School Meals and Other Child Nutrition Programs: Background and Funding
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School Meals and Other Child Nutrition
December 18, 2023
Programs: Background and Funding
Kara Clifford Billings
Programs: Background and Funding
Updated July 16, 2025
(R46234)
Jump to Main Text of Report
The federal government has a long history of investing in programs for feeding children,
Analyst in Social Policy
starting with federal aid for school lunch programs in the 1930s. Today, federal child starting with federal aid for school lunch programs in the 1930s. Today, federal child
nutrition programs support food served to children in schools and a variety of other nutrition programs support food served to children in schools and a variety of other
settings. Administered by the U.S. Department of Agriculturesettings. Administered by the U.S. Department of Agriculture’'s (USDAs (USDA’'s) Food and s) Food and
Nutrition Service (FNS), the child nutrition programs include theNutrition Service (FNS), the child nutrition programs include the
• National School Lunch Program (NSLP),National School Lunch Program (NSLP),
•
School Breakfast Program (SBP),School Breakfast Program (SBP),
•
Child and Adult Care Food Program (CACFP),Child and Adult Care Food Program (CACFP),
•
Summer Food Service Program (SFSP),Summer Food Service Program (SFSP),
•
Seamless Summer Option (SSO),Seamless Summer Option (SSO),
•
Summer Electronic Benefit Transfer for Children (Summer EBT) Program,Summer Electronic Benefit Transfer for Children (Summer EBT) Program,
•
Fresh Fruit and Vegetable Program (FFVP), andFresh Fruit and Vegetable Program (FFVP), and
•
Special Milk Program (SMP).Special Milk Program (SMP).
The child nutrition programs vary in terms of size and target population. The largest programs are NSLP and SBP The child nutrition programs vary in terms of size and target population. The largest programs are NSLP and SBP
(the (the school meals programs), which subsidize meals for ), which subsidize meals formore thannearly 30 million children in 30 million children in approximatelymore than 90,000 90,000
elementary and secondary schools in a typical school year. CACFP supports food served to children in child care, elementary and secondary schools in a typical school year. CACFP supports food served to children in child care,
day care, and afterschool settings; SFSP and SSO provide funding for summer meals and snacks; Summer EBT day care, and afterschool settings; SFSP and SSO provide funding for summer meals and snacks; Summer EBT
provides grocery benefits for households with school-age children over the summer; FFVP sponsors fruit and provides grocery benefits for households with school-age children over the summer; FFVP sponsors fruit and
vegetable snacks in elementary schools; and SMP subsidizes milk in schools and institutions that do not vegetable snacks in elementary schools; and SMP subsidizes milk in schools and institutions that do not
participate in other child nutrition programs. In general, the largest subsidies are provided for free or reduced-participate in other child nutrition programs. In general, the largest subsidies are provided for free or reduced-
price meals and snacks served to price meals and snacks served tochildren from low-income householdsqualifying children. Other child nutrition activities include . Other child nutrition activities include
afterschool meal and snack programs, farm to school initiatives, and school meal equipment grants.afterschool meal and snack programs, farm to school initiatives, and school meal equipment grants.
FY2022
FY2024 Source: CRS, based on USDA-FNS, CRS, based on USDA-FNS,“June 2023"February 2025 Keydata Report," May 9, 2025.
Keydata Report,” September 8, 2023.
Notes: Numbers are rounded. FY2022 data are preliminary.
Federal spending on child nutrition programs and activities totaled roughly $Federal spending on child nutrition programs and activities totaled roughly $3832 billion in billion in FY2022FY2024, the majority of , the majority of
which was mandatory spending. Most child nutrition programs are considered which was mandatory spending. Most child nutrition programs are considered appropriated entitlements, meaning , meaning
that their authorizing statutes establish a legal obligation to make payments, but that obligation is fulfilled through that their authorizing statutes establish a legal obligation to make payments, but that obligation is fulfilled through
Congressional Research Service
School Meals and Other Child Nutrition Programs: Background and Funding
funding that is provided in annual appropriations acts. Most funding that is provided in annual appropriations acts. Most of thechild nutrition funding is provided in the form of per-meal funding is provided in the form of per-meal
cash reimbursements that states distribute to schools and institutionscash reimbursements that states distribute to schools and institutions, which is used toward the cost of operating the programs. A smaller amount of federal funding is . A smaller amount of federal funding is
provided in the form of federally purchased foods and cash for statesprovided in the form of federally purchased foods and cash for states’' administrative expenses. administrative expenses.
The child nutrition programs are primarily governed by two statutes: the Richard B. Russell National School The child nutrition programs are primarily governed by two statutes: the Richard B. Russell National School
Lunch Act and the Child Nutrition Act of 1966 as amended. These laws were most recently reauthorized by the Lunch Act and the Child Nutrition Act of 1966 as amended. These laws were most recently reauthorized by the
Healthy, Hunger-Free Kids Act of 2010 (HHFKA, P.L. 111-296), which made several changes to the child Healthy, Hunger-Free Kids Act of 2010 (HHFKA, P.L. 111-296), which made several changes to the child
nutrition programs. For example, the act created the Community Eligibility Provision, an option for eligible nutrition programs. For example, the act created the Community Eligibility Provision, an option for eligible
schools to provide free meals to all students. It also required USDA to update nutrition standards in the school schools to provide free meals to all students. It also required USDA to update nutrition standards in the school
meals programs and CACFP within a certain timeframe. While certain provisions of the HHFKA expired at the meals programs and CACFP within a certain timeframe. While certain provisions of the HHFKA expired at the
end of FY2015, program operations have continued with annual appropriations. More recently, temporary changes end of FY2015, program operations have continued with annual appropriations. More recently, temporary changes
to the child nutrition programs were made in response to the COVID-19 pandemic (to the child nutrition programs were made in response to the COVID-19 pandemic (generally not discussed in this
report;for more information, see CRS Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic). In addition, the FY2023 Consolidated Appropriations Act (P.L. 117-328) authorized the national Summer EBT program and made changes to the summer meal programs.
see CRS Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic).
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Contents
Background ..................................................................................................................................... 1
Child Nutrition Program Operations During the COVID-19 Pandemic ................................... 4
Child Nutrition Funding .................................................................................................................. 5
Federal Funding ........................................................................................................................ 5
Per-Meal Cash Reimbursements ......................................................................................... 6
Summer EBT Benefits ........................................................................................................ 7
Commodity Assistance........................................................................................................ 7
Administrative Funds .......................................................................................................... 9
Other Federal Funding ...................................................................................................... 10
Nonfederal Funding ................................................................................................................ 10
Spending Trends ....................................................................................................................... 11
National School Lunch Program (NSLP) and School Breakfast Program (SBP) ......................... 13
Administration......................................................................................................................... 14
Eligibility and Reimbursement................................................................................................ 15
Income Eligibility ............................................................................................................. 16
Categorical Eligibility ....................................................................................................... 18
Direct Certification ........................................................................................................... 18
Verification of Eligibility .................................................................................................. 20
Reimbursement ................................................................................................................. 20
Special Options ....................................................................................................................... 22
Community Eligibility Provision (CEP) ........................................................................... 22
Provisions 1, 2, and 3 ........................................................................................................ 24
Nutrition Standards and Food Service .................................................................................... 25
Nutrition Standards for School Meals ............................................................................... 25
Nutrition Standards for Competitive Foods ...................................................................... 27
Local School Wellness Policies ........................................................................................ 28
Food Procurement and Preparation ................................................................................... 28
Meal Times and Settings ................................................................................................... 29
School Meal Equipment Assistance Grants ...................................................................... 30
School Breakfast Expansion Grants .................................................................................. 30
Child and Adult Care Food Program (CACFP) ............................................................................. 30
Administration......................................................................................................................... 31
Eligibility and Reimbursement................................................................................................ 32
CACFP Centers ................................................................................................................. 32
CACFP Day Care Homes ................................................................................................. 33
Nutrition Standards and Food Service .................................................................................... 34
Nutrition Standards ........................................................................................................... 34
Procurement and Meal Service ......................................................................................... 35
Summer Food ................................................................................................................................ 35
Summer Food Service Program (SFSP) .................................................................................. 36
Administration .................................................................................................................. 36
Eligibility and Reimbursement ......................................................................................... 38
Nutrition Standards ........................................................................................................... 39
Meal Service ..................................................................................................................... 40
Seamless Summer Option (SSO) ............................................................................................ 40
Summer EBT ........................................................................................................................... 40
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Summer Meal Demonstration Projects ................................................................................... 41
Special Milk Program (SMP) ........................................................................................................ 41
After-School Meals and Snacks .................................................................................................... 42
CACFP At-Risk Afterschool Meals and Snacks ..................................................................... 43
NSLP Afterschool Snacks ....................................................................................................... 43
Fresh Fruit and Vegetable Program (FFVP) .................................................................................. 44
Other Child Nutrition Activities .................................................................................................... 45
Healthy Meals Incentives Initiative ......................................................................................... 45
Farm to School Program ......................................................................................................... 45
Institute of Child Nutrition ...................................................................................................... 46
Team Nutrition ........................................................................................................................ 46
Food Safety ............................................................................................................................. 47
FNS Activities ......................................................................................................................... 47
Further Information ....................................................................................................................... 47
Figures
Figure 1. Appropriations for Child Nutrition Programs, FY2023 ................................................... 6
Figure 2. Average School Food Authority (SFA) Revenue by Source, School Year 2014-
2015 ............................................................................................................................................. 11
Figure 3. Expenditures on Selected Child Nutrition Programs, 1992-2022 (Actual) .................... 12
Figure 4. Federal, State, and Local Roles in the School Meals Programs ..................................... 15
Figure 5. Certification Pathways for Free and Reduced-Price School Meals ............................... 16
Figure 6. CEP Schools as a Proportion of NSLP Schools, SY2014-2015 to SY2022-2023 ......... 23
Figure 7. Community Eligibility Provision (CEP) Reimbursement Formula ............................... 24
Figure 8. Summer Meal Sponsors by Type, 2018 ......................................................................... 37
Tables
Table 1. Child Nutrition Programs: Legislative Authorities and Descriptions ................................ 3
Table 2. Example: NSLP Per-Meal Reimbursements, School Year 2023-2024 .............................. 7
Table 3. School Meals Income Eligibility Guidelines for a Household of Four ........................... 17
Table 4. Reimbursement Rates: NSLP and SBP............................................................................ 21
Table 5. Summary of the Nutrition Standards for School Lunches ............................................... 26
Table 6. CACFP Participation: Centers and Day Care Homes, FY2022 ....................................... 31
Table 7. Reimbursement Rates: CACFP Centers and Day Care Homes ....................................... 34
Table 8. Reimbursement Rates: SFSP ........................................................................................... 39
Table 9. Reimbursement Rates: SMP ............................................................................................ 42
Table B-1. Expenditures on Selected Child Nutrition Programs, FY1992-FY2022
(Actual)....................................................................................................................................... 55
Table B-2. Expenditures on Selected Child Nutrition Programs, FY1992-FY2022
(Inflation-Adjusted) .................................................................................................................... 56
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Appendixes
Appendix A. A Brief History of Federal Child Nutrition Programs .............................................. 49
Appendix B. Spending on Child Nutrition Programs, FY1992-FY2022 ...................................... 55
Contacts
Author Information ........................................................................................................................ 57
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Background
The child nutrition programs (summarized in Table 1) support meals and snacks served to support meals and snacks served to
children in schools, child care, summer programs, and other institutional settings in all 50 states, children in schools, child care, summer programs, and other institutional settings in all 50 states,
the District of Columbia, and the U.S. territories.the District of Columbia, and the U.S. territories.11 They also support summer grocery benefits for They also support summer grocery benefits for
households with school-age children. The programs are administered by the U.S. Department of households with school-age children. The programs are administered by the U.S. Department of
Agriculture’Agriculture's (USDAs (USDA’'s) Food and Nutrition Service (FNS), which provides federal aid to state s) Food and Nutrition Service (FNS), which provides federal aid to state
agencies (often state departments of education) for distribution to school districts and other agencies (often state departments of education) for distribution to school districts and other
participating institutions and, in the case of summer grocery benefits, for distribution to participating institutions and, in the case of summer grocery benefits, for distribution to
households.households.22 In general, federal funding largely supports food for children from low-income or In general, federal funding largely supports food for children from low-income or
otherwise qualifying households.otherwise qualifying households.33
A related program is the Special Supplemental Nutrition Program for Women, Infants, and A related program is the Special Supplemental Nutrition Program for Women, Infants, and
Children (WIC), which provides grocery benefits to pregnant and postpartum women, infants, Children (WIC), which provides grocery benefits to pregnant and postpartum women, infants,
and young children. WIC has typically been reauthorized with the child nutrition programs but is and young children. WIC has typically been reauthorized with the child nutrition programs but is
generally not considered a child nutrition program because it is funded under a separate account, generally not considered a child nutrition program because it is funded under a separate account,
and is not discussed in this report.and is not discussed in this report.44
The federal child nutrition programs date back to the National School Lunch Act of 1946, which The federal child nutrition programs date back to the National School Lunch Act of 1946, which
created the National School Lunch Program (NSLP).created the National School Lunch Program (NSLP).55 This act formalized federal support for This act formalized federal support for
school lunches following early aid beginning in the 1930s. Other child nutrition programs were school lunches following early aid beginning in the 1930s. Other child nutrition programs were
added in the decades to follow as policymakers expanded feeding programs beyond the school added in the decades to follow as policymakers expanded feeding programs beyond the school
setting. The Child Nutrition Act of 1966 formalized the Special Milk Program (SMP) and created setting. The Child Nutrition Act of 1966 formalized the Special Milk Program (SMP) and created
the School Breakfast Program (SBP) as a pilot program.the School Breakfast Program (SBP) as a pilot program.66 Soon after, a program for child care and Soon after, a program for child care and
summer meals was piloted in 1968 and separated into the Child Care Food Program (now summer meals was piloted in 1968 and separated into the Child Care Food Program (now
CACFP) and the Summer Food Service Program (SFSP) in 1975.CACFP) and the Summer Food Service Program (SFSP) in 1975.77 More recently, the Fresh Fruit and Vegetable Program (FFVP) was piloted in 2002 and expanded to all states in 2008.8 Likewise, following a more than decade-long demonstration, the Summer Electronic Benefits Transfer for Children (Summer EBT) program became available as an option to all states starting in summer 2024. (See Appendix A for a legislative history of child nutrition programs.)
Historically, the child nutrition programs have been aimed at both improving children's nutrition and supporting U.S. agriculture, with the dual mission " More recently, the Fresh Fruit
1 Virtually all of the child nutrition programs operate in Puerto Rico, Guam, and the U.S. Virgin Islands. The use of the
term “state” in this report refers to these jurisdictions as well. In the case of Summer EBT, it also includes some tribal
entities. The term does not include the Northern Mariana Islands and American Samoa, which receive block grants in
lieu of child nutrition programs. For more information on child nutrition programs in the Northern Mariana Islands and
American Samoa, see U.S. Department of the Interior, Office of Insular Affairs, Region IX Federal Regional Council,
Outer Pacific Committee, FY2016 Report on Federal Financial Assistance to the U.S. Pacific and Caribbean Islands,
May 1, 2017, p. 10, https://www.doi.gov/sites/doi.gov/files/uploads/fy16-report-on-federal-financial-assistance-to-the-
insular-areas.pdf.
