Proposed National Good Food Nation Plan

Part Three – Measuring Progress - Targets and Indicators

The complex nature of our food system, combined with the intentionally ambitious and far-reaching nature of the Good Food Nation Outcomes, requires an appropriate monitoring framework which can establish a baseline level of performance for our food system relative to our outcomes. Through this framework we will monitor at a national level how different aspects of our food system that are aligned to our outcomes are changing, highlighting over time areas where progress is being made and areas where challenges remain in realising our ambitious outcomes. Being able to assess on a regular basis how Scotland’s food system is performing is an essential element in our efforts to become a Good Food Nation.

The monitoring framework consists of several high-level data-driven primary indicators that relate to each outcome. Our primary indicators are drawn from a range of sources but are primarily from existing official statistics produced elsewhere across the public sector that intersect with food policy and the Good Food Nation Outcomes (i.e. poverty, health, environmental, and economic statistics). These primary indicators will be presented alongside relevant supporting evidence drawn from a wider consideration of existing research, identifying limitations where there are known evidence gaps to allow monitoring of some aspects of the outcomes at this point in time.

Targets

Alongside primary indicators we have also identified a set of targets, which will provide a further means of tracking progress in achieving the Outcomes. These are existing targets or a refinement of existing targets. As the work on Good Food Nation continues to progress, we will look to develop further targets if needed. Where appropriate, these targets are also highlighted in the monitoring framework. For others we may rely on the reporting arrangements of policy areas holding overall ownership of that policy. We have highlighted any targets and commitments alongside the relevant policies in Part Four of this plan. Annex C contains a list of all targets and commitments for ease of reference.

The Good Food Nation Indicators

This part of the plan sets out the relevant primary indicators that we intend to use initially to set a baseline to monitor progress towards the Good Food Nation Outcomes. These have been structured around more specific sub-outcomes used to group relevant indicators. Our intention is that the monitoring framework developed to support the Good Food Nation Plan is ultimately accessible and publicly available and is set in a wider context in an accompanying analytical publication later this year.

In line with the duty to report on the plan every 2 years, it is the intention that data is updated in line with reports on the Good Food Nation Plan.

In most cases, the baseline for all indicators will be set when data for 2025 becomes available (the year that the final plan is introduced). For some indicators however, due to non-annual reporting cycles, data relating to 2025 will not be available. In these cases, data from the year closest to 2025 will be used. The data reported in this publication is based on the most recent releases of these datasets available at time of publication for each indicator.

Continuous improvement of Indicators

The indicator framework and associated targets are just a starting point and as time passes, we will ensure to continuously reflect and improve upon the way we measure progress against Good Food Nation Outcomes.

High quality sources of data are a key component for developing a robust monitoring framework. As well as being relevant and representative of the outcomes, indicators should ideally be readily available, understandable, and accessible for use by a wide range of stakeholders, sensitive enough to detect changes over time, cost-effective to use and have low resource requirements for data collection and analysis. Therefore, where evidence gaps remain, it is important to consider that alternative datasets that might be suggested as the basis of an indicator in future iterations of the Good Food Nation Plan must meet these broad criteria. We have highlighted current gaps and limitations of indicators where relevant, under each outcome.

Further context to explain the reasoning for selecting the indicators will be set out in an accompanying analytical publication towards the end of 2025. These indicators will be accessible and allow users to assess changes over time and interpret the data within its context.

Indicator Framework for Outcome 1

The food environment in Scotland enables people to eat well. Everyone benefits from reliable and dignified access to safe, nutritious, affordable, enjoyable, sustainable and age-appropriate food.

The indicators included in the Good Food Nation Plan for monitoring Outcome 1 have been structured around three sub-outcomes for the purposes of the dashboard.

Sub-Outcome 1A: Everyone in Scotland can access food that is both nutritious and affordable

Primary indicators for sub-outcome 1A are based firstly on an assessment of the affordability of different foods relative to general prices as captured by the Consumer Price Index (CPIH), and secondly, through monitoring the proportion of households in Scotland that experience food insecurity as reported in the Scottish Health Survey. We also capture within this sub-outcome the uptake of free school meals within Scottish primary and secondary schools, as captured in the School Health Living Survey.

The cost of food is one important element of overall cost of living, which in turn is one of the three key drivers of child poverty in our society - alongside income from employment and income from social security and benefits in kind. Progress reports – with relevant indicators - towards tackling child poverty are set out in Scottish Government Child poverty analysis.^[22] Whilst it is recognised that there is considerable overlap between tackling child poverty and the Good Food Nation outcomes (reflected in the list of targets in Annex C), we are not duplicating on-going monitoring work set out in Child Poverty progress reports within the indicators for Good Food Nation plan.

Primary Indicator 1A.1: Rate of price inflation for foods relative to overall prices

An assessment of how the price of food is changing in line with the purchasing power of households is an important measure of food affordability relative to other essential products. Food price inflation disproportionately impacts low-income households who spend a greater proportion of their income on food and essentials.^[23] Following a period of relative stability from 2015 to 2021, food prices in the UK became a major driver of overall inflation in 2022 and 2023.

Source: Office for National Statistics, Consumer Price Index (CPIH)

In 2024, when compared to 2015, food prices increased (+35.9%) by 3 percentage points more than overall consumer prices (+32.9%). The baseline for indicator 1A.1 will be set when 2025 data is available.

Primary Indicator 1A.2: Individual level food insecurity concerns

Food insecurity concerns reported by individuals increased significantly in 2023. More individuals reported being (i) worried about running out of food due to a lack of money or other resources, (ii) eating less than they should and (iii) running out of food. Females reported a slightly higher prevalence of food insecurity across all three categories.

Source: Scottish Government, Scottish Health Survey

In 2023, 14% of individuals were worried about running out of food, 11% of individuals ate less food and 6% of individuals ran out of food. The baseline for indicator 1A.2 will be set when 2025 data is available.

Primary Indicator 1A.3: Uptake of School Meal Provision in Primary and Secondary Schools (Free or Paid For)

Food provided in schools can make a valuable contribution to improving the nutritional quality of diets and promoting consistent messages about healthy eating. The overall uptake rate of school meals (free and paid for) across all school types was 55% in 2024. This was up from 53.3% in 2020, but below the series peak of 58.1% in 2016.

