Community Eligibility Provision Research Articles

Universal Free School Meals and School and Student Outcomes

The White House National Strategy on Hunger, Nutrition, and Health included expanding free school meals to all students, regardless of income, which has sparked debate in the United States. To assess the association between universal free school meals (UFSMs) and school and student outcomes in the United States. An expert panel-informed protocol was developed to evaluate intervention or cohort studies comparing UFSM programs, such as the Community Eligibility Provision (CEP), with non-UFSM programs in US schools from August 2012 (excluding 2020-2021 due to the COVID-19 pandemic) in peer-reviewed publications or government reports. Outcomes included meal participation rates, attendance, dietary intake and quality, food waste, economic impact, food insecurity, anthropometrics, disciplinary actions, stigma, and shaming. A search of Medline, Econlit, Business Source Ultimate, ERIC, Agricola, Cab Abstracts, and CINAHL was performed in April 2024. Two researchers screened articles for inclusion, extracted data, and assessed risk of bias, using the Risk of Bias in Nonrandomized Studies of Interventions tool, for each included study. Grading of Recommendations, Assessment, Development, and Evaluations was used to assess the certainty of evidence for each outcome. The search identified 2784 records, with 6 studies included, representing more than 11 000 elementary, middle, and high schools. Nonrandomized intervention studies performed difference-in-difference or rate ratio analysis to investigate CEP participation rates, attendance, anthropometrics, and/or suspensions. CEP was associated with increased lunch (3 studies; moderate certainty) and breakfast (1 study; very low certainty) participation. School attendance was unchanged or improved in schools with CEP compared with schools without UFSM (2 studies; low certainty). CEP was associated with lower obesity prevalence (1 study; very low certainty) and fewer suspensions (1 study; very low certainty). Reasons for downgrading the certainty ratings included indirectness (data not fully representative of the United States) and inconsistency (small number of studies limiting ability to assess consistency). Despite the limitations, the evidence reflected well-designed longitudinal intervention studies appropriate for decision-making. In this systematic review, UFSMs were associated with increased meal participation, no or slight improvements in attendance, and decreased obesity prevalence and suspension rates; certainty of evidence was moderate for lunch participation and low or very low for other outcomes. Studies did not report several important outcomes, such as diet quality and food security, suggesting the need for more high-quality research encompassing policy-relevant indicators.

The Impact of Community Eligibility Provision on Multilingual Learner Outcomes

Community Eligibility Provision (CEP) allows schools that meet certain criteria to provide free meals to all students. I provide new evidence on the impact of CEP with a focus on a particular group of students: those who are Multilingual Learners (MLL). These students may have been less likely to enroll to receive free meals before CEP even when income-eligible and were potentially less likely to take-up free meals when enrolled during the pre-CEP period due to heightened stigma. Using a student-level panel from North Carolina, I estimate the impact of CEP on MLL student math and reading achievement and school suspensions. I estimate student fixed effects models that suggest CEP positively impacts MLL students, whose math and reading test scores improve .032 and .082 of a standard deviation, respectively, on average when they attend schools enrolled in CEP. These students also see a reduction in the chance of being suspended in a given year of ∼2.3%, a 20% reduction of the mean, though this finding is more sensitive to how school-level poverty is measured.

The relationship between community food environment around schools and student meal participation: the role of school CEP participation status

BackgroundDespite the many benefits of school meals, not all students participate. One reason students may not participate in school meals is because they instead purchase breakfast or lunch from food outlets located around schools that mostly carry unhealthy items. This study examined whether school participation in the Community Eligibility Provision (CEP), which allows qualifying schools to serve free meals to all students, moderated the association between the community food environment around schools and student meal participation.MethodsThis study employed a longitudinal repeated-measures design using school-level data collected between 2014 and 2020 within four low-income school districts (n = 126 schools) in the US. We obtained meal participation data from state records and created a measure characterizing the community food environment within 0.25 miles of schools (characterized as low-density of unhealthy food outlets vs. high-density of unhealthy food outlets) through a latent class analysis. Regression analysis estimated associations between community food environments, CEP participation, and participation rates in school breakfast and school lunch, assessed in separate models.ResultsWhile no moderating effect of school CEP status was observed for breakfast or lunch participation, school breakfast participation was predicted to be 4% lower in high-density food environments than in low-density environments (P-value = .049) among non-CEP schools, and there was no difference in participation by the community food environment among CEP-participating schools. Differences in breakfast participation by the community food environment among non-CEP schools were mostly attributable to middle/high schools, with participation predicted to be 10% lower in high-density environments than in low-density environments among non-CEP middle/high schools (P-value < .001), whereas such a difference in participation was not observed among non-CEP elementary schools.ConclusionsNegative associations between food environment around schools and school breakfast participation were observed only among middle and high schools not participating in CEP, suggesting that policy actions to increase access to free school meals may benefit students, particularly older children and adolescents.