2 For a list of administering agencies by state, see U.S. Department of Agriculture (USDA), Food and Nutrition Service
(FNS), “Contact Map,” https://www.fns.usda.gov/contacts/contact-map. In past instances, the federal government (via
USDA-FNS’s regional offices) has, for certain states, taken the place of state agencies (e.g., where a state has chosen
not to operate a specific program or where there is a state prohibition on aiding private schools).
3 In addition to serving children, CACFP supports food in adult day care facilities.
4 For example, see Title IV, Domestic Food Programs, of Division A of the Consolidated Appropriations Act, 2023
(P.L. 117-328). For more information on WIC, see CRS Report R44115, A Primer on WIC: The Special Supplemental
Nutrition Program for Women, Infants, and Children.
5 P.L. 79-396; Gordon W. Gunderson, National School Lunch Program: Background and Development, 1971,
http://www.fns.usda.gov/nslp/history. The 1946 law supported school lunch programs by giving formula grant funding
to states based on factors such as per capita income, rather than the present-day open-ended entitlements based largely
on eligibility and participation rules.
6 P.L. 89-642.
7 P.L. 90-302; P.L. 94-105. Adult day care was added in 1987 (Older Americans Act Amendments of 1987; P.L. 100-
175). Also see Institute of Medicine, Child and Adult Care Food Program: Aligning Dietary Guidance for All, 2011, p.
30; USDA-FNS, “Summer Food Service Program History,” March 31, 2019, https://www.fns.usda.gov/sfsp/program-
history.
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and Vegetable Program (FFVP) was piloted in 2002 and expanded to all states in 2008.8 (See the
Appendix A for a legislative history of child nutrition programs.)
Historically, the child nutrition programs have been aimed at both improving children’s nutrition
and supporting U.S. agriculture, with the dual mission “to safeguard the health and well-being of to safeguard the health and well-being of
the Nationthe Nation’'s children and to encourage the domestic consumption of nutritious agricultural s children and to encourage the domestic consumption of nutritious agricultural
commodities and other food.commodities and other food.”9
"9
The child nutrition programs are currently authorized under the Richard B. Russell National The child nutrition programs are currently authorized under the Richard B. Russell National
School Lunch Act (NSLA) and the Child Nutrition Act of 1966.School Lunch Act (NSLA) and the Child Nutrition Act of 1966.1010 Section 32 of the Act of August Section 32 of the Act of August
24, 193524, 1935, also provides a portion of child nutrition funding. Congressional jurisdiction over the also provides a portion of child nutrition funding. Congressional jurisdiction over the
underlying three laws has typically been exercised by the Senate Agriculture, Nutrition, and underlying three laws has typically been exercised by the Senate Agriculture, Nutrition, and
Forestry Committee, the House Education and Workforce (or Labor) Committee, and, to a limited Forestry Committee, the House Education and Workforce (or Labor) Committee, and, to a limited
extent (relating to Section 32), the House Agriculture Committee.extent (relating to Section 32), the House Agriculture Committee.
Congress has periodically amended the child nutrition programsCongress has periodically amended the child nutrition programs’' authorizing laws and authorizing laws and
reauthorizes expiring authorities. The child nutrition programs were most recently reauthorized reauthorizes expiring authorities. The child nutrition programs were most recently reauthorized
by the Healthy, Hunger-Free Kids Act of 2010 (HHFKA, P.L. 111-296). Some of the authorities by the Healthy, Hunger-Free Kids Act of 2010 (HHFKA, P.L. 111-296). Some of the authorities
created or extended in the HHFKA expired on September 30, 2015; however, program operations created or extended in the HHFKA expired on September 30, 2015; however, program operations
have continued with annual appropriations.have continued with annual appropriations.1111 During the During the 114th114th Congress, the committees of Congress, the committees of
jurisdiction marked up child nutrition reauthorization bills but these proposals were not enacted.jurisdiction marked up child nutrition reauthorization bills but these proposals were not enacted.12
12 Likewise, during the Likewise, during the117th117th Congress, the House Education and Labor Committee reported a child Congress, the House Education and Labor Committee reported a child
nutrition reauthorization bill (H.R. 8450) out of committee. The nutrition reauthorization bill (H.R. 8450) out of committee. The117th117th Congress ended without Congress ended without
further action on the bill.further action on the bill.
However, the Consolidated Appropriations Act, 2023 (P.L. 117-328) was enacted at the end of the 117th Congress, making changes to the summer meals programs and authorizing the national Summer EBT program (discussed further in this report).
This report starts with an overview of child nutrition programsThis report starts with an overview of child nutrition programs’' funding structure and then funding structure and then
provides detail on each program, including a discussion of how they are administered, eligibility provides detail on each program, including a discussion of how they are administered, eligibility
rules for institutions and participants, nutritional and other program requirements, and recent rules for institutions and participants, nutritional and other program requirements, and recent
policy changes. Changes to child nutrition programs that policy changes. Changes to child nutrition programs thathave applied duringoccurred in response to the COVID-19 the COVID-19
pandemic are pandemic arebriefly discussed in the “Child Nutrition Program Operations During the COVID-
19 Pandemic” text box below. The Pandemic Electronic Benefit Transfer (P-EBT) program—not
considered a child nutrition program—is not discussed in this report.
8 P.L. 107-171; P.L. 110-246.
9 See declaration of purposes in the NSLA and the Child Nutrition Act of 1966.
10 In 1999, P.L. 106-78 renamed the National School Lunch Act in Senator Richard B. Russell’s honor.
11 Exceptions include a California program to provide SFSP snacks year-round, which was not extended. USDA’s
authority to conduct food safety audits and funding for a National Hunger Clearinghouse were not extended in FY2016
but were subsequently extended by appropriations acts in each of FY2017 through FY2022. For more information, see
CRS In Focus IF10266, Child Nutrition Reauthorization (CNR): An Overview; or CRS memo CD1304737, Expiration
of the Healthy, Hunger-free Kids Act of 2010 (P.L. 111-296), available to congressional clients on request.
12 For more information, see CRS Report R44373, Tracking Child Nutrition Reauthorization in the 114th Congress: An
Overview.
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Table 1. Child Nutrition Programs: Legislative Authorities and Descriptions
Program
Authorizing Statute
Description
Per-Child Benefit
NSLP
Richard B. Russell
Subsidized lunches (free, reduced-price, and paid
One lunch (option for
National School Lunch
rate) for children in preschool through grade 12.
one snack) daily
Act (NSLA)
A smaller number of children in residential child
(42 U.S.C. §1751 et
care institutions are also served.a
seq.)
summarized in the next section.
Table 1. Child Nutrition Programs: Legislative Authorities and Descriptions
Richard B. Russell National School Lunch Act (NSLA) (42 U.S.C. §1751 et seq.)
NSLP Afterschool Snack Program) and a summer NSLP Afterschool Snack Program) and a summer
meals program option (the Seamless Summer meals program option (the Seamless Summer
Option).Option).
SBP
Subsidized breakfasts (free, reduced-price, and paid Section 4 of the Child
Subsidized breakfasts (free, reduced-price, and paid
One breakfast daily
Nutrition Act of 1966
rate) for children in preschool through grade 12.rate) for children in preschool through grade 12.
(42 U.S.C. §1773)
A smaller number of children in residential child A smaller number of children in residential child
care institutions are also care institutions are alsoserved.a
CACFP
Section 17
Meals and snacks for children in child care centers,b Two meals and one
of the NSLA
day care homes, and emergency shelters, as well as
snack (or one meal and
(42 U.S.C. §1766)
a smaller number of older adults in adult day care
two snacks) dailyc
homes.
CACFP
Section 17(r) of the
Afterschool meals and snacks for children who
One meal and one snack
At-Risk
NSLA
attend an organized afterschool program in a low-
daily
Afterschool (42 U.S.C. §1766(r))
income area.
SFSP
Section 13
Summer meals for children who visit community
Two meals (or one meal
of the NSLA
sites or attend summer programs, or for
and one snack) dailyc
(42 U.S.C. §1761)
delivery/pick-up in rural areas.
SSO
Section 13(a)(8)
Summer meals for children who visit school sites
Two meals (or one meal
of the NSLA
or programs, or for delivery/pick-up in rural areas.
and one snack) dailyc
(42 U.S.C. §1761(a)(8))
Summer
Section 13A
Summer grocery benefits for households with
$40 per child in the
EBT
of the NSLA
children eligible for free and reduced-price meals.
household per summer
(42 U.S.C. §1762)
month
SMP
Section 3
Subsidized milk for institutions that do not
Quantity not specified
of the Child Nutrition
served.a
Section 17of the NSLA (42 U.S.C. §1766)
Meals and snacks for children in child care centers,b day care homes, and emergency shelters, as well as a smaller number of older adults in adult day care homes.
Two meals and one snack (or one meal and two snacks) dailyc
CACFPAt-Risk Afterschool
Section 17(r) of the NSLA (42 U.S.C. §1766(r))
Section 13of the NSLA (42 U.S.C. §1761)
Two meals (or one meal and one snack) dailyc
Section 13(a)(8)of the NSLA (42 U.S.C. §1761(a)(8))
Two meals (or one meal and one snack) dailyc
Section 13Aof the NSLA (42 U.S.C. §1762)
Section 3of the Child Nutrition Act of 1966 (42 U.S.C. §1772)
Subsidized milk for institutions that do not participate in another child nutrition meal service participate in another child nutrition meal service
Act of 1966
program, except that school food authorities may program, except that school food authorities may
(42 U.S.C. §1772)
use SMP for children in part-day preschool and use SMP for children in part-day preschool and
kindergarten programs (who do not have access to kindergarten programs (who do not have access to
school lunches).
FFVP
Section 19
Fresh fruit and vegetable snacks for children in
Quantity not specified
of the NSLA
elementary schools, particularly low-income
(42 U.S.C. §1769a)
school lunches).
Section 19of the NSLA (42 U.S.C. §1769a)
Fresh fruit and vegetable snacks for children in elementary schools, particularly low-income schools. Funding is distributed via formula to states schools. Funding is distributed via formula to states
and not all elementary schools may be covered.and not all elementary schools may be covered.
Source: CRS, based on current law. CRS, based on current law.
a.
a. "Residential child care institutions" are defined in regulations to include are defined in regulations to include “"homes for the mentally, emotionally or homes for the mentally, emotionally or
physically impaired, and unmarried mothers and their infants; group homes; halfway houses; orphanages; physically impaired, and unmarried mothers and their infants; group homes; halfway houses; orphanages;
temporary shelters for abused children and for runaway children; long-term care facilities for chronically temporary shelters for abused children and for runaway children; long-term care facilities for chronicallyil
ill children; and juvenile detention centerschildren; and juvenile detention centers”" (7 C.F.R. §210.2). (7 C.F.R. §210.2).
b.
b. Child care centers include nonprofit organizations, certain for-profit organizations, and school food Child care centers include nonprofit organizations, certain for-profit organizations, and school food
authorities providing nonresidential child care services as well as emergency shelters.authorities providing nonresidential child care services as well as emergency shelters.
c.
c. CACFP emergency shelters, SFSP camps, and SFSP sites that primarily serve migrant children may receive CACFP emergency shelters, SFSP camps, and SFSP sites that primarily serve migrant children may receive
reimbursement for up to three meals or two meals and one snack per child daily.reimbursement for up to three meals or two meals and one snack per child daily.
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School Meals and Other Child Nutrition Programs: Background and Funding
Child Nutrition Program Operations During the COVID-19
Pandemic
Pandemic Starting in March 2020 and continuing through school years 2020-2021 and 2021-2022, many Starting in March 2020 and continuing through school years 2020-2021 and 2021-2022, many
school districts operated the summer meals programs in lieu of the school meals programs.school districts operated the summer meals programs in lieu of the school meals programs.1313 The The
summer meals programs, under USDA policy facilitated by COVID-19 pandemic response laws, summer meals programs, under USDA policy facilitated by COVID-19 pandemic response laws,
enabled schools to serve free meals to all students without eligibility determinations. With enabled schools to serve free meals to all students without eligibility determinations. With
expanded waiver authority and supplemental funding from COVID-19 pandemic response acts, expanded waiver authority and supplemental funding from COVID-19 pandemic response acts,
USDA also waived several child nutrition program requirements during the pandemic.USDA also waived several child nutrition program requirements during the pandemic.1414 For For
example, USDA allowed parent pick-up and home delivery of meals, waived certain nutritional example, USDA allowed parent pick-up and home delivery of meals, waived certain nutritional
requirements, and allowed virtual monitoring of program operations.requirements, and allowed virtual monitoring of program operations.1515
Some of the COVID-19 pandemic response authorities expired on June 30, 2022, and USDA Some of the COVID-19 pandemic response authorities expired on June 30, 2022, and USDA
announced a transition back to normal child nutrition program operations starting in the 2022-announced a transition back to normal child nutrition program operations starting in the 2022-
2023 school year. However, some waivers remained in effect and program operators received 2023 school year. However, some waivers remained in effect and program operators received
enhanced funding (approximately $3 billion) in summer 2022 and school year 2022-2023 as a enhanced funding (approximately $3 billion) in summer 2022 and school year 2022-2023 as a
result of the Keep Kids Fed Act of 2022 (P.L. 117-158result of the Keep Kids Fed Act of 2022 (P.L. 117-158).16).16 Also, in school years 2021-2022 Also, in school years 2021-2022
through 2023-2024through 2023-2024, USDA distributed USDA distributed approximately $3.7 billion in $3.7 billion in“"Supply Chain Assistance FundsSupply Chain Assistance Funds”" to states to states
and school food authorities using Commodity Credit Corporation authority.and school food authorities using Commodity Credit Corporation authority.1717 According to a According to a
survey conducted by USDA, 97% of school food authorities reported at least one continuing survey conducted by USDA, 97% of school food authorities reported at least one continuing
supply chain-related challenge supply chain-related challengeinas of school year 2022-2023, such as increased costs, staffing school year 2022-2023, such as increased costs, staffing
shortages, and product shortages.shortages, and product shortages.1818
For further information on child nutrition policies during the pandemic, see CRS Report R46681,
USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic.
13 In school year 2021-2022, school districts had the option to operate SSO during the school year. In school year 2020-
2021, school districts and other types of meal providers such as nonprofit organizations were also allowed to operate
SFSP.
14 For child nutrition waiver authorities, see Section 12(l) of the Richard B. Russell National School Lunch Act
(codified at 42 U.S.C. §1760(l)) and Sections 2102-2202 of the Families First Coronavirus Response Act (FFCRA; P.L.
116-127).
15 For a list of child nutrition program waivers that USDA has issued during the pandemic, see USDA-FNS, “Child
Nutrition COVID-19 Waivers,” https://www.fns.usda.gov/fns-disaster-assistance/fns-responds-covid-19/child-
nutrition-covid-19-waivers.