Source: Scottish Government, School Healthy Living Survey

The baseline for indicator 1A.3 will be taken when 2025 data is available. It should be noted that there will be a change in the methodology for calculating school meal uptake statistics in the next release of these statistics.

Sub-outcome 1B: All foods produced, prepared and sold in Scotland are safe for human consumption and this underpins public confidence in the food that they consume

Primary indicators for sub-outcome 1B are based firstly on measures of consumer trust in the food they consume as captured by measures of public trust in Food Standards Scotland sourced from the Food Standards Scotland (FSS) Food in Scotland Consumer Tracker Survey. Primary indicators are also based on measures of safety, through the proportion of food businesses that receive a pass from the Food Hygiene Information Scheme and the number of food samples tested for food hygiene and/or authenticity by local authorities, as captured by the annual Our Food report by FSS and The Food Standards Agency (FSA).

Primary Indicator 1B.1: Proportion of the public that report a high level of trust in Food Standards Scotland

Food Standards Scotland (FSS) plays a critical role in ensuring businesses comply with the legal standards that protect the safety and authenticity of our food. Consumer trust in FSS has remained high and broadly stable.

Source: Food Standards Scotland, Food in Scotland Consumer Tracker Survey

The latest data for indicator 1B.1 shows that the proportion of respondents with positive trust in FSS was 79%, as recorded in July 2024 (wave 18) of the Food in Scotland Consumer Tracker Survey. The baseline will be set for indicator 1B.1 when 2025 data is available.

Primary Indicator 1B.2: Proportion of businesses that receive a Pass from the Food Hygiene Information Scheme

All food businesses have a legal requirement to ensure the food they place on the market is safe. The percentage of businesses achieving a ‘Pass’ rating in the Food Hygiene Information Scheme (FHIS) has remained high, at over 90% since 2019/20.

Source: Food Standards Agency and Food Standards Scotland, Our Food 2023 and Food Standards Scotland, Annual Report and Accounts

The latest data for indicator 1B.2 shows that the percentage of Scottish food businesses with a FHIS ‘Pass’ in 2023 was 92.7%. A baseline for indicator 1B.2 will be set when 2025 data is available.

Primary Indicator 1B.3: Food sample numbers tested for food hygiene and/or authenticity by Local Authorities

Food samples tested for food safety and authenticity reported by local authorities have been declining, reaching a low in 2020/21 during the Covid-19 pandemic. Since 2020/21, reported sampling numbers have been gradually increasing.

Source: Food Standards Agency and Food Standards Scotland, Our Food 2023

The latest data for indicator 1B.3 shows that the number of samples reported by local authorities in 2023-24 was 3,712. A baseline for indicator 1B.3 will be set when 2024-2025 data is available.

Sub-outcome 1C: The food environment increasingly enables more people to access and enjoy food that is produced sustainably

The primary indicator for sub-outcome 1C is based on measures of exploring sustainable actions that consumers in Scotland are taking through changes to consumer eating habits and food-related behaviours as reported by the FSS and FSA in the Food and You 2 survey collaboration for Scotland in Wave 8.

Primary Indicator 1C.1: Consumer-related changes to eating habits and food-related behaviours

The Food and You 2 survey has been ran by the Food Standards Agency since 2020 in England, Wales and Northern Ireland. In Wave 8 of the survey, Food Standards Scotland collaborated with Food Standards Agency to measure consumers’ self-reported knowledge, attitudes, and behaviours related to food safety and other food issues amongst adults in Scotland and across the rest of the UK.

Source: Food Standards Agency and Food Standards Scotland, Food and You 2 Survey: Scotland (Wave 8)

In 2023-2024, the top 5 changes consumers made to their eating habits and food-related behaviours in the previous 12 months were: eating less processed food (43%); minimising food waste (37%); eating more fruit and/or vegetables (30%); buying locally produced or in-season food (27%); and buying food with minimal or no packaging (22%). A baseline for indicator 1C.1 will be set when 2024-2025 data is available.

Indicator Framework for Outcome 2

Scotland’s food system is sustainable and contributes to a flourishing natural environment on our land and in our waters. It supports our net zero and climate adaptation ambitions and plays an important role in maintaining and improving animal health and welfare and in restoring and regenerating biodiversity.

The indicators included in the Good Food Nation Plan for monitoring Outcome 2 have been structured around four sub-outcomes for the purposes of the dashboard.

Sub-outcome 2A: Greenhouse gas emissions linked to our food system are reduced and our food system is increasingly resilient to the impacts of climate change

Outcome 2 of the Good Food Nation Plan reflects that there is a policy need to adjust how food is produced, processed, distributed, and disposed of in Scotland to contribute towards addressing the twin challenges of climate change and biodiversity loss. The indicators under this sub-outcome measure the GHG emissions from primary food production and the food waste produced by households and businesses (in line with the stated target on reducing food waste as set out in Annex C). Note that the focus is on production emissions as there is limited information available to assess the impact of all GHG emissions related to consumption of food (including imported food).^[24]

Primary Indicator 2A.1: Green House Gas Emissions from Scottish Agriculture

Around a third of emissions from our food system were linked to agricultural activity. Total agriculture emissions have been in a long-term decline. In 2022, GHG emissions were at their lowest levels since the baseline period (1990).

Source: Scottish Government, Scottish agriculture greenhouse gas emissions and nitrogen use: 2022-23

The latest data for indicator 2A.1 shows that total emissions from agriculture in 2022 were 7.7 million tonnes of carbon dioxide equivalent (MtCO₂e). This is a decrease of 3% (0.3 MtCO₂e) compared with 2021. A baseline for indicator 2A.1 will be set when 2025 data is available.

Primary Indicator 2A.2: Total overall nitrogen application rates (kg/ha) on crops and grassland

The agricultural sector is dependent on inputs of Nitrogen (N), from both organic and inorganic sources. From 2000, the overall application rates of nitrogen fertilisers have decreased, with some fluctuation.

Source: Department for Environment, Food & Rural Affairs, British survey of fertiliser practice

Overall nitrogen application rates (kilograms per hectare, or kg/ha) on crops and grassland in 2023 was 65 kg/ha. A baseline for indicator 2A.2 will be set when 2025 data is available.

