Memorandum by ASH (HI 63)
HEALTH INEQUALITIES
ABOUT ASH
1. Action on Smoking and Health (ASH) is
a London-based health campaigning charity, working to eliminate
the harm caused by tobacco. As smoking is the major recognisable
cause of social inequalities in health, ASH welcomes the opportunity
to contribute to this consultation. Set up by the Royal College
of Physicians, ASH is funded by the British Heart Foundation,
Cancer Research UK and the Department of Health.
EXECUTIVE SUMMARY
2. Tobacco use is the major preventable
cause of death killing around 114,000 smokers each year and responsible
for 29% of all cancer deaths[94],
17% of deaths from heart disease and 80% of deaths from chronic
obstructive lung disease (see Appendix 1 for a more detailed breakdown).
3. There is an iron chain linking deprivation
and smoking.[95]
Smoking accounts for half the difference in life expectancy between
social class 1 and 5. Death rates from tobacco are two to three
times higher among disadvantaged social groups than among the
better off.[96]
4. Our submission relates only to how tobacco
control can contribute to reducing health inequalities, by reducing
smoking prevalence.
5. Increasing the price of smoking is the
most effective means of helping smokers quit.[97],
[98]However,
tobacco tax is strongly regressive and for those smokers who don't
quit it can increase health inequalities, particularly for less
affluent smokers. On the other hand, genuine price increases do
help lead some smokers to quit and make very substantial health
and welfare gains for those that do quit. This poses a dilemma,
which can be resolved only by making the greatest possible efforts
to motivate and assist smokers to quit in response to increases
in taxation.
6. Preventing people from starting to smoke
or helping them quit requires measures at population level that
impact on all the key levers, price, promotion, place and product,
also known as the marketing mix.[99]
7. The NHS impacts on smoking behaviour
at individual level rather than population level. The NHS is responsible
for identifying smokers, providing individual smoking cessation
services and routine follow up where necessary.
8. Services provided by the NHS directly
can only realistically make a partial contribution to the overall
reduction in smoking prevalence, but broader population measures
are always going to play a more significant role in reducing smoking
prevalence overall. The DH target of 800,000 4-week quitters over
three years represented at most 160,000 long-term ex-smokers who
would not otherwise have given up smoking during that time frame.
This represents a prevalence reduction of around 0.1% a year[100]
or a quarter of the current rate of decline.[101]
9. Both population and individual measures
need to sit within a comprehensive, adequately funded tobacco
control strategy.
10. Targets are necessary to incentivise
effective action to reduce smoking prevalence, and specifically
target the most disadvantaged smokers. Targets need to be more
ambitious if health inequalities are to be significantly reduced.
A COMPREHENSIVE TOBACCO
CONTROL STRATEGY
11. Tobacco control is central to any strategy
to tackle health inequalities and to any prevention strategy.
Stopping people smoking is an intervention which can act before
disease develops, so it is more effective than any screening programme[102].
For example 61% of aortic aneurysm resulting in death in men is
due to smoking (see Appendix 1). It also results in an immediate
reduction in costs to the NHS, for example in costs of hospitalisation
for heart disease[103]
and statin use.[104]
12. Since the white paper Smoking Kills
in 1998[105],
many significant measures have been achieved, such as a ban on
tobacco advertising and promotion and comprehensive smokefree
legislation. However, the UK still lacks a co-ordinated national
strategy, as required by the WHO's Framework Convention on Tobacco
Control, which the UK has ratified.[106]
13. Such a strategy should be adequately
funded and include comprehensive measures to tackle smoking prevalence
as set out below, with a proper process in place for monitoring,
evaluation and updating the strategy over time.
14. Illegal drug use is estimated to cost
the health service only around £0.5 million each year compared
to the annual cost of smoking-related diseases of £1.7 billion.
