Empowering Communities: How Local Authorities Can Shape Healthier Food Environments

By Professor Amelia Lake, Dr Claire O'Malley and Dr Helen Moore

Upstream approaches to improve the access and availability of healthy food and environments which promote physical activity are urgently required. These approaches include creating a healthier food environment. At a time where the cost of living is rising, food insecurity is a present and growing concern, and obesity remains a significant health challenge, Local Authorities have a pivotal role to play in creating supportive food environments. Local Authorities themselves have been subject to cuts in funding and it is a challenging environment, however many colleagues across the country from a range of professional backgrounds are working hard to shape the environments of local populations and need upstream approaches in terms of national policy guidance to support their work.

National Planning Guidance There is a need for national planning guidance to clearly state that the primary purpose of the planning system is to promote good-health and prevent ill-health, reduce health inequalities and address major public health priorities e.g. obesity. While national policies often emphasise individual responsibility, local governments can work with their communities to implement strategies to enable healthier communities. Our research has worked with communities, professionals, policy makers and other key stakeholders to explore how local authorities can shape healthier environments. While we present some suggestions below there are many other ways that Local Authorities can be creative around shaping healthier food

Creating healthy environments is everyone’s responsibility Healthy Food Environments should be a shared responsibility across many professional groups within a Local Authority. When it comes to dealing with Planning Appeals around Hot Food Takeaways, our research demonstrated that effective communication among professional groups was crucial for successfully defending decisions. Additionally, understanding the long-term impact of takeaway outlets on health and communities was important. To strengthen appeals and improve responsiveness, professionals involved should be well-versed in locating up-to-date records and statistical data.

Implementing Regulations Local Authorities can use planning regulations to shape the food landscape. For example, by limiting the density of fast-food outlets and encouraging other outlets, they can ensure residents have better access to healthy food options. This strategic placement of food businesses can significantly influence the availability and consumption of nutritious foods. Research led by Prof Heather Brown at Lancaster, has shown the effectiveness of such regulations at reducing the density of hot food takeaways. In England there are three main types of planning policy used to promote a healthy food environment:

1. restricting new outlets near schools;
2. restricting new outlets if the density of existing outlets has surpassed a certain threshold of all retail outlets,
3. restricting new outlets if childhood obesity rates are above a certain threshold.

In 2015, Gateshead council, a local authority in the North-East of England, implemented all three types of guidance. The resulting evaluation found a reduction in density of fast-food outlets by -17.50 and a 11% decrease in the proportion of fast-food outlets in Gateshead, compared to other similar local authorities in the North-East. This evaluation suggests that a multi-pronged planning approach can significantly change the food environment in the relatively short term (4 years).

Working alongside the Planning Inspectorate The National Planning Policy Framework promotes the idea of ‘healthy communities’, and it is possible to use the planning system to support this, with Local Authorities rejecting planning applications that would lead to the spread of hot food takeaways in a specific area and create a healthier local food environment. However, these decisions are subject to appeal, where the Planning Inspectorate is asked to review and give a final decision on the outcome. Our recent work in this area has shown that a) having a Local Plan gives Local Authorities a sound basis on which to reject hot food takeaway applications; and b) while the existence of a Supplementary Planning Document can be useful, it does not guarantee success in rejecting planning applications. It is imperative that new planning guidance promotes good health, includes input from the Planning Inspectorate with the aim of assisting local authorities in addressing local authority public health priorities

Regulating Outdoor Food Advertising We support the call to extend regulation around marketing of high fat, sugar or salt (HFSS) food and drink on TV and online to outdoor advertising. With the implementation of the Transport for London ban on advertising of junk food we have seen Local Authorities explore their advertising policies, work spear headed by Sustain. Our own research in the North East has explored outdoor advertising in socio-economically deprived areas. Bus shelter adverts were analysed and 832 advertisements were identified. Almost half (48.9 %) were for foods or beverages. Of food and non-alcoholic beverage adverts, 35.1 % were less healthy. Most food advertisements (98.9 %) used at least one of the persuasive creative strategies. Food advertisements were found to be of appeal to children under 18 years of age (71.9 %). Local Authorities are tied into complex contracts with advertisers which makes this a challenging area to negotiate. While research has explored the advertising of unhealthy commodities by local authorities, there is still much more to be done.

The ever-changing food environment A study in one area in North-East England, showed that a new fast-food outlet led to more visits by 11- to 16-year-olds. This increase was significant within 3 to 9 months of opening, and more young people reported visiting fast-food places on weekdays during this period compared to before it opened. Young people also reported going to fast-food places for taste, low cost, socializing, and free Wi-Fi. While this would not be covered by the proposed hot food takeaway restrictions, it highlights the need to look at the entire food system and where outlets are located; policies preventing young people from leaving school during lunch time could reduce fast-food consumption as could planning for health.

The rise of dark kitchens, which operate solely for online orders without dine-in options, marks a significant shift in the food delivery industry. These kitchens cater to the growing demand for delivery services on platforms like Deliveroo and UberEATS. This trend brings economic efficiencies but also raises public health concerns including environmental health risks and access and availability to high fat, salt and sugar (HFSS) foods. This is of particular concern in areas of high deprivation. It is crucial for local authorities to stay informed and address any planning and public health challenges while harnessing the opportunities presented by dark kitchens to maintain a safe and vibrant food delivery system for local communities. In our current work, professionals from Local Authorities have voiced concerns about the current system for monitoring and registration of hot food takeaways not being flexible enough to be used for dark kitchens.

Monitoring and Evaluation Regular assessment of the local food environment and the effectiveness of implemented policies is crucial. Local Authorities can collect and analyse data to identify areas for improvement and adjust strategies accordingly. Ongoing evaluation would help ensure that their policies are effective and responsive to communities.

We believe that by focusing on these areas, Local Authorities can create environments that support healthy choices and contribute to the overall well-being of their communities. Through strategic planning and community engagement, they can make a significant impact on public health and quality of life. Local Authorities should understand the application of Local Planning Policy and Supplementary Planning Documents with respect to hot food takeaway applications and appeals, have support from senior management, and need to be able to work on cases in a timely manner which requires capacity within staffing and access to appropriate resources.

* This blog first appeared in the Obesity Health Alliance website

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