The Scottish Government

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CHAPTER 1: INTRODUCTION

1.1 This report presents the outcomes of the evaluation of the free school meals trial for P1-P3 pupils, commissioned by the Scottish Government. The evaluation comprised qualitative research among key stakeholders, analysis of uptake data, and a quantitative survey of parents.

Background

1.2 Scotland has some of the worst health in Europe and has been dubbed the 'sick man of Europe'. Life expectancy in the most deprived areas of Scotland can be as much as 10 years lower than in the most affluent. Life circumstances, as well as individual lifestyles, are recognised as having a powerful impact on health. Tackling poor health, among young people in particular, is therefore a priority for the Scottish Government. In recent years, a wide-ranging programme of action to improve health and reduce health inequalities has been introduced.

1.3 Poor diet is recognised as a significant contributor to Scotland's poor health record. Improving children's diets can have a major impact with beneficial outcomes for physical well-being, improved health in later life and the potential to impact on educational attainment. Influencing children's eating habits from an early age is widely considered to be vital to ensuring that they grow up to be healthy adults.

1.4 The positive role schools can play in promoting healthy lifestyles is clearly recognised and is being addressed through a variety of initiatives, with recent policy in this area focusing on a number of key areas:

• the nutritional value and uptake of school meals
• the extent to which school pupils can take part in physical activity
• mental and emotional well-being
• the extent to which schools promote healthy lifestyles across the full range of activities.

1.5 As part of the Scottish Executive's drive to improve the health and well-being of children in Scotland, nutrient-defined standards for school meals in Scotland were introduced in 2002 with the publication of Hungry for Success - a Whole School Approach to School Meals in Scotland. The report also introduced a strategy for delivering the standards, improving uptake of school meals and minimising stigma associated with receiving free school meals. Its prime focus was to improve both the quality and uptake of school meals across Scotland.

1.6 In 2005, HM Inspectorate of Education ( HMIE) published an evaluation of the implementation of Hungry for Success. ² The report was positive about progress but further action was recommended to:

• extend good practice and establish consistently high quality provision of school lunches across all local authorities and schools
• further improve school meal uptake and ensure that pupils make healthy choices
• further develop partnerships with parents on matters relating to food in schools
• maximise anonymity for recipients of free school meals
• introduce rigorous self-evaluation of action to improve food in schools.

1.7 To add value to the implementation of Hungry for Success and to help educate and instil healthy eating habits at an early age, in 2003 the Scottish Executive funded the provision of free fruit in school to all children in Primary 1 and 2. Provision of milk in schools by local authorities is also subsidised by the EU and the Government through the School Milk Subsidy Scheme and pupils already benefit from fresh drinking water in schools.

1.8 Building on work already being undertaken and going beyond Hungry for Success, in 2007, the Schools (Health Promotion and Nutrition) (Scotland) Act was passed. The Act covers all food and drinks available in schools, and:

• places health promotion at the heart of schools' activities
• ensures that food and drink served in schools meets nutritional standards set out by Scottish Ministers
• ensures local authorities promote the uptake and benefits of school meals and, in particular, free school meals
• reduces the stigma associated with free school meals by requiring local authorities to protect the identity of those eligible for free school meals
• gives local authorities the power to provide pupils with healthy snacks and drinks, either at a cost or free of charge
• requires local authorities to consider sustainable development when they provide food or drink in schools.

1.9 The duties in the Act relating to health promotion came into effect in January 2008, with the nutritional regulations for food and drink in schools now due to be introduced in August 2009. However, schools and local authorities have already implemented Hungry for Success and are preparing for the changes that the Act will produce.

1.10 Many of the challenges relating to encouraging health promotion and healthy eating amongst children and their parents in Scotland are currently being addressed through a number of other policies and initiatives.

Health Promoting Schools - Scotland joined the European Network of Health Promoting Schools as part of the UK in 1993, and Scottish schools were set the target of being Health Promoting Schools by 2007. As defined in the Act, "a school is 'health promoting' if it provides (whether on its own or in conjunction with Health Boards, parents or any other person) activities, and an environment and facilities which promote the physical, social, mental and emotional health and wellbeing of pupils in attendance at the school."

The Healthy Living Campaign - Run by NHS Health Scotland and the Scottish Government, the Healthy Living Campaign is a component of the implementation of the Scottish Diet Action Plan. It is a multi-media, multi-component approach, communicating information, positive messages and skills about physical activity and healthy eating.

The National Physical Activity Strategy/Active Schools - The National Physical Activity Strategy is the Government's programme of action to increase the nation's physical activity. In February 2003, Active Schools was identified as a key element of the drive to get more Scots more active - a commitment of the National Physical Activity Strategy. Active Schools is a term given to schools that provide pupils with sufficient opportunities to get active to the extent that it makes a positive contribution to their health. The primary aim of Active Schools is to give children of school age the motivation, opportunities, and tools to be more active throughout their school years and into adulthood. The initiative is not solely about getting young people to participate in formal sport and exercise, but also to introduce more physical activity into their daily lives through play, dance, and active travel.

1.11 It is against this background that the trial of universal school meal provision for Primary 1 to Primary 3 pupils was implemented. The trial ran from October 2007 to June 2008 in five local authorities in Scotland - East Ayrshire, Fife, Glasgow, Scottish Borders and West Dunbartonshire. These local authorities were selected to take part in the trial because they include recognised areas of deprivation and cover urban areas as well as small towns and rural areas across different parts of the country. Ipsos MORI Scotland was subsequently commission to undertake an evaluation of the trial.

Objectives of the evaluation

1.12 The evaluation of the trial was undertaken in order to assess process and practical issues relating to the implementation of free school meals, together with any early indications of benefits, across a variety of different locations, to inform roll-out. The trial was evaluated in the context of the overall aim of providing free nutritious school meals to children in P1-P3 with a view to improving pupils' health.

1.13 The specific objectives of the study are to:

a) Assess process and practical issues for local authorities and schools in implementing free school meals for P1 to P3 pupils

b) Measure the change in uptake of school meals by P1-P3 pupils

c) Investigate the range of potential health and other benefits of the trial, including attitudes and behaviours in relation to school meals and healthy eating, by pupils, parents, teachers and schools

d) Provide an assessment of the impact of the trial on the marginal and average costs of providing school meals

e) Identify any unexpected impacts and barriers to roll-out in other local authorities

1.14 Based on the research objectives, we identified key research questions to be addressed in the evaluation (see Table 1.1 below).

Table 1.1: Key research questions

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