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Confronting obesity in the UK
1.
© The Economist
Intelligence Unit Limited 2016 Commissioned by CONFRONTING OBESITY IN THE UK The need for greater coherence As is the case in other European countries, UK public opinion generally favours the belief that obesity is largely a lifestyle issue. A recent survey by the European Association for the Study of Obesity (EASO) found that 92% of UK respondents believe that obesity is caused by lifestyle choices, compared with a European average of 79%.1 Moreover, according to the survey only 18% of UK respondents recognise obesity as a disease, compared with nearly half of the general survey sample (46%). Yet a closer look suggests that public attitudes may be skewed by a significant element of denial: while the EASO survey found that more than half of UK respondents (52%) considered their weight to be normal and healthy, 21% of those who described themselves in this way were, in fact, technically overweight. And more than one-third of those who considered themselves to be overweight (36%) were actually obese. The emphasis on behavioural management as a priority in government obesity policy was evident in an October 2015 report from Public Health England, an operationally autonomous executive agency of the Department of Health, which proposed a series of regulatory initiatives to reduce sugar consumption, including the possible introduction of a sugar tax.2 More recently the chief executive of Englandâs National Health Service (NHS), Simon Stevens, announced plans to introduce a sugar tax in hospitals and local health centres by 2020.3 Balancing prevention and disease management As highlighted by The Economist Intelligence Unitâs recent report on Confronting Obesity in Europe,4 lifestyle-focused programmes have an important role to play in preventing obesity in those with a healthy weight. However, a policy focus on prevention fails those who are already severely obese. Dr Matthew Capehorn, clinical manager of the Rotherham Institute for Obesity (RIO) in South Yorkshire, notes that while some ÂŁ5bn (US$7.1bn) is spent on prevention programmes in the UK, just ÂŁ300m is spent on treatment. âPart of the problem lies in obesity not being viewed as a medical problem by healthcare professionals,â says Professor Rachel Batterham, head of the University College London Hospital Bariatric Centre for Weight Management and Metabolic Surgery. âA doctor would never let a patient walk out of their clinic with very high blood pressure, as they would recognise this as a risk factor A country case study by The Economist Intelligence Unit 1 EASO, Obesity: An Underestimated Threat: Public Perceptions of Obesity in Europe, May 2015. 2 Public Health England, Sugar Reduction: The evidence for action, October 2015. 3 âNHS chief to introduce sugar tax in hospitals to tackle UK obesity crisisâ, The Guardian, January 17th 2015. 4 Economist Intelligence Unit, Confronting obesity in Europe: Taking action to change the default setting, November 2015. Available at: http:// www.eiuperspectives. economist.com/healthcare/ confronting-obesity- europe-taking-action- change-default-setting
2.
2 © The
Economist Intelligence Unit Limited 2016 CONFRONTING OBESITY IN THE UK The need for greater coherence for cardiovascular disease and offer advice and treatment. Obesity is a risk factor not only for cardiovascular disease but also for type 2 diabetes and certain types of cancer, and patients need to be offered the appropriate treatment.â For those who find it most difficult to manage their weight, a more comprehensive approach to obesity is gaining traction. Obese patients visiting the RIO and a handful of other clinics are among the few in the UK able to get a taste of what a comprehensive weight-loss management service looks like. The RIO employs a multidisciplinary team of healthcare providers who can help with all aspects of managing weight problems, from specially trained nurses and healthcare assistants to dieticians and âcook-and-eatâ skills education. Psychologists are on-site to provide talking therapies, while exercise therapists offer personalised training programmes and facilities for group therapies and nutritional advice. Yet the RIO model is unusual not only in the rest of Europeâit is a rarity in England as well, despite the fact that under the NHS such services are theoretically meant to be provided across the country (Scotland, Wales and Northern Ireland, with obesity rates of 27%, 22.2% and 24% respectively, have their own healthcare services). And in this regard, it is symptomatic of the extent to which preventative approaches to curbing obesity still tend to dominate the national debate. In addition, it reflects the uneven provision