The coronavirus (COVID-19) pandemic and current turbulence caused by the invasion of Ukraine are reminders of the crucial importance of UK food producers to our national resilience. During the first lockdown, the food supply chain responded to an unprecedented 50% surge in demand during an episode of panic buying, and they did not let us down. At every stage of the food system, from farming to manufacturing, distribution and retail, key workers in the food industry showed extraordinary commitment and ingenuity, delivering an incredible logistical feat.
International food security comes from a combination of dispersed food production around the globe and open markets. In the UK, international trade has always been an important dimension of our food security, however, successful domestic production is what gives us national resilience in an uncertain world. Those countries that are entirely dependent on imports for their food supplies tend to be characterised by less choice and higher prices.
The UK is largely self-sufficient in wheat, most meats, eggs, and some sectors of vegetable production. Sectors like soft fruit have seen a trend towards greater self-sufficiency in recent years with an extended UK season displacing imports. Overall, for the foods that we can produce in the UK, we produce around 75% of what we consume. That has been broadly stable for the past 20 years.
With the cost of agricultural commodities linked to global gas prices, there are concerns about the cost of food. Through the UK Food Strategy, there are long-term measures to support a food system that offers access to healthy and sustainable food for all. It will complement the measures that have already been taken to support those struggling to afford food and help them eat healthily – through the Healthy Start Scheme, breakfast clubs, and the Holiday Activities and Food Programme.
The food industry also has a central role to play in the government’s levelling up agenda. It is present in every part of our country. It is the largest manufacturing sector in the UK, bigger than automotive and aerospace combined. It invests in local communities. Charitable foundations formed by industrialists like Cadbury, Rowntree and Weston, have made huge contributions to communities including encouraging healthy eating. Today, food manufacturers provide employment opportunities in areas where there might otherwise be deprivation; they offer apprenticeships and opportunities; they invest in research and development, and they give local areas a sense of pride and identity. None of our food manufacturers could succeed without the farmers and fishermen who supply them with high quality produce.
There are new challenges to address that will require the characteristic ingenuity of our food industry. As Henry Dimbleby’s Independent Review highlighted, poor diet has led to a growing problem of obesity, particularly among children. The human appetite evolved before the era of calorie-dense processed foods, and excess calorie intake is one of the drivers of obesity.
Good progress has been made on reformulation in some categories such as soft drinks, crisps, and some breakfast cereals. Industry-backed initiatives like “Veg Power”, which conceived the successful “Eat Them to Defeat Them” campaign, have shown the value of positive advertising to promote vegetable consumption among children. However, there is more that must be done in future with government and industry working in partnership on a shared endeavour to promote healthier diets.
The farming and food system also has a significant impact on the environment. The future agriculture policy will seek to financially reward sustainable farming practices, make space for nature within the farmed landscape, and help farmers reduce their costs. From precision breeding techniques that reduce the need for pesticides to tractors fuelled by methane captured from slurry stores, and new feed additives that can significantly reduce methane emissions from ruminants, technological solutions are developing at pace. The future farming policy will support innovative solutions to the environmental challenges we face.
The Consultation
Plans to give shoppers more information about how and where their food is produced and ensure British farmers’ products get the recognition they deserve, were launched March 12th by Environment Secretary Steve Barclay. The proposals for fairer food labelling will ensure greater transparency around the origin of food and methods of production, helping consumers make decisions that align with their values.
Environment Secretary Steve Barclay said: This government backs British farmers, who work hard to produce food to world-leading standards and maintain our nation’s food security. British consumers want to buy their produce, but too often products made to lower standards abroad aren’t clearly labelled to tell them apart. That is why I want to make labelling showing where and how food is produced fairer and easier to understand – empowering consumers to make informed choices and rewarding our British farmers for producing high-quality, high-welfare food.
The consultation looks at how to improve country of origin labelling for certain goods, including how and where this information is displayed and what products should be included. For example, if imported pork is cured into bacon in the UK and features a Union Jack, exploring ways to make it more obvious to consumers that the pig was reared abroad – such as increasing the size of the country of origin text, or placing it on the front of the packet.
It also sets out proposals to require ‘method of production’ labelling on pork, chicken and eggs. These include a mandatory five-tier label for both domestic and imported products which would differentiate between those that fall below, meet and exceed baseline UK animal welfare regulations, which are some of the highest in the world. The consultation was announced by the Environment Secretary at the Oxford Farming Conference in January and builds on commitments in the Government food strategy.