15 The Government spent £736 million on treatment and prevention
on illegal drugs in 2005-6[107]
(not including all the crime and enforcement costs of illegal
drugs). Yet it is estimated there are only around a total of 350,000
problem drug users.[108]
In comparison spend on tobacco control by DH was less than £150
million in 2005-6, for 10 million smokers.[109]
THE EXTENT
TO WHICH
THE NHS CAN
CONTRIBUTE TO
REDUCING HEALTH
INEQUALITIES
The NHS Stop Smoking Services
15. The NHS Stop Smoking Services, first
introduced in Health Action Zones, are a very cost effective means
of tackling what is chronic relapsing disease, tobacco addiction.
A recent analysis shows that the average cost per life gained
for every smoker was under £700, one of the most cost effective
interventions and well below the benchmark of £20,000 per
quality-adjusted life-year saved (QALY) that is used by NICE to
determine whether a treatment should be funded by the NHS.[110]
16. Furthermore, the findings of the evaluation
of the services were that the services are effective at reaching
more disadvantaged smokers.[111]
This is supported by the survey figures from the ONS studies which
show that in 2005 8% of routine and manual workers said they had
been referred or self-referred to a stop smoking service, compared
to 4% of professional and managerial workers (and 10% of intermediate
workers).
BRIEF INTERVENTIONS
AND THE
QOF
17. Over 80% of the population visit GPs
at least once a year and the figure is higher for smokers.[112]
But QOF scores show that socially deprived areas receive a lower
quality of primary care and that social deprivation is an independent
predictor of lower quality.[113]
Brief advice by doctors is effective in reducing patients' smoking
and NICE guidance has been issued on this topic last year.[114]
GP practices should all be advising smokers to quit and referring
them to Stop Smoking Services where appropriate, but this is only
happening in a minority of cases.[115],
[116]
18. The QOF currently awards 41 of the 74
points available for smoking for simply recording smoking status.
The remaining 33 points are awarded for giving smoking cessation
advice only to patients in specific disease categories by which
time it may well be too late.
19. Together with the Royal College of Physicians
and the Royal College of General Practitioners ASH recommended
that the QOF be rebalanced using the existing points to award
most of these points to doctors for ensuring that 90% of all smokers
were given smoking cessation advice and referred to stop smoking
services at least once every fifteen months, with less for simply
recording smoking status, but our proposals were not accepted.
20. Recommendation: The QOF is currently
being renegotiated again, and the HSC should also call for a rebalancing
of points awarded to prioritise smoking cessation advice and referral.
SMOKING CESSATION
IN HOSPITALS
21. More also needs to be done to enable
patients to access smoking cessation advice and services from
secondary care. For example, smoking cessation is the only intervention
that changes the natural history of chronic obstructive pulmonary
disease (COPD) or reduces the risk of lung cancer, but only half
of all UK chest specialists have direct access to a Stop Smoking
counsellor.[117]
22. In addition health professionals in
hospitals are not making best use of existing services. A survey
in one hospital found that while 20% of inpatients smoked, less
than a third were given smoking cessation advice, despite the
hospital having a smoking cessation service.[118]
Furthermore while there were high levels of awareness amongst
health professionals of the local Stop Smoking Service in a District
General hospital, only one in five had referred smokers to the
service.[119]
23. We have been told that in some PCTs
there are problems for hospitals in developing smoking cessation
services, because PCTs are concerned that smokers quitting in
hospitals won't count towards their quit targets.[120]
24. Recommendation: That the HSC
should examine why it is that smoking cessation is not routinely
provided in hospitals and what can be done to remedy this situation.
THE NHS AND
LOCAL AUTHORITIES
25. The NHS needs to collaborate with Local
Authorities in order to be most effective in helping reduce health
inequalities and smoking prevalence should be one of the areas
specifically targeted. In the North-West of England local authorities
and PCTs have collaborated effectively to reduce smoking prevalence,
particularly in Liverpool[121],
and the North-East has an innovative model with PCTs funding their
own regional office of tobacco control[122],
which has also been very effective.
