Rationing in the United Kingdom
was introduced temporarily by the British government several times during the 20th century, during and immediately after a war.
At the start of the Second World War in 1939, the United Kingdom was importing 20 million long tons of food per year, including about 70% of its cheese and sugar, almost 80% of fruit and about 70% of cereals and fats. The UK also imported more than half of its meat and relied on imported feed to support its domestic meat production. The civilian population of the country was about 50 million. It was one of the principal strategies of the Germans in the Battle of the Atlantic to attack shipping bound for Britain, restricting British industry and potentially starving the nation into submission.
To deal with sometimes extreme shortages, the Ministry of Food instituted a system of rationing. To buy most rationed items, each person had to register at chosen shops and was provided with a ration book containing coupons. The shopkeeper was provided with enough food for registered customers. Purchasers had to present ration books when shopping so that the coupon or coupons could be cancelled as these pertained to rationed items. Rationed items had to be purchased and paid for as usual, although their price was strictly controlled by the government and many essential foodstuffs were subsidised; rationing restricted what items and what amount could be purchased as well as what they would cost. Items that were not rationed could be scarce. Prices of some unrationed items were also controlled; prices for many items not controlled were unaffordably high for most people.
During the Second World War rationing—not restricted to food—was part of a strategy including controlled prices, subsidies and government-enforced standards, with the goals of managing scarcity and prioritising the armed forces and essential services, and trying to make available to everyone an adequate and affordable supply of goods of acceptable quality.
First World War 1914–1918
In line with its business as usual policy during the First World War, the government was initially reluctant to try to control the food markets. It fought off attempts to introduce minimum prices in cereal production, though relenting in the area of control of essential imports. When it did introduce changes, they were limited. In 1916, it became illegal to consume more than two courses while lunching in a public eating place or more than three for dinner; fines were introduced for members of the public found feeding the pigeons or stray animals.In January 1917, Germany started unrestricted submarine warfare to try to starve Britain into submission. To meet this threat, voluntary rationing was introduced in February 1917. Bread was subsidised from September that year; prompted by local authorities taking matters into their own hands, compulsory rationing was introduced in stages between December 1917 and February 1918 as Britain's supply of wheat decreased to just six weeks' consumption. To help the process, ration books were introduced in July 1918 for butter, margarine, lard, meat, and sugar.
Each consumer was tied to a retailer. The basic ration of sugar, butter or margarine, tea, jam, bacon and other meat came to about 1,680 calories. It was adjusted for vegetarians, children and workers performing strenuous labour. Nutritional programmes for nursing mothers and young children were established by many local authorities. Unlike most of Europe bread was not rationed. It was argued that the civilian population's health improved under rationing, though tuberculosis increased. During the war, average energy intake decreased by only 3%, but protein intake by 6%. Controls were not fully released until 1921.
General strike of 1926
The government made preparations to ration food in 1925, in advance of an expected general strike, and appointed Food Control Officers for each region. In the event, the trade unions of the London docks organised blockades by crowds, but convoys of lorries under military escort took the heart out of the strike, so that the measures did not have to be implemented.Second World War 1939–1945
Food rationing
Emergency supplies for the 4 million people expected to be evacuated were delivered to destination centres by August 1939, and 50 million ration books were already printed and distributed.When World War II began in September 1939, petrol was the first commodity to be controlled. On 8 January 1940, bacon, butter, and sugar were rationed. Meat, tea, jam, biscuits, breakfast cereals, cheese, eggs, lard, milk, canned and dried fruit were rationed subsequently, though not all at once. In June 1942, the Combined Food Board was set up by the United Kingdom and the United States to coordinate the world supply of food to the Allies, with special attention to flows from the U.S. and Canada to Britain. Almost all foods apart from vegetables and bread were rationed by August 1942. Strict rationing created a black market. Almost all controlled items were rationed by weight; but meat was rationed by price.
Fruits and vegetables
Fresh vegetables and fruit were not rationed, but supplies were limited. Some types of imported fruit all but disappeared. Lemons and bananas became unobtainable for most of the war; oranges continued to be sold, but greengrocers customarily reserved them for children and pregnant women. Apples were available from time to time.Many grew their own vegetables, encouraged by the "Dig for Victory" campaign. In 1942, many young children, questioned about bananas, did not believe they were real. A popular music-hall song, written 20 years previously but sung ironically, was "Yes! We Have No Bananas".
