Healthy Nutrition: a Closer Look at Logos
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Healthy nutrition: a closer look at logos Gezondheidsraadt Health Council of the Netherlands To the Minister of Health, Welfare and Sport Subject : presentation of advisory report Healthy nutrition: a closer look at logos Your reference: VGP/VV 2773456 Our reference : I-786/07/CS/cn/830-D1 Enclosure(s) : 1 Date : 2 december 2008 Dear Minister, On 5 June 2007 you asked the Health Council of the Netherlands for advice with regard to logos on food products. A special Health Council committee has spent the past year exam- ining the extent to which the existing logos promote healthier eating patterns. The findings of this committee, which I chaired, have been reviewed by two permanent committees of experts within our organisation: the Standing Committee on Nutrition and the Standing Committee on Public Health. It is my pleasure to present you with the resultant advisory report. I am today also forwarding the report to your colleague at the Ministry of Agricul- ture, Nature and Food Quality. The Committee believes that univocal nutritional advice is of utmost importance to the con- sumer. This consistency is currently lacking. In particular, the allocation of the Choices stamp and the Healthy Choice Clover are based on two different sets of criteria – neither of which is sufficiently attuned to the general public education on healthy eating. The Committee therefore makes concrete recommendations to improve the situation. It advocates a single logo, which should be granted according to criteria that are consistent with the nutritional advice issued by the Netherlands Nutrition Centre. The form of the logo on products that are healthiest in terms of their composition ought to differ from the form used on products whose composition is reasonably good. The use of logos as a means of drawing attention to healthy products is an interesting devel- opment, which could potentially have public health benefits. Based on the current level of knowledge, however, it is impossible to say whether logos do, in fact, help to improve eat- ing patterns and promote the development of healthier products. It is plausible, however, P.O.Box 16052 Visiting Address NL-2500 BB The Hague Parnassusplein 5 Telephone +31 (70) 340 58 22 NL-2511 VX The Hague Telefax +31 (70) 340 75 23 The Netherlands E-mail: [email protected] www.healthcouncil.nl Gezondheidsraad Health Council of the Netherlands Subject : presentation of advisory report Healthy nutrition: a closer look at logos Our reference : I-786/07/CS/cn/830-D1 Page : 2 Date : 2 december 2008 that the logos may influence product development. Furthermore, scientific knowledge con- cerning the effects of the logos on consumer behaviour is still very limited at the present time. Many relevant questions have yet to be investigated. A regular update on knowledge development within this field is therefore desirable, not least in the light of the current European debate on the implementation of the regulations concerning health claims and nutrition labelling on food products. Given the great interest in these issues in Europe, this report is being published simultaneously in Dutch and Eng- lish. I trust that this advisory report will afford you insight into the way in which logos are cur- rently granted. It will also provide guidelines on the role that logos can play in the provision of consistent advice on healthy eating. Yours sincerely, prof. dr. ir. D. Kromhout Vice president P.O.Box 16052 Visiting Address NL-2500 BB The Hague Parnassusplein 5 Telephone +31 (70) 340 58 22 NL-2511 VX The Hague Telefax +31 (70) 340 75 23 The Netherlands E-mail: [email protected] www.healthcouncil.nl Healthy nutrition: a closer look at logos to: the Minister of Health, Welfare and Sport No. 2008/22E, The Hague, 2 December 2008 (Revised version, 5 December 2008) The Health Council of the Netherlands, established in 1902, is an independent scientific advisory body. Its remit is “to advise the government and Parliament on the current level of knowledge with respect to public health issues...” (Section 22, Health Act). The Health Council receives most requests for advice from the Ministers of Health, Welfare & Sport, Housing, Spatial Planning & the Environment, Social Affairs & Employment, and Agriculture, Nature & Food Quality. The Council can publish advisory reports on its own initiative. It usually does this in order to ask attention for developments or trends that are thought to be relevant to gov- ernment policy. Most Health Council reports are prepared by multidisciplinary committees of Dutch or, sometimes, foreign experts, appointed in a personal capacity. The reports are available to the public. The Health Council of the Netherlands is a member of the European Science Advisory Network for Health (EuSANH), a network of science advisory bodies in Europe. The Health Council of the Netherlands is a member of the International