26. ASH and the Chartered Institute of Environmental
Health have developed a briefing note for local authorities on
how Local Area Agreements can be used to reduce smoking prevalence
and tackle health inequalities.[123]
CIEH, the Faculty of Public Health, the Trading Standards Institute
and the Association of Directors of Public Health sent this briefing
note to all Regional Directors of Public Health and local authorities
and encouraged them to ensure that Local Strategic Partnerships
adopt smoking prevalence as one of the stretch targets in their
Local Area Agreements and work together to develop action plans.[124]
POPULATION LEVEL
MEASURES
27. There is evidence from jurisdictions
with strategic tobacco control frameworks, such as California
and Australia, on how to bring smoking prevalence down and such
measures are both inexpensive and highly cost-effective compared
to health interventions to treat disease once it has developed.
Population measures rather than measures targeted at individual
subgroups have been found to be particularly effective.
28. There is also good evidence that smoking
prevalence only continues to go down when all policy levers continue
to be used to the full.[125],
[126],
[127]
TAXATION AND
SMUGGLING
29. The most effective means of reducing
smoking prevalence is price increases through tobacco taxation,
which is also most effective with poorer and younger smokers.
4, 5
30. HM Treasury has made clear that it does
not believe that increasing taxation on tobacco products is a
lever it can use at the present time given the continuing high
levels of smuggling. Reducing smuggling therefore is a priority.[128]
It is also crucial to reducing health inequalities as less affluent
smokers are more likely to use contraband tobacco.[129]
31. While much has been done to tackle smuggling,
further measures are needed. In particular we would like to see
the government actively supporting a strong global protocol to
the WHO Framework Convention on Tobacco Control, as set out in
the WHO expert working group's template, which was agreed by the
last Conference of the Parties as a basis for the negotiations
due to start shortly. We would also like to see strong support
for the timetable which envisages the protocol being put to the
Conference of the Parties for adoption in 2010. Smuggling is a
global problem and requires a global solution.
32. Furthermore we would like to see the
UK signed up to the anti-smuggling Agreements that the European
Commission and all other EU Member States have signed with Philip
Morris International (PMI) and Japan Tobacco International (JTI),
two of the top three tobacco companies in the world.[130],
[131]As
a non-signatory the UK will not benefit from Agreements which
ensure that both companies are required to control the illicit
trade in their products and to pay heavily if their cigarettes
continue to be smuggled.
33. The UK refused to sign the PMI agreement,
arguing that as PMI only had a small market share in the UK, it
was not relevant. This argument will not wash with Japan Tobacco,
which recently acquired UK-based Gallaher, the UK's second-largest
tobacco company. With an almost 40% market share, JTI has a significant
stake in, and control over, the UK tobacco trade.[132]
(Gallaher will fully join up to the Agreement in two years, but
the general compliance obligations apply immediately).
34. In 2005-06 of the 2 billion smuggled
cigarettes seized by Customs, about 200 million were Gallaher
brands, making them the UK brand with the biggest share of the
smuggled cigarette market. If the JTI agreement had been fully
in force at that time, the UK would have received over £100
million in seizure payments from Gallaher.[133]
35. ASH is calling on the Government to
urgently reappraise its strategy on smuggling and sign the EU
accords with PMI and JTI.
36. HM Treasury reduced VAT on nicotine replacement
products from 17.5% to 5% for one year from 1 July 2007, to encourage
more smokers to quit. Research carried out for ASH shows that
the reduction in tax has transferred through to the retail price
and there seems to have been a positive impact on sales, although
there are a number of confounding factors.[134]
We would therefore like to see the Treasury sustain this reduction
in taxation of such products permanently in the next budget.
