Hot Food Takeaways in Brent Policy Evidence Base

1.0 Introduction

1.1 The purpose of this report is to provide an evidence base for the hot food takeaway policy in the emerging Development Management Development Plan Document (DMDPD). This report summarises the policy context and evidence which have informed the council’s decision to regulate takeaways through the planning system.

2.0 Planning Policy Context

2.1 The National Planning Policy Framework (2012) emphasises that the purpose of the planning system is to contribute towards sustainable development. One of the three dimensions in achieving sustainable development is for the planning system to perform a social role by supporting ‘strong, vibrant and healthy communities.’1 Consequently one of the core planning principles is to ‘take account of and support local strategies to improve health, social and cultural wellbeing for all and deliver sufficient community and cultural facilities and services to meet local needs.’ 2 In relation to plan making, local authorities should have an up to date and relevant evidence base for the Local Plan. To develop this evidence base local planning authorities are to work with public health organisations to understand and take account of the health status and needs of the local population and information about relevant barriers to improving health and wellbeing.

2.2 The important role the planning system has to play in improving health and wellbeing of Londoners has been recognised for some time. In 2006 the London Development Authority published The Mayor’s Food Strategy which includes the strategic objective to improve Londoner’s health and reduce health inequalities via the food they eat. The London Plan (2011) states as well as promoting healthy lifestyles through the detailed design of neighbourhoods this can be complemented by other measures, such as local policies to address concerns over the development of fast food outlets close to schools.

2.3 The Mayor’s Draft Town Centre Supplementary Planning Guidance (SPG) (2013) provides guidance on the implementation of London Plan Policy 2.15 Town centres and other policies in the Plan with specific reference to town centre development and management. The SPG highlights it is important that the planning system is used to help manage clusters of uses in the interests of having diverse and therefore more vital and viable town centres. There may, therefore, be occasion for regulation through the planning system, if a concentration of a particular use has a significant negative impact on the objectives, policies or priorities of the London Plan. The SPG goes on to state consumption of fast food can have significant negative side effects on the

1 National Planning Policy Framework (2012), DCLG, page 3 2 DCLG, National Planning Policy Framework (2012), DCLG, page 6

local environment and on people’s health such as risk of cardio vascular disease, obesity and type two diabetes.

3.0 Evidence Review

3.1 The GLA Food Team has developed a ‘takeaway toolkit’3 which highlights the range of tools and interventions available to local authorities to balance the economic benefits of hot food takeaways with associated environmental and health concerns. The toolkit provides a detailed overview of existing evidence on the impact of takeaways. This section provides a brief summary of the key evidence and issues.

3.2 Studies demonstrate that the number of takeaways in London’s town centres are increasing,4 this trend is of growing concern in light of rising obesity levels and the health implications. Takeaway foods often have high levels of salt, sugar, fat and saturated fat, all of which can contribute to a number of negative health outcomes including obesity. This was reflected in a study undertaken by Brent Council’s Food Safety Team which tested 10 products from 10 premises near schools. All samples taken were well above the recommended nutritional guidelines for children. Some results were quite alarming, the worst being a deep fried sausage meal that contained 1059Kcal, 23.6g sugar and 57.7g fat (11g saturated). It is well documented that high levels of salt contribute to increased blood pressure, a risk factor for stroke. Saturated fats can increase levels of cholesterol in the blood, which is a risk factor for coronary heart disease. Transfats can also raise cholesterol in the blood. A study undertaken in 2008 found a direct link between an increased density of takeaways and increased BMI.5

3.3 It is also of concern that there is evidence of a correlation between the concentration of takeaways and areas of deprivation. The National Obesity Observatory (NOO) has found a strong association between deprivation and the density of takeaways, with more deprived areas having more takeaways per 100,000 population.6 Lower income groups spend a greater proportion of their income on food. Access to cheap healthy food is therefore of crucial importance.