Universal free school meals: Examining factors influencing adoption of the Community Eligibility Provision

AbstractRecognizing school meals as critical safety nets for children in low‐income households, many states are passing legislation to adopt universal free school meals, linking their funding to the Community Eligibility Provision (CEP), a federally funded universal free school meal program. However, about half of all eligible school districts did not participate in CEP in the school year 2018–2019. Using a policy diffusion approach and a Cox regression model, this research demonstrates the importance of a school district's identified student percentage (poverty level) and a state's direct certification rate (certifying students for free meals) in increasing the likelihood of CEP adoption.

Characteristics Associated With School Participation in the Community Eligibility Provision: 2014-2020

Characteristics Associated With School Participation in the Community Eligibility Provision: 2014-2020

Universal Free School Meals Policy and Childhood Obesity.

The Community Eligibility Provision (CEP), a universal free school meals policy, increases school meal participation by allowing schools in low-income areas to provide free breakfast and lunch to all students; however, its impact on obesity remains uncertain. The objective of this study is to estimate the association of CEP with child obesity. School obesity prevalence was calculated using BMI measurements collected annually between 2013 and 2019 from students in California public schools in grades 5, 7, and 9. To estimate the association of CEP with obesity, we used a difference-in-differences approach for staggered policy adoption with an outcome regression model conditional on covariates, weighted by student population size. The analysis included 3531 CEP-eligible schools using school-level obesity prevalence calculated from 3 546 803 BMI measurements. At baseline, on average, 72% of students identified as Hispanic, 11% identified as white, 7% identified as Black, and 80% were eligible for free or reduced-price meals. Baseline obesity prevalence was 25%. Schools that participated in CEP were associated with a 0.60-percentage-point net decrease in obesity prevalence after policy adoption (95% confidence interval: -1.07 to -0.14 percentage points, P = .01) compared with eligible, nonparticipating schools, corresponding with a 2.4% relative reduction, given baseline prevalence. Meals served increased during this period in CEP-participating schools only. In a balanced sample of California schools, CEP participation was associated with a modest net decrease in obesity prevalence compared with eligible, nonparticipating schools. These findings add to the growing literature revealing potential benefits of universal free school meals for children's well-being.

Paying for Free Lunch: The Impact of CEP Universal Free Meals on Revenues, Spending, and Student Health

Abstract The Community Eligibility Provision (CEP) of the Healthy, Hunger-Free Kids Act of 2010 allows school districts to provide free meals to all students if over 40 percent of them are directly certified as free-meal eligible. While emerging evidence documents positive effects on student behavior and academics, critics worry that CEP has unintended consequences for student weight, district finances, and instructional spending. We investigate these using school and district data from New York State and a difference-in-differences design. We exploit staggered CEP adoption, and explore differences between metro, town, and rural districts. We investigate potential mechanisms, including lunch and breakfast participation, and use event studies to assess pre-adoption trends and effects over time. We find that CEP increases total food expenditures, but spending per meal declines. Local food service revenues decline, but increased federal reimbursements more than compensate for local food revenues and expenditures changes. Indeed, while some worry that CEP crowds out education spending, we find no effect on instructional expenditures. Furthermore, CEP increases participation in school lunch and breakfast, but has no deleterious effect on weight outcomes and, instead, is associated with obesity declines in secondary grades. Rural districts experience larger impacts than metro and town districts, alongside some negative fiscal effects.

Challenges of the Community Eligibility Provision of the National School Lunch Program: A Conversation about the Poverty Indicators in Education Working Groups

Challenges of the Community Eligibility Provision of the National School Lunch Program: A Conversation about the Poverty Indicators in Education Working Groups

Schools' Participation in the Community Eligibility Provision Affects Students' Receipt of Emergency Benefits during the COVID-19 Pandemic.