SOCIAL MARKETING
37. Mass media interventions are expensive
but highly cost-effective on a per capita basis. Paid mass media
advertising campaigns have been found to be an effective means
of reducing smoking[135],
[136],
[137],
and can be targeted to be specifically aimed at lower socio-economic
groups to tackle health inequalities, but they need to be sustained
and have high impact. Such campaigns can also reduce incident
smoking in young people.[138]
38. Mass media campaigns are also needed
to continue to address smoking in the home and other private places
such as cars. This remains the major source of secondhand smoke
exposure, and those from disadvantaged backgrounds, particularly
children, are worst affected.[139]
Self-enforced restrictions on smoking at home are effective in
reducing exposure to children but are currently imposed by less
than 20% of households.[140]
39. Mass media campaigns are also a necessary
and very effective driver of smokers to the Stop Smoking Services.
This is illustrated by what happened in the second quarter of
2006 when the campaigns were stopped. Without the impetus of mass
media to encourage people to quit, the number of successful quitters
through the services fell by 17% from the same quarter in the
previous year, from 76,000 in April to June 2005 to only 66,000
in April to June 2006.
Comparison of mass media spend on smoking
campaigns in England between 2004-5 and 2005-6 in £ millions
| Q4 Oct-Dec |
Q1 Jan-Mar | Q2 Apr-Jun
| Q3 Jul-Sept | Total
|
2004-5 | 4.7 | 6.9
| 4.9 | 6.6 | 23.1
|
| 2005-6 | 3.4 | 5.5
| 0.0 | 3.0 | 11.9
|
| |
| | | |
Source: COI.
40. As the table above shows, it was not just that the
media spend in that quarter fell to nothing, but also that the
media spend in the previous two quarters was more than a third
down on the previous year. The level of spend on the services
is believed to have remained fairly consistent year on year over
this period. 16
41. The conclusion of numerous studies of mass media
campaigns has been that the key to success was maintaining a consistent
and sustained level of advertising over time.[141],
[142], [143],
[144] This is hardly
surprising, since given this is the lesson of commercial advertising,
why should it be any different for social marketing?
42. The US Centers for Disease Control has put together
recommendations for spend on mass media campaigns, based on the
spending levels in the four states which had effective tobacco
counter-marketing campaigns which had been successful in changing
both attitudes and behaviours. CDC recommended a spend of between
$1-3 a year per capita. The CDC mid-range recommendation of $2
per capita would give an annual spend of £50 million p.a.
43. However, since 2004-5 the level of spend has fallen,
to £22.7 million in 2005-6 and £13.5 million in 2006-7.
DH may argue that money is being allocated locally to target key
groups of smokers more effectively, and so tackle health inequalities.
We would argue that this should be in addition to mass media spend
and not as an alternative.
HARM REDUCTION
44. The Government have committed to consult on a harm
reduction strategy for tobacco control. It's the tobacco smoke
that kills people not the nicotine. While the gold standard should
always be quitting, a harm reduction strategy should give smokers,
in particular the most disadvantaged who find it harder to quit,
access to less harmful forms of nicotine in a form and at a price
that is attractive as an alternative to smoking. This must be
accompanied by effective marketing so that people understand that
it is not the nicotine itself that is harmful but that the harmfulness
of delivery varies greatly.
45. A switch of only 1% of the population a year from
smoking to less harmful nicotine sources, a conservative target,
would save around 60,000 lives in only 10 years.[145]
OTHER MEASURES
46. Also necessary are:
A comprehensive three year review of the smokefree
legislation and revision of the regulations where necessary;
Development of a strategy for tackling smoking
in private places such as the home and the car;
Strengthening of restrictions on residual marketing
for example a complete ban on point of sale advertising, and generic
packaging for all tobacco products;
A ban on vending machine sales of cigarettes;
Introduction of positive licensing for retailers.
TARGETS
47. Reducing inequalities in smoking rates is crucial
to a reduction in health inequalities as is recognised in the
DH PSA target on smoking which is "Reducing smoking rates
to 21% or less by 2010, with a reduction in prevalence among routine
and manual groups to 26% or less."
48. On current estimates smoking prevalence is declining
by about 0.4% per annum.8 Overall smoking prevalence in 2005 was
24%, with smoking rates amongst routine and manual workers still
at 31% and no sign of the differential being eroded. At current
rates of decline smoking prevalence among routine and manual workers
is likely to be at around 29% in 2010, a full 3% above the target.