16 In school year 2022-2023, USDA distributed additional child nutrition funding through Supply Chain Assistance
Funds (cited below) and the Healthy Meals Incentives Initiative (https://www.fns.usda.gov/cn/healthy-meals-
incentives, discussed further under “Other Child Nutrition Activities” in this report). For a list of waivers applicable to
summer 2022 and school year 2022-2023, see USDA, FNS, “CN Flexibilities for Summer 2022 and School Year 2022-
23,” September 22, 2022, https://www.fns.usda.gov/cn/flexibilies-summer-22-sy-22-23. For estimated funding, see
USDA-FNS, “2024 USDA Explanatory Notes – Food and Nutrition Service,” p. 35-14.
17 USDA-FNS, “Fourth Allocation of Supply Chain Assistance Funds to Alleviate Supply Chain Disruptions in the
School Meals Programs,” SP 19-2023, August 7, 2023, https://www.fns.usda.gov/cn/fourth-allocation-supply-chain-
assistance-sca-funds.
18 USDA-FNS, “Results of USDA’s Food and Nutrition Service-Administered School Food Authority Survey II on
Supply Chain Disruption and Student Participation,” July 25, 2023, https://www.fns.usda.gov/cn/results-fns-
administered-sfa-survey2-supply-chain-disruption.
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Child Nutrition Funding
Federal Funding
For further information on child nutrition policies during the pandemic, including the Pandemic Electronic Benefit Transfer (P-EBT) program, see CRS Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic. Child Nutrition Funding Federal Funding Most funding for child nutrition programs is considered mandatory spending. However, unlike Most funding for child nutrition programs is considered mandatory spending. However, unlike
some mandatory programs, child nutrition programs require an appropriation of funding. This is some mandatory programs, child nutrition programs require an appropriation of funding. This is
because the programsbecause the programs’' authorizing laws include benefit and eligibility criteria that create the authorizing laws include benefit and eligibility criteria that create the
requirement for a certain level of spending, but the statute does not provide the funding directly. requirement for a certain level of spending, but the statute does not provide the funding directly.
Such programs are sometimes referred to as Such programs are sometimes referred to as appropriated entitlements or or appropriated
mandatories..1919 If the necessary funds are not appropriated and the authorized benefits are not If the necessary funds are not appropriated and the authorized benefits are not
made available, entitled recipients (e.g., states, institutions, and participants) may have legal made available, entitled recipients (e.g., states, institutions, and participants) may have legal
recourse.recourse.2020
The benefit and eligibility criteria that governs much of the appropriated mandatory spending for The benefit and eligibility criteria that governs much of the appropriated mandatory spending for
child nutrition programs is open-ended. Because there is no specified limit on the number of child nutrition programs is open-ended. Because there is no specified limit on the number of
beneficiaries or the total amount of benefits that will be paid, spending fluctuates based on the beneficiaries or the total amount of benefits that will be paid, spending fluctuates based on the
number of meals and snacks served in the programs and statutorily set, annually adjusted per-number of meals and snacks served in the programs and statutorily set, annually adjusted per-
meal reimbursement rates. Congress typically considers USDAmeal reimbursement rates. Congress typically considers USDA’'s forecast for program needs in its s forecast for program needs in its
appropriations decisions.appropriations decisions.
Appropriated mandatory funding in child nutrition programs is generally for per-meal cash Appropriated mandatory funding in child nutrition programs is generally for per-meal cash
reimbursements, commodity assistance, and administrative funds. The programs also have a reimbursements, commodity assistance, and administrative funds. The programs also have a
smaller amount of discretionary funding (determined in annual appropriations acts) and smaller amount of discretionary funding (determined in annual appropriations acts) and
mandatory funding (directly provided in the authorizing law, not annual appropriations acts). mandatory funding (directly provided in the authorizing law, not annual appropriations acts).
These funding streams are discussed in further detail below.These funding streams are discussed in further detail below.
Child nutrition appropriations totaled $28.6 billion in FY2023 (P.L. 117-328). Just over $25
The FY2025 full-year continuing resolution (P.L. 119-4) generally provided funding for projects and activities in the same amounts and under the same authorities and conditions as provided in FY2024 funding laws. Child nutrition programs and activities received $33.3 billion under P.L. 118-42 for FY2024. Nearly $29 billion of these funds were transferred to the child nutrition programs from Section 32 of the Act billion of these funds were transferred to the child nutrition programs from Section 32 of the Act
of August 24, 1935.of August 24, 1935.2121 Separately, Section 32 provided $ Separately, Section 32 provided $238 million for FFVP for FY2023.22253 million in FY2024 and $232 million in FY2025 for FFVP.22
Figure 1 presents presentsFY2023FY2024 child nutrition appropriations by program and activity child nutrition appropriations by program and activity (FY2025 numbers are not available as of the cover date of this report). Child nutrition . Child nutrition
appropriations may not match expenditures appropriations may not match expenditures (presented later in this report) because most child nutrition funds carry over (they because most child nutrition funds carry over (they
are available for two fiscal years) and because spending fluctuates with the number of meals
served.
19 For further discussion of appropriated entitlements, see CRS Report RS20129, Entitlements and Appropriated
Entitlements in the Federal Budget Process.
20 GAO Budget Glossary, p. 13, http://www.gao.gov/products/GAO-05-734SP.
21 U.S. Congress, House Committee on Appropriations, H.R. 2617/P.L. 117-328 [Legislative Text and Explanatory
Statement]: Book 1 of 2: Divisions A-F, committee print, 117th Cong., 2nd sess., 2023, H.Prt. 50-347, p. 77. Section 32
is a permanent appropriation of 30% of the previous calendar year’s customs receipts. For more information on Section
32, see CRS In Focus IF12193, Farm and Food Support Under USDA’s Section 32 Account.
22 USDA-FNS, “FFVP: Allocation of Funds for Fiscal Year 2023,” SP 12-2022, June 23, 2022.
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Figure 1. Appropriations for Child Nutrition Programs, FY2023
Sourcesare available for two fiscal years) and because spending fluctuates with the number of meals served in the programs.
2023 (P.L. 117-328) and U.S. Congress, House
Committee on Appropriations, H.R. 2617/P.L. 117-328 [Legislative Text and Explanatory Statement]: Book 1 of 2:
Divisions A-F, committee print, 117th Cong., 2nd sess., 2023, H.Prt. 50-347, p. 77 unless otherwise noted.
Notes: Rows may not sum to total due to rounding. Total available funding for the fiscal year may be higher
than appropriations due to carryover funds.
(a) The “Other” category2024 (P.L. 118-42) and H. Prt. 56-550 unless otherwise noted.
Notes: Total available funding for the fiscal year may be higher than appropriations due to carryover funds. NSLP = National School Lunch Program, SBP = School Breakfast Program, CACFP = Child and Adult Care Food Program, SFSP = Summer Food Service Program, FFVP = Fresh Fruit and Vegetable Program, SMP = Special Milk Program.
a. Other" includes funding for administrative reviews, food safety, technology, training and includes funding for administrative reviews, food safety, technology, training and
technical assistance, technical assistance, Team Nutrition grants, research, and payment oversight. b. Includes $5 million in annual mandatory funding provided byresearch, and payment oversight.
(b) “Discretionary grants” includes funding for school meal equipment assistance grants, Team Nutrition, school
breakfast expansion grants, and the Summer EBT demonstration in FY2023.
(c) Section 18(g)(8)(A) of the NSLA (42 U.S.C. §1769(g)(8)(A)) Section 18(g)(8)(A) of the NSLA (42 U.S.C. §1769(g)(8)(A)) provides $5 mil ion in annual mandatory funding
for the farm to school program. The. The Farm to School program also received $ program also received $20 mil ion11.4 million in annual appropriations in in annual appropriations in FY2023.
FY2024.
Per-Meal Cash Reimbursements
The majority of federal funding in child nutrition programs (including in NSLP, SBP, CACFP, The majority of federal funding in child nutrition programs (including in NSLP, SBP, CACFP,
SFSP, and SMP) takes the form of per-meal cash reimbursements. These rates are specified in the SFSP, and SMP) takes the form of per-meal cash reimbursements. These rates are specified in the
programs’programs' authorizing laws with an annual inflation adjustment. authorizing laws with an annual inflation adjustment.2323 Although all (including full- Although all (including full-
price) meals/snacks served by participating providers are subsidized, those served for free or at a price) meals/snacks served by participating providers are subsidized, those served for free or at a
reduced price to lower-income children earn higher rates. Meals must meet federal nutritional reduced price to lower-income children earn higher rates. Meals must meet federal nutritional
requirements in order for the school district or institution to receive reimbursement.24
23 For more detail on how inflation adjustment is conducted, see the child nutrition program section of CRS Report
R42000, Inflation-Indexing Elements in Federal Entitlement Programs. Most reimbursements (including for schools
and child care centers) are indexed annually based on the Consumer Price Index for All Urban Consumers (CPI-U)
Food Away from Home Component. For family child care homes, the annual indexing is based on the CPI-U Food at
Home Component.
24 The authorizing statutes for all four of the main child nutrition programs include nutritional requirements for the
meals and snacks served; these are sometimes referred to as “nutrition standards,” “nutrition guidelines,” or “meal
patterns.” The nutrition standards differ by program in consideration of different age groups served and the settings in
which meals are served, among other factors. See program regulations for nutritional requirements: NSLP, 7 C.F.R.
§210.10; SBP, 7 C.F.R. §220.8; CACFP, 7 C.F.R. §226.20; SFSP, 7 C.F.R. §225.16.
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requirements in order for the school district or institution to receive reimbursement.24
Reimbursement rates differ by program based on different criteria. For example, in SBP, schools Reimbursement rates differ by program based on different criteria. For example, in SBP, schools
in high-poverty areas receive an extra in high-poverty areas receive an extra4547 cents per meal. cents per meal.25 Differences in reimbursement rates are Differences in reimbursement rates are
highlighted within the subsequent discussions of each program.highlighted within the subsequent discussions of each program.
In general, FNS distributes per-meal reimbursements to state agencies, which disburse them to In general, FNS distributes per-meal reimbursements to state agencies, which disburse them to
participating school districts and institutions. Districts and institutions must record daily counts of participating school districts and institutions. Districts and institutions must record daily counts of
meals in each category and report monthly counts to the state agency in order to receive meals in each category and report monthly counts to the state agency in order to receive
reimbursement. Once they receive federal funds, participating institutions are allowed to spend reimbursement. Once they receive federal funds, participating institutions are allowed to spend
these funds on most aspects of their food service operations.these funds on most aspects of their food service operations.
Table 2 provides an example of the per-lunch reimbursement rate for school districts and provides an example of the per-lunch reimbursement rate for school districts and
participant benefits in NSLP. Reimbursement rates for each child nutrition program are listed in participant benefits in NSLP. Reimbursement rates for each child nutrition program are listed in
the sections to follow.the sections to follow.
Table 2. Example: NSLP Per-Meal Reimbursements, School Year2023-2024
What the School Food
Authority Receives
(Per-Meal
2024-2025
What the School Food Authority Receives (Per-Meal Reimbursement Ratea)
Lunch for $0.40 or lessb
Lunch at full priceb
Source: USDA FNS, "What the Participating
Meal Category
Reimbursement Ratea)
Child Receives
Free
$4.25-$4.50
Free lunch
Reduced-price
$3.85-$4.10
Lunch for $0.40 or lessb
Paid
$0.40-$0.56
Lunch at ful priceb
Source: USDA FNS, “National School Lunch, Special Milk, and School Breakfast Programs, National Average National School Lunch, Special Milk, and School Breakfast Programs, National Average
Payments/Maximum Reimbursement Rates,Payments/Maximum Reimbursement Rates,”" July July 7, 2023, 8510, 2024, 89 Federal Register 44270.
a. 56720.
a. Chart shows reimbursement rates for the 48 contiguous states and the District of Columbia. For rates for Chart shows reimbursement rates for the 48 contiguous states and the District of Columbia. For rates for
Alaska, Guam, Hawaii, Puerto Rico, and the U.S. Virgin Islands, see Alaska, Guam, Hawaii, Puerto Rico, and the U.S. Virgin Islands, see Federal Register notice. Ranges reflect notice. Ranges reflect
variations in reimbursement rates for lunches meeting certain statutory criteria. Average national rates are variations in reimbursement rates for lunches meeting certain statutory criteria. Average national rates are
shown; states may apportion funds among school districts above or below the average rates.shown; states may apportion funds among school districts above or below the average rates.
b.
b. Some states and school districts cover the remainder of meal fees for students in the reduced-price and/or Some states and school districts cover the remainder of meal fees for students in the reduced-price and/or
paid rate categories.paid rate categories.
Summer EBT Benefits
Like SFSP and SSO
Like most other child nutrition programs, Summer EBT is an appropriated entitlement. The law establishes a set , Summer EBT is an appropriated entitlement. The law establishes a set
amount of benefits for households ($40 per eligible child per summer month) with an annual amount of benefits for households ($40 per eligible child per summer month) with an annual
inflation adjustment (discussed further in the inflation adjustment (discussed further in the "“Summer EBT”" section). Funding is section). Funding is to be
distributed to state agencies, territories, and tribes for distribution to households. distributed to state agencies, territories, and tribes for distribution to households.While funding
has not yet been determined for summer 2024, USDA requested a $1.87 billion appropriation for
FY2024—including $170 million in state administrative costs and $2.5 million for federal
administrative costs—based on its projection of serving 27 million children.25
Commodity Assistance
Summer EBT received a $2.5 billion appropriation for benefits in FY2024 (covering summer 2024), as shown in Figure 1 (FY2025 funding data are not available as of the cover date of this report). As required by statute, USDA also made funding available (approximately $250 million) for agencies' administrative expenses related to Summer EBT in FY2024.26
Commodity Assistance
Federal support for child nutrition programs is also provided in the form of USDA-purchased Federal support for child nutrition programs is also provided in the form of USDA-purchased
foods (foods (USDA Foods) and some cash in lieu of commodities. USDA Foods are foods purchased by ) and some cash in lieu of commodities. USDA Foods are foods purchased by
25 USDA-FNS, “2024 USDA Explanatory Notes–Food and Nutrition Service,” https://www.usda.gov/sites/default/files/
documents/35-2024-FNS.pdf.
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USDA for distribution to federal nutrition assistance programs, including child nutrition USDA for distribution to federal nutrition assistance programs, including child nutrition
programs.programs.26
27
States, schools, and other institutions are entitled to a certain amount of commodity assistance States, schools, and other institutions are entitled to a certain amount of commodity assistance
under the law, referred to as under the law, referred to as entitlement commodity assistance. In NSLP and CACFP, statute assistance. In NSLP and CACFP, statute
provides a per-meal commodity reimbursement (an inflation-adjusted rate of provides a per-meal commodity reimbursement (an inflation-adjusted rate of29.530 cents per meal cents per meal
in school year in school year2023-2024).272024-2025).28 (Note: Commodity assistance is not provided specifically for SBP; (Note: Commodity assistance is not provided specifically for SBP;
however, commodities distributed through NSLP may be used for school breakfasts.however, commodities distributed through NSLP may be used for school breakfasts.2829) A smaller ) A smaller
amount of commodity assistance is also provided to certain types of institutions participating in amount of commodity assistance is also provided to certain types of institutions participating in
SFSP.SFSP.29
30
Schools and institutions use entitlement commodity funds to select commodities from a USDA Schools and institutions use entitlement commodity funds to select commodities from a USDA
Foods catalog.Foods catalog.3031 USDA then purchases the commodities and works with state distribution USDA then purchases the commodities and works with state distribution
agencies to send foods for further processing or distribute them to schools and institutions. agencies to send foods for further processing or distribute them to schools and institutions.