Primary Indicator 2A.3: Estimated food waste generated from all sources

Scottish Government has committed to embedding food loss and waste consideration across relevant policies and strategies,^[25] including the Good Food Nation Plan. In 2021, the per capita food waste was estimated to be 189 kg per person per year. This represents a 2% increase since 2013.

Source: Zero Waste Scotland, 2021 Scottish Food Waste Estimate

The baseline for indicator 2A.3 is an estimated 189 kg of food waste generated per person per year (2021). The methodology applied to arrive at this estimate is complex due to a variety of factors and will continue to be reviewed. The timeline for an update to this measure is therefore noted to be uncertain.

Primary Indicator 2A.4: Climate adaptation in the context of our food system

There are four climate drivers which have been identified as having an impact on our food system: temperature changes (+ and -), precipitation changes (+ and -), extreme weather events and sea level rises/surges. There could be a range of impacts across food processing, processing, distribution, retailing and consumption and disposal of food waste.^[26]

As climate adaptation is a multi-faceted and complex issue, we have not identified a primary data indicator that would be practicable to monitor the overall resilience of Scotland’s food system to climate change risks. The Scottish National Adaptation Plan Monitoring and Evaluation framework^[27] is in place to monitor climate adaptation more broadly.

Sub-outcome 2B: Scotland's food system is compatible with substantial regeneration in, and maintenance of, Scotland’s biodiversity, ecosystem and soil health.

As set out in the Biodiversity Strategy,^[28] global biodiversity is declining faster than at any other time in human history. Agriculture and primary food production on the land and in our seas is a key pressure on biodiversity. Biodiversity is monitored via the marine and terrestrial species indicator, produced by NatureScot. Under this outcome, air pollutants from primary food production is also captured – as these can be associated with negative outcomes for wildlife and ecosystems (e.g. eutrophication caused by ammonia pollution). We also measure organic land under this sub-outcome, in line with the target (set out in annex C) which is a particular production system that is associated with soil and ecosystem health.

Primary Indicator 2B.1: Terrestrial and Marine Species Abundance

Biodiversity is monitored via the marine and terrestrial species indicator, which comprises three separate metrics: marine and terrestrial species abundance and terrestrial occupancy. These indicators show a sustained decline in Scotland’s marine biodiversity over recent decades. Terrestrial abundance has fluctuated over this period but the overall trend is relatively flat.

Source: NatureScot, Marine and Terrestrial Species Indicators

The latest data for indicator 2B.1 is set at a Marine Abundance Index of 59.4 in 2019, and a Terrestrial Abundance Index of 101.3 in 2019. A baseline for indicator 2B.1 will be set when 2025 data is available.

Primary Indicator 2B.2: Kilotons of air pollutant emissions from agriculture

Air pollutants associated with primary food production have fallen over the past 20 years. Ammonia emissions have declined by 12% since 2005.

Source: National Atmospheric Emissions Inventory, Air Pollutant Inventories for England, Scotland, Wales and Northern Ireland: 2005-2022

The latest data for indicator 2B.2 is set at the following levels for each major air pollutant: 28.9 kilotons of Ammonia Emissions; 1.98 kilotons of PM10 (Particulate Matter) Emissions; 0.52 kilotons of PM2.5 emissions and 16.7 kilotons of VOC (volatile organic compounds) emissions (2022).^[29] A baseline for indicator 2B.2 will be set when 2025 data is available.

Primary Indicator 2B.3: Total hectares under organic land management

Organic agriculture is a production system that sustains the health of soils, ecosystems and people. The total area of land under Organic land management has increased in recent years from a record low in 2018. However total area remains lower compared to pre 2010-levels.

Source: Department for Environment, Food & Rural Affairs, Organic farming statistics 2024

The latest data for indicator 2B.3 reports that the total land area under full organic land management was 105.0 thousand hectares in 2024. A baseline for indicator 2B.3 will be set when 2025 data is available.

Primary Indicator 2B.4: National Soil health indicator

Healthy soils and sustainable management of existing soil resources enable Scotland’s food system to produce high quality food and drink products. Monitoring of soil health in a changing climate is a priority for the Scottish Government. While Scotland has a significant knowledge base on soils, there is no single indicator that could be applied to all soils, climatic conditions or land uses and therefore be used as a quantitative data indicator for the Good Food Nation Plan.^[30]

Sub-outcome 2C: Animal health and welfare standards are maintained, enforced and improved in line with Scottish Government policy.

Improving and maintaining animal health and welfare is an essential part of sustainable food production. Animal health legislation is in place to ensure the protection of both human and animal health, whilst protecting them from the threat of diseases which impact productivity and our ability to trade and maintain our reputation for high quality food internationally.

As set out in Part 4, the Scottish Animal Welfare Commission (SAWC) has been commissioned to explore the feasibility of developing further indicators of animal welfare for farmed animals. This in intended to provide a more robust basis for developing indicators to support future GFN plans. Lack of meaningful quantitative indicators is a common challenge across many countries. For example, we are cognisant of on-going work within the European Commission to work towards developing meaningful animal welfare indicators.^[31]

The initial indicators for this sub-outcome draw upon a range of data sources that relate to specific animal health and welfare issues: the importance of animal welfare as a food concern to Scottish consumers; the proportion of laying hens in Scotland that are either free-range or organic;^[32] the number of livestock animals inspected each year and the prevalence of Bovine TB in Scotland.

Primary Indicator 2C.1: Proportion of Scottish consumers concerned with animal welfare

Animal welfare standards are an important food concern for Scottish consumers and it may motivate consumers to buy higher welfare products as a result. Three-quarters (75%) of Scottish consumers reported being highly (32%) or somewhat (43%) concerned about animal welfare.

Source: Food Standards Agency and Food Standards Scotland, Food and You 2 Survey: Scotland (Wave 8)

The latest data for indicator 2C.1 from 2023-2024 suggests that 75% of Scottish consumers were reportedly concerned about animal welfare. A baseline for indicator 2C.1 will be set when 2024-2025 data is available.

