Research into the use and perceptions of guidance on food safety and standards

FSS commissioned The Lines Between (TLB) to conduct research into the awareness of, relevance and effectiveness of FSS guidance. The overarching research objectives were to:

• Awareness and access: Identify and review awareness of current guidance, where food businesses source guidance from and how it is promoted by local authorities, and users’ preferences.
• Relevance: Deliver a comprehensive qualitative evaluation of the use of guidance by food business operators and food law professionals
• Effectiveness: Provide evidence-based insight on improving the utility, efficacy, efficiency and relevance of tools and guidance to increase their use and enhance compliance

Primary data collection took place between August and November 2025 and used a mix of qualitative and quantitative research. Three groups of participants were involved in the research:

• Qualitative interviews were conducted with 50 registered food businesses across Scotland, with the sample including a mix of business types, sizes and locations.
• 30 food law professionals[1] completed an online survey that was promoted by FSS in its Monthly Enforcement Report in September, October and November. Seven semi-structured interviews were conducted with food law professionals who responded to the survey and agreed to be interviewed.
• Interviews with five different stakeholder organisations to understand if and how guidance is used more widely, and how it could be improved.
• This report presents independent, evidence-based findings which will be used to inform the development of the SAFER programme and the continued development of other guidance to promote compliance with food law. 

Chapter 2: Are food businesses aware of Food Standards Scotland and its guidance?

• Food businesses have limited awareness of FSS and its guidance, and food law professionals also feel businesses lack awareness.
• When prompted, food businesses were most likely to be aware of CookSafe and allergen guidance, though the former is often attributed to local authorities rather than FSS.

Chapter 3: Where do food businesses and food law professionals get guidance on food safety and standards?

• Food law professionals play an essential role in providing food businesses with guidance, particularly guidance and tools created by FSS, with inspections being a key point of information exchange, as well as the registration of a new business.
• Food businesses speak positively about their relationship with food law professionals, but the extent of engagement varies depending on the location and type of food businesses.
• While many would feel comfortable in approaching food law professionals if they have questions or need clarification, guidance is not regularly sought because food businesses typically perceive little change in their day-to-day operations.  
• Food businesses described using a range of other sources to find information about food safety. Online searches are often used for quick answers to questions. However, food businesses prefer established, authoritative sources such as official websites and representative bodies, believing that these are more likely to offer clear, practical and trustworthy guidance.
• FSA guidance was repeatedly mentioned by food law professionals, particularly in instances where guidance is not provided by FSS, and it was felt that FSA guidance is the next best alternative.

Chapter 4: How relevant is FSS guidance?

• ‘Guidance’ often translates as the range of practical tools that food businesses use to create and follow daily or regular routines, covering temperature checks, cleaning schedules and allergen matrices.
• The extent to which businesses seek to stay up to date with changes in food safety and standards varied considerably. For several long-standing businesses, there is a sense that change over time has been limited, meaning they are not actively seeking guidance.
• Conversely, other businesses recognised the need to meet more detailed requirements around labelling, supplier traceability and in particular allergen management. Often, however, they find out about changes organically or reactively, rather than proactively.
• Food businesses familiar with FSS guidance feel it is relevant, comprehensive and easy to understand, with food law professionals generally considering it to be high quality and trusted by food businesses.
• Aspects of FSS guidance that were rated highly included free training resources, flexibility that allowed for tailoring, practical resources such as recording logs, and that it reflects the Scottish context.
• CookSafe and allergens guidance were most frequently used by food businesses, with the ability to refer to CookSafe and its templates playing a crucial role in embedding and maintaining food safety and standards in food businesses.
• Food law professionals recommend or discuss FSS guidance at most interactions with food businesses, particularly CookSafe, RetailSafe, ButcherSafe, and allergen, labelling and E. coli guidance.

Chapter 5: How could FSS guidance be more effective?

