Fair Food Price Caps

The following sections provide an example list of items that could be considered within the price cap policy, based on the Eatwell guide food group categories.

Vegetables and fruit are an important part of a healthy and sustainable diet, accounting for around a third of the Eatwell Guide. However, intakes remain below recommended levels in Scotland at just 2.9 portions per day among adults, compared to the recommended 5 portions per day.

Analysis of data from Numerator (formerly Kantar) showed that the most frequently consumed fruits in 2020 were: bananas, apples, berries and currants, grapes and easy peelers. The most frequently consumed vegetables in 2020 were onions, carrots, tomatoes, peppers and cucumber. These items align with a modelled example of a healthy balanced diet, Eatwell Everyday and other published analyses of commonly consumed vegetables in Scotland.  

Consideration could be given to the provision of frozen and tinned options, alongside fresh, to provide convenient, longer shelf-life options. Seasonality is a key consideration as noted above, for example updating item lists over the course of a year.

It is worth noting that many vegetable and fruit options are already relatively low cost. Consideration could therefore be given to prioritising items that are typically more expensive but still widely consumed, in order to maximise impact.

Potential items based on the above could include:

• bananas, apples, strawberries, grapes and tangerines/satsumas
• onions, carrots, tomatoes, peppers and cucumber
• frozen peas or mixed vegetables (no additions)
• tinned tomatoes, tinned sweetcorn (in water), tinned fruit (in juice)

The Eatwell Guide emphasises that meals should be based on starchy carbohydrates such as bread, pasta, rice and potatoes, given their role as a key source of energy and their importance within a balanced diet.

Specifically including wholegrain items would support increasing fibre intakes, which remain below recommended levels in Scotland – only 3% of adults in 2024 met fibre recommendations. Among cereal and cereal products (e.g. pasta, rice and bread), data from the National Diet and Nutrition Survey (2019 to 2023) indicate that these foods contribute around 45% of fibre intake in adults aged 19 to 64 years.

Potential items could include:

• bread: wholemeal varieties would be preferable to support achievement of fibre recommendations; however, it is important to note that only non-wholemeal flour is currently in scope of mandatory folic acid fortification for the prevention of neural tube defects. 50/50 options could be included as higher fibre option, whilst remaining acceptable to consumers
• pasta (plain, no additions)
• rice (plain, no additions)
• potatoes (plain, no additions)
• porridge oats (plain, no additions)
• breakfast cereals (non HFSS only)

A variety of protein options are recommended by the Eatwell Guide, including beans, pulses, fish and eggs, with an emphasis on plant-based sources. Around 86% of adults consume some type of meat in Scotland, with diets typically characterised by higher intakes of white meat. Evidence demonstrates declining consumption of red and processed meat and increasing consumption of alternatives such as fish, eggs and plant-based products.

Dietary advice in Scotland is for intakes of red and red processed meat to be limited to a maximum of 70g per day among adults, with 26% currently consuming more than this. This advice is based on evidence from the Scientific Advisory Committee on Nutrition, for the reduction of colorectal cancer risk.                    

Including lean protein sources such as chicken would reflect current consumption patterns in Scotland, where chicken dishes account for a substantial proportion of total meat intake, while supporting a shift away from red and processed meat in line with Scottish Dietary Goals. Consideration could also be given to inclusion of a meat alternative, such as tofu, soy mince or soy ‘chunks’ (alongside beans and pulses) to capture consumers who are actively reducing meat intake/do not eat meat.

Encouraging increased consumption of beans and pulses would help address the consistently low fibre intakes in Scotland. Items such as tinned pulses provide convenient options with a long shelf life and can be used in a range of everyday meals. In addition to health benefits, increasing the availability and affordability of plant-based protein sources would also support wider climate and sustainability goals, given the lower environmental impact of foods of these items compared to animal-based proteins.

Convenient forms of fish such as frozen and tinned may also be more popular in some households in Scotland, particularly those with children. Including an oily fish such as salmon or mackerel would also support achievement of the oily fish Goal. 

Potential items could include:

• eggs
• tinned beans – such as baked beans, chickpeas, lentils and/or kidney beans
• tinned tuna and tinned mackerel
• salmon – could consider frozen option
• chicken breasts
• soya-based meat alternative

Dairy and alternatives are important sources of key nutrients such as calcium. Most of the population in Scotland consume some dairy (99%), and this is largely driven by products such as milk (67% of intake), cheese (14%) and yogurt (9%). Dietary advice in Scotland is for consumers to choose low fat, sugar and salt options.

Dairy alternatives should be included to provide options for those who do not consume animal milks, and these should be unsweetened and fortified with key micronutrients (such as calcium, iodine, vitamin B12 and vitamin D) to help mitigate potential risks of inadequate nutrient intake. Soya drinks are nutritionally closer to cows’ milk, though oat drinks are currently the most commonly consumed dairy alternative drink (around 50%) in the UK.

Potential items could include:

• semi-skimmed milk
• plain yogurt
• cheddar cheese, ideally a reduced fat option. However, it should be noted that many cheeses do not pass the NPM and therefore, if included, cheese would be an exception to this principle.
• fortified, unsweetened milk alternative

Although oils and spreads generally do not pass a NPM, they are essential for cooking and food preparation, helping to support cooking at home where possible. Including options higher in unsaturated fats would support reductions in saturated fat intake which remain above recommended intakes, while ensuring households have access to basic cooking ingredients.

Potential items could include: 

• vegetable/sunflower oil
• polyunsaturated spread

Inclusion of some convenience/pre-prepared items could also be considered, which would take account of some of the key barriers many individuals face when cooking and preparing food. For example, limited time, varying cooking equipment and skills.

Provided that included options are not classified as HFSS, products in this category could support quick and healthy meal choices while still contributing to a balanced diet.

Potential items could include:

• tinned vegetable soup
• pasta sauce