Primary Indicator 2C.2: Proportion of laying hens in Scotland that are either reared as free-range or organic

More than three quarters (78%) of laying hens in Scotland are either free-range or organic in 2025. This has increased from just over half (52%) of laying hens in 2014.

Source: Scottish Government, Avian Registration Hub

The baseline for indicator 2C.2 is that the proportion of laying hens reared as free-range or organic was 78% in April 2025.

Primary Indicator 2C.3: Livestock animals inspected by local authorities every year in Scotland

The number of livestock animals inspected by local authorities has increased in recent years and is more in line with numbers recorded before the Covid-19 pandemic.^[33]

Source: Scottish Government, Animal Health Act 1981: Expenditure and Prosecutions - 2024

The latest data for indicator 2C.3 reports that 790,634 livestock animals were inspected or assessed in markets and other premises or holdings by local authorities in 2024. A baseline for indicator 2C.3 will be set when 2025 data is available.

Primary Indicator 2C.4: Herd prevalence of bovine tuberculosis (TB) in Scotland

Scotland is recognised as being officially TB free with consistently low and stable prevalence of bovine tuberculosis (TB) in Scottish cattle herds.

Source: Department for Environment, Food & Rural Affairs, Bovine Tuberculosis statistics

The latest data on herd prevalence of TB in Scottish Cattle herds was 0.1% in 2024. A baseline for indicator 2C.4 will be set when 2025 data is available.

Sub-outcome 2D: Scotland's fishing and aquaculture activities provide healthy, quality and sustainably harvested and farmed seafood.

Scotland's world-renowned seafood sector, from catching and production to consumption, is an important pillar of the blue economy. The indicators in this sub-outcome relate to two important metrics relating to the sustainability of commercial fishing and Salmon production (Scotland’s single biggest food export).^[34]

Primary Indicator 2D.1: The proportion of commercial stocks fished at sustainable levels

There is a strong suite of measures in place to manage sea fisheries and safeguard fish stocks with the Scottish Sustainable Fishing Indicator (SFI) showing that the sustainability status of stocks in Scottish waters has increased through time, from 39% in 1995 to 73% in 2023. The positive trend is reflective of improved fisheries management and more responsible fishing practices and is particularly notable during a period when warming in Scottish waters might be expected to be changing the health of stocks.

Source: The Scottish Sustainable Fishing Indicator (SFI)^[35]

A baseline for indicator 2D.1 will be set when 2025 data for the Scottish Sustainable Fishing Indicator is available.

Primary Indicator 2D.2: Atlantic Salmon production volumes

Atlantic Salmon is a high value food product produced from Scotland’s aquaculture sector and is Scotland’s biggest single food export, worth £844 million in 2024. The Scottish Fish Farm Production Survey collects information from companies actively involved in Atlantic salmon production and represents the entire sector operating in Scotland. The total production indicator captures the volume of Salmon ultimately made available to consumers and available for export.

Source: Scottish Government, Scottish Fish Farm Production Survey 2023

The total production of Atlantic salmon during 2023 was 150,949 tonnes, a decrease of 18,245 tonnes (11%) on the 2022 total. A baseline for indicator 2D.2 will be set when 2025 data is available.

Indicator Framework for Outcome 3

Scotland’s food environment and wider food system enables a physically and mentally healthy population. This leads to the prevention of, and a reduction in, diet-related conditions.

The indicators included in the Good Food Nation Plan for monitoring Outcome 3 have been structured around four sub-outcomes for the purposes of the dashboard.

Sub-Outcome 3A: Adults and children in Scotland eat healthily

Primary indicators for this sub-outcome are based on population measures of dietary intake for adults and children and how these compare with the Scottish Dietary Goals (SDGs) which set out the basis for the diet that we would like the people of Scotland to follow at a population level. The latest indicator data is sourced from the Scottish Health Survey 2021^[36] and 2023.^[37]

Primary Indicator 3A.1: Mean portions of fruit and vegetables consumed by adults

Mean fruit and vegetable consumption by adults in Scotland in 2021 remained well below the Scottish Dietary Goal of 5 portions per day. Mean intake has improved modestly since 2016, increasing from 3.0 portions per day to 3.3 portions in 2021.

Source: Scottish Government, Scottish Health Survey

The latest data for indicator 3A.1 is set at 3.3 portions of fruit and vegetables are consumed by adults per day (2021, SHeS data). A baseline for indicator 3A.1 will be set when Intake24 data for 2024 is available.

Primary Indicator 3A.2: Mean portions of fruit and vegetables consumed by children

Mean fruit and vegetable consumption by children^[38] in 2023 has improved since 2019, with mean values indicating slightly more than 3 portions consumed per day (3.1 in 2023).

Source: Scottish Government, Scottish Health Survey (SHeS)

The latest data for indicator 3A.2 is set at 3.1 portions of fruit and vegetables are consumed by children per day (2023, SHeS data). A baseline for indicator 3A.2 will be set when 2025 data is available.

Primary Indicator 3A.3: Proportion of adults meeting Scottish Dietary Goals on fibre, sugar and red and red-processed meat.

In 2021, most adults in Scotland did not meet dietary goals for fibre (of 30g per day) and free sugar consumption (maximum of 5% energy from free sugars). Although, most adults (72%) do meet the goal to eat no more than an average of 70g of red and red processed meat per day, 28% consume more than 70g per day.

Source: Scottish Government, Scottish Health Survey

The latest data for indicator 3A.3 is set at (2021, SHeS data):

• 6% of adults meeting the SDG for fibre intake;
• 22% of adults meeting the SDG for free sugar intake and;
• 28% of adults consume more than the SDG for red and red processed meat intake

A baseline for indicator 3A.3 will be set when Intake24 data for 2024 is available.

Sub-outcome 3B: Adults and children have a healthy weight and inequalities in healthy weight outcomes at a population level are narrowed

Improving diet and the food environment is an important aspect to contributing to better weight outcomes, alongside other factors such as increasing levels of physical activity. Under sub-outcome 3B, adult weight - as measured by the Body Mass Index (BMI) - is used as a primary indicator to monitor the average weight of adults in the population and the differences in weight between the most and least deprived parts of the population. For children, the proportion of children living with a healthy weight – also measured by BMI - is used as an indicator. The latest indicator data is currently sourced from the Scottish Health Survey 2021 and 2023 as in sub-outcome 3A, and 2022^[39] (depending on data availability). This indicators align with targets identified in Annex C.