Schools/institutions and state agencies can elect to receive a certain amount of commodity Schools/institutions and state agencies can elect to receive a certain amount of commodity
assistance in the form of cash (this is the case for less than 1% of NSLP commodity aid but nearly assistance in the form of cash (this is the case for less than 1% of NSLP commodity aid but nearly
all of the commodity aid distributed through CACFP).31
26 For more information, see USDA-FNS, “USDA Foods in Schools,” https://www.fns.usda.gov/usda-fis.
27 Section 6(c) of the NSLA (42 U.S.C. §1755(c)) and Section 17(h)(1)(B) of the NSLA (42 U.S.C. §1766(h)(1)(B));
and USDA-FNS, “Food Distribution Program: Value of Donated Foods From July 1, 2023, Through June 30, 2024,” 88
Federal Register 44775, July 13, 2023, https://www.federalregister.gov/documents/2023/07/13/2023-14810/food-
distribution-program-value-of-donated-foods-from-july-1-2023-through-june-30-2024.
28 Section 6(d) of the NSLA (codified at 42 U.S.C. §1755(d)) prohibits commodity support based on the number of
breakfasts served through SBP. However, Section 4(b)(4) of the Child Nutrition Act of 1966 (codified at 42 U.S.C.
§1773(b)(4)) authorizes USDA to provide at least 3 cents in commodity assistance per breakfast “whenever stocks of
agricultural commodities are acquired by the Secretary or the Commodity Credit Corporation and are not likely to be
sold by the Secretary or the Commodity Credit Corporation or otherwise used in programs of commodity sale or
distribution.”
29 Section 13(h) of the NSLA (codified at 42 U.S.C. §1761(h)). Per program regulations, SFSP sponsor organizations
eligible for commodity assistance include “Self-preparation sponsors; sponsors which have entered into an agreement
with a school or school food authority for the preparation of meals; and sponsors which are school food authorities and
have competitively procured Program meals from the same food service management company from which they
competitively procured meals for the National School Lunch Program during the last period in which school was in
session.” (7 C.F.R. §225.9(b)). Statute does not specify the level of entitlement commodity funding for SFSP. In
FY2022, institutions participating in SFSP received a total of $27.6 million in commodity assistance, according to
USDA-FNS, “June 2023 Keydata Report,” September 8, 2023, https://www.fns.usda.gov/data/June-2023-keydata-
report.
30 For a list of products offered, see USDA-FNS, “USDA Foods Available List for School Year 2023-2024 for Schools
and Institutions,” https://www.fns.usda.gov/usda-fis/usda-foods-available. Under a Pilot Project for Unprocessed Fruits
and Vegetables authorized by the 2014 farm bill (§4202 of P.L. 113-79) under Section 6(f) of the NSLA (codified at 42
U.S.C. §1755(f)), USDA may allow up to eight states to use a portion of their commodity assistance dollars to purchase
unprocessed fruits and vegetables from suppliers outside of the federal USDA Foods supply chain. For a list of
participating states, see USDA-FNS, “Pilot Project for Procurement of Unprocessed Fruits and Vegetables,”
https://www.fns.usda.gov/usda-fis/pilot-project-procurement-unprocessed-fruits-and-vegetables.
31 0.1% of NSLP entitlement commodity aid and 99.9% of CACFP entitlement commodity aid was in the form of cash
in FY2022, according to USDA-FNS, “June 2023 Keydata Report,” September 8, 2023, https://www.fns.usda.gov/data/
June-2023-keydata-report. School food authorities participating in NSLP may elect to receive up to 5 cents of the per-
lunch commodity subsidy in the form of cash for processing and handling expenses (per program regulations at 7
C.F.R. §240.5). Kansas receives cash payments in lieu of USDA Foods as a result of the National School Lunch Act
and Child Nutrition Act amendments of 1975. In CACFP, states may request any amount of cash-in-lieu of
commodities per Section 17(h)(1)(D) of the NSLA (codified at 42 U.S.C. §1766(h)(1)(D)).
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all of the commodity aid distributed through CACFP).32
According to statute, entitlement commodity assistance must equal at least 12% of the total According to statute, entitlement commodity assistance must equal at least 12% of the total
funding provided for lunch reimbursements and child nutrition commodities.funding provided for lunch reimbursements and child nutrition commodities.3233 The majority of The majority of
commodity assistance is distributed through NSLP.commodity assistance is distributed through NSLP.33
34
The child nutrition programs can also receive The child nutrition programs can also receive bonus commodities, which are commodities that are , which are commodities that are
purchased at USDApurchased at USDA’'s discretion throughout the year to support the agricultural economy using s discretion throughout the year to support the agricultural economy using
separate budget authorities.separate budget authorities. There are comparatively fewer35 In recent years, there have been minimal bonus commodities distributed bonus commodities distributed
through child nutrition programs.through child nutrition programs.34
36 Administrative Funds
The Richard B. Russell National School Lunch Act allows USDA to retain up to 3.5% of annual The Richard B. Russell National School Lunch Act allows USDA to retain up to 3.5% of annual
child nutrition funding for its administrative expenses related to child nutrition programs and child nutrition funding for its administrative expenses related to child nutrition programs and
WIC.WIC.3537 In addition, the Child Nutrition Act of 1966 authorizes open-ended funding for USDA In addition, the Child Nutrition Act of 1966 authorizes open-ended funding for USDA’s
's administrative expenses in carrying out the programs and activities under that act (which include administrative expenses in carrying out the programs and activities under that act (which include
SBP, SMP, other child nutrition activities, and WIC).SBP, SMP, other child nutrition activities, and WIC).3638
There is also specific funding authorized for state agencies There is also specific funding authorized for state agencies’' expenses related to the administration expenses related to the administration
of child nutrition programs. According to statute, federal funding for statesof child nutrition programs. According to statute, federal funding for states’' administrative administrative
expenses must equal at least 1.5% of federal expenditures on NSLP, SBP, CACFP, and SMP in expenses must equal at least 1.5% of federal expenditures on NSLP, SBP, CACFP, and SMP in
the second preceding fiscal year.the second preceding fiscal year.3739 The majority of these funds are allocated to states based on The majority of these funds are allocated to states based on
their share of spending on the four programs. Any remaining funds are allocated by the Secretary their share of spending on the four programs. Any remaining funds are allocated by the Secretary
of Agriculture on a discretionary basis; per program regulations, states receive additional amounts of Agriculture on a discretionary basis; per program regulations, states receive additional amounts
for CACFP, commodity distribution, and administrative reviews of schools/institutions.for CACFP, commodity distribution, and administrative reviews of schools/institutions.3840 Once Once
states receive administrative funds, they can apportion them among child nutrition programs and states receive administrative funds, they can apportion them among child nutrition programs and
activities as they see fit.activities as they see fit.39
41
In addition, states receive separate administrative payments through SFSP that equal at least 2.5% In addition, states receive separate administrative payments through SFSP that equal at least 2.5%
of their summer meal aid.of their summer meal aid.4042 For Summer EBT, states and Indian Tribal Organizations (ITOs) are authorized to receive federal funding to cover half of their administrative expenses.43 States may also retain a portion of FFVP aid for their administrative expenses.44
For Summer EBT, states and Indian Tribal Organizations (ITOs) are
32 Section 6(e) of the NSLA (codified at 42 U.S.C. §1755(e)). Not less than 12% of the assistance provided under
Section 6 (commodity assistance) and Section 4 and Section 11 (NSLP cash reimbursements) of the NSLA must be
provided as Section 6 commodity assistance. Prior to FY2018, bonus commodity assistance was allowed to count
toward this requirement.
33 Entitlement commodity assistance totaled $1.49 billion in NSLP, $176.5 million in CACFP, and $27.6 million in
SFSP in FY2022. USDA-FNS, “June 2023 Keydata Report,” September 8, 2023, https://www.fns.usda.gov/data/June-
2023-keydata-report.
34 There was $5.7 million in bonus commodities delivered through child nutrition programs in FY2019, $16.6 million
in FY2020, $13.1 million in FY2021, and $26.8 million in FY2022. USDA-FNS, “November Keydata Report
(September 2019 data),” December 13, 2019, https://www.fns.usda.gov/data/november-keydata-report-september-
2019-data; USDA-FNS, “March Keydata Report (November 2020 data),” March 12, 2021, https://www.fns.usda.gov/
data/march-keydata-report-november-2020-data; USDA-FNS, “January 2022 Keydata Report,” April 13, 2022,
https://www.fns.usda.gov/data/keydata-report; and USDA-FNS, “June 2023 Keydata Report,” September 8, 2023,
https://www.fns.usda.gov/data/June-2023-keydata-report.
35 Section 6 of the Richard B. Russell National School Lunch Act (codified at 42 U.S.C. §1755).
36 Section 14 of the Child Nutrition Act of 1966 (codified at 42 U.S.C. §1783).
37 Section 7 of the Child Nutrition Act of 1966 (codified at 42 U.S.C. §1776).
38 7 C.F.R. §235.4.
39 7 C.F.R. §235.6.
40 Section 13(k)(1) of the NSLA (codified at 42 U.S.C. §1761(k)(1)); 7 C.F.R. §225.5.
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authorized to receive federal funding to cover half of their administrative expenses.41 States may
also retain a portion of FFVP aid for their administrative expenses.42
At the local level, schools and institutions may use per-meal reimbursements to cover their At the local level, schools and institutions may use per-meal reimbursements to cover their
administrative costs. In CACFP, institutions that oversee day care homes receive separate administrative costs. In CACFP, institutions that oversee day care homes receive separate
monthly payments for administrative expenses based on the number of day care homes under monthly payments for administrative expenses based on the number of day care homes under
their jurisdiction.their jurisdiction.43
45 Other Federal Funding
A few child nutrition programs and activities have mandatory funding provided directly in the A few child nutrition programs and activities have mandatory funding provided directly in the
authorizing law. For example, FFVP receives mandatory funding from Section 32 and the farm to authorizing law. For example, FFVP receives mandatory funding from Section 32 and the farm to
school program receives mandatory funding under the NSLA.school program receives mandatory funding under the NSLA.44
46
There are also a few child nutrition activities that are funded on a discretionary basis, including There are also a few child nutrition activities that are funded on a discretionary basis, including
the Team Nutrition initiative and school meals equipment grants. the Team Nutrition initiative and school meals equipment grants.
The farm to school program has also received discretionary funding (in addition to its mandatory funding) in recent years.
Other temporary sources of child nutrition funding may be available. For example, in school Other temporary sources of child nutrition funding may be available. For example, in school
years 2021-2022 through 2023-2024, USDA distributed years 2021-2022 through 2023-2024, USDA distributed“"Supply Chain Assistance FundsSupply Chain Assistance Funds”" to to
states and school food authorities using Commodity Credit Corporation authority.states and school food authorities using Commodity Credit Corporation authority.45
Nonfederal Funding
47 In 2022, USDA again used the Commodity Credit Corporation to distribute $177 million to state agencies and school food authorities to purchase local and regional foods for use in school meal programs under the Local Food for Schools (LFS) Cooperative Agreement Program.48 Nonfederal Funding Federal subsidies do not necessarily cover the full cost of meals and snacks prepared by schools Federal subsidies do not necessarily cover the full cost of meals and snacks prepared by schools
and institutions.and institutions.4649 Child nutrition programs may also receive funds from participants, states, Child nutrition programs may also receive funds from participants, states,
school districts, local governments, and other entities. NSLP school districts, local governments, and other entities. NSLPis the only child nutrition program
withhas a cost-sharing requirement a cost-sharing requirement for states, whichthat amounts to a contribution of roughly $200 amounts to a contribution of roughly $200
million from all states combined annually.million from all states combined annually.4750 In addition, Summer EBT requires a 50% match on administrative funds.51 Some states provide additional funding for NSLP and Some states provide additional funding for NSLP and
other child nutrition programs beyond the required amount, including some states that provide
41 Section 502(c) of the FY2023 Consolidated Appropriations Act (P.L. 117-328).
42 Section 19 of the NSLA (codified at 42 U.S.C. §1769(i)(6)(B)).
43 Section 17(f)(3)(B) of the NSLA (codified at 42 U.S.C. §1766(f)(3)(B)); 7 C.F.R. §226.12.
44 Other child nutrition activities with mandatory funding include the Institute of Child Nutrition, administrative
reviews, technical assistance for program integrity, and professional standards for school food service personnel. See p.
35-15 of USDA-FNS, “2024 USDA Explanatory Notes–Food and Nutrition Service,” https://www.usda.gov/sites/
default/files/documents/35-2024-FNS.pdf.
45 USDA-FNS, “Fourth Allocation of Supply Chain Assistance Funds to Alleviate Supply Chain Disruptions in the
School Meals Programs,” SP 19-2023, August 7, 2023, https://www.fns.usda.gov/cn/fourth-allocation-supply-chain-
assistance-sca-funds.
46 Based on a study by USDA of meal costs in school year 2014-2015, the average lunch reimbursement ($2.26)
covered 62% of the average reported (direct) cost ($3.66) of producing a reimbursable lunch and 41% of the average
full (including indirect) cost ($5.55) of producing a reimbursable lunch. USDA-other child nutrition programs beyond the required amount, including some states that provide their own per-meal reimbursements.52 In addition, nine states (as of the cover date of this report) have authorized funding to provide universal free school meals to all students.53
The most recent USDA study of school meal program revenue found that, as of school year 2014-2015, approximately 63% of school food service revenues came from federal funds, 31% came from student payments for paid and reduced-price meals and other school foods, and 6% came from state and local funds (shown in Figure 2).54
Study, Final Report Volume 3: School Meal Costs and Revenues, Office of Policy Support, April 2019, , Office of Policy Support, April 2019,p. 53,
https://www.fns.usda.gov/https://www.fns.usda.gov/school-nutrition-and-meal-cost-study.school-nutrition-and-meal-cost-study.
47 Section 7(a)(1) of the NSLA (codified at 42 U.S.C. §1756(a)(1)). The required contribution in NSLP equals 30% of
Section 4 funds (the NSLP base reimbursement) made available to states in school year 1980-1981 (not inflation
adjusted), which was $200 million according to U.S. Congress, Senate Committee on Agriculture, Nutrition, and
Forestry, Child Nutrition Programs: Description, History, Issues, and Options, committee print, 98th Cong., 1st Sess.,
January 1983, S. Prt. 98-15 (Washington, DC: GPO, 1983), p. 8. States must also maintain level funding to the amount
expended in FY1977 for state administrative expenses associated with NSLP, SBP, and SMP, per Section 7(f) of Child
Nutrition Act (codified at 42 U.S.C. §1776(f)).
