A major new report from the University of Reading is urging the UK Government to introduce far-reaching legal reforms to the nation’s food system. These include taxes on salt and processed foods, mandatory front-of-pack nutritional labelling, and binding targets for the food industry to reduce sugar content, food waste, and greenhouse gas emissions.
The report, Regulatory Tools for a Healthy and Sustainable Diet, authored by Professors Chris Hilson, Christine Riefa and Kyriaki Noussia, and supported by the Transforming UK Food Systems Programme, presents a compelling case for using legal instruments to tackle obesity, improve public health, and reduce the environmental impact of food production.
Central to the report is a call for stronger, mandatory regulation across the food sector. While the Soft Drinks Industry Levy (commonly known as the sugar tax) has prompted reformulation in the drinks market, the authors argue that its limited reach leaves much of the processed food sector untouched. They propose extending such levies to include products such as biscuits, breakfast cereals, milkshakes, yoghurts, cakes and confectionery, alongside the introduction of a new tax on salt.
From Voluntary Commitments to Binding Regulation
The researchers argue that voluntary pledges and public awareness campaigns have not delivered sufficient progress.
Voluntary action has its limits. Without legal obligations, companies often prioritise market competitiveness over public health or environmental concerns. The authors argue that achieving a healthy and sustainable food system necessitates both individual behaviour change (consumer demand) and systemic transformation (production and supply). While voluntary initiatives and information campaigns play a role, the report emphasizes the critical importance of legal instruments—such as taxes, subsidies, and regulations—in driving meaningful change. Law serves not only as a deterrent through penalties but also as a means to establish norms and incentivize compliance.
The report outlines a range of regulatory tools, including fiscal measures (such as taxes and subsidies), advertising restrictions, mandatory food composition standards, and clearer nutrition labelling.
- Behavioural and Structural Change: The report underscores the need for interventions that address both consumer choices and systemic factors influencing food production and distribution.
- Legal Instruments: Regulatory tools discussed include mandatory labelling, advertising restrictions, fiscal measures (like taxes and subsidies), and standards for food composition and marketing.
- Voluntary vs. Mandatory Approaches: While voluntary measures have their place, the authors highlight their limitations and advocate for mandatory regulations to ensure broader compliance and impact.
- Interdisciplinary Approach: The report draws on a multidisciplinary review of academic and grey literature to identify effective regulatory strategies, acknowledging the complexity of food system challenges.
One of the report’s key recommendations is the adoption of compulsory front-of-pack nutrition labels—such as the traffic light system and prominent health warnings—which have been shown to support consumers in making healthier choices. However, the authors stress that these must be supported by education campaigns to ensure they are properly understood, especially in distinguishing between health and sustainability claims.
Supporting Low-Income Households
To mitigate the potentially regressive impact of new food taxes, the authors recommend that revenues be reinvested into subsidising healthy foods—particularly fresh fruit and vegetables—to improve affordability for lower-income households and promote greater equity in access to nutritious diets.
A Wider Agenda for Food System Sustainability
The report also addresses environmental sustainability, calling for legally binding targets for reducing pesticide usage, food waste, and carbon emissions within the agri-food sector. It proposes that large food companies should be required to publicly report sales of unhealthy products, as part of broader transparency measures.
With the Government expected to publish its 25-year food and farming strategy later this year, the authors are urging policymakers to embed specific health and environmental targets within national policy. The recent creation of the Food Strategy Advisory Board and forthcoming restrictions on advertising products high in fat, sugar and salt (HFSS)—due to come into force in October 2025—are acknowledged as positive developments, but the report insists that further action is urgently needed.
This is not just about individual dietary choices,” the authors emphasised.It’s about transforming the entire food environment. Regulation must play a central role in making healthy and sustainable options the default—and affordable—choice for all.
Implications for Stakeholders
The findings are intended to inform policymakers, industry stakeholders, NGOs, and practitioners. By outlining the available regulatory tools and their potential applications, the report serves as a resource for designing and implementing policies aimed at fostering a healthier and more sustainable food environment in the UK.
For more information and to read the full report
