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DentalPublicHealth

Colwyn Jones

Neil Craig and Neil Anand

The UK Soft Drinks Industry Levy:


Implications for Dental Health
Abstract: A Soft Drinks Industry Levy on sugar-sweetened beverages (SSBs) was announced in the Westminster budget on 16 March 2016.
The UK Government plans to introduce the SSB levy in 2018, with legislation enacted in 2017. The aim of the levy is ‘…..to give companies
plenty of space to change their product mix’.
The levy is a banded duty on soft drinks with less than 5 g/100 ml being classed as tax exempt, drinks with between 5−8 g/100 ml taxed
at a basic level tax at 18 pence per litre, and drinks with greater than 8 g/100 ml taxed at a higher level of 24 pence per litre. The Office
for Budget Responsibility forecast that the Soft Drinks Industry Levy will attract revenue of £500 million for 2019−2020, the second year
of implementation. Unusually, the expected revenue raised will be hypothecated to fund physical activity and breakfast clubs in English
schools.
CPD/Clinical Relevance: The UK Soft Drinks Industry Levy on SSBs has the potential to reduce both childhood obesity and the prevalence
and severity of tooth decay, although precise estimates of effect are unclear. The levy should be welcomed by the dental profession as a
structural fiscal policy to improve both general and dental health.
Dent Update 2017; 44: 476-484

As a developed European country, a and selling processed food and drink in teenagers and children, and increase
relatively small group of health conditions (sometimes described as ultra-processed the risk of developing type 2 diabetes
(the non-communicable diseases or NCDs) food products see Table 1), alcohol and independently of obesity.
are now responsible for a large part of tobacco is big business, with substantial There is an epidemic of obesity
the overall disease burden in the UK. profits generated throughout the supply in the UK, which is unlikely to improve
The impact of the major NCDs (diabetes, chain. These business interests have in the short term as the proportion of
cardiovascular diseases, cancer, chronic been classed as unhealthy commodity overweight or obese boys is 15th highest
respiratory diseases and mental disorders) industries, producing health-harming (26.1%) and for girls is 4th highest (29.2%)
account for an estimated 86% of the deaths products specifically designed to be out of the 34 OECD (Organization for
and 77% of the disease burden in Europe.1 ingested.2 Existing efforts to reduce or stop Economic Co-operation and Development)
The WHO NCD global action alcohol and tobacco use include market countries.5
plan 2013−2020 proposes addressing four interventions which aim to change the The tenth version of the
risk factors: physical inactivity, tobacco, supply/demand for these products. International Classification of Disease codes
alcohol and unhealthy diet. Producing In 2014, it was reported (ICD10) includes obesity (E66.0 − Obesity
that 58% of English women and 65% of due to excess calories). Obesity is typically
English men were overweight or obese.3 a co-morbidity rather than a principle
The Carbohydrates and Health Report by diagnosis for hospital admission. The non-
Colwyn Jones, Consultant in Dental The Scientific Advisory Committee on communicable diseases mentioned above
Public Health, NHS Health Scotland, Neil Nutrition (SACN) showed that sugar- often arise as the sequelae of obesity
Craig, Principal Public Health Advisor,
sweetened beverages (SSBs) are associated including, when sugars are considered,
NHS Health Scotland and Neil Anand,
with increased risk of type 2 diabetes dental caries.
Public Health Advisor (Health Economics),
and obesity.4 SACN concluded that high- Sugar is highly palatable and
NHS Health Scotland, 1 South Gyle
sugar beverages result in weight gain changes in the supply and manufacture
Crescent, Edinburgh EH12 9EB, UK.
and increased body mass index (BMI) of food over the last few decades have
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 Ultra-processed products are made of total energy intake.7 For manufacturers, and the more frequently they eat or drink
from substances extracted or refined from sugar-sweetened beverages are immensely sugar-containing foods, the more likely they
whole foods, eg, oils, hydrogenated oils profitable. They are cheap to manufacture are to suffer from tooth decay. Sugared soft
and fats, flours and starches, variants of and the high sugar content gives a long drinks, drunk regularly, are believed to be a
sugar, and cheap parts or remnants of shelf life. Concerned about profits, the major cause of tooth decay. It should also
animal foods − with little or no whole processed food and beverage industries be noted that advice aimed at promoting a
foods. Products include burgers, frozen have opposed any form of regulation or healthy diet has never included consuming
pizza and pasta dishes, nuggets and taxation. These tactics were first used by the soft drinks.
