Proposed National Good Food Nation Plan: Equality Impact Assessment

Key Findings

Human Rights

The Act recognises the importance of human rights. Section 5 stipulates that in preparing this Plan, the Scottish Ministers must have regard to the following international human rights instruments:

• Article 11 (so far as it concerns adequate food) of the International Covenant on Economic, Social and Cultural Rights (“ICESCR”).
• Article 24(2)(c) (so far as it concerns the provision of adequate nutritious foods) of the United Nations Convention on the Rights of the Child (“UNCRC”).
• Articles 27(1) and (3) (so far as they concern nutrition) of the UNCRC.
• Article 12(2) (so far as it as concerns adequate nutrition during pregnancy and lactation) of the Convention on the Elimination of All Forms of Discrimination Against Women (“CEDAW”).

These instruments are woven into the national Good Food Nation Outcomes and therefore throughout the rest of the Plan. The Scottish Government is committed to respecting, protecting and fulfilling internationally recognised human rights. The right to adequate food is a human right, as part of the right to an adequate standard of living under article 11 of the International Covenant on Economic, Social and Cultural Rights, and essential to the realisation of other human rights. The right to adequate food can only be fully guaranteed by addressing the accessibility, availability, acceptability, quality of food in an integrated and systemic manner, and by recognising the indivisible, interdependent and interrelated nature of all human rights which are underpinned by dignity.

The United Nations Committee on Economic, Social and Cultural Rights considers the key components of the right to adequate food includes:

Availability:

• Food should be culturally acceptable.
• Food must satisfy dietary needs, taking into account the individual’s age, living conditions, health, occupation etc.
• Food should be safe for human consumption.
• Food should be available from natural resources, either through the production of food by cultivating land or animal husbandry, or through other ways of obtaining food (such as fishing, hunting, or gathering).
• Food should be available for sale in markets and shops.
• Food should be available for future generations through sustainable production, considering factors such as the impact of possible climate change.

Accessibility:

• Food should be physically accessible for all, including individuals who live in very rural areas; and individuals who are physically vulnerable (such as children, people with ill health, disabled people, or older people).
• Food should be economically accessible for all. Everyone should be able to afford food for an adequate diet without compromising on any other basic needs such as heating or housing.
• The accessibility of food should be sustainable for present and future generations.

Human rights are woven into the Plan and are an important component of the Good Food Nation Outcomes in particular. As we are making progress to embed the Good Food Nation Outcomes into policymaking, we would expect that progress towards the realisation of human rights, in particular the human right to food, will be made.

Evidence

We identified the following relevant evidence, organised by equality groups. The evidence highlights that, where data is available, most equality groups experience worse outcomes in relation to healthy weight, healthy diets, diet related health conditions and food insecurity compared to the general population. The evidence areas considered are of particular relevance for Good Food Nation Outcomes 1 and 3. If these Outcomes were achieved, then inequalities are likely to be reduced the topic areas contained in these. We will continue to monitor how inequalities in these areas develop, as our work on Good Food Nation progresses.

1. Age

Healthy weight

• In 2023, those aged 16-24 had a significantly lower prevalence of overweight and obesity, with 38% prevalence of overweight (including obesity) and 21% prevalence of obesity (including morbid obesity). By comparison, overweight and obesity were most prevalent among those aged 55-64 (77% and 40% respectively).
• In 2023, mean BMI was 28.0 kg/m2. It was lowest for those aged 16-24 at 25.5 kg/m2 and increased across the age groups until age 55-64 (29.2 kg/m2), before decreasing slightly to 27.7 kg/m2 among those aged 75+.
• In 2023, no significant variation was recorded by age or sex in the proportion of children in the healthy weight range. In 2023, females were more likely to record a BMI within the healthy range than males (70% and 66% respectively), but this difference was not significant.^[1]