3.4 There is growing evidence that children are likely to be at risk from the health threats posed by the fast food takeaway proliferation. The Burger Boy report published by Barnardos in 2004 identified that ‘fast food’ was identified by children as being the most tasty and desirable food. A study in 2005 found evidence that having a takeaway within 160m of a school is associated with a 5% increase in obesity. 7 Other evidence demonstrates takeaways and

3 Takeaways Toolkit (2012), A London Food Board & Chartered Institute of Environmental Health Publication Based on a consultancy report by Food Matters. 4 Caraher, Lloyd, and Madelin (2007). Fast-Food in Tower Hamlets. City University, London. 5 Mehta NK, Chang VW. Weight status and restaurant availability: a multilevel analysis. American journal of preventive medicine 2008;34(2):127-33. 6 National Obesity Observatory website. Obesity and the Environment: Fast Food Outlets www.noo.org.uk/uploads/doc/ vid_15683_FastFoodOutletMap2.pdf 7 Currie; DellaVigna; Moretti; Pathania (2010). The Effect of Fast Food Restaurants on Obesity and Weight Gain. American Economic Journal: Economic Policy, Vol 2, Number 3, August 2010, pp. 32-63(32).

convenience stores clustering around schools,8 which can play an important role in influencing daily dietary habits of school pupils who purchase food and drink off-site. More recently in light of concerns about children's lifestyles and increasing childhood obesity Prof Mitch Blair, of the Royal College of Pediatrics and Child Health, which represents the UK's 11,000 specialist children's doctors, called for limits on the number of fast food premises allowed to open near schools.9 This echoes the recommendation of the National Institute for Health and Care Excellence for local authority to encourage healthy eating by using existing powers to control the number of takeaways and other food outlets in a given area, particularly near schools. 10

3.5 Behaviour problems in children have also been linked to imbalances of different types of fats.11 Trans fats in the diet are suggested by some to be linked to negative behaviour. Any effect on brain chemistry is of particular concern in children since the brain continues to develop through the teens so is likely to be more susceptible. Low levels of other micronutrients in the diet have also been associated with negative mood and behaviour, for example folic acid and zinc.12

4.0 Health Indicators in Brent

4.1 The Joint Strategic Needs Assessment (JSNA) for the Borough of Brent has been developed by Brent’s teaching Primary Care Trust and the council to inform Brent’s Health and Wellbeing Strategy. The purpose of the JSNA is to assess the needs of the local population and inform policy decisions and investment. The JSNA highlights Brent’s key health and wellbeing challenges as including:-

 Rising levels of obesity. - One in five of all children in reception year in Brent are overweight (12.8%) or obese (11.5%). In year 6 23.7% of children are obese, which is far higher than the average in England (19%). This places Brent with the 10th highest obesity levels for year 6 in England (compared against 152 PCT areas). Approximately 21.2% of all adults in Brent are obese.

 Cardiovascular disease which in part accounts for much of the inequalities in life expectancy in the borough. - Cardiovascular disease is one of Brent’s biggest killers. Brent has higher rates of cardiovascular disease mortality than London and England. Emergency admission rates for coronary heart disease, heart failure and stroke are continuing to rise in Brent, whilst in other parts of London admission rates for coronary heart disease and stroke are actually falling.

8 Day PL, Pearce J: Obesity-Promoting Food Environments and the Spatial Clustering of Food Outlets Around Schools. American Journal of Preventive Medicine 2011, 40:113-121. 9 The Guardian, Doctors sound alarm on child fitness and health, 21 August 2013 10 Local government public health briefings (May, 2013), NICE www.publications.nice.org.uk 11 Associate Parliamentary Food and Health Forum (2008). The links between diet and behaviour: the influence of nutrition on mental health. www.foodforthebrain.org/download.asp?id_Doc=96 12 Food additives and children’s behaviour (2008). Food Standards Agency www.food.gov.uk/science/socsci/ssres/ssarchive/ssarchivesafety/foodaddchild

 High levels of long-term chronic conditions which are often related to poor lifestyles and relative deprivation such as diabetes. - Brent has the second highest diabetes prevalence in London at 5.61%.