Primary Indicator 3B.1: Mean BMI of adults

The average BMI score of adults stood at 28.0 kg/m² in 2023 and has been steadily increasing since 1995.

Mean BMI amongst adults in Scotland has increased by almost 1 point since 2003, during which time BMI has remained consistently in the overweight category (25-29.9). Mean BMI has been relatively stable in the past three years (2021-2023), at 28 kg/m², although this is at the higher end of the overweight range.

Source: Scottish Government, Scottish Health Survey

The latest data for indicator 3B.1 is set at a mean adult BMI of 28.0 kg/m² (2023, SHeS data). A baseline for indicator 3B.1 will be set when 2025 data is available.

Primary Indicator 3B.2: Difference in Mean BMI between the least and most deprived quintiles.

The difference between mean BMI in the most and least deprived fifth of adults in Scotland has been increasing over time.

The difference between mean BMI in the most and least deprived fifth of adults was 0.9 kg/m² in 2012 and has grown to 2.3 kg/m² in 2023. Mean BMI in the most deprived communities has been steadily rising, whereas it appears to have fluctuated yet remained relatively stable for adults in the least deprived communities.

Source: Scottish Government, Scottish Health Survey

The latest data for indicator 3B.2 is set at the difference in mean adult BMI between the least and most deprived quintiles of 2.3 kg/m² (2022, SHeS data). A baseline for indicator 3B.2 will be set when 2025 data is available.

Primary Indicator 3B.3: The proportion of children with a healthy weight (as measured by BMI)

Almost 7 in 10 children were in the healthy weight range as measured by BMI in 2023. This proportion has been in the range 64% - 72% since 1998.

Source: Scottish Government, Scottish Health Survey

The latest data for indicator 3B.3 is set at the proportion of children with a healthy weight, which was 68% in 2023 (2023, SHeS data). A baseline for indicator 3B.3 will be set when 2025 data is available.

Primary Indicator 3B.4: The difference in the proportion of children with a healthy weight (as measured by BMI) in the most and least deprived quintile of the population.

In 2022, over half of children in the most deprived communities in Scotland have a healthy weight (56%), compared to 63% in the least deprived communities.

Source: Scottish Government, Scottish Health Survey

The proportion of children in the most deprived areas of Scotland within the healthy weight range has declined by 16 percentage points since 2016 (from 72% in 2016 to 56% in 2022). This compares to a decline of 14 percentage points for children in the least deprived areas over the same time period (from 77% in 2016 to 63% in 2022). This means the inequalities gap has grown from 5 percentage points in 2016 to 7 percentage points in 2022.^[40]

The latest data for indicator 3B.4 is set at the difference in proportion of children with a healthy weight between the least and most deprived quintiles of 7 percentage points in 2022 (2022, SHeS data). A baseline for indicator 3B.4 will be set when 2025 data is available.

Sub-outcome 3C: Diet related health conditions in adults and children decline and inequalities in these conditions at a population level are narrowed

Primary indicators for this sub-outcome are based on population measures of diet-related health conditions in adults and children. The chosen indicators are tooth decay (for children), prevalence of type II Diabetes and prevalence of Cardio-Vascular Disease (CVD).^[41] Indicator data is sourced from the Scottish Health Survey 2023 and the National Dental Inspection Programme (NDIP) through Public Health Scotland.

Primary Indicator 3C.1: Prevalence of CVD in the adult population

Prevalence of CVD and diabetes in adults has remained broadly stable, however rates are higher for adults living in more deprived areas.

Source: Scottish Government, Scottish Health Survey

The latest data for indicator 3C.1 is set at 15% of CVD in the adult population (2023) and the difference in prevalence between the most and least deprived areas of 6 percentage points (2023). A baseline for indicator 3C.1 will be set when 2025 data is available.

Primary Indicator 3C.2: Prevalence of diabetes in the adult population

Prevalence of type II diabetes in adults has remained broadly stable, however rates are higher for adults in more deprived areas.

Source: Scottish Government, Scottish Health Survey

The latest data for indicator 3C.2 is set at 7% of type II diabetes in the adult population (2023) and the difference in prevalence between the most and least deprived areas of 3 percentage points (2023). A baseline for indicator 3C.2 will be set when 2025 data is available.

Primary Indicator 3C.3: Percentage of Primary 1 (P1) children with no obvious tooth decay

Child oral health has improved over recent decades. In 2024, 73.2% of P1 children examined showed no obvious decay experience. Inequalities between the least and most deprived areas remain.

Source: Public Health Scotland, National Dental Inspection Programme (NDIP)

The latest data for indicator 3C.3 is set at 73.2% which is the proportion of children with no obvious tooth decay recorded in 2024 and the difference in prevalence between the most and least deprived areas of 23.6 percentage points. A baseline for indicator 3C.3 will be set when 2025 data is available.

Sub-outcome 3D: The food system contributes to positive mental health outcomes across the population

Whilst the correlation between healthy diets and positive mental health outcomes is recognised in the Good Food Nation Plan, we have not identified, at this stage, a suitable primary indicator that could be used to assess the direct link between diet and mental health outcomes. Further work to develop a suitable indicator is required. We note that data on eating disorders is to be collected in the next Scottish Health Survey, which could be considered as an indicator under this sub-outcome in future.

Indicator Framework for Outcome 4

Our food and drink sector is prosperous, diverse, innovative, and vital to national and local economic and social wellbeing. It is key to making Scotland food secure and food resilient, and creates and sustains jobs and businesses underpinned by fair work standards throughout food supply chains.

The indicators included in the Good Food Nation Plan for monitoring Outcome 4 have been structured around three sub-outcomes for the purposes of the dashboard.

Sub-outcome 4A: Scotland's Food and Drink businesses (including farming businesses) are prosperous, diverse, and innovative

The food and drink sector consists of agricultural businesses, fishing and aquaculture businesses, and food and drink manufacturing businesses. The sector is a major contributor to Scotland’s economy, consisting of over 17,000 businesses (of which around half are agricultural businesses) and representing 10% of all registered business in Scotland.