It follows recently announced measures designed to support farmers and promote fairness in the supply chain, including the largest ever round of farming grants announced by the Prime Minister at the NFU conference in February, an annual Farm to Fork Summit to increase industry collaboration, and new regulations to ensure fair and transparent contracts for dairy farmers.
Evidence shows that consumers want to buy high-quality food, however, it can be difficult for them to clearly identify where food comes from and how it is produced. DEFRA (Department for Environment Food & Rural Affairs) easier for consumers to make informed decisions when purchasing food and allow them to choose products that align with their values. This consultation seeks views on proposals to improve transparency and consistency through improved country of origin, and animal welfare labelling in the UK. The UK government, the Scottish Government, Welsh Government and the Northern Ireland Executive are jointly publishing this consultation.
Two Areas Covered
Country of origin labelling
Origin information is mandatory on some food but not on others. Consumers often express the view that origin information is important to them and food growers and producers also want people to know where their food has been made and grown. They are seeking views and evidence on possible interventions that may improve consumer understanding of the origin of certain foods, including how and where origin information is displayed, and on which products origin information should be mandatory.
Country of origin information is required for all prepacked food, where its omission would be misleading to consumers. It is also required for fresh and frozen meat of beef cattle, sheep, goat, pigs and poultry, as well as uncut fresh fruit and vegetables, honey, olive oil, wine and some fish products. For processed food, where the origin of the primary ingredient is different to that of the food itself and the origin of the food is given, an indication that the origin of the primary ingredient is different, or the specific origin, must also be provided. In any case, where an indication of origin or provenance is given, either in words or pictures, this must be accurate.
Method of production labelling
Views are being sought on proposals to provide clearer information to consumers about the production system in which animals were reared. They are seeking views on:
- a mandatory label covering pork, chicken and eggs applying to both domestic and imported products.
- a label with five tiers and underpinning standards that are primarily based on method of production, differentiating between products that fall below, meet and exceed relevant baseline UK welfare regulations.
- this would apply to all unprocessed pork, chicken and eggs and certain prepacked and loose minimally processed products with pork, chicken or egg.
- the draft production standards (Annex B) which set out possible requirement to be met for each tier
To address existing market failures and deliver on government commitments, our proposed method of production labelling reforms aim to:
- make it easy for consumers to choose food products that align with their values by ensuring that UK baseline and higher welfare products are accessible, available and affordable.
- support farmers meeting or exceeding baseline UK welfare regulations by ensuring they are rewarded by the market.
- improve animal welfare by unlocking untapped market demand for higher welfare products.
Based on responses to the call for evidence, we have created a set of guiding principles for potential labelling reform which we have used to formulate the proposals set out in this consultation. These are that reforms should:
- be based on robust evidence and consumer research
- build on existing measures and align with existing accreditation and assurance schemes where possible
- be co-developed with stakeholders across the whole supply chain, including the metrics and standards underpinning any reform
- minimise burden on industry by putting in place appropriate mitigation measures (such as sufficient transition and compliance periods) and aligning with labelling reforms in other areas wherever possible
- prioritise sectors with: existing measures and relatively broad agreement on product definitions (such as the voluntary marketing terms in the poultry meat marketing regulations); the greatest differentiation in welfare standards; and the greatest level of consumer interest
- simplify information for the consumer, for example, through standardised terminology used across retailers, food services, product categories, and different parts of the supply chain
- not overcrowd food packaging, and streamline on-pack labelling where possible
Building on the call for evidence, the purpose of this consultation is to seek views on the proposals set out in detail below from a wide range of stakeholders across the food industry, farmers, vets, academics, trading partners, consumer and animal welfare organisations, civil society, consumers, and the general public.
The accompanying consultation-stage Impact Assessment (Annex C) has been prepared to assess the potential costs and benefits of this proposal. We are seeking your input on the impact of these proposals so that we can:
- test whether the proposals will deliver the intended benefits for consumers, farmers and animals
- fully understand the impacts of the proposals
- maximise the benefits and minimise burdens on industry if taken forward
Any information that you can provide to help make a more detailed assessment of impacts, for example, to specific sectors would be appreciated. This consultation supports delivery of two commitments made in the UK government’s Food Strategy:
- to consult on proposals to improve and expand current mandatory method of production labelling requirements for animal welfare, and to introduce equivalent measures in the foodservice sector
- to explore whether existing country of origin rules can be strengthened by mandating how and where origin information is displayed, for example, on the front of packs.
These proposals have been developed to work alongside and inform other potential food labels reforms, feeding into broader work on improving the resilience of domestic food and farming systems. Where possible, we would align the implementation of labelling reforms to reduce the number of label changes needed and minimise burden on industry.