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their own per-meal reimbursements. In addition, nine states (as of the cover date of this report)
have authorized funding to provide universal free school meals to all students.48
An FNS study of the school meals programs in school year 2014-2015 found that approximately
63% of school food service revenues came from federal funds, 31% came from student payments
for paid and reduced-price meals and other school foods, and 6% came from state and local funds
(shown in Figure 2).49
Figure 2. Average School Food Authority (SFA) Revenue by Source,
School Year 2014-2015
Source: CRS based on USDA FNS, School Nutrition and Meal Cost Study, Final Report Volume 3: School Meal Costs
and Revenues, Office of Policy Support, April 2019, https://www.fns.usda.gov/school-nutrition-and-meal-cost-
study.
Notes: Percentages do not add to 100% due to rounding. Graph reflects average revenue, and as such, the
percentage breakdown may vary between school food authorities. In addition, it is possible that the distribution
of school food authority revenue has changed since school year 2014-2015.
Spending Trends
Federal spending on child nutrition programs has generally increased over time (see Figure 3;
Appendix Table B-1 includes both nominal and inflation-adjusted amounts). There are several
reasons for this increase, including annual inflation adjustments to per-meal reimbursement rates,
48 School meal state policy trackers include Food Research and Action Center, “School Meals Legislation and Funding
by State,” updated July 2023, https://frac.org/wp-content/uploads/School-Meals-State-Legislation-Chart.pdf and School
Nutrition Association, “Quarterly State Legislative Reports,” https://schoolnutrition.org/LegislationPolicy/
StateLegislationPolicyReports. For a list of states that adopted state funding for universal free meals as of August 2023,
see Leah Butz, “States that Have Passed Universal Free School Meals (So Far),” Hunter College New York City Food
Policy Center, August 29, 2023, https://www.nycfoodpolicy.org/states-that-have-passed-universal-free-school-meals.
49 USDA-FNS, School Nutrition and Meal Cost Study, Final Report Volume 3: School Meal Costs and Revenues,
Office of Policy Support, April 2019, p. 43, https://www.fns.usda.gov/school-nutrition-and-meal-cost-study.
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a relative increase in free school meal participation compared to other meal categories, and recent
spending under pandemic response policies.50
A recent exception to this trend occurred in FY2020, at the start of the COVID-19 pandemic.
Participation in programs declined as institutions closed, decreasing spending. By FY2021, an
increase in summer meal program participation again increased spending (pandemic policies are
discussed in the “Child Nutrition Program Operations During the COVID-19 Pandemic” section).
Under current law, the Congressional Budget Office predicts that federal spending on the child
nutrition programs will continue to increase over the next decade, with annual outlays of more
than $50 billion by 2032 as a result of food price inflation and other factors.51
As shown in Figure 3, federal spending on the major child nutrition programs reached $34 billion
in FY2022 based on preliminary data. When spending on other child nutrition activities is
included, the total was roughly $38 billion.52
Figure 3. Expenditures on Selected Child Nutrition Programs, 1992-2022 (Actual)
(figure is interactive in the HTML version of this report)
Source: USDA-FNS, “Child Nutrition Tables: NSLP, SBP and SMP—Program Costs—Cash and Commodities;
Child and Adult Care Food—Participation, Meals and Costs; and Summer Food Service—Participation, Meals and
50 The proportion of children receiving free meals has generally increased over the past three decades while the
percentage of children receiving reduced-price and paid school meals has decreased since 2007 in NSLP and stayed
relatively constant in SBP. For more information, see CRS Report R46888, Amending Eligibility Rules for Free and
Reduced-Price School Meals: Background and Policy Options.
51 Congressional Budget Office (CBO), “Baseline Projections: Child Nutrition Programs,” May 2023,
https://www.cbo.gov/system/files/2023-05/51293-2023-05-childnutrition.pdf. Also see page 26 (§502, Increasing
Access to Summer Meals for Children Through EBT and Alternative Delivery Options) of CBO, “Summary: Estimated
Budgetary Effects of Divisions O Through MM of the Consolidated Appropriations Act, 2023 (P.L. 117-328), as
Enacted on December 29, 2022,” January 12, 2023, https://www.cbo.gov/system/files/2023-01/P.L. 117-328 _1-12-
23.pdf.
52 USDA-FNS, “2024 USDA Explanatory Notes–Food and Nutrition Service,” p. 35-16,
https://www.usda.gov/sites/default/files/documents/35-2024-FNS.pdf.
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Costs: National Level Annual Summary Tables: FY 1969-2022,” October 13, 2023, https://www.fns.usda.gov/pd/https://www.fns.usda.gov/pd/
child-nutrition-tableschild-nutrition-tables.
Notes: NSLP category includes entitlement and bonus commodities and spending on the Seamless Summer
Option. Figure does not show all child nutrition program spending (e.g., it excludes.
Notes: Graph displays actual spending except for the inflation-adjusted total, which was calculated by CRS using the Food Away From Home series of the Consumer Price Index for All Urban Consumers (CPI-U) (not seasonally adjusted) from the U.S. Bureau of Labor Statistics. Graph includes commodity costs but excludes other types of child nutrition program spending, such as FFVP, state administrative FFVP, state administrative
expenses, and discretionary grantsexpenses, and discretionary grants). FY2022 data are preliminary.
. COVID-19 response policies affected spending in FY2020-FY2023 (discussed in the "Child Nutrition Program Operations During the COVID-19 Pandemic" text box). NSLP = National School Lunch Program, SBP = School Breakfast Program, CACFP = Child and Adult Care Food Program, SFSP = Summer Food Service Program, FFVP = Fresh Fruit and Vegetable Program, SMP = Special Milk Program.
National School Lunch Program (NSLP) and School
Breakfast Program (SBP)
NSLP and SBP (the NSLP and SBP (the school meals programs) provide federal support for meals served in ) provide federal support for meals served inroughly
more than 90,000 public and private elementary and secondary schools nationwide.90,000 public and private elementary and secondary schools nationwide.5358 They also support They also support
meals served in a smaller number of residential child care institutions.meals served in a smaller number of residential child care institutions.5459 Schools receive federal Schools receive federal
aid in the form of cash reimbursements for every meal they serve that meets federal nutritional aid in the form of cash reimbursements for every meal they serve that meets federal nutritional
requirements (limited to one breakfast and lunch per child daily). The largest subsidies are requirements (limited to one breakfast and lunch per child daily). The largest subsidies are
provided for free and reduced-price meals served to eligible students based on income eligibility provided for free and reduced-price meals served to eligible students based on income eligibility
and categorical eligibility rules (discussed below). Schools also receive a certain amount of and categorical eligibility rules (discussed below). Schools also receive a certain amount of
commodity assistance per lunch served (discussed previously). Schools participating in NSLP commodity assistance per lunch served (discussed previously). Schools participating in NSLP
have the option of providing afterschool snacks through the program, and schools participating in have the option of providing afterschool snacks through the program, and schools participating in
NSLP or SBP have the option of providing summer meals and snacks through the Seamless NSLP or SBP have the option of providing summer meals and snacks through the Seamless
Summer Option (discussed in the Summer Option (discussed in the "“After-School Meals and Snacks” and “Seamless Summer
Option” sections).
" and "Seamless Summer Option" sections).
Schools are not required by federal law to participate in NSLP or SBP; however, some states Schools are not required by federal law to participate in NSLP or SBP; however, some states
require schools to have a school lunch and/or breakfast program, and some require schools to require schools to have a school lunch and/or breakfast program, and some require schools to
operate such programs through NSLP and/or SBP. operate such programs through NSLP and/or SBP.Some states also provide state funding for the
school meals programs, including nine states (as of the cover date of this report) that have
authorized funding to provide free meals to all students.55 Schools that do not participate in the Schools that do not participate in the
federal school meals programs may still operate locally funded meal programs.56
53 As of fall 2022, 93,427 schools participated in NSLP and 89,718 schools participated in SBP (with substantial
overlap), according to USDA-FNS, “June 2023 Keydata Report,” September 8, 2023,
https://www.fns.usda.gov/data/June-2023-keydata-report. This includes private schools. In FY2022, nearly 4,500
private schools participated in NSLP and 3,000 private schools participated in SBP, according to CRS communication
with USDA-FNS in November 2023.
54 In fall 2022, more than 1,800 residential child care institutions (RCCIs) participated in NSLP and SBP (ibid). This
report refers to “schools,” but it should be understood that for NSLP and SBP, it means both schools and RCCIs.
RCCIs are defined as follows in school meal program regulations: “The term ‘residential child care institutions’
includes, but is not limited to: homes for the mentally, emotionally or physically impaired, and unmarried mothers and
their infants; group homes; halfway houses; orphanages; temporary shelters for abused children and for runaway
children; long-term care facilities for chronically ill children; and juvenile detention centers. A long-term care facility is
a hospital, skilled nursing facility, intermediate care facility, or distinct part thereof, which is intended for the care of
children confined for 30 days or more.” (7 C.F.R. §210.2). Nonresidential child care centers are eligible to participate
in CACFP.
55 School meal state policy trackers include Food Research and Action Center, “School Meals Legislation and Funding
by State,” updated July 2023, https://frac.org/wp-content/uploads/School-Meals-State-Legislation-Chart.pdf and School
Nutrition Association, “Quarterly State Legislative Reports,” https://schoolnutrition.org/LegislationPolicy/
StateLegislationPolicyReports. For a list of states that adopted state funding for universal free meals as of August 2023,
see Leah Butz, “States that Have Passed Universal Free School Meals (So Far),” Hunter College New York City Food
Policy Center, August 29, 2023, https://www.nycfoodpolicy.org/states-that-have-passed-universal-free-school-meals.
56 There is limited research on schools that opt out of the federal school meals programs. An older (1993) GAO
(continued...)
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federal school meals programs may still operate locally funded meal programs.60 Some states also provide state funding for the school meals programs, including nine states (as of the cover date of this report) that have authorized funding to provide free meals to all students.61 As of school year 2023-2024, approximately 60% of NSLP schools operated universal school meal programs using a state or federal policy option.62
The Healthy, Hunger-Free Kids Act of 2010 (HHFKA; P.L. 111-296) made several changes to the The Healthy, Hunger-Free Kids Act of 2010 (HHFKA; P.L. 111-296) made several changes to the
school meals programs. Among those changes was a requirement that USDA update the nutrition school meals programs. Among those changes was a requirement that USDA update the nutrition
standards for school meals and create new nutritional requirements for foods sold in NSLP and standards for school meals and create new nutritional requirements for foods sold in NSLP and
SBP schools within a certain timeframe. The law also created the Community Eligibility SBP schools within a certain timeframe. The law also created the Community Eligibility
Provision, through which eligible schools can provide free meals to all students. These changes Provision, through which eligible schools can provide free meals to all students. These changes
are discussed further within this section.are discussed further within this section.
NSLP and SBP are two separate programs, and schools can choose to operate one and not the NSLP and SBP are two separate programs, and schools can choose to operate one and not the
other.other.5763 The programs are discussed together in this report because they share many of the same The programs are discussed together in this report because they share many of the same
requirements. Differences between the programs are noted where applicable.requirements. Differences between the programs are noted where applicable. Participation Student participation in SBP in SBP
tends to be lower than in NSLP for several reasons, including the traditionally required early tends to be lower than in NSLP for several reasons, including the traditionally required early
arrival by students in order to receive a meal before school starts.arrival by students in order to receive a meal before school starts.
This section discusses topics specific to the school meals programs. Other food service topics This section discusses topics specific to the school meals programs. Other food service topics
relevant to child nutrition programs more broadly (e.g., the farm to school program) are discussed relevant to child nutrition programs more broadly (e.g., the farm to school program) are discussed
in the “in the "Other Child Nutrition Activities” " section.section.
Administration
Locally, the school meals programs are usually administered by school districts. Statute and Locally, the school meals programs are usually administered by school districts. Statute and
regulations designate regulations designate school food authorities as the local authorities in charge of operating the as the local authorities in charge of operating the
school meal programs; typically, these are food service departments within school districts.school meal programs; typically, these are food service departments within school districts.58
64 Local educational agencies—the broader school district or school board—also play a role in Local educational agencies—the broader school district or school board—also play a role in
administering the school meal programs.administering the school meal programs.5965 This report sometimes uses the term This report sometimes uses the term school district to to
refer informally to the local administrative entities in the school meals programs.refer informally to the local administrative entities in the school meals programs.
In general, school food authorities handle food service operations and accounting responsibilities, In general, school food authorities handle food service operations and accounting responsibilities,
such as food procurement, preparation, and service and tracking meals for reimbursement, while such as food procurement, preparation, and service and tracking meals for reimbursement, while
local educational agencies handle administrative duties, such as processing applications and local educational agencies handle administrative duties, such as processing applications and
certifying children for free and reduced-price school meals.certifying children for free and reduced-price school meals.
At the state level, the school meals programs are most often administered by state departments of At the state level, the school meals programs are most often administered by state departments of
education.education.6066 State administrative agencies are responsible for distributing federal reimbursements State administrative agencies are responsible for distributing federal reimbursements
to school food authorities and overseeing school districtsto school food authorities and overseeing school districts’' administration of the school meal administration of the school meal
programs, including by conducting administrative reviews of school districts.61
analysis found that smaller and wealthier schools were more likely to drop out of NSLP. GAO found that common
reasons for departure included financial considerations and compliance with federal nutrition standards. See GAO,
Schools That Left the National School Lunch Program, December 1993, https://www.gao.gov/assets/80/78774.pdf.
57 USDA estimated that 94% of schools operating NSLP also operated SBP in FY2020 prior to the COVID-19
pandemic (USDA-FNS, “2023 USDA Explanatory Notes–Food and Nutrition Service,” p. 35-14,
https://www.usda.gov/sites/default/files/documents/35-2023-FNS.pdf).
58 See definitions of school food authority and local educational agencies at 7 C.F.R. §210.2 and 7 C.F.R. §220.2.
59 Ibid.
60 For a list of state administrative agencies, see USDA FNS, “Contact Map,” https://www.fns.usda.gov/contacts/
contact-map.
61 Section 22(b)(1)(C)(i) of the NLSA (codified at 42 U.S.C. §1769c(b)(1)(C)(i)). HHFKA required states to “conduct
audits and reviews during a three-year cycle or other period prescribed by the Secretary.” Regulations require reviews
once every three years, with the potential for a one-year extension (a four-year cycle) (7 C.F.R. §210.18(c)). On
February 22, 2019, USDA published a policy memorandum (SP 12-2019, Flexibility for the Administrative Review
Cycle Requirement, https://www.fns.usda.gov/school-meals/flexibility-administrative-review-cycle-requirement) that
allows state agencies to request a waiver to extend the review cycle for up to two additional years (a five-year cycle).
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programs, including by conducting administrative reviews of school districts.67
At the federal level, FNS provides ongoing guidance and technical assistance to state agencies At the federal level, FNS provides ongoing guidance and technical assistance to state agencies
and school food authorities through seven regional offices. FNS also provides oversight of state and school food authorities through seven regional offices. FNS also provides oversight of state
agencies, including by conducting management evaluations.agencies, including by conducting management evaluations.62
68 Figure 4 depicts the federal, state, and local roles in administering the school meals programs.depicts the federal, state, and local roles in administering the school meals programs.