sticks, crisps, biscuits, confectionery, tobacco industry, hence the suggestion that Dental erosion (tooth
cereal bars, carbonated and other sugar ‘Sugar is the New Tobacco’.8 surface loss) is also caused by the citric,
sweetened drinks, and various snack Despite recent improvements, phosphoric or other acids added during the
products. Most are made, advertised there remains an epidemic of tooth decay manufacture of carbonated drinks, even in
and sold by large or transnational in our children. In 2015/16 almost a third sugar-free varieties.12
corporations and are very durable, (30.6%) of children entering primary school
palatable and ready to consume, which is in Scotland had experience of tooth decay.9
an enormous commercial advantage over Although SSBs are now believed to be a The Soft Drinks Industry Levy
fresh and perishable whole or minimally major cause of tooth decay and of obesity, The announcement of the UK
processed foods. the soft drinks industry actually started in a Soft Drinks Industry Levy on SSBs in the
number of places with naturally carbonated Westminster budget on 16 March 2016
 In the global north, ie North America mineral water originally being marketed for was, for many in the medical and dental
and Europe − ultra-processed products medicinal purposes. In the 19th century, the professions, a welcome surprise. Table 2 lists
have largely replaced food systems and food industry started supplying the British common names for sugars that should be
dietary patterns based on fresh and Royal Navy with an antiscorbutic agent. The included. The Chancellor of the Exchequer
minimally processed food and culinary problem of transporting and conserving stated that he was “……not prepared to look
ingredients that have less fat, sugar and juice from citrus fruit for sailors, to prevent back at my time here in this Parliament……
salt. vitamin C deficiency causing scurvy, led to and say to my children’s generation, I’m
 Ultra-processed products are typically both the development of the soft drinks sorry. We knew there was a problem with
energy dense; have a high glycaemic load; industry, and the vernacular description of sugary drinks. We knew it caused disease,
are low in dietary fibre, micronutrients UK sailors, later residents or migrants, as but we ducked the difficult decisions and we
and phytochemicals; and are high in Limeys. Around 1867, Lauchlin Rose of Leith did nothing. We are introducing the levy on
unhealthy types of dietary fat, free sugars mixed lime juice with sugar (by 1860 limes the industry which means that companies
and sodium. When consumed in small had replaced mainland European lemons can ……. promote low-sugar or no-sugar
amounts and with other healthy sources to promote British Economic interests in brands….’.13
of calories, ultra-processed products are the West Indies). However, in addition to The Westminster Government
harmless; however, intense palatability supplying the armed forces to prevent and plans to introduce the SSB levy in 2018,
(achieved by high content of fat, sugar, treat scurvy, they began selling Lime Juice with legislation passed in a finance bill
salt and cosmetic and other additives), Cordial to the general public, a soft drink during the 2017 Parliamentary year. The
omnipresence, and sophisticated and which endures to the present day.10 Chancellor of the Exchequer stated that
aggressive marketing strategies (such as Tooth decay is initiated and this was, ‘…to give companies plenty of space
reduced price for super-size servings), progresses when acid is produced within to change their product mix’. Unusually, the
all make modest consumption of dental plaque as commensal bacteria expected revenue raised by the levy will be
ultra-processed products unlikely and anaerobically metabolize simple sugars.11 hypothecated to fund physical activity and
displacement of fresh or minimally Typically, the pH measured in dental plaque breakfast clubs in English schools.14
processed foods very likely. These factors falls almost immediately sugars are taken Essentially, the SSB levy
also make ultra-processed products liable into the mouth, with a slow recovery back announced by the Chancellor is a banded
to harm endogenous satiety mechanisms to normal pH taking around 45 minutes. duty; similar in structure to some UK alcohol
and so promote energy overconsumption During this period, demineralization of excise duties (Table 3).