of weight-loss treatment across Englandâs NHS, despite an increase in the obesity rate from 22.4% to 24.8% between 2003 and 2013.5 A 2014 report by the McKinsey Global Institute concluded that while education and personal responsibility remain critical elements of any programme to reduce obesity, they are insufficient on their own.6 The report also found that intensive weight-management programmes and surgery are rated more highly as far as strength of evidence is concerned than public-health campaigns. Indeed, the one-quarter of the UK population that is obese cost the NHS ÂŁ6bn-8bn in 2015, and this is expected to rise to ÂŁ10bn-12bn in 2030.7 A fragmented approach to treatment The NHS divides treatment for weight problems into four separate tiers (see table below). While a hierarchy for intensive weight-reduction treatment is spelt out by NHS guidelines, Dr Capehorn argues that continued structural reforms of the healthcare system have led to confusion over accountability, threatening to undermine the provision of a coherent service further, and contribute to the perception that the government is not fully committed to adequately investing in treatment. âA survey to look at Tier 3 provision showed that 40% of CCGs [clinical commissioning groups, which work together in general practices to plan, design and buy local health services in England] have no access to Tier 3; 60% have access, but the level of access varies significantly,â Dr Capehorn says. In London, for example, a recent survey revealed that just four CCGs out of a total of 21 had commissioned Tier 3 services, according to Professor Batterham. She adds that the shortage of Tier 3 services acts as a âhuge bottleneckâ, as people with severe obesity are forced to wait longer to be assessed, have their associated medical problems treated and receive weight-loss advice. 5 Baker, C, Obesity Statistics, House of Commons Library Briefing Paper, No. 3336, June 26th 2015, p. 5. 6 McKinsey Global Institute, Overcoming obesity: An initial economic analysis, November 2014, pp. 10 and 17. 7 âObesity bigger cost for Britain than war and terrorâ, The Guardian, November 20th 2014.
3.
3© The Economist
Intelligence Unit Limited 2016 CONFRONTING OBESITY IN THE UK The need for greater coherence Patients are meant to advance to higher tiers only once they have exhausted the services in previous ones. However, there are exceptions to this rule. Patients who meet the Tier 3 referral criteriaâthose with a body mass index (BMI) of more than 40, a BMI of more than 30 plus associated illnesses or raised waist circumference with associated illnessesâcan bypass Tier 2, although Tier 3 is theoretically for those in Tier 2 who have failed to hit weight-loss targets. Since 2013, however, patients cannot be referred to Tier 4 without having gone through Tier 3. The complexity of the structure creates particular challenges in localities where full services are inadequate or unavailable. âWe have clear guidance regarding the multidisciplinary composition of Tier 3 teams, but there is a lack of clarity regarding the best approach to achieve improved health outcomes with non-surgical weight-management programmes,â Professor Batterham says. âA lot of centres would like to set up Tier 3 services, but in order to do this, CCGs need to commission these.â From April 2016 Tier 4, which generally covers surgical options, is due to be transferred from the Department of Health to CCGs. A key criterion for this transfer to occur is that safe and efficient care should be at the forefront of any changes, with an assurance that the transfer of responsibility will not have a negative impact on patients. âWe did a survey, and less than 20% of CCGs knew about the fact that they would be getting responsibility for bariatric surgery,â explains Dr Capehorn, who is a member of the group overseeing the change. He predicts that many CCGs are likely to ask to postpone the transition, given that many are still adjusting to managing Tier 3 provision. âCCGs donât have the experience or desire to run bariatric surgery; there is a real danger that the uncertainty will mean lots of hospitals will switch experts, such as dieticians and surgeons, to other services,â warns Professor Batterham. Table: Treatment for weight problems in the UK: the four tiers Tier Scope Responsible agency 1 Local public-health interventions and primary-care activity inside general practice surgeries, such as weighing and measurement by nurses, the broaching of weight issues and assessment of motivation Local health authorities 2 Community weight-management groups run by local dieticians or commercial groups Local health authorities 3 Weight-loss medication prescribed by general practitioners, specialist dietician referrals and psychological intervention Clinical commissioning groups 4 Surgical options, including bariatric surgery NHS England (at least until April 2016); clinical commissioning groups (possibly from April 2016)