Source: CRS, based on current law and regulations.CRS, based on current law and regulations.
Eligibility and Reimbursement
The school meals programs do not exclusively serve low-income children. Any student in an The school meals programs do not exclusively serve low-income children. Any student in an
NSLP or SBP participating school may purchase a school meal; however, children must meet NSLP or SBP participating school may purchase a school meal; however, children must meet
program eligibility rules in order to receive a free or reduced-price meal.program eligibility rules in order to receive a free or reduced-price meal.
In most schools (excluding schools that participate in the Community Eligibility Provision or In most schools (excluding schools that participate in the Community Eligibility Provision or
other special options), children are certified for free or reduced-price school meals through one of other special options), children are certified for free or reduced-price school meals through one of
two pathwaystwo pathways: (1) (shown in Figure 5): Household application (based on income eligibility income eligibility for free and reduced-price meals (information typically
collected via household application) and (2) categorical eligibility for free meals (information
collected via household application or direct certification). Each year, schools must verify a
sample of household applications for accuracy. The pathways through which children are certified
for free or reduced-price school meals are shown in Figure 5.
or categorical eligibility, meaning that the child participates in another qualifying program or has a certain qualifying status); and
Direct certification (automatic enrollment in free meals for categorically eligible children without additional means testing [with the exception of Medicaid, in which case income data are considered and children may be enrolled in free or reduced-price meals]). If children are certified for free meals, the school food authority receives the free meal If children are certified for free meals, the school food authority receives the free meal
reimbursement for those meals. If children are certified for reduced-price meals, the school food reimbursement for those meals. If children are certified for reduced-price meals, the school food
authority receives a slightly lower reimbursement. School food authorities also receive a much authority receives a slightly lower reimbursement. School food authorities also receive a much
smaller paid-rate reimbursement for meals served to children who pay for smaller paid-rate reimbursement for meals served to children who pay for“"full pricefull price”" meals. meals.
School food authorities must follow federal guidelines in setting the price of paid meals.School food authorities must follow federal guidelines in setting the price of paid meals.63
62 U.S. Government Accountability Office (GAO), USDA Has Reported Taking Some Steps to Reduce Improper
Payments but Should Comprehensively Assess Fraud Risks, GAO-19-389, May 2019, p. 7.
63 The HHFKA set requirements around the price of paid meals, amending Section 12(p) of the NSLA (codified at 42
U.S.C. §1760(p)). However, appropriations laws in FY2018 and FY2019 waived these requirements for many schools.
For more information, see CRS Report R45486, Child Nutrition Programs: Issues in the 115th Congress, and USDA-
FNS, “Paid Lunch Equity: Guidance for SY 2020-21,” January 22, 2020, https://www.fns.usda.gov/cn/paid-lunch-
equity-guidance-school-year-2020-21.
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69
Certain schools follow different eligibility and reimbursement procedures because they Certain schools follow different eligibility and reimbursement procedures because they
participate in the Community Eligibility Provision or other special options (discussed below in participate in the Community Eligibility Provision or other special options (discussed below in
the the "“Special Options”" section). section).
Household Application and Direct Certification ProcessesHousehold Application and Direct Certification Processes
Source: CRS adaptation of figure from U.S. Government Accountability Office (GAO), CRS adaptation of figure from U.S. Government Accountability Office (GAO), School Meals Programs:
USDA Has Enhanced Controls, but Additional Verification Could Help Ensure Legitimate Program Access, GAO-14-262, , GAO-14-262,
May 2014, p. 13.May 2014, p. 13.
Notes: FPG = federal poverty guidelines; SNAP = Supplemental Nutrition Assistance Program.
Notes: Graphic does Graphic does
not depict direct certification of children for reduced-price meals through Medicaid in demonstration states or not depict direct certification of children for reduced-price meals through Medicaid in demonstration states or
practices used in Community Eligibility Provision (CEP) schools and other schools using special options. practices used in Community Eligibility Provision (CEP) schools and other schools using special options.
FPG = federal poverty guidelines; SNAP = Supplemental Nutrition Assistance Program.
Income Eligibility
Children are eligible for free or reduced-price meals if their householdChildren are eligible for free or reduced-price meals if their household’'s income falls within the s income falls within the
following ranges:following ranges:
• Free meals: household income at or below 130% of the federal poverty household income at or below 130% of the federal poverty
guidelines.64
• guidelines.70
Reduced-price meals (charges of no more than 40 cents per lunch and 30 cents (charges of no more than 40 cents per lunch and 30 cents
per breakfast): household income above 130% and less than or equal to 185% of per breakfast): household income above 130% and less than or equal to 185% of
the federal poverty guidelines.65
64 For the purposes of school meal eligibility, household is defined as “a group of related or nonrelated individuals, who
are not residents of an institution or boarding house, but who are living as one economic unit” (7 C.F.R. §245.2).
65 Section 9(b)(1) of the NSLA (42 U.S.C. §1758(b)(1).
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the federal poverty guidelines.71These thresholds are based on the annual federal poverty guidelines established by the U.S. These thresholds are based on the annual federal poverty guidelines established by the U.S.
Department of Health and Human Services, and are updated annually for inflation. FNS publishes Department of Health and Human Services, and are updated annually for inflation. FNS publishes
the corresponding income limits by household size for free and reduced-price meals in the the corresponding income limits by household size for free and reduced-price meals in the
Federal Register on an annual basis. on an annual basis.6672 Table 3 provides an example of the income limits for free provides an example of the income limits for free
and reduced-price meals for a household of four.and reduced-price meals for a household of four.
To become income eligible for school meals, a parent or guardian must complete a paper or To become income eligible for school meals, a parent or guardian must complete a paper or
online application that includes the income of each household member, the household size, and online application that includes the income of each household member, the household size, and
other information.other information.6773 Household income is defined as total gross income (before taxes or Household income is defined as total gross income (before taxes or
deductions), including earnings and wages, certain public assistance benefits (such as deductions), including earnings and wages, certain public assistance benefits (such as
unemployment compensation, social security benefits, and child support payments), and unemployment compensation, social security benefits, and child support payments), and
retirement and pension income.retirement and pension income.6874 Households are asked to provide current weekly, biweekly, Households are asked to provide current weekly, biweekly,
twice monthly, or monthly income, which school district officials compare to the federal poverty twice monthly, or monthly income, which school district officials compare to the federal poverty
guidelines to determine eligibility for free meals, reduced-price meals, or neither.guidelines to determine eligibility for free meals, reduced-price meals, or neither.6975 Households Households
only need to fill out one application if they have multiple children in the same school district.only need to fill out one application if they have multiple children in the same school district.
Table 3. School Meals Income Eligibility Guidelines for a Household of Four
For the 48 Contiguous StatesFor the 48 Contiguous States and the District of Columbia, School Year 2023-2024
Income Eligibility
Threshold
(% of the federal
, DC, and Territories, School Year 2024-2025
Income Eligibility Threshold (% of the federal poverty guidelines)
Annual Income for a
Meal Type
poverty guidelines)
Household of Four
Free
Less than or equal to 130%Less than or equal to 130%
Less than or equal to $Less than or equal to $39,000
41,795
Reduced-priceReduced-price
Greater than 130% and less Greater than 130% and less
than or equal to 185%
Greater than $Greater than $39,00041,795 and less than or equal to $59,478
and less
than or equal to 185%
than or equal to $55,500
Paid
N/A
N/A
Source: USDA FNS, USDA FNS,“"Child Nutrition Programs: Income Eligibility Guidelines,Child Nutrition Programs: Income Eligibility Guidelines,” 88" 90 Federal Register 8397,
February 9, 2023.
Note: This11938, March 13, 2025.
Notes: The school year is defined as July 1 school year is defined as July 1, 2023, through June 30 through June 30, 2024. For . For guidelines for other years, household sizes, and other years, household sizes, and
guidelines for Alaska and Hawaii, see USDA FNSAlaska and Hawaii, see USDA FNS’'s website: http://www.fns.usda.gov/school-meals/income-s website: http://www.fns.usda.gov/school-meals/income-
eligibility-guidelines.
66 USDA FNS, “Child Nutrition Programs: Income Eligibility Guidelines,” 88 Federal Register 8397, February 9,
2023.
67 There is a requirement that the adult household member filling out the application provide the last four digits of
his/her Social Security number (Section 9(d)(1) of the NSLA), or, according to program regulations, indicate that they
do not have one (7 C.F.R. §245.6(a)(6)). The law does not allow for citizenship eligibility restrictions; Section 742(a)
of P.L. 104-193 states that individuals who are eligible for free public education benefits under state and local law shall
remain eligible to receive school lunch and school breakfast benefits.
68 7 C.F.R. §245.6(a)(5)(ii). Also see USDA-FNS, “Child Nutrition Programs: Income Eligibility Guidelines,” 85
Federal Register 16050, March 20, 2020, USDA-FNS, Eligibility Manual for School Meals: Determining and
Verifying Eligibility, July 2017, https://www.fns.usda.gov/eligibility-manual-school-meals, and USDA-FNS, “Applying
for Free and Reduced Price School Meals,” https://www.fns.usda.gov/cn/applying-free-and-reduced-price-school-
meals.
69 Ibid. Households are asked to report this income for the most recent period prior to the application, unless it does not
reflect their typical income, in which case they can provide the amount of income they normally receive in a month.
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eligibility-guidelines. Categorical Eligibility
As an alternative to income eligibility, children can become eligible for free school meals if they As an alternative to income eligibility, children can become eligible for free school meals if they
fall into a certain category (called fall into a certain category (called categorical eligibility). Per statute, children are automatically ). Per statute, children are automatically
eligible for free lunches and breakfasts (without consideration of household income) if they areeligible for free lunches and breakfasts (without consideration of household income) if they are
• in a household receiving benefits through the following programs:in a household receiving benefits through the following programs:
•
SNAP (Supplemental Nutrition Assistance Program);SNAP (Supplemental Nutrition Assistance Program);
•
FDPIR (Food Distribution Program on Indian Reservations, a program that FDPIR (Food Distribution Program on Indian Reservations, a program that
operates in lieu of SNAP on some Indian reservations); oroperates in lieu of SNAP on some Indian reservations); or
•
TANF (Temporary Assistance for Needy Families);TANF (Temporary Assistance for Needy Families);
•
enrolled in Head Start;enrolled in Head Start;
•
in foster care;
a migrant;
a runaway; or
homeless.76 in foster care;
• a migrant;
• a runaway; or
• homeless.70
Categorical eligibility for free meals may be determined via a household application (households Categorical eligibility for free meals may be determined via a household application (households
provide a case number on the application) or through direct certification (discussed in the next provide a case number on the application) or through direct certification (discussed in the next
section). The vast majority of categorically eligible children are certified for free meals through section). The vast majority of categorically eligible children are certified for free meals through
direct certification.direct certification.71
77
Categorical eligibility for free school meals with SNAP and TANF began in the 1980s (then, the Categorical eligibility for free school meals with SNAP and TANF began in the 1980s (then, the
Food Stamp and Aid to Families with Dependent Children programs, respectively).Food Stamp and Aid to Families with Dependent Children programs, respectively).7278 Categorical Categorical
eligibility enabled schools to make use of other programseligibility enabled schools to make use of other programs’' more in-depth certification processes more in-depth certification processes
and reduced the number of applications that families had to fill out.and reduced the number of applications that families had to fill out.7379 Other programs and Other programs and
categories were added over time.categories were added over time.
Direct Certification
Direct certification is a process through which state agencies and school districts automatically Direct certification is a process through which state agencies and school districts automatically
certify children for free meals based on documentation of the childcertify children for free meals based on documentation of the child’'s status in a program or s status in a program or
category without the need for a household application.category without the need for a household application.7480 States are required to conduct direct States are required to conduct direct
70 See Section 9(b)(12)(A) of the Russell National School Lunch Act (codified at 42 U.S.C. §1758(b)(12)(A)), for the
more specific definitions of these categories. SNAP, FDPIR, and TANF have income limits, but the other qualifications
as defined in the statute are not limited by income.
71 According to CRS calculations using USDA-FNS 742 data for FY2022, 97.5% of categorically eligible students
were directly certified for free school meals, compared to 2.5% certified by household application.
72 USDA-FNS, Direct Certification in the National School Lunch Program: State Implementation Progress: Report to
Congress, December 2008, p. 3, https://fns-prod.azureedge.net/sites/default/files/DirectCert08.pdf.
73 See, for example, U.S. Government Accountability Office, School-Meals Programs: USDA Has Enhanced Controls,
but Additional Verification Could Help Ensure Legitimate Program Access, GAO-14-262, May 2014, pp. 16-19,
http://www.gao.gov/products/GAO-14-262.
74 Direct certification authority is in Section 9(b)(4)-(5) of the Russell National School Lunch Act (codified at 42
U.S.C. §1758(b)(4)-(5)). Direct certification is defined in NSLP/SBP program regulations at 7 C.F.R. §245.2.
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certification with SNAP and have the option of conducting direct certification with the other certification with SNAP and have the option of conducting direct certification with the other
programs and categories that convey categorical eligibility.programs and categories that convey categorical eligibility.
For SNAP and other federal programs, the direct certification process typically involves state For SNAP and other federal programs, the direct certification process typically involves state
agencies (e.g., state SNAP and state educational agencies) cross-checking program rolls.agencies (e.g., state SNAP and state educational agencies) cross-checking program rolls.7581 A list A list
of matched children is sent to the school district, which certifies children for free meals without of matched children is sent to the school district, which certifies children for free meals without
the need for a household application.the need for a household application.7682 For foster, homeless, migrant, and runaway children, For foster, homeless, migrant, and runaway children,
direct certification typically involves school district communication with a local or state official direct certification typically involves school district communication with a local or state official
who can provide documentation of the childwho can provide documentation of the child’'s status in one of these categories.s status in one of these categories.77
83
The 2004 child nutrition reauthorization act (P.L. 108-265) required states to conduct direct The 2004 child nutrition reauthorization act (P.L. 108-265) required states to conduct direct
certification with SNAP, with nationwide implementation taking effect in school year 2008-2009. certification with SNAP, with nationwide implementation taking effect in school year 2008-2009.