and thus obesity. the inorganic phase of tooth enamel The Office for Budget
Table 1. Ultra-processed products.2
and dentine takes place. Remember the Responsibility forecast that the Soft
Stephan Curve of undergraduate teaching? Drinks Industry Levy will operate with a
If repeated acid attacks occur because specific revenue target of £500 million
of a high frequency of sugar ingestion, for 2019−2020, the second year of
increased the availability and affordability demineralization continues, the organic implementation.15
of high sugar foods and drinks.6 The result phase of enamel and dentine is then lost so One criticism of this approach
is that the average Scottish diet now that mineral cannot be replaced, with the is that there is no incentive for producers
contains three times the recommended subsequent formation of a dental cavity. to reduce sugar content further below
intake of sugar; which should be only 5% The more sugar individuals eat or drink the thresholds of the bands. The use of
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monosaccharides (galactose, glucose and grape sugar contain around 10 g/100 ml across the UK.
fructose) Scotland’s second national drink contains
panocha 10.3 g/100 ml of sugar. These products
disaccharides (sucrose, lactose and maltose) would fall into the higher tax band.
dextrose
cane sugar, raw sugar Interestingly, more recent
buttered syrup innovations, such as Coca Cola Life (other
beet sugar brands are available) is now marketed in
diastatic malt
honey the UK with a green label and is sold as
diatase reduced sugar compared to the original
brown sugar, muscovado and demerara sugar formulation (6.7 g/100 ml, or 63% of the
refiner’s syrup
molasses and treacle original). Sweetness is maintained with
ethyl maltol a plant-based extract called Stevia. That
corn syrup and high fructose corn syrup means it would exceed the exemption
invert sugar
fruit juice concentrate (apple juice) threshold or 5 g/100 ml and be subject to
rice syrup the basic level of SSB levy. However, the
fruit puree (apple puree) same product sold in Germany only has
caramel
hydrolysed corn syrup 5 g/100 ml and, if sold in the UK, would
sorbitol be entirely exempt from the SSB levy: an
hydrolysed corn starch sorghum syrup example of how soft drinks manufacturers
already reformulate their products to suit
crystalline sucrose corn syrup solids taste and regulations in different countries.
nectars maltodextrin However, from the dental health viewpoint,
a 2.5% sucrose solution will drop dental
short chain oligosaccharides carob syrup plaque pH to below the critical level,
barley malt, malt and malt syrup mannitol causing demineralization of enamel, ie
tooth decay.11 So sugar concentrations
cane juice and dehydrated cane juice turbinado sugar at the 5 g/100 ml, or 50 g/litre (50 g is
golden syrup date sugar 12 teaspoons of sugar) threshold for tax
exemption will cause tooth decay. They may
dextran maple syrup also encourage continued habituation to a
Table 2. Sugars that should be subject to the UK Soft Drinks Industry Levy. diet with an intensely sweet taste.
An additional problem with
Sugar level Tax status Tax per litre health harming industries adopting a harm
reduction approach is that they may then
Less than 5 g/100 ml Tax exempt Nil
claim they have ‘done their bit’ to improve
Between 5−8 g/100 ml Basic level tax 18 pence per litre the health of the nation and may attempt
to exploit this through their marketing and
Greater than 8 g/100 ml Higher level tax 24 pence per litre
advertising strategies.