Healthy diet

• In 2021, younger adults, and young men in particular, were less likely than others to consume the recommended five portions of fruit and vegetables per day. Of adults aged 16-24, 13% met the Scottish Dietary Goal, including 9% of men and 17% of women. This proportion was highest for those aged 65-74, where 29% consumed their five-a-day (28% of men and 29% of women). (Diet data for adults was last collected in 2021).
• In 2021, mean consumption followed this same pattern, with the lowest number of fruit and vegetables on average for those aged 16-24 (2.8 portions), and the highest for those aged 65-74 (3.9 portions). (Diet data for adults was last collected in 2021).^[2]
• In 2023, 18% of all children consumed 5 portions or more of fruit and vegetables. For 2-7-year-olds this figure was 22%, and for 8-15-year-olds this figure was 15%. Of all children, most consumed either 1 portion or more but less than 2, or 2 portions or more but less than 3 (both 20%). Among 2-7-year-olds, most consumed 5 portions or more (22%), and among 8-15-year-olds, most consumed 1 portion or more but less than 2 (22%).^[3]

Food insecurity

In 2023, of all adults aged 16 and over, 14% worried they would run out of food; 11% ate less; and 6% ran out of food.^[4] For different age groups, these proportions were as follows:

• 16-44: 20% worried they would run out of food; 15% ate less; 8% ran out of food.
• 45-64: 13% worried they would run out of food; 10% ate less; 5% ran out of food.
• 65+: 5% worried they would run out of food; 4% ate less; 2% ran out of food.

2. Disability

Healthy weight

• In 2023, 40% of adults with a limiting long-term condition in Scotland were living with obesity, compared to 31% of those with a non-limiting condition, and 26% of those without a condition.

Healthy diet

• In 2021, fewer adults in Scotland with a limiting long-term condition (19%) ate 5 or more portions of fruit and vegetables a day than those with no condition (23%).^[5]

Diet-related health conditions

• In 2023, 22% of people with a limiting longstanding illness had a cardiovascular condition, compared with 9% with no longstanding illness. Similarly, 9% of people with a limiting longstanding illness had doctor-diagnosed diabetes, compared with 12% with a non-limiting longstanding illness.^[6]

Food insecurity

• UK level Family Resources Survey data from 2023^[7] show that households with one or more disabled adult are less likely to be food secure (7% low, 9% very low) than households with no disabled adults (4% low; 3% very low). Households with one or more disabled adult were also more likely to have used a foodbank (3% within the last 30 days; 6% within the last 12 months), compared with households without disabled adults (1% within the last 30 days; 2% within 12 last months).
• Scottish Government analysis of the Family Resources Survey (FRS)^[8] provides three-year averages for food security data in Scotland for 2021-24. Looking at household food security by disability, of the households with no disabled person(s), 91% have high, 5% have marginal, 2% have low and 2% have very low food security. Of the households with disabled person(s), 77% have high, 7% have marginal, 7% have low, and 9% have very low food security. Shared households such as a group of students or other unrelated adults were excluded from the analysis.

3. Sex

Healthy weight

• In 2023, the mean Body Mass Index (BMI) for adults was 28.0kg/m2, with no significant difference by sex.^[9]
• In 2023, female children were more likely to record a BMI within the healthy range than males (70% and 66% respectively), but this difference was not significant.^[10]

Healthy diet

In 2021, similar proportions of males and females consumed five portions of fruit and vegetables per day

• In 2021, just over one-in-five adults (22% of men and 23% of women) consumed the recommended five or more portions of fruit and vegetables per day, the same as in 2019.
• In 2023, 17% of male children and 19% of female children met the recommended five or more portions of fruit and vegetables per day.^[11]

Diet-related Health Conditions

• In 2023, 16% of males reported any cardiovascular disease compared with 15% of females.
• In 2023, prevalence of diabetes was 7% for males and 6% for females.

Gender pay gap

• The Gender Pay Gap in 2023 for the manufacture of food products was 14.5% in 2024. ^[12] This compared to a gender pay gap of 9.7% in all manufacturing and 2.2% in all industries and services.