As of school year 2018-2019 (the most recent data available), USDA reported that 98% of As of school year 2018-2019 (the most recent data available), USDA reported that 98% of
children in SNAP households were directly certified for free school meals.children in SNAP households were directly certified for free school meals.78
84
The HHFKA made further policy changes to expand direct certification. One of those changes The HHFKA made further policy changes to expand direct certification. One of those changes
was the initiation of a demonstration project to test direct certification with Medicaid (see the text was the initiation of a demonstration project to test direct certification with Medicaid (see the text
box below). The law also funded performance incentive grants for high-performing states and box below). The law also funded performance incentive grants for high-performing states and
authorized corrective action plans for low-performing states in direct certification activities.authorized corrective action plans for low-performing states in direct certification activities.79
85 Direct Certification with Medicaid Demonstration
The HHFKA initiated a demonstration project to conduct direct certification of children individually participating The HHFKA initiated a demonstration project to conduct direct certification of children individually participating
in Medicaid and children in Medicaid households. Unlike the other programs used to directly certify children for in Medicaid and children in Medicaid households. Unlike the other programs used to directly certify children for
school meals, Medicaid does school meals, Medicaid does not convey categorical eligibility for free school meals, but rather identifies children in convey categorical eligibility for free school meals, but rather identifies children in
households that would meet the income eligibility thresholds for either free or reduced-price school meals.households that would meet the income eligibility thresholds for either free or reduced-price school meals.80
Fol owing86
Since school year 2012-2013, USDA has used the demonstration authority in the HHFKA as well as the demonstration authority in the HHFKA as well as separate pilot authority in the Richard B. Russell National pilot authority in the Richard B. Russell National
School Lunch ActSchool Lunch Act, some states are currently directly certifying to enable selected states to directly certify children based on Medicaid data. children based on Medicaid data.8187 As of school As of school
year 2023-2024, there were 38 states operatingyear 2024-2025, 43 states operated direct certification with Medicaid. direct certification with Medicaid. Two states used88 Over time, the demonstration has shifted from using Medicaid to Medicaid to
directly certify children directly certify children only for free meals for free mealsonly (130% of the poverty level or below).82 Thirty-six states were
operating under an expanded direct certification demonstration project to test direct certification with Medicaid
for free and reduced-price meals (up to 185% of the poverty level).83
75 USDA-FNS, Direct Certification in the National School Lunch Program: State Implementation Progress, School
Year 2014–2015: Report to Congress, Office of Policy Support, Special Nutrition Programs Report No. CN-15-DC,
December 2016, p. xiii, https://fns-prod.azureedge.net/sites/default/files/ops/NSLPDirectCertification2015.pdf.
76 However, parents and guardians are notified of the child’s enrollment in free meals and are allowed to opt-out.
77 USDA-FNS, Eligibility Manual for School Meals: Determining and Verifying Eligibility, July 2017,
https://www.fns.usda.gov/eligibility-manual-school-meals.
78 USDA-FNS, Direct Certification in the National School Lunch Program State Implementation Progress Report to
Congress SY 2017-2018 and SY 2018-2019, June 2021, https://www.fns.usda.gov/cn/direct-certification-national-
school-lunch-program-state-implementation-progress-report.
79 See CRS Report R41354, Child Nutrition and WIC Reauthorization: P.L. 111-296, for further discussion of these
and related policies.
80 USDA-FNS, “Request for Applications to Participate in Demonstration Projects to Evaluate Direct Certification with
Medicaid,” January 27, 2016, https://www.medicaid.gov/federal-policy-guidance/downloads/cib-02-12-16.pdf.
81 Section 9(b)(15) of the NSLA (codified at 42 USC §1758(b)(15)), as added by Section 103 of P.L. 111-296; Section
18(c) of the NSLA (codified at 42 USC §1769(c)).
82 Kentucky and New York, according to CRS communication with USDA-FNS in October 2023.
83 For a list of participating states, see USDA-FNS, “National School Lunch Program and School Breakfast Program
Demonstration Projects to Evaluate Direct Certification with Medicaid,” January 13, 2023,
https://www.fns.usda.gov/cn/direct-certification-medicaid-demonstration-project.
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(130% of the poverty level or below) to certifying children for both free and reduced-price meals (up to 185% of the poverty level).
FNS has published several evaluations of the demonstration projects.FNS has published several evaluations of the demonstration projects.8489 These evaluations found that in states with These evaluations found that in states with
available data, direct certification with Medicaid led to more children being certified through direct certification available data, direct certification with Medicaid led to more children being certified through direct certification
rather than application and to some newly certified children. They also found that state administrative costs were rather than application and to some newly certified children. They also found that state administrative costs were
“modest”"modest" during start-up and declined over time. during start-up and declined over time.85
90 Verification of Eligibility
Each fall, districts are required to verify a sample of approved household applications on file, Each fall, districts are required to verify a sample of approved household applications on file,
with a focus on applications close to the eligibility threshold (with a focus on applications close to the eligibility threshold (“"error-proneerror-prone”" applications). applications).86
91 School districts may also conduct verification of questionable applications. Verification is not School districts may also conduct verification of questionable applications. Verification is not
required for children who are directly certified for free or reduced-price meals. (Note that districts required for children who are directly certified for free or reduced-price meals. (Note that districts
participating in Provisions 1, 2, and 3 participating in Provisions 1, 2, and 3 [see the "Provisions 1, 2, and 3" section] must meet verification requirements for the years in which must meet verification requirements for the years in which
they administer household applications.)they administer household applications.)
Many districts employ Many districts employ direct verification (matching data from other low-income programs) to (matching data from other low-income programs) to
conduct their verification activities, but if data cannot be verified in this way, schools must conduct their verification activities, but if data cannot be verified in this way, schools must
contact households to verify the information provided on the application. A childcontact households to verify the information provided on the application. A child’'s eligibility s eligibility
status may stay the same or change (e.g., from free meals to reduced-price meals or loss of status may stay the same or change (e.g., from free meals to reduced-price meals or loss of
eligibility) as a result of verification of household income, or if the household does not respond to eligibility) as a result of verification of household income, or if the household does not respond to
verification outreach (in which case eligibility would be lost, though that decision can be verification outreach (in which case eligibility would be lost, though that decision can be
appealed).appealed).
Reimbursement
School food authorities must keep track of the daily number of meals they serve in each category School food authorities must keep track of the daily number of meals they serve in each category
(free, reduced-price, and paid) that meet federal nutrition requirements. School food authorities (free, reduced-price, and paid) that meet federal nutrition requirements. School food authorities
then submit claims for reimbursement to the state agency, which submits the claims to FNS. then submit claims for reimbursement to the state agency, which submits the claims to FNS.
Approved reimbursements are distributed to school food authorities by the state agency, usually Approved reimbursements are distributed to school food authorities by the state agency, usually
on a monthly basis. Per statute, reimbursement rates are adjusted for inflation annually.on a monthly basis. Per statute, reimbursement rates are adjusted for inflation annually.8792 Table 4
shows NSLP and SBP reimbursement rates for school year shows NSLP and SBP reimbursement rates for school year2023-20242024-2025. (Note that school food . (Note that school food
authorities also receive a per-lunch commodity reimbursement, discussed previously under authorities also receive a per-lunch commodity reimbursement, discussed previously under
"“Commodity Assistance”.)
84 USDA-FNS, Office of Policy Support, Evaluation of Demonstrations of National School Lunch Program and School
Breakfast Program Direct Certification of Children Receiving Medicaid Benefits: Year 1 Report, prepared by
Mathematica Policy Research, January 2015, https://www.fns.usda.gov/evaluation-demonstrations-national-school-
lunch-program-and-school-breakfast-program-direct; USDA-FNS, Final Report: Direct Certification with Medicaid for
Free and Reduced-Price Meals (DCMF/RP) Demonstration, Year 1, prepared by Mathematica Policy Research, August
2019, https://www.fns.usda.gov/cn/evaluation-direct-certification-medicaid-free-and-reduced-price-meals; USDA-
FNS, Direct Certification with Medicaid for Free and Reduced-Price Meals (DCM-F/RP) Demonstration, Year 2,
prepared by Mathematica Policy Research, September 2020, https://www.fns.usda.gov/nslp/evaluation-direct-
certification-medicaid-free-and-reduced-price-meals-dcm-frp; and USDA-FNS, Office of Policy Support, Direct
Certification with Medicaid for Free and Reduced-Price Meals (DCM-F/RP) Demonstration, School Year 2019-2020
Report, prepared by Mathematica Policy Research, March 2022, https://www.fns.usda.gov/cn/usda-dcm-frp-
demonstration.
85 Ibid.
86 In general, local educational agencies must review the smallest of 3,000 of all applications or 3% of error-prone
applications. If the local educational agency has a nonresponse rate below 20% or has more than 20,000 children
approved by application for free/reduced-price meals and a recently improved response rate, they may use alternative
sampling approaches. See Section 9(b)(3)(D) of the NSLA or program regulations at 7 C.F.R. Section 245.6a.
87 See Section 4 and Section 11 of the NSLA for the lunch reimbursement rates and Section 4 of the Child Nutrition
Act of 1966 for breakfast reimbursement rates.
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Commodity Assistance".)
The law provides a higher reimbursement rate for meals meeting certain criteria. For example, The law provides a higher reimbursement rate for meals meeting certain criteria. For example,
school food authorities that are compliant with the updated federal nutrition standards for school school food authorities that are compliant with the updated federal nutrition standards for school
meals meals (nearly all school food authorities as of school year 2023-202493) receive an additional receive an additional 89 cents per lunch. cents per lunch.8894 School food authorities also receive an additional School food authorities also receive an additional
2 cents per lunch if they serve 60% or more of their lunches at a free or reduced price.2 cents per lunch if they serve 60% or more of their lunches at a free or reduced price.95 For For
breakfasts, school food authorities receive higher reimbursements breakfasts, school food authorities receive higher reimbursements for free and reduced-price meals (an additional 47 cents per breakfast) if they serve 40% or more if they serve 40% or more
lunches at a free or reduced price (referred to as lunches at a free or reduced price (referred to as severe need schools). schools).
96
Once school food authorities receive the cash reimbursements, they can use the funds to support Once school food authorities receive the cash reimbursements, they can use the funds to support
almost any aspect of the school food service operation. However, federal cash reimbursements almost any aspect of the school food service operation. However, federal cash reimbursements
must go into a nonprofit school food service account that is subject to federal regulations.must go into a nonprofit school food service account that is subject to federal regulations.89
97 Payments for non-program foods (e.g., vending machine sales) must also accrue to the nonprofit Payments for non-program foods (e.g., vending machine sales) must also accrue to the nonprofit
school food service account.school food service account.90
98
FNS periodically studies the costs of producing a reimbursable meal. In April 2019, FNS released FNS periodically studies the costs of producing a reimbursable meal. In April 2019, FNS released
a a School Nutrition and Meal Cost Study, which found that the average reported, which found that the average reported cost of producing cost of producing
a reimbursable lunch was $3.81 in school year 2014-2015 (reported costs were defined as those a reimbursable lunch was $3.81 in school year 2014-2015 (reported costs were defined as those
charged to the school food service account).charged to the school food service account).9199 This exceeded the average federal cash This exceeded the average federal cash
reimbursement ($3.32) for lunches in school year 2014-2015. When unreported costs were reimbursement ($3.32) for lunches in school year 2014-2015. When unreported costs were
included (costs outside of the food service account; for example, labor costs associated with included (costs outside of the food service account; for example, labor costs associated with
processing applications), the cost of producing the average reimbursable lunch was $6.02. As processing applications), the cost of producing the average reimbursable lunch was $6.02. As
noted previously, childrennoted previously, children’'s payments and state and local funds may also cover meal costs.s payments and state and local funds may also cover meal costs.
Table 4. Reimbursement Rates: NSLP and SBP
Per-Meal Reimbursements for the 48 Contiguous States and the District of Columbia, Per-Meal Reimbursements for the 48 Contiguous States and the District of Columbia,
School Year School Year 2023-2024
2024-2025 Lunch Rate
Bonus for School Food
Bonus for SFAs Certified as
Authorities (SFAs) That Served
Compliant with Nutrition
Maximum
Base Rate
60%+ Lunches at F/RP
Standards
Rate
Free
$4.25
+$0.02
+$0.08
$4.50
Reduced-price
$3.85
+$0.02
+$0.08
$4.10
Paid
$0.40
+$0.02
+$0.08
$0.56
Breakfast Rate
SFAs That Served Less Than 40%
SFAs That Served 40%+
of
Maximum Rate
SFAs That Served Less Than 40% of Lunches at F/RP
SFAs That Served 40%+ Lunches at F/RP
Sources: USDA-FNS, "F/RP
Lunches at F/RP
Free
$2.28
$2.73
Reduced-price
$1.98
$2.43
Paid
$0.38
$0.38
88 The Healthy, Hunger-Free Kids Act of 2010 (P.L. 111-296) provided an additional 6 cents per-lunch reimbursement
(adjusted annually for inflation) to schools meeting the updated nutritional guidelines requirements. USDA-FNS,
“National School Lunch, Special Milk, and School Breakfast Programs, National Average Payments/Maximum
Reimbursement Rates,” July 7, 2023, 88 Federal Register 43266 (separately lists rates for Alaska, Guam, Hawaii,
Puerto Rico, and the U.S. Virgin Islands).
89 7 C.F.R. §210.14.
90 Section 12(p) of the NSLA (codified at 42 U.S.C. §1760(q)).
91 USDA-FNS, School Nutrition and Meal Cost Study, Final Report Volume 3: School Meal Costs and Revenues,
Office of Policy Support, April 2019, https://www.fns.usda.gov/school-nutrition-and-meal-cost-study.
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Sources: USDA-FNS, “National School Lunch, Special Milk, and School Breakfast Programs, National Average National School Lunch, Special Milk, and School Breakfast Programs, National Average
Payments/Maximum Reimbursement Rates,Payments/Maximum Reimbursement Rates,”" July July 7, 2023, 8810, 2024, 89 Federal Register 4326656720 (separately lists rates for (separately lists rates for
Alaska, Guam, Hawaii, Puerto Rico, and the U.S. Virgin Islands). For historical rates, see Alaska, Guam, Hawaii, Puerto Rico, and the U.S. Virgin Islands). For historical rates, see
https://www.fns.usda.gov/school-meals/rates-reimbursementhttps://www.fns.usda.gov/school-meals/rates-reimbursement.
. Notes: F/RP = free or reduced-price. The percentage of lunchesF/RP = free or reduced-price. The percentage of lunches/breakfasts served at F/RP is based on the served at F/RP is based on the
percentage of percentage ofmealslunches served two school years prior. The federal per-meal reimbursement rates are averages. served two school years prior. The federal per-meal reimbursement rates are averages.
States can apportion funds among school food authorities above or below the average rates; however, in NSLP States can apportion funds among school food authorities above or below the average rates; however, in NSLP
they can only do so up to the maximum rate. States may also supplement federal reimbursements with state they can only do so up to the maximum rate. States may also supplement federal reimbursements with state
funding.funding.
Special Options
Community Eligibility Provision (CEP)
The HHFKA authorized the Community Eligibility Provision (CEP), an option that allows The HHFKA authorized the Community Eligibility Provision (CEP), an option that allows
eligible schools, groups of schools, and school districts to offer free meals to all enrolled eligible schools, groups of schools, and school districts to offer free meals to all enrolled
students.students.92100 To participate in CEP, the school(s) must have an identified student percentage (ISP) To participate in CEP, the school(s) must have an identified student percentage (ISP)
of at least 25% (USDA lowered the eligibility threshold from 40% to 25% as of school year 2023-of at least 25% (USDA lowered the eligibility threshold from 40% to 25% as of school year 2023-
2024).2024).93101 The ISP is the percentage of students in the school(s) who are certified for free meals The ISP is the percentage of students in the school(s) who are certified for free meals
without a household application (i.e., who are directly certified for free meals through SNAP or without a household application (i.e., who are directly certified for free meals through SNAP or
another program/category).another program/category).94102 In addition, the school(s) must operate both NSLP and SBP in order In addition, the school(s) must operate both NSLP and SBP in order
to participate in CEP, and they must opt-in to CEP.to participate in CEP, and they must opt-in to CEP.