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4 © The
Economist Intelligence Unit Limited 2016 CONFRONTING OBESITY IN THE UK The need for greater coherence Inconsistent availability of surgery In 2014 the National Institute for Health and Care Excellence (NICE), which advises the government on healthcare investment, issued new guidance allowing physicians to consider bariatric surgery as a treatment for those with a BMI of 30 to 35 and recent onset of type 2 diabetes. Previously, only those with a BMI of 35 to 40 and an additional health condition that could be improved by surgery were considered.8 Experts predicted at the time that the new guidelines could double or triple the number of people undergoing surgery in the UK annually. Just 18,000 had bariatric surgery between 2010 and 2013 in the UK, 4,000 of whom also had diabetes.9 In 2015 the number of bariatric procedures in the UK decreased to around 5,800 from 6,200 in 2014, fewer than expected given the more generous guidelines, according to Professor Batterham. A study comparing seven European countries found that bariatric surgery was underutilised in England in 2012: the highest utilisation of bariatric surgery (defined as the number of surgeries per 1m population) was observed in Belgium (928), Sweden (761) and France (571), while England (117) and Germany (72) had the lowest utilisation rates.10 Costs remain a major sticking pointâboth for those arguing in favour of greater use of bariatric surgery and those arguing against greater use. The NHS has acknowledged that bariatric surgery is significantly more expensive than conservative disease management in the short term, but may actually be more cost-effective in the long run.11 Concerns about short-term costs remain prevalent: the NHSâs Mr Stevens recently argued that expert proposals to offer surgery to an additional 1.4m morbidly obese people would use up all of the ÂŁ8.4bn in additional funding that the government has pledged to the NHS.12 According to Professor Batterham, NICEâs new obesity guidelines are comprehensive and cover all aspects of obesity prevention and treatment. âThe updated guidelines with respect to bariatric surgery, are evidence-based and clear. The problem is that the guidelines are not being implemented. This situation will hopefully be improved by the NICE quality standards for obesity that are due to be published later this year.â A draft version of the new quality standards, which NICE put out for consultation in December 2015, spells out a list of proposed actions: that all obese patients who come into hospital need to be told their BMI; that health providers discuss the potential health consequences with patients; that severely obese patients receive a referral to more comprehensive weight-management services if earlier interventions have been unsuccessful; and that children with a BMI at or above the 98th centile be assessed for related conditions, such as type 2 diabetes. The standards also propose a structure for assessing and referring patients for bariatric surgery and for follow-up.13 8 âUK NICE Expedites Access to Bariatric Surgery in Diabetesâ, Medscape, November 28th 2014. Available at: http:// www.medscape.com/ viewarticle/835605 9 Ibid. 10 Borisenko, O, Colpan, Z et al, âClinical Indications, Utilization, and Funding of Bariatric Surgery in Europeâ, Obesity Surgery, August 2015, Vol. 25, No. 8, pp 1408-16. 11 NHS Commissioning Board, âClinical Commissioning Policy: Complex and Specialised Obesity Surgeryâ, April 2013, p. 14. 12 âNHS chief to introduce sugar tax in hospitals to tackle UK obesity crisisâ, The Guardian, January 17th 2015. 13 NICE, Obesity: clinical assessment and management, NICE quality standard, Draft for Consultation, December 2015, pp. 7-8. Available at: http://www.nice.org.uk/ guidance/GID-QSD128/ documents/draft-quality- standard
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Intelligence Unit Limited 2016 CONFRONTING OBESITY IN THE UK The need for greater coherence Although the UK has a carefully designed structure in place to provide an ascending level of care to seriously obese patients, structural reforms of the NHS, budget constraints and a policy focus that still emphasises prevention over treatment have all helped to undercut the delivery of a coherent set of services. A commitment to investment in a multistranded programme and the cultural change needed to support it will be necessary to enable obesity services in the UK to live up to their potential.
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