The indicators for this sub-outcome are drawn from a range of economic statistics compiled by Scottish Government in the Industry Statistics database which measures the economic output of a range of sectors (note that exports of Food and Drink products is covered in Outcome 6). Innovation within the sector is also captured though the UK Innovation Survey. Finally, as agricultural businesses make up most of the sector (in terms of number of businesses), the economic performance of farming businesses is also captured under this outcome.^[42]

Primary Indicator 4A.1: Real GDP of the Food and Drink Sector

Change in gross domestic product (GDP) is the main indicator of economic growth in Scotland. Real economic output from the Food and Drink sector (as measured by Real GDP) has been falling in 2023 and 2024.

Source: Scottish Government, Industry Statistics Database

Economic output in the Food and Drink sector has been falling, by 4.5% in 2023 and by 2.8% in 2024. A baseline for indicator 4A.1 will be set when 2025 data is available.

Primary Indicator 4A.2: The proportion of new Food and Drink businesses that survive after 1-5 years

New business registrations (births) in the Food and Drink sector can be viewed as providing a useful snapshot of resilience of the sector.^[43] Recent data suggests a higher proportion of new businesses in the Food and Drink sector have continued to trade after one year; but the longer term picture is less clear.

Source: Scottish Government, Industry Statistics Database

In the latest estimates for indicator 4A.2, 97.2% of businesses births in 2021 survived after 1 year, whilst the 5 year survival rate for business births in 2017 was 51.5%. A baseline for indicator 4A.2 will be set when 2025 data is available.

Primary Indicator 4A.3: The percentage of businesses in the Food and Drink sector that are innovation active

Food & Drink businesses are more ‘innovation-active’^[44] than businesses generally, but their innovation activity declined in 2020-22. Innovation rates declined for most sectors in 2020-22, primarily due to COVID-19 challenges and rising energy costs.

Source: Scottish Government, UK Innovation Survey 2023

The latest data available for indicator 4A.3 finds that 55.6% of businesses were innovation active within the Food and Drink sector in Scotland in 2020-22. A baseline for indicator 4A.3 will be set when 2022-24 data is available.

Primary Indicator 4A.4: Average Farm Business Income (with and without subsidy)

After record high values in 2022-23, average farm income in 2023-24 was the lowest estimated since 2019-20 (after adjusting for inflation). Over the past decade, average farm income has fluctuated between £20,800 in 2015-16, where low milk prices and fall in support payments resulted in record lowest profits, to £72,900 in 2022-23.

Source: Scottish Government, Scottish Farm Business Survey

The latest data for indicator 4A.4 reports that average farm income in 2023-24 was around £35,500, whilst average farm income without subsidies was -£11,000. A baseline for indicator 4A.4 will be set when 2024-25 data is available.

Sub-outcome 4B. Scotland's Food and Drink sector creates and sustains fair and diverse employment

The Food and Drink sector employs around 123,000 people accounting for 4.6% of employment in Scotland. It is a significant employer to many in remote and economically fragile rural and island communities. The indicators under this sub-outcome measure the average earnings of those employed in the sector (and how this compares to the overall average earnings across all sectors), apprenticeship starts in the sector and estimates of fairness in the sector – as measured by the Gender Pay Gap. There was limited data available to monitor other aspects of employment with the sector (for example diversity).^[45]

Primary Indicator 4B.1: Median Earnings in the Food and Drink Sector

As reported in the Annual Survey of Hours and Earnings, median pay in the Food and Drink sector has grown broadly in line with pay across all sectors in recent years. It is 9% lower than the median weekly pay across all sectors.

Source: Scottish Government, Industry Statistics Database

The latest data for indicator 4B.1 reports that median weekly gross pay in 2024 for full-time employees in the Food & Drink sector was £670.70 per week. This was equivalent to 91% of the median across all sectors. A baseline for indicator 4B.1 will be set when 2025 data is available.

Primary Indicator 4B.2 Number of Modern Apprenticeship Starts in the Food and Drink Sector

Modern Apprenticeships in the Food and Drink sector in Scotland helps support employed individuals (either new or existing) to secure industry-recognised qualifications. In 2024/25, there were 1,036 Modern apprenticeship starts (down 3.6% from 2023/24) in the food and drink sector and 921 Modern Apprentices in training (down 8.8% from 2023/24). For apprenticeships completed in 2024/25 in food and drink, there was an achievement rate of 80.8% (up from 78.9% in 2023/24).

Source: Skills Development Scotland, Modern Apprenticeship Data

The latest data for indicator 4B.2 finds that in the Food and Drink sector in 2024/25 there were 1,036 modern apprenticeship starts, 921 in training and an achievement rate of 80.8%. This forms the baseline for indicator 4B.2.

Primary Indicator 4B.3: Gender Pay Gap in the Food Manufacturing Sector

The Gender Pay Gap^[46] in the Food Manufacturing sector has been consistently higher than for Manufacturing overall in Scotland. Data for other parts of the Food and Drink sector were not available.

Source: Office for National Statistics, Earnings and hours worked, by industry and occupation: ASHE

The Gender Pay Gap for the manufacture of food products was 14.5% in 2024. This compared to a gender pay gap of 9.7% in all manufacturing and 2.2% in all industries and services. These figures form the latest data for indicator 4B.3. A baseline for indicator 4B.3 will be set when 2025 data is available.

Sub-outcome 4C: Scotland's food system remains secure and resilient

Scotland’s food system is integrated within the UK single market and we are reliant on mutually beneficial global trade in agri-food products to increase the diversity and supply of a wide variety of foods.

The UK Food Security Report 2024^[47] is a public instrument for monitoring wider issue of food security at a UK level and aims to enable everyone in the UK to understand what drives UK food security and what its current status is. For the purposes of the Good Food Nation Plan, we use some high-level indicators used within this report, supplemented with Scotland specific indicators.

Primary Indicator 4C.1: UK food production to supply ratio

The UK’s overall balance of trade and domestic production of food remains broadly stable. The UK continues to source food from domestic production and trade at around an overall 60:40 ratio.