• Gaps in existing guidance relate to innovative or speciality types of cooking. Food law professionals highlighted similar gaps, but also mentioned the unique food businesses they encounter, which require specialised guidance.
• Food businesses can experience challenges in understanding or applying what they can perceive as general guidance to their business, and expressed frustration that guidance can feel “one size fits all”. This led to calls for more tailored, practical guidance that considers the realities of running a food business, and to support implementing that guidance.
• A few food law professionals called for more technical, detailed guidance to meet their needs, and to enable them to be clear about what needs to be enforced and how to do that consistently.
• Both food businesses and food law professionals highlighted a need to consider the accessibility of guidance. This includes ensuring that guidance, particularly CookSafe, uses plain language and is as user-friendly as possible. It also includes providing translated versions of guidance and greater use of visual aids.
• There was no consensus about which formats of guidance are preferred, and no evident pattern in preference by type of business. Hard copies are still considered helpful in kitchen environments. Conversely, several food businesses suggested digital guidance could be helpful. While there is at least some support for using digital tools, such as apps and online portals, to save time and space, there was no preference for one digital approach.
• Several food law professionals highlighted the importance of keeping existing guidance up-to-date and aligned with current legislation.
• There is some desire for more proactive communication, including alerts, newsletters, and direct updates about changes.

This research highlights the essential role that guidance plays in supporting food businesses to meet food safety and standards requirements and helping food law professionals to perform their role effectively. 

However, the research also highlights the need to increase the reach and impact of FSS guidance. Awareness of FSS as an organisation is low among food businesses. Many use FSS guidance, but often assume it comes from local authorities. This lack of visibility limits opportunities for FSS to build relationships with businesses and promote the full range of available guidance. In turn, this means that food law professionals are called upon to answer questions that could be answered by referring to FSS guidance, or to clarify how the guidance should be implemented .  

Across food businesses, guidance is widely used to ensure daily compliance, particularly in small and independent businesses where owners and managers are hands-on and responsible for everything from food preparation to training and record-keeping. However, guidance is not always regularly or proactively sought; for several long-standing businesses, there is a sense that change over time has been limited, meaning guidance is not required. Food law professionals play an essential role in providing food businesses with guidance, particularly guidance and tools created by FSS, with food businesses also using a range of other sources.   

Food businesses familiar with FSS guidance feel it is relevant, comprehensive and easy to understand. CookSafe provides businesses with a clear structure for managing food safety and is often described as the foundation of compliance routines. The availability of free, accessible training, such as the online allergen training, was widely welcomed, helping businesses upskill staff and providing reassurance about an issue that causes some food businesses concern. Food law professionals view FSS guidance as high quality and use it to support inspections, advise businesses, and ensure consistency in enforcement. Both businesses and food law professionals appreciate the coverage of existing guidance; relatively few gaps were identified, and those tended to be about emerging or innovative types of cooking and businesses.

There is a desire for guidance that reflects the diversity of business types and risk profiles, which could include more sector-specific or scalable guidance that feels more relevant to individual businesses, using digital solutions, for instance, to facilitate this. CookSafe, for example, is widely used but often adapted or condensed by businesses to make it more manageable or tailored to their needs. While this is sometimes done with the support of food law professionals, it presents a risk of inconsistent application of guidance and standards. While they feel that existing resources are generally helpful for businesses, some food law professionals requested more detailed guidance to support their work and decision-making. 

The format and accessibility of FSS guidance are also key issues. While the content is generally seen as clear and easy to understand, the volume and format of some guidance can be a barrier to use, particularly for smaller businesses with limited time, staff or technical knowledge. While there was some support for digital resources, the value of paper or printed materials is still evident in kitchens or production facilities, highlighting the continued need for multiple formats.

A need for improved communication between FSS and food businesses was also evident. Several businesses feel they already have a high level of understanding of what they need to do to ensure compliance, but still need to be made aware of any changes to legislation and guidance. Many rely on food law professionals or word of mouth to stay informed, which can lead to gaps in knowledge. 

In summary, FSS guidance is a trusted and essential resource, but there is room to improve how it is presented, promoted and tailored. By simplifying formats, expanding accessibility, and strengthening communication, FSS can ensure its guidance is easier to use and widely recognised, and in turn improve compliance.