Table 3. Thresholds in the proposed UK Soft Drinks Industry Levy. A weight per volume of 5 g/100 ml is
The new SSB levy is aimed at
a 4.7% solution of sugar (5/105 as a percentage) 8 g/100 ml = 7.4% (8/108 as a percentage).
the producers and importers of sugar-
sweetened beverages, who will need to
register with Her Majesty’s Revenue and
a volumetric levy or tax would avoid this packed products sold through retail outlets: Customs (HMRC) to allow enforcement of
issue. An alternative would be a scaled the voluntary UK food traffic light system the new regulations. The aim is to use the
volumetric levy or tax where the rate is rejected by the European Union following market to influence the SSB producers and
scaled down on low sugar drinks and scaled importers.
intense lobbying by the food industry. The
up on high sugar drinks. One unfortunate In reality, the response of the
traffic light system has an upper threshold
effect of setting these legislative thresholds soft drink industry is likely to be a mix of
of 5 g/100 g for low sugar foods to be given
might be to encourage the general public approaches as, in 2014, the proportion
a ‘green’ rating.17
to assume tacit government approval of of sugar-free and levy-exempt soft drinks
A separate FoP green traffic light already sold in the UK was estimated at 49%
soft drinks with lower sugar levels that
upper threshold was proposed for healthy of total sales, and is expected to continue
nevertheless could still be health harming.16
drinks at 2.5 g/100 ml, exactly half of the to rise.18
The choice of the content
sugar content proposed by the Chancellor The Republic of Ireland will
thresholds of 5 g and 8 g for the SSB levy
may have been derived from the UK front for the lower threshold of the SSB levy. also introduce a levy on sugary drinks
of pack (FoP) nutrition labelling for pre- To put these figures in context, from 2018. The Irish Finance Minister made
most original sugar-sweetened beverages an announcement in their Budget on 11
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October 2016 and confirmed the approach example, demand is Q1. The functions slope same price increase leads to a much smaller
would likely be aligned with the UK’s Soft downward from left to right showing the fall in demand from Q1 to Q2i.
Drinks Industry Levy. traditional relationship between the price PEOD is influenced by things
No simple solutions exist to the of a commodity and demand for it: as price like the availability of alternative products,
problems caused by the ultra-processed or goes up, quantity demanded for most the amount of money spent on the product
‘neoliberal diet’.19 Aside from highlighting products goes down. in the first place, and the economic
the health problems of sugared drinks The amount by which demand circumstances of the consumers, which
and obesity to the UK population, what goes down depends on the PEOD. This is determines how well placed they are to
evidence exists that a levy on home the percentage change in demand divided afford the potential increase in spending
produced or imported sugar-sweetened by the percentage change in price. This arising from the price increase.
beverages will produce a health gain? is typically negative because, as noted PEOD also affects the impact of
earlier, for most products, as price goes up, a price increase on the value of sales. Elastic
Impact of SSB levy: economic demand falls. Where the percentage fall demand leads to a fall in revenues when
theory in demand is greater than the percentage prices rise because the proportionate fall in
increase in price, PEOD would be less than demand exceeds the proportionate price
The economic argument for -1, and demand would be considered to increase. In contrast, inelastic demand leads
taxes reflects basic economic theory. If a tax be elastic. Where the percentage fall in to an increase in revenues even if demand
or levy raises prices for a product, demand demand is smaller than the percentage falls, because the size of the price increase,
for that product will fall. If, as shown with increase in price, PEOD would be between in proportionate terms, is greater than
sugar, this product is harmful, the effect of -1 and 0, and demand would be considered the fall in demand. For example, demand
the tax should be to reduce harms through to be inelastic. for most alcohol products is estimated to
reducing consumption. The impact of the This is indicated in Figure 1. The lie between 0 and -1 so the anticipated
levy will depend in part on the response of more elastic is demand, the more demand effect of the increase in prices of cheap
consumers: how do they react to any price changes in response to a given change in alcohol caused by the implementation of
changes arising from the levy, what do they price and the flatter is the demand curve. minimum unit pricing in Scotland is both a
consume instead and is this less harmful In the hypothetical example in Figure fall in demand for such alcohol but also an
than sugar? It will also depend on the 1, as price rises from P1 to P2, quantity increase in revenues to retailers.20,21
reaction from the soft drinks industry. They demanded according to the elastic demand It is important to note that
may choose to absorb the cost, pass on function falls substantially from Q1 to Q2e. whether the levy itself leads to a price
some of the cost to the customer through Conversely, where demand is inelastic, the change in the first place depends on
higher prices, reformulate the product so
that the tax or levy is not payable, or some
combination of all three. In short, a tax is
likely to have a range of impacts, and the
precise effect is uncertain. Inelastic
The Government stressed Price Demand
the re-formulation objective in its
recent consultation on the SSB levy but
Elastic
acknowledged the potential for all three
outcomes to occur to a lesser or greater Demand
extent. This will be influenced by how
much producers expect demand to fall
as a result of any increase in price. This is
P2
referred to as ‘price elasticity of demand’
(PEOD). If demand is relatively elastic, ie
the more consumers are influenced by
P1
price, the greater the potential impact
on consumption of a tax or levy and the
more likely it is that producers will absorb
a higher proportion of a tax or levy, rather
than raise prices. Price elasticity of demand
also depends, in part, on the availability and
price of alternative products.