Pandemic Electronic Benefits Transfer (P-EBT) benefits were intended for families of school children who lost access to free or reduced-price school meals (FRPMs) during the COVID-19 pandemic-related school closures. In high-poverty communities, all students from schools participating in the Community Eligibility Provision (CEP) were automatically eligible for P-EBT benefits; in non-CEP schools, only students already participating in FRPMs-for which their parents submitted an individual application-were eligible for P-EBT benefits. Using publicly available data from 105 K-12 public schools located in 4 sizeable low-income New Jersey (NJ) cities, this study investigated the association between school CEP participation status and the reach of P-EBT benefits for eligible students. A generalized linear model with a logit link, a binomial family, and robust standard errors was used. Across all levels of FRPM eligibility based on students' household income, as expected, almost all students from CEP schools received P-EBT benefits; significantly fewer received P-EBT benefits if they attended non-CEP schools, even when they were eligible for FRPMs. Our findings show that without changes to the qualification process for CEP, large numbers of eligible children will not receive the intended health benefits of federal meals programs or similar emergency relief initiatives. Expanding CEP eligibility and simplifying the process through which schools qualify would likely improve the uptake of federal meals programs and emergency interventions, and more effectively achieve their intent.

The Effect of Free School Meals on Household Food Purchases: Evidence from the Community Eligibility Provision

We find access to universal free school meals through the Community Eligibility Provision (CEP) had a meaningful impact on grocery spending for households with children, with monthly food purchases declining by about $11, or 5 percent. For households in zip codes with higher exposure, the decline is as high as $39 per month, or 19 percent. The composition of food purchases also changes after CEP, with low income households experiencing a 3 percent improvement in dietary quality. Finally, CEP exposure is associated with an almost 5 percent decline in households classified as food insecure. Our results on the heterogeneous effects of CEP exposure by prior free/reduced price lunch eligibility reveal benefits in terms of both spending, dietary composition, and food insecurity for previously eligible low-income families, suggesting that the stigma of free school meals may be declining after universal access.

Increased School Breakfast Participation from Policy and Program Innovation: The Community Eligibility Provision and Breakfast after the Bell.

School meals provide significant access to food and nutrition for children and adolescents, particularly through universal free meal mechanisms. Alongside added nutritional meal requirements under the Healthy, Hunger-Free Kids Act (2010), schools can utilize meal program and policy mechanisms such as the Community Eligibility Provision (CEP) and Breakfast after the Bell (BATB) to increase participation. This study examines longitudinal statewide school-level CEP and BATB adoption and estimates the impact on increased free and reduced-price (FRP) breakfast participation. We find that FRP breakfast participation increased for schools that utilize both CEP and BATB (14-percentage-point increase) and that CEP-participating schools are more likely to use BATB approaches such as breakfast in the classroom, grab-and-go carts, and second-chance breakfast. Additionally, using a conditional Difference-in-Differences (DiD) approach, we find that BATB adoption accounted for a 1.4-percentage-point increase in FRP school breakfasts served (p < 0.05). Study findings can inform policy and school official decision making around the policy and program mechanisms at their disposal to increase school meal participation and student nutrition.

Factors Associated with Universal Free School Meal Provision Adoption among US Public Schools

The Community Eligibility Provision (CEP) allows high-poverty schools participating in US Department of Agriculture meal programs to offer universal free school meals. Emerging evidence suggests benefits of CEP for student meal participation, behavior, and academic performance. Although CEP became available nationwide in 2014, in school year 2019-2020, one third of eligible schools were not participating. This study evaluates which school, district, and state factors are associated with CEP participation. Cross-sectional study comparing CEP-participating with eligible nonparticipating schools to assess the relationship between CEP participation and school, district, and state factors. US public schools eligible for CEP in school year 2017-2018 (n= 42,813). CEP participation. Penalized regression variable selection methods to determine which factors contribute information to the model. Generalized logistic regression to predict odds of CEP participation unadjusted and adjusted for each factor in the full sample and in stratified analyses by whether a state was part of the CEP phase-in period (early vs late implementing states). In the full sample, adjusted odds of CEP participation were greater in states where CEP had been available longer (odds ratio [OR], 1.50; 95% confidence interval [CI], 1.34, 1.67). In late implementing states, adjusted odds of CEP participation were higher in schools with more students directly certified for free meals (OR in schools with 80%-89% vs 30%-39% directly certified: 19.32; 95% CI, 12.98, 28.76), Title I schools (OR, 1.85; 95% CI, 1.55, 2.21), and urban schools (OR suburban vs urban, 0.46; 95% CI, 0.36, 0.59). Differences by school level, enrollment, district size, student race/ethnicity, and geographic region also existed. Findings may help advocates, state agencies, and policymakers understand potential barriers to adoption and guide research exploring effective strategies to promote uptake. Future research should use qualitative and longitudinal designs to explore barriers to adoption, including cost and state and local policies.