Network of Agencies for Health Technology Assessment (INAHTA), an international collaboration of organisations engaged with health technology assessment. INAHTA This report can be downloaded from www.healthcouncil.nl. Preferred citation: Health Council of the Netherlands. Healthy nutrition: a closer look at logos. The Hague: Health Council of the Netherlands, 2008; publication no. 2008/22E. all rights reserved ISBN: 978-90-5549-734-8 Contents Executive summary 11 1 Introduction 17 1.1 Dutch logos and nutritional information 18 1.2 Foreign logos and information systems 20 1.3 Request for advice and committee 21 1.4 Design of the advisory report 21 2 The criteria for awarding logos to products 23 2.1 The Dutch Food-Based Dietary Guidelines 24 2.2 The Choices stamp 30 2.3 The Healthy Choice Clover 34 2.4 Conclusions 37 3 De Guideline Daily Allowance and the GDA-system 39 3.1 Guidelines for a healthy diet 2006 39 3.2 The GDA system 40 3.3 Conclusions 43 4 Promoting the choice for healthier products 45 4.1 Empirical data and a thought framework 45 4.2 Awareness 47 Contents 9 4.3 Understanding 48 4.4 Attractiveness and credibility 51 4.5 Product choice 52 4.6 Possible misconceptions when interpreting logo’s 53 4.7 Conclusions 55 5 Effects on product development 57 5.1 Lack of scientific data 57 5.2 The route to achieving healthier products 57 5.3 Conclusions 60 6 Conclusions and recommendations 61 6.1 Principal findings 61 6.2 Ideal scenario 65 6.3 Recommendations for achieving the ideal situation 66 References 69 Annexes 71 A The request for advice 75 B The committee 77 C Glossary 79 D Criteria used in the Food-Based Dietary Guidelines and for the two logos 85 E Procedure for determining whether a product belongs in the intended basic food category 97 F Background information on criteria Food-Based Dietary Guidelines and Choices stamp 101 G Hearings with producers, stakeholder organisations and experts 107 H Recommendations for translating Guidelines for a healthy diet into FBDG 111 10 Healthy nutrition: a closer look at logos Executive summary Food companies have various ways of indicating that certain products are good for one’s health. Logos for this were introduced in the Netherlands several years ago. The Choices stamp is an initiative by Unilever, Friesland Foods and Campina. More than one hundred companies now partici- pate in this initiative and many of these companies have prod- ucts that carry the Choices stamp. The Healthy Choice Clover is an initiative by Albert Heijn. Only the Own-Brand products of this supermarket chain are eligible for the Healthy Choice Clo- ver. Each of these logos is awarded according to their own set of criteria. Another way of informing people about the nutritional value of food products is by listing the levels of nutrients (nutritional information) on the product packaging. Recently a new format has been introduced to present this information front-of-pack, the so-called GDA system. This system was developed by the European umbrella organisation of the food industry. Executive summary 11 The use of logos provides opportunities for improving dietary habits and public health. Whether this will actually occur, depends on three aspects. Are the logos assigned according to sound criteria? Do the consumers use this information cor- rectly when choosing products? Do the logos stimulate manufacturers to improve their range of products? In this advisory report, the two existing Dutch logos will be compared on these points based on the current state of scientific knowledge. This advisory report also contains an evaluation of the GDA system. This system differs fundamentally from the logos, because nutritional information may be listed on every product and still requires interpretation by the consumers, whilst the logos create the direct message that the product can contribute to a healthy eating pattern, because they are only featured on products that meet the criteria for that logo. The logo criteria do not sufficiently tie in to the food education In the Netherlands, the general public education on healthy eating is organised by the Netherlands Nutrition Centre. This is based on the Guidelines for a healthy diet 2006 of the Health Council. The committee is of the opinion that the mes- sage communicated by the logos should be consistent with this general food edu- cation. Therefore, the committee has compared the criteria for awarding these logos with the evaluation of the health value of food products by the Netherlands Nutrition Centre. The food education by the Netherlands Nutrition Centre is based on assign- ing all food products into three categories: ‘preferable’, ‘in moderation’ and ‘occasionally’; the criteria on which these three categories are based have been described in the Food-Based Dietary Guidelines report. For example, wholemeal bread is put in the category ‘preferable’, brown bread in the category ‘in modera- tion’ and white bread in the category ‘occasionally’.