Yet these are not ambitious targets and are nowhere near the "fully
engaged scenario" envisaged by Wanless of 17% by 2010 and
11% by 2022. 10
49. HMRC targets to reduce smuggling are also relevant
to health inequalities and to reduction in smoking prevalence,
as low income smokers are much more likely to smoke smuggled cigarettes.[146]
Currently (taking the mid-point) smuggled cigarettes have a market
share of 14.5%, but it is still the case that over 50% of hand-rolled
tobacco (HRT) consumed in this country is smuggled.[147]
This is of particular concern as HRT is most popular with routine
and manual male smokers (42% of men in routine and manual occupations
mainly smoke HRT, compared to only 25% of the population as a
whole[148]).
50. The current PSA targets are54:
By 2007-08:
reduce the illicit market share for cigarettes
to no more than 13%;
A new, specific operational target for HRT announced
in March 2006 of reducing the size of the UK illicit market by
1,200 tonnesequivalent to around 20 per cent.
The target for cigarettes is achievable, but new, stretching
targets need to be set for the future. Despite the new strategy
for tackling smuggling of HRT, the target for HRT is unlikely
to be reached.
51. ASH was therefore concerned to hear when we met with
the Minister Angela Eagle at the end of last year that new PSA
targets for HM Revenue & Customs to reduce tobacco smuggling
will not be set after the current targets expire at the end of
this financial year. She stated that this is only a "definitional
issue" as reducing smuggling will be a Departmental Strategic
Objective, but unless specific targets are published, our view
is that there will not be clarity about what HMRC is expected
to achieve. It is also crucial that HMRC continue to collect and
publish the information about the outcomes, in other words the
estimated range of illicit market shares of both the cigarette
market and the hand-rolled tobacco market and specific details
about the breakdown of the market.
52. Recommendation: That the HSC call Angela
Eagle, Exchequer Secretary to the Treasury who is responsible
for HMRC to give evidence to the Inquiry about the government's
tobacco smuggling strategy and targets.
January 2008
Appendix 1
DEATHS CAUSED
BY SMOKING
1. One in two long-term smokers will die prematurely
as a result of smokinghalf of these in middle age. One
quarter will die after 70 years of age and one quarter before,
with those dying before 70 losing on average 21 years of life.[149]
It is estimated that between 1950 and 2000 six million Britons
died from tobacco-related diseases.[150]
2. The most recent estimates show that around 114,000
people in the UK are killed by smoking every year, accounting
for one sixth of all UK deaths.[151]
This is more than three times the number of deaths from obesity,
the second major cause of ill-health and premature death.[152]
The table on the next page shows the percentage and the number
of deaths attributable to smoking by type of disease, based on
the latest available breakdown (2002 data).
3. Deaths caused by smoking are five times higher than
the 22,833 deaths arising from: traffic accidents (3,439); poisoning
and overdose (881); alcoholic liver disease (5,121); other accidental
deaths (8,579); murder and manslaughter (513); suicide (4,066);
and HIV infection (234) in the UK during 2002.[153]
For more on deaths from smoking in the UK and worldwide see:www.deathsfromsmoking.net
4. Smoking also causes or exacerbates many other conditions,
which even if they are not deadly can cause years of disease and
distress. For example fertility is 30% lower in female smokers.
See table for a detailed breakdown.
