Design and approval of the nutritional warnings’ policy in Peru: Milestones, key stakeholders, and policy drivers for its approval

Abstract

BackgroundNutritional warnings are used as a public health strategy to prevent increases in obesity prevalence. Peru approved in 2013 and implemented in 2019 a Law requiring nutritional warnings on the marketing and packaging of processed foods high in sugar, sodium, saturated fat, and containing transfat. The complexity behind the implementation of this set of policies over six years provide unique learnings, essential to inform the obesity prevention context, especially when facing strong opposition from powerful stakeholders such as the food industry.AimsDescribe milestones and key stakeholders’ roles and stances during the nutritional warnings policy design in Peru; and identify and analyze the main drivers of policy change that explain its approval.MethodologyIn 2021, interviews were conducted with 25 key informants, advocates and opponents of the policy, closely involved in its design. Interviews were analyzed using the Kaleidoscope Model as a theoretical framework. Relevant policy documents and news were also analyzed.ResultsMilestones for this policy were the approval of the Law, Regulation, and Manual. Policy supporters were mainly from the Congress, civil society organizations, and Health Ministers; whereas opponents came from other parties in the Congress, ministries linked to the economic sector, the food industry, and media. Across the years, warning’s evolved from a single text, to traffic lights, to the approved black octagons. Main challenges included the strong opposition of powerful stakeholders; the lack of agreement for defining the appropriate evidence for nutritional warning parameters and design; and the political instability of the country. Based on the Kaleidoscope Model, the policy successfully targeted a relevant problem (unhealthy eating decisions) and had powerful advocates who effectively used focusing events to reposition the warnings in the policy agenda across the years. Negotiations weakened the policy but led to its approval. Importantly, government veto players were mostly in favor of the policy, which enabled its final approval despite the strong opposition.ConclusionsDespite the strong opposition faced and technical and political difficulties to define the best parameters and warnings’ design, Peru’s nutritional warnings policy was approved. Lessons learned are essential to inform similar and related prevention policies in Peru and elsewhere.

Reformulation of Top-Selling Processed and Ultra-Processed Foods and Beverages in the Peruvian Food Supply after Front-of-Package Warning Label Policy

“…In addition to other policies, such as eliminating trans fats [9] and modifying an existing tax on sugar-sweetened beverages (SSBs) [10], the law established the mandatory use of front-of-packaging warning labels (FOPWLs), for packaged processed foods and beverages (including ultra-processed products) that exceed nutritional thresholds, in the form of black octagons indicating that the products are "high in" sugar, saturated fats, or sodium or contain trans fats [8]. Despite strong opposition [11], the policy was implemented in two phases (the first starting in June 2019 and the second in September 2021), with thresholds becoming more restrictive in the second phase [12].…”