Ending Child Poverty by Investing in Children and Families.

Ending Child Poverty by Investing in Children and Families.

The Campaign for Universal Free Lunch in New York City: Lessons Learned.

The New York City (NYC) Department of Education is the largest public school system in the United States, with an enrollment of >1.1 million students. Students who participate in school meal programs can have higher dietary quality than nonparticipating students. Historically, family income documentation qualifying students in the NYC Department of Education for free or reduced-price meals reimbursed by the National School Lunch Program perpetuated poverty stigma. Additionally, National School Lunch Program qualification paperwork was a deterrent to many vulnerable families to participate and impeded all eligible children's access to nutritious meals, potentially magnifying food insecurity. The Healthy, Hunger-Free Kids Act of 2010 provided a viable option for schools to serve free meals to all students, regardless of income status, as a universal free lunch (UFL) through a Community Eligibility Provision if ≥40% of students already participated in another means-based program, such as the Supplemental Nutrition Assistance Program. In this case study, we describe the processes of (1) strategic coalition building of the Lunch 4 Learning campaign (a coalition of students, parents, school-based unions, teachers, pediatricians, community leaders, and children's advocacy organizations) to bring UFL to all NYC public schools, (2) building political support, (3) developing a media strategy, and (4) using an evidence-based strategy to overcome political, administrative, and procedural challenges. The Lunch 4 Learning campaign successfully brought UFL to all NYC public schools in 2017. This case study informs further advocacy efforts to expand UFL in other school districts across the country and national UFL advocacy.

Impact of the community eligibility provision program on school meal participation in Texas.

To estimate the impact of opting into the community eligibility provision (CEP) on school meal participation among students in Texas. A quasi-experimental design using a two-way fixed effects panel difference-in-difference model and the variation in adoption timing to estimate the impact of opting into CEP on student breakfast and lunch participation in eligible, ever-adopting schools. All public and charter K-12 schools in Texas participating in national school meals (breakfast and/or lunch) from 2013 to 2019 who are eligible for the CEP program in at least 1 year and choose to opt into the program in at least 1 year (n 2797 unique schools and 16103 school-years). School-level administrative data from the Texas Department of Agriculture on meal counts, enrollment and summary characteristics of students merged with district-level educational and socio-demographic data from the Texas Education Authority. We find opting into CEP increased school breakfast participation by 4·59 percentage points (P < 0·001) and lunch participation by 4·32 percentage points (P < 0·001), on average. The effect is slightly larger (4·64 and 4·61, respectively) and still statistically significant when excluding summer months. Our findings suggest that opting into CEP modestly increases school meal participation in Texas, with a similar impact on breakfast and lunch.

School Food Policy Affects Everyone: Retail Responses to the National School Lunch Program

We study the private market response to the National School Lunch Program, documenting economically meaningful spillovers to non-recipients. We focus on the Community Eligibility Provision (CEP), an expansion of the lunch program under the 2010 Healthy, Hunger-Free Kids Act. Under the CEP, participating schools offer free lunch to all students. We leverage both the staggered roll-out and eligibility criterion of the CEP, which is limited to schools where at least 40% of students participate in other means-tested welfare programs. We find that local adoption of CEP leads to a 10% decline in grocery sales at large retail chains. Retailers respond with chain-level price adjustments: chains with the most exposure lower prices by 2.5% across all outlets in the years following adoption, so that the program’s welfare benefits propagate spatially. Using a stylized model of grocery demand, we estimate that by 2016 the indirect benefit had reduced grocery costs for the median household by approximately 4.5%.

Universal School Meals in the US: What Can We Learn from the Community Eligibility Provision?