Food insecurity

• Scottish Government analysis of the Family Resources Survey (FRS)^[13] provides three-year averages for food security data in Scotland for 2021-24. Of any households with a male as household head, 87% have high, 5% have marginal, 4% have low and 4% have very low food security. Of households with a female head of household, 81% have high, 7% have marginal, 5% have low and 7% have very low food security. This analysis excludes shared households such as a group of students or other unrelated adults.
• Scottish Government’s analysis of the 2021-24 FRS data also looks at single adult households. For both female and male pensioners, 93% have high and 4% have marginal food security. For both groups 2% have low and 2% have very low food security. Among working age males with no dependent children, 69% have high, 7% have marginal, 9% have low, and 15% have very low food security. Among working age females with no dependent children, 68% have high, 9% have marginal, 9% have low, and 15% have very low food security. There is not enough data available for working age males with dependent children, but among working age females with dependent children, 58% have high, 12% have marginal, 13% have low and 18% have very low food security.
• Scottish Health Survey also provides data on food security.^[14] In 2023, 12% of males reported being worried they would run out of food; 9% ate less; and 5% ran out of food. Of females, 16% reported they were worried they would run out of food; 12% ate less; and 6% ran out of food.

4. Pregnancy and maternity

Breastfeeding

• According to Infant Feeding Statistics 2023-24, more than two thirds (68%) of babies reviewed in Scotland in 2023/24 were breastfed for at least some time after their birth.^[15]
• In 2023/24, of babies reviewed at 6-8 weeks, 33% were exclusively breastfed, 16% mixed breast and formula fed and 51% formula fed.
• Increases in breastfeeding over the past 10 years have been greatest among those groups with historically lower rates, such as younger women and those living in more deprived areas. This means inequalities in breastfeeding have reduced over time.

Healthy weight and diet-related health conditions

• Although pregnant women from more deprived areas were more likely to be obese, maintaining a healthy weight in pregnancy is an issue across all areas of Scotland – in 2023/24 20% of women from the least deprived areas were obese at antenatal booking while the figure was 32% for those from the most deprived areas.^[16]
• In 2023/24, over a quarter and nearly a tenth of maternities were affected by obesity and diabetes respectively.
• Almost a quarter of maternities in 2023/24 were to women living in the most deprived areas. Deprivation impacts the health of pregnant women and babies across Scotland with women from more deprived areas being more likely to be obese, have diabetes, to give birth prematurely and to have babies small for their gestation compared to those from less deprived areas.

5. Gender reassignment

Food insecurity

• The health needs assessment (HNA) commissioned by NHS Greater Glasgow and Clyde and NHS Lothian (and from 2020 onwards Public Health Scotland) included a national online survey (conducted in 2021) with 2,358 LGBT+ respondents.^[17]
• More than one in six (18%) LGBT+ respondents said that during the last 12 months there was a time when they were worried they would run out of food because of a lack of money or other resources. The prevalence of food insecurity was highest among trans masculine (30%) and non-binary (27%) respondents. The figure was 19% for trans women.

6. Sexual orientation

Food insecurity

The health needs assessment (HNA) commissioned by NHS Greater Glasgow and Clyde, and NHS Lothian (and from 2020 onwards Public Health Scotland) included a national online survey (conducted in 2021) with 2,358 LGBT+ respondents.^[18]

• In the HNA, more than one in six (18%) LGBT+ respondents said that during the last 12 months there was a time when they were worried they would run out of food because of a lack of money or other resources.
• Overall, the HNA reported 20% of LGBT+ people aged under 50 experiencing food insecurity in the last 12 months.
• Of the HNA respondents, 13% of gay/lesbian women; 19% of bisexual women; 13% of gay men; and 13% of bisexual men reported experiencing food insecurity in the last 12 months.

Scottish Government analysis of the Family Resources Survey (FRS) provides three-year averages for food security data in Scotland for 2021-24.^[19]

• Looking at household food security by sexual orientation, among heterosexual/straight households 86% have high, 5% have marginal, 4% have low and 5% have very low food security. Among other households (this category includes ‘Gay/lesbian’, ‘Bisexual’ and ‘Other’), 76% have high, 6% have marginal, 7% have low, and 11% have very low food security. Shared households such as a group of students or other unrelated adults were excluded from the analysis. Many respondents (1,070,000 out of 3,720,000) did not report their sexual orientation.

7. Race

Healthy weight and health conditions

A recent Scottish Government scoping review (November 2022) reveals that high quality evidence on the intersection of ethnicity and diet, and ethnicity and healthy weight in Scotland remains limited.^[20]

There is strong evidence that specific ethnic groups have approximately 3 to 5 times higher rates in Type 2 Diabetes than non-minority groups. Type 2 Diabetes is caused by a complex range of biological, socio-economic and lifestyle factors.