4.2 All of these health challenges are linked to a poor diet. Further evidence that poor diet is a significant contributing factor to health issues is the finding that only 2 out of 5 adults in Brent have a healthy diet as measured by consumption of five or more portions of fruit and vegetables a day. In light of this a key objective of the Brent Health and Wellbeing Strategy (2013 – 2015) is to promote healthy eating. To achieve this objective greater integration between primary care prevention programmes and local authority services is required to help residents make vital lifestyle changes.

4.3 Furthermore, the Brent Strategic Obesity group has been established with the objective of reducing levels of obesity in Brent. As figure 1 illustrates based on modelling estimates, it is clear that the prevalence of obesity in Brent will increase dramatically over the next two decades if action is not taken. Specific focus areas for action the group has identified include ensuring the healthy growth and development of young people, and this is reflected in the priorities of the Brent Obesity Strategy (2010). Amongst other measures the strategy states takeaways within close proximity to local schools are exacerbating childhood obesity, as such a key action of the strategy is to restrict permission for A5 uses within 400 metres of schools.

Figure 1: Sources: Projections based on the Foresight report p.34; Baselines drawn from Healthy Weight, Healthy Lives Toolkit p.92; London Health Observatory, HSE Boost for London 2009; Health Profile (2008) for Brent

5.0 Takeaways in Brent

5.1 Brent is served by 2 Major Centres, 11 District Centres and 3 Local Centres. Table 1 includes a breakdown of the number of takeaways within each town centres’ designated frontage based on the 2013 Town Centre Health Check data. Column 4 gives the proportion of units within designated frontage which are in use as takeaways (A5 Use Class).

Centre No. Total Proportion of Type Town Centre Takeaways Units (%) Kilburn 14 5.5 Major Wembley 18 5.9 Burnt Oak 1 3.6 Colindale 6 10.0 Cricklewood 6 5.5 Ealing Road 1 1.3 Harlesden 12 5.6 Kenton 2 3.8 Kingsbury 5 3.7 Neasden 8 7.1 Preston Road 9 9.3 Wembley Park 4 4.7 District Willesden Green 15 6.8 Kensal Rise 4 4.7 Queen's Park 3 6.8 Local Sudbury 6 9.4 Table 1: Proportion of Takeaways by Town Centre 2013

Proportion of Takeaways

12.0

10.0

8.0

6.0 % 4.0

2.0

0.0

Kilburn

Kenton

Sudbury

Neasden

Colindale

Wembley

Kingsbury

Burnt Oak

Harlesden

Kensal Rise

EalingRoad

Cricklewood

Queen'sPark

PrestonRoad

WembleyPark WillesdenGreen Major District Local

Figure 2

5.2 The average proportion of units in A5 use in Brent’s town centres is 5.85%. As figure 2 illustrates, four centres have a particularly high concentration of takeaways. These are Colindale, Neasden, Willesden Green and Sudbury. Figure 3 compares the number of takeaways in these centres to the number of general foodstores, butchers, grocers, fishmongers and bakers. Each centre has a higher number of takeaways than other foodstores, meaning residents served by these centres have greater access to takeaways than fresh food. Given the need to promote healthy eating identified in the Brent Health and Wellbeing Strategy this is of considerable concern.

Comparison between number of takeaways and foodstores

16 14 Takeaways 12 General foodstores 10 Grocers 8 Fishmongers 6 Bakers 4 2 Butchers 0 Colindale Neasden Willesden Green Sudbury

Figure 3

5.3 As the plan in appendix A indicates there are 41 takeaways within 400 metres of secondary schools and 60 takeaways within 400 metres of further education establishments in Brent. A full list of further education establishments aimed primarily at 16 to 18 year olds is included in appendix A. Given the high levels of child obesity in Brent this is also of particular concern.