Estimated percentages and numbers of deaths attributable
to smoking in the UK by cause (based on 2002 mortality data)[154],
[155]
| Deaths from disease estimated to be caused by smoking
|
| Number of deaths
| | % of all deaths
|
| Men | Women
| Total | Men |
Women | Total |
| Cancer | |
| | | |
|
| Lung | 18002 | 10032
| 28034 | 89 | 75
| 84 |
| Upper respiratory | 525 |
85 | 610 | 74 |
50 | 66 |
| Oesophagus | 3248 | 1743
| 4991 | 71 | 65
| 68 |
| Bladder | 1521 | 318
| 1839 | 47 | 19
| 37 |
| Kidney | 788 | 72
| 860 | 40 | 6 |
27 |
| Stomach | 1385 | 266
| 1651 | 35 | 11
| 26 |
| Pancreas | 670 | 923
| 1593 | 20 | 36
| 23 |
| Myeloid leukaemia | 264 |
131 | 395 | 19 |
11 | 15 |
| All Cancers | 28000 | 14800
| 42800 | 36 | 21
| 29 |
| Respiratory | |
| | | |
|
| Chronic obstructive pulmonary disease | 13193
| 10685 | 23878 | 86
| 81 | 84 |
| Pneumonia | 3162 | 2900
| 6062 | 23 | 13
| 17 |
| Circulatory | |
| | | |
|
| Ischaemic heart disease | 14182
| 6361 | 20543 | 22
| 12 | 17 |
| Cerebrovascular disease | 3064
| 3764 | 6828 | 12
| 9 | 10 |
| Aortic aneurysm | 3652 | 1939
| 5591 | 61 | 52
| 57 |
| Myocardial degeneration | 6670
| 2936 | 9606 | 22
| 12 | 15 |
| Atherosclerosis | 63 | 56
| 119 | 15 | 7 |
10 |
| Digestive | |
| | | |
|
| Ulcer of the stomach or duodenum | 907
| 1008 | 1915 | 45
| 45 | 45 |
| Total caused by smoking | 71,296
| 43,219 | 114,597 |
| | |
| Preventable by smoking |
| | | |
| |
| Parkinson's | 1369 | 549
| 1918 | 55 | 28
| 43 |
| Cancer of endometrium | |
260 | 260 | | 17
| 17 |
| Total prevented by smoking* | 1369
| 809 | 2178 |
| | |
| Deaths from all causes due to smoking
(causes less prevented)
| 69.927 | 42,210 | 112,337
| | | |
* Studies have shown that smoking appears to have a protective
effect against the onset of some diseases such as endometrial
cancer. However, the positive effect is so small compared to the
overwhelming toll of death and disease caused by smoking that
there is no direct public health benefit.
Diseases caused by, or made worse by smoking[156]
| Disease is more persistent or severe in smokers
| Common cold
Crohn's disease (chronic inflamed bowel)
Influenza
| Tuberculosis
Asthma (symptoms are worse in smokers)
|
| Symptoms worse in smokers | Chronic rhinitis (inflammation of nose)
Diabetic retinopathy (eye disease)
Graves' disease (over-active thyroid gland)
| Multiple sclerosis
Optic neuritis |
| Function impaired in smokers | Fertility (30% lower in female smokers)
Menopause (onset 1.74 years earlier on average)
Reduced sperm count and motility, sperm less able to penetrate the ovum, increased shape abnormalities
| Impotence
Erectile dysfunction
Ejaculation (volume reduced)
The immune system is impaired.
|
| Increased risk for smokers | Diseases of the gums and teeth
Acute necrotizing ulcerative gingivitis (gum disease)
Tooth loss
| Heart and circulation
Angina
Buerger's Disease (severe circulatory disease)
Peripheral vascular disease
|
| Stomach/digestive system
Duodenal ulcer
Colon polyps
Crohn's disease (chronic inflamed bowel)
Stomach ulcer
| Ligaments, muscles and bones
Ligament, tendon and muscle injuries
Neck and back pain
Osteoporosis (in both sexes)
Rheumatoid arthritis (for heavy smokers)[157]
|
| Skin
Psoriasis
Skin wrinkling
Other
Depression
Diabetes (type 2, non-insulin dependent)
Hearing loss
| Eyes
Cataract
Cataract, posterior subcapsular
Optic neuropathy (loss of vision)
Ocular histoplasmosis (fungal eye infection)
Macular degeneration
Nystagmus (abnormal eye movements)
Tobacco Amblyopia (loss of vision)
|
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