Source: Department for Environment, Food & Rural Affairs, Agriculture in the United Kingdom

The production-to-supply ratio was at 62% for all food and 75% for indigenous foods (meaning those that can be grown in the UK) in 2023. This is the latest data for indicator 4C.1. A baseline for indicator 4C.1 will be set when 2025 data is available.

Primary Indicator 4C.2: Total agricultural land area used to produce fruit and vegetables for human consumption

Scotland (and the UK) continue to be highly dependent on imports to meet consumer demand for fruit and vegetables, which are significant sources of micronutrients for consumers. The area of land in Scotland that is cultivated for fruit and vegetable production has increased by around one third (+33.1%) in the past 10 years, but represents only 0.5% of total agricultural land.

Source: Scottish Government, Scottish Agricultural Census: results

The latest data for indicator 4C.2 is that 24,098 hectares is the total land area used for growing soft fruits, orchard fruits and vegetables for human consumption in 2024. A baseline for indicator 4C.2 will be set when 2025 data is available.

Primary Indicator 4C.3: Mean self-sufficiency ratios of the main food commodities in Scotland

After accounting for annual variations, Scotland produces more than it consumes across a range of agricultural commodities. Scotland is a net exporter of cereals (barley and oats), potatoes, beef, dairy and eggs. Scotland is a net importer of pork and poultry.

Source: Rathnayaka, S.D., Revoredo-Giha, C. & de Roos, B. Assessing Scotland’s self-sufficiency of major food commodities.

For indicator 4C.3, average self-sufficiency ratios across each commodity has been calculated from 2003 to 2019. Once further data is available, we intend to set a baseline using data up to 2025.

Primary Indicator 4C.4: Total food supply available for human consumption globally

Over the long-term global food production has continued to grow and keep up with population growth. There are, in principle, sufficient calories available to meet the energy needs of populations across all regions. The ability of global food production and trade to meet global requirements for food now and in the future is a part of ensuring food security in Scotland.

Source: Food and Agriculture Organization of the United Nations, Food Balances

Total food supply available for human consumption was 2,985 kilocalories per person per day in 2022, increasing by 38 calories from 2019. This is the latest data for indicator 4C.4. A baseline for indicator 4C.4 will be set when 2025 data is available.

Indicator Framework for Outcome 5

People and communities are empowered to participate in, and shape, their food system. Scotland has a thriving food culture with a population who are educated about good and sustainable food.

The indicators included in the Good Food Nation Plan for monitoring Outcome 5 have been structured around three sub-outcomes for the purposes of the dashboard.

Sub-outcome 5A: People in Scotland have greater opportunities to actively participate in their food system

Participation in shaping our food system could take many forms. For this sub-outcome our focus is on growing your own food. Other ways of participating could include increasing participation in events that celebrate and promote Scottish sourced food such as local food festivals, increasing cooking skills that use healthy and local foods, and increasing the developing local food supply chains.

Primary Indicator 5A.1: Availability of allotments and community growing in local areas

Growing your own food can have a number of benefits for individuals.^[48] Growing food involves physical exercise and has also been associated with improved mental health outcomes.

The Good Food Nation Plan encourages people to discover and take advantage of the wide-ranging benefits which can come from growing their own food in allotments and other community growing sites. Under the Community Empowerment (Scotland) Act 2015, local authorities have several duties relating to provision of allotments.

Most local authorities have published information on allotment availability, including current provision and length of waiting lists, through the annual reports required under allotment legislation. Whilst there is a requirement for the information to be published annually, there is neither a requirement on local authorities to update Scottish Ministers on when this information is published, nor for Scottish Ministers to collate it. Therefore, at this time, the data is not held in a consistent format to allow for monitoring at a national level. However, following a review by the Scottish Parliament,^[49] the Scottish Government are considering what non-legislative actions can be taken to support local authorities to improve the quality and consistency of data reported.

Primary Indicator 5A.2: Proportion of adults that had ‘grown fruit and vegetables to consume in the home’ in their garden or allotment

Although we have identified this as a suitable primary indicator that could be used to assess the opportunities for growing food within local communities through the growth of fruit and vegetables in gardens or allotments, currently, we do not have a quantitative indicator for this.

The upcoming NatureScot Opinion Survey 2024, published later this year, will include quantitative data on the proportion of adults (that have access to a relevant outdoor space) growing fruits and vegetables in their garden or allotment for household consumption during the previous 12 months.

Currently, the only relevant quantitative data available is included within indicator 1C.1, which explores consumer related changes to eating habits and food-related behaviours from the Food and You 2 survey for Scotland. Within this, one of the changes quantified was in regard to starting to grow fruit and/or vegetables in the last 12 months.

Sub-outcome 5B. People in Scotland are educated about good and sustainable food and make positive food choices

The Good Food Nation Plan states that children should have frequent opportunities to participate in a variety of food-related educational experiences and activities. Indicators under this sub-outcome highlight the impact of long-supported Scottish Government funded initiatives to improve education around good and sustainable food.

The Food for Thought fund, delivered through Education Scotland, for example, has provided support to develop pupils knowledge about sustainable food production by growing their own produce, cooking and trying out new recipes, and gaining an appreciation of the value of locally produced food. The Food for Life Programme similarly provides improvements in the sustainability of food served to children in schools.

The Royal Highland Education Trust (RHET) also continue to deliver a successful and well-respected programme of farm visits, events and online engagement opportunities for school children. The programme provides a distinctive insight into the origins of food, helping to foster a sense of pride and knowledge among young people about what and how food is produced in their local areas. At this stage, data for a quantitative primary indicator are not currently available. Further work, in conjunction with RHET, to develop a suitable indicator and measurements will take place.

This sub-outcome is also supported by evidence on the degree to which people in Scotland are making more sustainable food choices, as captured through food and diet questions in the Scottish Climate Survey.

Primary Indicator 5B.1: Number of local authorities with a Food for Life Served Here (FFLSH) award/Number of meals served

Funded by the Scottish Government, and delivered by the Soil Association Scotland, The Food for Life Scotland programme focuses on increasing fresh, sustainable and local food available in schools across Scotland and across the wider public sector. More than half of local authorities have a FFLSH award. The remaining local authorities follow their own sustainability programmes that are not included in an existing central data collection.