Game
meat such as rabbit and pigeon was not rationed. Some British biologists ate laboratory rats.Bread
Bread was not rationed until after the war ended, but the "national loaf" of wholemeal bread replaced the white variety. It was found to be mushy, grey and easy to blame for digestion problems. There were four permitted loaves and slicing and wrapping were not permitted.Fish
Fish was not rationed, but prices increased considerably as the war progressed. The government did not ration fish, because fishermen, at risk from enemy attack and mines, had to be paid a premium for their catch in order to fish at all. Prices were controlled from 1941.Like other foods, fish was seldom available in abundance. During the war, the Royal Navy requisitioned hundreds of trawlers for military use, leaving primarily smaller vessels, thought less likely to be targeted by Axis forces, to fish. At one point, supplies dropped to 30% of pre-war levels, although this ratio improved to almost half by 1944. Wartime fish and chips was often felt to be below standard because of the low-quality fat available for frying.
Honey
Due to the vital role beekeeping played in British agriculture and industry, special allotments of sugar were allowed for each hive. In 1943, the Ministry of Food announced that beekeepers would qualify for supplies of sugar not exceeding ten pounds per colony to keep their beehives going through the winter, and five pounds for spring feeding. Honey was not rationed, but its price was controlled — as with other unrationed, domestically produced produce, sellers imposed their own restrictions.Alcohol
All drinks except beer were scarce. Beer was considered a vital foodstuff as it was a morale booster. Brewers were short of labour and suffered from the scarcity of imported barley. A ban on importing sugar for brewing and racking made beer strengths weaker.Fuel
On 13 March 1942 the abolition of the basic petrol ration was announced, effective from the 1 July. Thenceforth, vehicle fuel was only available to official users, such as the emergency services, bus companies and farmers. The priority users of fuel were always the armed forces. Fuel supplied to approved users was dyed, and use of this fuel for non-essential purposes was an offence.Subsidies
In addition to rationing and price controls, the government equalised the food supply through subsidies on items consumed by the poor and the working class. In 1942–43, £145 million was spent on food subsidies, including £35 million on bread, flour and oatmeal, £23 million on meat and the same on potatoes, £11 million on milk, and £13 million on eggs.Restaurants
Restaurants were initially exempt from rationing but this was resented because of the public perception that "luxury" off-ration foodstuffs were being unfairly obtained by those who could afford to dine regularly in restaurants. In May 1942, the Ministry of Food issued new restrictions on restaurants:- Meals were limited to three courses; only one component dish could contain fish or game or poultry
- In general, no meals could be served between 11:00 p.m. and 5:00 a.m. without a special licence
- The maximum price of a meal was 5 shillings. Extra charges allowed for cabaret shows and luxury hotels.
Public catering
Cooking depots were set up in Sheffield and Plymouth, providing roast dinners, stew and pudding. Hot sweet tea was often distributed after bombing raids.
Health effects
In December 1939, Elsie Widdowson and Robert McCance of the University of Cambridge tested whether the United Kingdom could survive with only domestic food production if U-boats ended all imports. Using 1938 food production data, they fed themselves and other volunteers one egg, of meat and of fish a week; of milk a day; of margarine; and unlimited amounts of potatoes, vegetables and wholemeal bread.Two weeks of intensive outdoor exercise simulated the strenuous wartime physical work Britons would likely have to perform. The scientists found that the subjects' health and performance remained very good after three months; the only negative results were the increased time needed for meals to consume the necessary calories from bread and potatoes, and what they described as a "remarkable" increase in flatulence from the large amount of starch in the diet. The scientists also noted that their faeces had increased by 250% in volume.
The resultskept secret until after the wargave the government confidence that, if necessary, food could be distributed equally to all, including high-value war workers, without causing widespread health problems. Britons' actual wartime diet was never as severe as in the Cambridge study, because imports from the United States avoided the U-boats, but rationing improved the health of British people; infant mortality declined and life expectancy rose, excluding deaths caused by hostilities. This was because it ensured that everyone had access to a varied diet with enough vitamins. Blackcurrant syrup and later American bottled orange juice was provided free for children under 2. Those under 5 and expectant mothers got subsidised milk. Consumption of fat and sugar declined while consumption of milk and fibre increased.