systems mapping’ in the government’s much-cited Foresight report on obesity gave people the confidence to say: lots of things are needed to tilt the system against obesity; there is no single magic bullet, it’s a complex system, and we have to be patient and not expect immediate impact on obesity. The trouble is that policymakers still need to make specific choices about what to do – and when policymakers make proposals they are constantly confronted with the argument that there is inadequate evidence the proposed policies will work. So we are back to the beginning again – what works?

How can the discipline of food policy help?

Food policy is a young discipline. Part of what we do at the Centre for Food Policy at City, University of London – and part of my own preoccupation before I joined in 2016 – is to define that discipline. We take a progressive view. This means we see food policy as extending way beyond just one aspect of food (such as health or agriculture), encompassing all the policies that influence and shape the food system – and how and what people eat – from farm to fork. It means we place food system problems – obesity, malnutrition, poor livelihoods, exploited work, environmental damage and climate change – in the context of the interconnected systems that create them. For example, if we look at overconsumption, our systems reasoning helps us view it not just as a matter of individual people eating too many calories, but as a result of the way the whole system encourages overconsumption. This in turn has other impacts, such as climate change. And finally, it means we take an interdisciplinary approach.

What would constitute evidence in the food policy discipline?

For these reasons, a core aspect of gathering evidence in food policy involves asking and answering questions about how systems work: the food system, the policy system, and any system that affects people’s relationship with food. This can illuminate many aspects of what effective obesity policy would look like. Let me illustrate with three examples of evidence that would lead us to come to a judgement about what policies to recommend.

The first type of evidence we seek is how the system influences the problem – and how the system is in turn influenced by efforts to address it. For example, once we start to study the system, we can see a disconnect between health and the way the food system currently operates. We can see that food supply chains are a marvel of efficiency that create economic value – but also that they respond to incentives to add value that are not related to health. For example, more economic value can be created from grains if they are highly processed for use as de-germinated flour, animal feed, sweeteners and oils used in refined, manufactured foods, rather than simply kept as wholegrain, which we know is better for health.

This is evidence of misalignment between economic and health goals. One cannot do a randomised control trial of conflicts between goals, but it has profound implications for how obesity is addressed. If economic success leads to obesity, our battle to reduce it will be all the greater. Thus, the solutions we recommend should also be about how the economics – or any other relevant aspect – of the system can be changed. This in turn means we must gather evidence from the people in the food system who drive and respond to these economic incentives.

In the other direction, obesity policies have implications for the system. Front-of-pack nutrition labelling presents a very straightforward example: while the impacts on consumers are debated, one clear and consistent outcome is the way manufacturers in the system respond by improving the formulation of their products.

The second type of evidence we seek is how policies work. This involves understanding the mechanisms through which polices affect the system, including how people in the system respond to them. Let’s take the case of action in schools on obesity – a good example of the need for different disciplinary views. A straightforward policy is to improve the nutritional quality of foods offered in schools. From a public health perspective, this alone would be a simple win to get children eating healthily. But if we add the behavioural psychology perspective, we may find that teenagers respond by eating more of the restricted foods at home or on the way to or from school, owing to learned habits and preferences. Others, however, will accept the new regime, and value it.

If we then factor in the sociological perspective, we might find teens rebelling against the restrictions by ‘trading’ banned foods to earn a form of status, and food service managers rebelling because they become worried that children are now eating too little. All these things affect whether the policy will achieve its goal of advancing long-term improvements in the things people eat.

By taking an interdisciplinary approach to examining how policies work (and do not work), we can identify how to design them to be more effective, such as including measures to help young people to enjoy and value healthier food. Importantly, it also enables us to be more realistic about what we can expect their effects to be (necessary for the design of quality evaluations).

The third type of evidence we seek is about how people affected by the problem experience the system. We need evidence of how they experience the barriers and challenges to eating well, based on the realities of their lives. Take the example of food price policy. A lot of evidence indicates that people experience the food system though food prices: healthy food baskets are commonly too expensive for people to afford. This is often proposed as a primary reason for obesity among the poor – there’s a plethora of evidence that people respond to pricing. A fully person-centred view of the system goes beyond that to identify other parts to the equation. Missing these would lead to policy being rendered less effective. We might learn, for instance, that people find ‘welfare’ – such as vouchers designed to make fruit and vegetables cheaper – stigmatising. We might learn that some people don’t buy fruit and vegetables because of the time needed for preparation or fear that kids won’t eat them explaining the attractiveness of the convenience of biscuits for breakfast. Seeking to understand people’s lived experiences of a problem could help deliver policies designed to address the full range of core causes, not just the ones for which the evidence is easier to gather.

So what does this mean for the mechanisms and tools we would recommend to address child obesity? The first would be to take a very careful approach to designing policies that take into account the people of the system, and how they respond to policies. The second would be policy coherence and integration: putting governance mechanisms into place that ensure policies across sectors are all pointing in the right direction for obesity prevention. The third would be to take a person-centred approach to defining the challenges and solutions in the system, solutions that engage effectively with the communities most affected by the problem. These three approaches are not policies per se, but are ways of reasoning about and doing policy. It’s not just what we do, it’s how we do it.

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