The latest data available on healthy weight in minority ethnic groups compared to non-minority groups in Scotland dates to 2012. This dataset reveals that the highest prevalence of obesity was among African, Caribbean or Black respondents (35%) but this was not significantly different from the average (27%).

• The Scottish Health Survey results show no significant difference between White British and Asian Indian and Pakistani ethnic groups. This may be down to small sample sizes, however.
• Chinese and Asian Other respondents had the lowest prevalence of overweight (41% and 45% respectively) and obesity (4% and 9% respectively), and this was significantly lower than the national average.

UK wide data^[21] is more recent and reveals that:

• In the year to November 2022, 63.8% of adults aged 18 and over were overweight or living with obesity – up by 0.5% from the previous year.
• 70.8% of black adults were overweight or living with obesity – the highest percentage out of all ethnic groups.
• 33.1% of adults from the Chinese ethnic group were overweight or living with obesity – the lowest percentage.

Healthy Diet

• From 2008 to 2011, ‘White British’ respondents were found to be the least likely to eat 5 portions of fruit or vegetables a-day (21%). ‘White Other’ (40%), ‘Pakistani’ (48%), ‘Chinese’ (49%), ‘Asian Other’ (51%) all reported higher levels of consumption for 5 or more portions of fruit or vegetables per day than the national average (22%).^[22]
• More recent stats were not identified.

Food insecurity

Scottish Government analysis of the Family Resources Survey (FRS)^[23] provides three-year averages for food security data in Scotland for 2021-24. Looking at household food security by ethnicity, of the ‘White – British’ category, 85% have high, 6% have marginal, 4% have low and 6% have very low food security.

For the ‘White – Other’ category, these proportions are 86% (high), 4% (marginal), 7% (low), and 3% (very low) respectively.

For ‘Mixed, Black or Black British, and Other’, the proportions are 69% (high), 18% (marginal), and 6% (low) – data for very low food security is not available due to sample sizes.

For ‘Asian or Asian British’ category, the proportions are 87% (high), 7% (marginal), 5% (low) and 2% (very low). Shared households such as a group of students or other unrelated adults were excluded from the analysis.

8. Religion or belief

Healthy Diet

• Between 2008 and 2011, Buddhists (63%), Muslims (49%) and Hindus (44%) were most likely to meet the 5-a-day recommendation and consumed the highest mean daily portions (6.8, 5.1 and 4.5 portions respectively), significantly greater than the national average (22% and 3.2 portions).^[24]

Food insecurity

Scottish Government analysis of the Family Resources Survey (FRS)^[25] provides three-year averages for food security data in Scotland for 2021-24. Looking at household food security by religion, the proportions are as follows:

• No religion: 85% high, 5% marginal, 4% low, 6% very low food security.
• Church of Scotland: 90% high, 4% marginal, 3% low, 3% very low food security.
• Roman Catholic: 82% high, 8% marginal, 5% low, 5% very low food security.
• Other Christian: 87% high, 6% marginal, 4% low, 3% very low food security.
• Other religion: 75% high, 10% marginal, 8% low, 7% very low food security.
• Muslim: 73% high, 5% very low food security. No data available for marginal and low food security due to sample sizes.

Public Sector Equality Duty Needs

We expect that the progressive realisation of the national Good Food Nation Outcomes will have a positive impact on protected characteristics over time in relation to advancing equality of opportunity for. This is based on the fact that many equality groups currently experience worse outcomes than the general population in relation to food insecurity, access to a healthy diet and healthy weight. If the Outcomes were achieved, this would narrow the gap in inequalities, thereby having a positive impact.

In relation to eliminating unlawful discrimination, harassment and victimisation, and promoting good relations among and between different age groups, we expect that the Plan will either have no impact or no negative impacts on any of the protected characteristics.

Have positive or negative impacts been identified for any of the equality groups?

Yes, we have identified potential positive impacts for the following equality groups:

• Age
• Disability
• Sex
• Pregnancy and maternity
• Race
• Religion or belief

We have not identified any negative impacts.

Is the policy directly or indirectly discriminatory under the Equality Act 2010?

No

If the policy is indirectly discriminatory, how is it justified under the relevant legislation?

N/A

If not justified, what mitigating action will be undertaken?

N/A