6.0 Conclusion

6.1 National and regional planning policy and a growing evidence base supports the need to prevent an overconcentration of takeaways due both to health implications, and the fact they detract from the primary retail function of centres and result in cumulative impacts on amenity. Brent residents suffer from health and wellbeing challenges which can be related to a poor diet. Preventing an overconcentration of takeaways will make an important contribution to promoting health eating in the borough. However, it is also acknowledged that takeaways provide a convenience service to local communities and create local jobs. A level has therefore been set which takes into account average existing levels of A5 uses within the primary and secondary frontage, and allows a limited increase in most centres. This limit will also prevent a further increase of takeaways in centres where an overconcentration already exists. This has informed the decision to set an upper limit of no more than 6% of units in a centres’ frontage being in A5 use. The takeaway policy will therefore state:-

‘Planning permission will be granted for takeaways providing it will not result in more than 6% of the units within a town or neighbourhood centre frontage consisting of A5 uses.’

6.2 To prevent an overconcentration within any single length of frontage the policy will also state:-

‘planning permission will not be granted where it will result in there being less than two non-A5 units between takeaways.’

6.3 The borough has 41 takeaways within 400 metres of secondary schools, and 60 takeaways within 400 metres of further education establishments. The council considers this is a contributing factor to childhood obesity. A buffer zone will be established to ensure further takeaways are not located in walking distance of secondary schools and colleges. Walking distance is considered to be 400 metres, which is a 10 minute walk for an able bodied person. This is an accepted standard which has already been applied by Waltham Forest, Newham, Barking and Dagenham and St Helens Council. This has informed the policy to only grant permission for takeaways providing it will not result in:-

‘an A5 use being within 400 metres of a secondary school or further education establishment.’

6.4 The policy will apply to all town centres, with the exception of Wembley and Wembley Park which are to be covered by policy WEM 26 in the emerging Wembley Area Action Plan.

References

Planning Policy and Guidance

 The Mayor’s Food Strategy (2006), London Development Agency  London Plan (2011), Greater London Authority  National Planning Policy Framework (2012), Department for Communities and Local Government  Takeaways Toolkit (2012), A London Food Board & Chartered Institute of Environmental Health Publication Based on a consultancy report by Food Matters  Draft Town Centre Supplementary Planning Guidance (2013), Greater London Authority

Local Health Indicators

 Brent Obesity Strategy (2010), Brent Council  Brent’s Joint Strategic Needs Assessment (2011 - 2012), Brent NHS and Brent Council  Health Profile for Brent (2012), Department of Health  Health and Wellbeing Strategy (2013 - 2015), Local Strategic Partnership for Brent

Academic Research

 Caraher, Lloyd, and Madelin (2007). Fast-Food in Tower Hamlets. City University, London.  Mehta NK, Chang VW. Weight status and restaurant availability: a multilevel analysis. AmericanJournal of preventive medicine 2008;34(2):127-33.  Currie; DellaVigna; Moretti; Pathania (2010). The Effect of Fast Food Restaurants on Obesity and Weight Gain. American Economic Journal: Economic Policy, Vol 2, Number 3, August 2010, pp. 32-63(32).  Associate Parliamentary Food and Health Forum (2008). The links between diet and behaviour: the influence of nutrition on mental health. www.foodforthebrain.org/download.asp?id_Doc=96

Appenidx A

Appendix B: Full list of Further Education Establishment (December 2013)

A & S Training College Alperton College Alperton Community School Asquith Court Schools BACES College BACES College Capital City Academy Claremont High School College Of North West London College Of North West London Willesden Convent of Jesus and Mary Language College Copland Community School Jewish Free School Kingsbury High School Menorah High School Newman Catholic College Preston Manor School Queens Park Community School Regal International College St Gregory RC High School The Crest Boys Academy The Crest Girls Academy The Swaminarayan School Wembley High Technology College