Demand/
Figure 1 shows two different Q2e Q2i Q1
demand functions setting out how the
Quantity
quantity of a product demanded relates Figure 1. Two different demand functions setting out how the quantity of a product demanded relates
to the price charged
to the price charged. At a price of P1, for
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whether producers choose to pay the levy, such policies or, in most cases, a general any regressivity would be modest.
reformulate products to avoid it, or pass failure to achieve significant SSB reduction This touches on another concern
it on to consumers in higher prices. This successfully, mainly due to setting an sometimes expressed about taxes: so-called
decision will partly be influenced by what inadequate tax level (<20%) and/or not ‘income effects’ where taxes increase
they believe PEOD to be: the more elastic supplementing it with other relevant expenditure on the taxed product and
is demand, the less likely they will be to try food policies (tax, subsidies, marketing reduce disposable income to spend on
and pass it on to consumers. regulations, etc).22,28 other items. For lower income groups, these
On the basis of the available Existing evidence suggests may be necessities such as food, heating,
evidence, the WHO report suggests that that to reduce obesity and diet-related etc. But the extent of this effect depends on
demand for SSBs is generally elastic, with diseases caused by high sugar intake, a whether and how much behaviour changes
price elasticities around -0.9 to -1.3, ie a rise more comprehensive, structured and multi- to offset increases in prices. As noted above,
in price of 1% will lead to a fall in demand action approach (subsidies, ring-fencing evidence suggests that demand for SSBs
of between 0.9% and 1.3%. SSBs are also a revenue, nutrient profiling, etc) is needed, responds to price, with elasticities of around
targeted measure because individuals who of which SSB tax could be the starting -1, and demand may become lower in lower
are high consumers of SSBs are also likely to point. So, although the evidence is limited income groups, such that income effects are
be more price responsive.22 with respect to the effect of the SSB tax on minimal.
The health effects of these health outcomes, it is robust in pointing out In addition, the levy could
expected falls in consumption depend the health harming effects of existing levels benefit more vulnerable groups in health
on what consumers substitute for sugar- of sugar intake in the UK via SSBs in the terms as their increased responsiveness
sweetened beverages and whether form of obesity and dental caries, especially to price could lead to a larger reduction in
these products have harmful effects. in children and adolescents. SSB consumption. As such an SSB has the
The alternative products consumed will Overall, theory and evidence potential to help reduce health inequalities.
depend in part on relative prices, which will suggest that a sugary drinks levy will help The WHO concluded that ‘vulnerable
themselves reflect differences in the taxes reduce consumption of a major source of populations, including low-income
or levies imposed on potential substitutes. sugar and calories in children’s diets. In consumers, are most price-responsive
Taxing equally sugary alternatives to a addition, the move will hopefully have a and, in terms of health, benefit most from
lesser degree may simply shift consumption positive ripple effect here in the UK and changes in the relative prices of foods and
to equally harmful products. across the world, helping to strengthen beverages.’