Changes in school meal programs can affect well-being of millions of American children. Since 2014, high-poverty schools and districts nationwide had an option to provide universal free meals (UFM) through the Community Eligibility Provision (CEP). The COVID-19 pandemic expanded UFM to all schools in 2020–2022. Using nationally representative data from the Early Childhood Longitudinal Study: Kindergarten Class of 2010–2011, we measured CEP effects on school meal participation, attendance, academic achievement, children’s body weight, and household food security. To provide plausibly causal estimates, we leveraged the exogenous variation in the timing of CEP implementation across states and estimated a difference-in-difference model with child random effects, school and year fixed effects. On average, CEP participation increased the probability of children’s eating free school lunch by 9.3% and daily school attendance by 0.24 percentage points (p < 0.01). We find no evidence that, overall, CEP affected body weight, test scores and household food security among elementary schoolchildren. However, CEP benefited children in low-income families by decreasing the probability of being overweight by 3.1% (p < 0.05) and improving reading scores of Hispanic children by 0.055 standard deviations. UFM expansion can particularly benefit at-risk children and help improve equity in educational and health outcomes.

Schoolwide Free Meals and Student Discipline: Effects of the Community Eligibility Provision

AbstractThis paper examines whether schoolwide free meals affect disciplinary outcomes, focusing on the use of suspensions. Under the Community Eligibility Provision (CEP), schools serving sufficiently high-poverty populations may enroll their entire student bodies in free lunch and breakfast programs, extending free meals to some students who would not qualify individually, and potentially decreasing the stigma associated with school meals. We leverage the staggered rollout of CEP across states and school discipline measures for the near-universe of public schools to assess how disciplinary infractions change within a school as it becomes eligible for CEP. We conclude that schoolwide free meals reduced suspensions statistically significantly by approximately 17 percent for white male elementary students. Point estimates for other subgroups in elementary schools, and overall, are negative but smaller in magnitude; while treatment effects for black students are statistically insignificant, we also cannot rule out equal treatment effects between black and white students. We lack statistical power to rule large positive or negative effects for middle and high school students. The reductions among white students are somewhat larger in areas with high baseline poverty rates, consistent with universal meals programs serving an unmet need.

Universal free schools meals through the Community Eligibility Provision: Maryland food service provider perspectives

`Since 2014, the Community Eligibility Provision (CEP) school meal funding option has enabled high-poverty schools nationwide to serve universal free breakfast and lunch. Evidence suggests that CEP has benefits for student meal participation, behavior, and academic performance. This qualitative study explores perspectives among food service staff (n=28) in CEP-participating school districts in Maryland on (1) implementation barriers, (2) implementation best practices, and (3) impacts on students, school operations, and the broader food system. Perceived benefits of CEP include increased meal participation, reduced student stigma and financial stress among parents, and improved staff morale. Most participants did not report any change in wasted food or relationships with local or regional farms associated with CEP adoption. Implementation barriers, including concerns regarding CEP’s impact on federal, state, and grant education funding, provide insight into potential policy interventions that may promote uptake. Best practices, including strong communication with parents and creative strategies to boost student meal participation, can be adopted by other districts.

Universal Free Meals Associated with Lower Meal Costs While Maintaining Nutritional Quality.

The Community Eligibility Provision (CEP) of the Healthy, Hunger-Free Kids Act of 2010 allows the provision of universal free meals (UFMs) in high-poverty school areas. Participation in UFM programs, including through CEP, could reduce meal costs due to economies of scale and a lower administrative burden. We analyzed the School Nutrition and Meal Cost Study (SNMCS) data from 508 UFM-eligible schools (103 UFMs) to evaluate whether meal costs varied by UFM status. We used school-level data to address the non-random selection to UFMs with inverse probability of treatment weighting (IPTW). We estimated a generalized linear model with a log link and gamma distribution to predict meal costs by UFM status and school size. Full costs among medium and large schools were marginally lower in UFM schools for lunch (−$0.673; 95% CI: −1.395, 0.0499; p = 0.068) and significantly lower for breakfast (−$0.575; 95% CI: −1.077, −0.074; p = 0.025). UFM was not associated with meal costs among smaller schools. Healthy Eating Index scores did not vary significantly by UFMs, suggesting that lower costs could be achieved without an adverse effect on nutritional quality. This analysis is limited by the lack of identified student percentage (ISP) data needed to definitively identify CEP eligibility, although results were robust to sensitivity analyses addressing the lack of ISP data. The potential policy impact of these findings emphasizes the need for future studies that assess ISP and cost with more recent data and longitudinal designs.