Source: Soil Association Scotland, Management Information of FFLSH scheme

The latest data for indicator 5B.1 shows that 17 of Scotland's 32 local authorities operated with at least a bronze award under the FFLSH scheme in 2024, and the total estimated number of meals served per day in primary and secondary schools with a FFLSH award was 111,000 in 2023. A baseline for indicator 5B.1 will be set when 2025 data is available.

Primary Indicator 5B.2: Number of school learners reached by the Food for Thought Programme

The Food for Thought Education Fund gives financial support to develop Food and Health as a context for learning. Since the opening of the fund the number of learners has decreased overtime, from 28,392 in 2013/14 to 12,425 in 2023/24 – a fall of 56%.

Source: Education Scotland, Food For Thought Management Information

The latest data for indicator 5B.2 is that in 2023/24, there were 12,425 learners reached by the Food for Thought Programme. A baseline for indicator 5B.2 will be set when 2024/25 data is available. The fund has been paused for the 2025/2026 financial year to allow an independent evaluation, analysing past projects for impact and best practices of the fund to date, to be undertaken. Data collection for this indicator will resume when the fund is reinstated.

Primary Indicator 5B.3: Proportion of households reporting to undertake sustainable food actions

The Scottish Climate Survey is a nationally representative survey of Scottish adults’ awareness, understanding and experiences of climate change-related issues. Patterns of climate-relevant behaviours around food and diet include consumption of meat, dairy products and seasonal and locally produced food.

The key findings from the 2024 Scottish Climate Survey found that around one in three respondents (29%) reported always or often preparing meat-free meals at home, around one in seven (15%) reported always or often replacing dairy products with non-dairy alternatives and over half (53%) reported always or often intentionally buying seasonal fruit and vegetables, while 36% reported always or often intentionally buying locally produced food.

Source: Scottish Government, Scottish Climate Survey 2024

The baseline for indicator 5B.3 is set at 53% for people reporting that they always or often intentionally buy seasonal fruit and vegetables, and at 36% for people reporting that they intentionally buy locally produced food always or often in 2024.

Sub-outcome 5C: Scotland has a thriving ‘food culture’ that supports overall health and wellbeing

The term ‘food culture’ is used in diverse ways within policy and the academic literature pertaining to food. A previous review of Scotland’s food culture suggested that a simple working definition is that ‘food culture’ refers to ‘shared practices and meanings relating to food’.^[50]

We have not identified, at this stage, a suitable quantitative primary indicator that could be used to assess and monitor Scotland’s food culture. Further work to develop a suitable indicator is required.

Indicator Framework for Outcome 6

Decisions we make in Scotland contribute positively to local and global food systems transformation. Scotland actively engages in learning and exchanging knowledge and best practice internationally.

The indicators included in the Good Food Nation Plan for monitoring Outcome 6 have been structured around two sub-outcomes for the purposes of the dashboard.

Sub-outcome 6A: Scotland's reputation for high-quality food products is recognised globally

As set out in part 4, Scotland’s food and drink sector has an established reputation, domestically and globally, with a recognised brand focused on quality and provenance.

This sub-outcome captures indicators which align with the reputation of Scottish food products: the number of products that have protected status under Protected Geographical Indication (PGI) and Protected Designation of Origin (PDO) schemes; the real value of our food and drink exports to global markets and the importance of food and drink as a motivation for visitors to choose to come to Scotland.

Primary Indicator 6A.1: Number of food products in Scotland recognised under Geographical Indication Schemes

Food produced in Scotland is known globally for its quality produce. Protected Geographical Indication (PGI) and Protected Designation of Origin (PDO) schemes helps to maintain the authenticity and value of many food products. There are 15 food and drink products produced entirely (or partly) in Scotland with a protected food name with PGI or PDO.

Source: Department for Environment, Food & Rural Affairs, Protected geographical food and drink names

The baseline for indicator 6A.1 is 15 food and drink products with either a PGI or PDO designation under UK and EU geographical indication schemes that are sourced entirely (or in part) from Scotland.

Primary Indicator 6A.2: The value of Scottish food exports in current prices and real terms

Food and Drink are key exports for the Scottish economy, in current prices the total value of Scottish exports was £7.55 billion in 2024. Taking into account inflation, the value of food and drink exports increased by 4.9% in the year ending Q4 2024 when compared to the year ending Q4 2018.

Source: Scottish Government, Inflation Adjusted HMRC Regional Trade Statistics for Scotland

The latest data for indicator 6A.3 is £7.12 billion of Food and Drink exports in the year ending Q4 2024, according to inflation-adjusted HMRC Regional Trade Statistics. A baseline will be set when Q4 2025 data is available.

Primary Indicator 6A.3: The proportion of visitors to Scotland that highlighted that ‘Scotland’s food and drink’ was a reason for their visit

Visitors to Scotland are motivated to visit Scotland for a wide variety of reasons. According to the latest visitor survey, 15% were motivated by Scotland's food and drink. Other drivers such as scenery and landscape (70%), history and culture (48%) and outdoor activities available (22%) were found to be more common reasons for choosing to visit Scotland.

Source: Visit Scotland, Scotland Visitor Survey

In 2023, 15% of visitors to Scotland highlight food and drink as a reason for choosing Scotland to visit. This is the baseline for indicator 6A.3. Future updates are expected to be available every 3-4 years.

Sub-outcome 6B. Scotland food sector makes a positive contribution to global food system transformation

We have not identified any quantitative data indicators for this sub-outcome. The Scottish Government continues to support research and innovation in low-carbon food solutions to enhance the resilience of our future food system to climate change and contribute positively to global food transformation. For example, the Scottish Government has:

• Supported vertical farm technology in Scotland: SRUC (Scotland’s Rural College) Vertical Farming Innovation Centre^[51] – which has received funding from the Scottish Government – is an example of the kind of solution required to overcome challenges around food production and security in the future.

• Funded research into alternative crops or climate-resilient varieties of staple crops: research conducted on hemp has demonstrated that this valuable environmental crop can not only contribute to meeting climate and biodiversity targets, but can also deliver high-quality alternative protein and other health benefits^[52].

• Supported organic farming practices - such as the use of cover crops and intercropping that can support resilience of agricultural systems – in line with existing evidence.^[53]