Evidence around the effect resolve to enact other measures which Elasticities of this magnitude
of SSB tax on consumption comes from further protect children’s health and also have implications for the argument
modelling studies of some country improve the environment in which they that taxes will reduce employment in the
case studies where such a tax has been grow up. soft drinks industry. The WHO suggests
implemented and has shown some effect. that any net effects on employment will
In Mexico, and other countries, there is be modest. Their impact can be reinforced
evidence that an excise tax on sugar- Effect of SSB levy/tax on health with subsidies on beneficial products. Some
sweetened beverages reduces demand.22 inequalities in UK evidence suggests that additional subsidies
A SSB tax increasing prices by 10% to 20% Price increases on food items or more choices of low priced substitutes
and above can reduce SSB consumption.23,24 usually have a greater impact on purchasing can help minimize the regressive impact
More recent evidence decisions of low-income or vulnerable parts of such taxes.22,28,29 In addition, if they are
from modelling studies predicts that a of the population since they have to spend hypothecated, the revenues they produce
considerable reduction in SSB consumption a larger proportion of their income on food. can be used to fund other complementary
is more likely if the levy is set at 20%, a level However, given the higher consumption measures to tackle sugar-related ill-health,
emphasized in the recent WHO report and levels among low-income populations, it although the revenues collected will
an Institute of Economic affairs (IEA) report may be that an SSB levy will be regressive, depend on how much demand falls in
that illustrates how any lower level tax ie lower income groups pay more in tax as response to the tax- or levy-induced price
(<20%) hasn’t been successful enough to a proportion of their income than higher change.
reduce consumption.22,25,26,27 income groups. But this depends on relative Overall, therefore, levies, taxes
price elasticities. A price elasticity of -1 and other instruments that affect price
suggests an increase in price of, say, 5% are potentially very effective. The devil,
Effect of SSB levy on general will be matched by a fall in demand of 5% however, in terms of their overall impacts
and/or dental health outcomes such that the amount spent on the taxed on consumption patterns and health, is in
Almost all evidence to support product would hardly change, especially the detail: detail regarding consumer and
the health benefits of the SSB tax comes if, as the WHO report suggests, demand producer behaviour, the scope and level of
from modelling studies which need to be would fall more in lower income groups, the levy or tax and the price and availability
interpreted with caution. One of the key because their price elasticity of demand is of close substitutes. The WHO conclude
reasons for this is either lack of robust larger. Overall, elasticities of this magnitude that ‘there is reasonable and increasing
evaluations assessing health impacts of suggest that the real effect in cash terms of evidence that appropriately designed taxes
480 DentalUpdate June 2017
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on sugar-sweetened beverages would result Conclusions COMPLETE%20AND%20FINAL.pdf


in proportional reductions in consumption, The sugar levy is a welcome 8. Consensus Action on Salt and Health.
especially if aimed at raising the retail price structural intervention. It is not a silver bullet Worldwide experts unite to reverse obesity
by 20% or more’. 22 but, as part of a comprehensive approach, epidemic by forming ‘action on sugar’.
Perhaps the most challenging it is a potentially effective government Press Release. http://www.actiononsalt.
argument that is sometimes put forward measure to reduce the consumption of org.uk/actiononsugar/Press%20
is about the ‘nanny-state’, ie the widely sugar-sweetened carbonated soft drinks, and Release%20/120017.html (Accessed
reported antipathy to state interference in to improve the health of the population.32 May 2016).
consumers’ freedom of choice. This is both Food and water are essential 9. National Dental Inspection Programme
a political argument and an economic issue. for life, whereas carbonated drinks, alcohol (NDIP) 2015. http://www.isdscotland.
The politics is for readers to decide where and tobacco are not. There is no place for org/Health-Topics/Dental-Care/
they stand, although it is worth posing the carbonated drinks, either sugared or sugar- Publications/2015-10-27/2015-10-27-
question about how ‘free’ choices really are, free, in a healthy diet. NDIP-Report.pdf
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the availability of clearly understandable rose-s-lime-juice-cordial (Accessed
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The views presented in this article 11. Murray JJ, Nunn JH, Steele JG, eds.
related harms of sugary drinks. This leads
are solely those of the authors. Prevention of Oral Disease. Oxford: Oxford
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theory suggests freedom of choice is University Press, 2003.
12. Salas MM, Nascimento GG, Vargas-
efficient because it is the mechanism by
which productive resources are aligned
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