Based on the statutory parameters, FNS piloted CEP in various states over three school years, and Based on the statutory parameters, FNS piloted CEP in various states over three school years, and
expanded the option nationwide in school year 2014-2015. Eligible schools, groups of schools, expanded the option nationwide in school year 2014-2015. Eligible schools, groups of schools,
and entire school districts may participate; if participation is as a group, the ISP is calculated on a and entire school districts may participate; if participation is as a group, the ISP is calculated on a
group basis. Local educational agencies have until June 30 of each year to notify USDA of the group basis. Local educational agencies have until June 30 of each year to notify USDA of the
schools in their jurisdiction that will participate in CEP.schools in their jurisdiction that will participate in CEP.95103 According to a database maintained by According to a database maintained by
the Food Research and Action Centerthe Food Research and Action Center (a research and advocacy organization), approximately , approximately40,23547,766 schools participated in CEP in schools participated in CEP in
school year school year2022-20232023-2024, up from , up from 30,62040,235 schools in school year schools in school year 2019-2020.962022-2023.104 Figure 6 displays the displays the
estimated proportion of CEP schools out of all NSLP schools since school year 2014-2015 (the estimated proportion of CEP schools out of all NSLP schools since school year 2014-2015 (the
first year of nationwide implementation).
92 For further detail on CEP, see CRS Report R46371, Serving Free School Meals through the Community Eligibility
Provision (CEP): Background and Participation.
93 USDA-FNS, “Child Nutrition Programs: Community Eligibility Provision-Increasing Options for Schools,” 88
Federal Register 65778, September 26, 2023.
94 A school’s number of identified students is essentially the same as its number of directly certified students, except
that the number of identified students does not include students who are directly certified for reduced-price meals
through the Medicaid demonstration. For the definition of “identified students” in regulations, see 7 C.F.R.
§245.9(f)(1)(ii).
95 7 CFR §245.9(f)(4); USDA-FNS, “National School Lunch Program and School Breakfast Program: Eliminating
Applications through Community Eligibility as Required by the Healthy, Hunger-Free Kids Act of 2010,” 81 Federal
Register 50194, July 29, 2016.
96 Food Research and Action Center (FRAC), “Community Eligibility: The Key to Hunger-Free Schools, School Year
2022–2023,” May 2023, https://frac.org/cep-report-2023.
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Figure 6. CEP Schools as a Proportion of NSLP Schools, SY2014-2015 to
SY2022-2023
Sources: CRS estimates applying the number of CEP schools from FRAC, “Community Eligibility: The Key to
Hunger-Free Schools, School Year 2022–2023,” May 2023, https://frac.org/cep-report-2023 to the number of
NSLP schools from USDA-FNS Keydata Reports (USDA-FNS, “June 2023 Keydata Report,” September 8, 2023,
https://www.fns.usda.gov/data/June-2023-keydata-report; USDA-FNS, “September 2022 Keydata Report,”
December 9, 2022, https://www.fns.usda.gov/data/september-2022-keydata-report; and USDA-FNS, “September
2021 Keydata Report,” December 10, 2021, https://www.fns.usda.gov/data/september-2021-keydata-report).
Notes: In school years 2020-2021 and 2021-2022, the vast majority of schools operated under pandemic
first year of nationwide implementation).
participation in these years is not relevant. In addition, NSLP participation is lower in school year 2020-2021 than participation in these years is not relevant. In addition, NSLP participation is lower in school year 2020-2021 than
a typical year because many school food authorities chose to operate the summer meals programs instead of a typical year because many school food authorities chose to operate the summer meals programs instead of
NSLP as a result of pandemic response policies (discussed NSLP as a result of pandemic response policies (discussed further in the in the“"Child Nutrition Program Operations During
the COVID-19 Pandemic” section).
" text box).
Though CEP schools serve free meals to all students, they are not reimbursed at the free rate for Though CEP schools serve free meals to all students, they are not reimbursed at the free rate for
every meal served. Instead, the law provides a funding formula: the ISP is multiplied by a factor every meal served. Instead, the law provides a funding formula: the ISP is multiplied by a factor
of 1.6 to estimate the proportion of students who would be eligible for free or reduced-price of 1.6 to estimate the proportion of students who would be eligible for free or reduced-price
meals had they been certified via application.meals had they been certified via application.97105 The result is the percentage of meals served that The result is the percentage of meals served that
will be reimbursed at the free-meal rate, with the remainder reimbursed at the much lower paid-will be reimbursed at the free-meal rate, with the remainder reimbursed at the much lower paid-
meal rate. For example, if a CEP school has an ISP of 40%, then 64% of its meals served would meal rate. For example, if a CEP school has an ISP of 40%, then 64% of its meals served would
be reimbursed at the free-meal rate and 36% would be reimbursed at the paid-meal rate. Schools be reimbursed at the free-meal rate and 36% would be reimbursed at the paid-meal rate. Schools
that identify 62.5% or more students as eligible for free meals receive the free-meal that identify 62.5% or more students as eligible for free meals receive the free-meal
reimbursement for all meals served (62.5% multiplied by 1.6 equals 100%).reimbursement for all meals served (62.5% multiplied by 1.6 equals 100%). Figure 7 provides a provides a
visual representation of the CEP reimbursement formula for participating schools, groups of visual representation of the CEP reimbursement formula for participating schools, groups of
schools, and school districts.
97 Statute allows USDA to set the reimbursement multiplier between 1.3 and 1.6; USDA has set the multiplier at 1.6.
USDA-FNS, “National School Lunch Program and School Breakfast Program: Eliminating Applications Through
Community Eligibility as Required by the Healthy, Hunger-Free Kids Act of 2010,” 81 Federal Register 50194, July
29, 2016, p. 50201.
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School Meals and Other Child Nutrition Programs: Background and Funding
schools, and school districts.
CEP participating schools must recalculate their ISP at least once every four years, but they can CEP participating schools must recalculate their ISP at least once every four years, but they can
choose to do so more frequently if desired.choose to do so more frequently if desired.98106 While eligibility determinations occur every four While eligibility determinations occur every four
years, schools can drop out of CEP at any time.years, schools can drop out of CEP at any time.99
107
CEP is intended to reduce paperwork for families and schools and enable schools to provide more CEP is intended to reduce paperwork for families and schools and enable schools to provide more
free meals. However, the option may or may not be financially beneficial for schools depending free meals. However, the option may or may not be financially beneficial for schools depending
on their proportion of identified students.on their proportion of identified students.
Source: Graphic created by CRS based on current law. Graphic created by CRS based on current law.
Notes: The Identified Student Percentage (ISP) is the percentage of The Identified Student Percentage (ISP) is the percentage ofenrol edenrolled children who are certified for free children who are certified for free
meals without a household application. The ISP is multiplied by 1.6 to calculate the proportion of meals meals without a household application. The ISP is multiplied by 1.6 to calculate the proportion of meals
reimbursed at the free rate; the remainder of meals are reimbursed at the lower paid rate. For free and paid reimbursed at the free rate; the remainder of meals are reimbursed at the lower paid rate. For free and paid
reimbursement rates in school year reimbursement rates in school year2023-2024, see2024-2025, see Table 4.
Provisions 1, 2, and 3
Schools, groups of schools, and school districts can also use Provisions 1, 2, and 3 to establish Schools, groups of schools, and school districts can also use Provisions 1, 2, and 3 to establish
alternative certification and reimbursement procedures. These options are intended to reduce alternative certification and reimbursement procedures. These options are intended to reduce
paperwork for school administrators and families.paperwork for school administrators and families.100108 The options predate CEP, and unlike CEP, The options predate CEP, and unlike CEP,
they still require some household applications. A schoolthey still require some household applications. A school’'s decision to participate in a special s decision to participate in a special
option may depend on financial considerations. There were option may depend on financial considerations. There wereapproximately 1,5004,471 schools schools
operating Provisions 1, 2, or 3 in operating Provisions 1, 2, or 3 inFY2022.101
school year 2023-2024.109 Provision 1 allows schools with high proportions (80% or more) of students eligible for free and allows schools with high proportions (80% or more) of students eligible for free and
reduced-price meals to make free meal eligibility determinations that remain in effect for two reduced-price meals to make free meal eligibility determinations that remain in effect for two
98 7 C.F.R. §245.9(f).
99 7 C.F.R. §245.9(j).
100 USDA-FNS, “Provisions 1, 2, and 3,” May 6, 2014, https://www.fns.usda.gov/school-meals/provisions-1-2-and-3.
101 CRS calculations using preliminary USDA-FNS 742 data for FY2022.
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school years. This reduces the number of applications they have to process (though they still have school years. This reduces the number of applications they have to process (though they still have
to process reduced-price meal applications annually).to process reduced-price meal applications annually).102
110 Provision 2 and and Provision 3 are open to all schools. Similar to CEP, schools, groups of schools, are open to all schools. Similar to CEP, schools, groups of schools,
or school districts must agree to provide free meals (lunches or school districts must agree to provide free meals (lunches or lunches/breakfasts) to all students lunches/breakfasts) to all students
in order to participate in Provision 2 or Provision 3. Under Provision 2, schools are reimbursed in order to participate in Provision 2 or Provision 3. Under Provision 2, schools are reimbursed
over a four-year period over a four-year periodusingby applying the proportion of meals served at a free/reduced-price/paid rate the proportion of meals served at a free/reduced-price/paid rate
during the first yearduring the first year to total meals served in subsequent years. Eligibility determinations in the first year are based on direct certification . Eligibility determinations in the first year are based on direct certification
and household applications (a difference from CEP). Under Provision 3, schools are similarly household applications (a difference from CEP). Under Provision 3, schools are similarly
required to make eligibility determinations in the first year of a four-year period. However, in this required to make eligibility determinations in the first year of a four-year period. However, in this
case, schools receive the same level of federal assistance over the next three years, which is case, schools receive the same level of federal assistance over the next three years, which is
adjusted for enrollment and inflation (there are no separate payments for free/reduced-price/paid adjusted for enrollment and inflation (there are no separate payments for free/reduced-price/paid
meals).meals).103
111 Nutrition Standards and Food Service
Nutrition Standards for School Meals
Nutritional requirements for school meals have changed throughout the history of the school Nutritional requirements for school meals have changed throughout the history of the school
meals programs.meals programs.104112 The most recent child nutrition reauthorization, the HHFKA in 2010, required The most recent child nutrition reauthorization, the HHFKA in 2010, required
USDA to update the nutrition standards for school meals within 18 months of the lawUSDA to update the nutrition standards for school meals within 18 months of the law’'s enactment s enactment
based on recommendations from the Food and Nutrition Board at the National Academies of based on recommendations from the Food and Nutrition Board at the National Academies of
Sciences, Engineering, and Medicine.Sciences, Engineering, and Medicine.105113 The law also provided a The law also provided a “"performance-basedperformance-based”" bonus bonus
reimbursement of 6 cents per lunch (adjusted annually for inflation) for reimbursement of 6 cents per lunch (adjusted annually for inflation) forschoolsschool food authorities certified as certified as
compliant with the updated standards (the rate is compliant with the updated standards (the rate is89 cents in school year cents in school year 2023-2024).
2024-2025) (which nearly all school food authorities receive, as discussed in the "Reimbursement" section).114
USDA published the updated nutrition standards for school meals in 2012.USDA published the updated nutrition standards for school meals in 2012.106115 They were based on They were based on
the 2010 Dietary Guidelines for Americans (per an existing statutory requirement) as well as the the 2010 Dietary Guidelines for Americans (per an existing statutory requirement) as well as the
recommendations from the National Academies of Sciences, Engineering, and Medicine.recommendations from the National Academies of Sciences, Engineering, and Medicine.107116 The The
standards required increased servings of fruits, vegetables, whole grains, and meats/meat standards required increased servings of fruits, vegetables, whole grains, and meats/meat
alternates in lunches and breakfasts. They also restricted milk to unflavored low-fat (1%) and alternates in lunches and breakfasts. They also restricted milk to unflavored low-fat (1%) and
flavored and unflavored fat-free varieties, set limits on calories and sodium in school meals, and flavored and unflavored fat-free varieties, set limits on calories and sodium in school meals, and
prohibited trans fats in school meals, among other changes. Separate from the final rule, USDA
102 Section 11(a)(1) of the NSLA (codified at 42 U.S.C. §1759a(a)(1)); 7 C.F.R. §245.9; USDA-FNS, “Provisions 1, 2,
and 3,” May 6, 2014, https://www.fns.usda.gov/school-meals/provisions-1-2-and-3.
103 Ibid.
104 The current nutrition standards for school meals are located at 7 C.F.R. §210.10 (lunches) and 7 C.F.R. §220.8
(breakfasts).
105 Section 201 of P.L. 111-296. Institute of Medicine, National Academies of Sciences, Engineering, and Medicine,
School Meals: Building Blocks for Healthy Children, Washington, DC, 2010.
106 USDA-FNS, “Nutrition Standards in the National School Lunch and School Breakfast Programs,” 77 Federal
Register 17, January 26, 2012, https://www.federalregister.gov/documents/2012/01/26/2012-1010/nutrition-standards-
in-the-national-school-lunch-and-school-breakfast-programs. For related resources, see USDA-FNS website at
http://www.fns.usda.gov/school-meals/nutrition-standards-school-meals.
107 The 1994 child nutrition reauthorization (P.L. 103-448) required schools to serve meals consistent with the Dietary
Guidelines for Americans. The Dietary Guidelines for Americans are food-based recommendations developed jointly
by USDA and the U.S. Department of Health and Human Services and updated every five years. For more information,
see CRS Report R44360, Dietary Guidelines for Americans: Frequently Asked Questions.
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prohibited trans fats in school meals, among other changes. Separate from the final rule, USDA also implemented a requirement in the HHFKA that schools make water available to children also implemented a requirement in the HHFKA that schools make water available to children
during meal service in the cafeteria.during meal service in the cafeteria.108
117
The revised nutrition standards largely took effect in school year 2012-2013 for lunches and in The revised nutrition standards largely took effect in school year 2012-2013 for lunches and in
school year 2013-2014 for breakfasts. A few requirements phased in over multiple school school year 2013-2014 for breakfasts. A few requirements phased in over multiple school
years.years.109118 Some schools experienced difficulty implementing the new standards. Some schools experienced difficulty implementing the new standards.110119 Subsequent Subsequent
changes to the whole grain, sodium, and milk requirements were made through appropriations changes to the whole grain, sodium, and milk requirements were made through appropriations
acts and USDA rulemaking.acts and USDA rulemaking.111 Most recently (as of the cover date of this report), in February
2023, USDA released a proposed rule that would make120 In April 2024, USDA finalized a rule that made changes to milk, sodium, and whole grain changes to milk, sodium, and whole grain
standards and standards andinstituteinstituted a new limit on added sugars in school meals, among other policies. a new limit on added sugars in school meals, among other policies.112
121
States and school districts are allowed to implement additional nutritional requirements for school States and school districts are allowed to implement additional nutritional requirements for school
meals, as long as they meet the federal standards.meals, as long as they meet the federal standards.
122 Table 5 provides an overview of the federal nutrition standards for school lunches.provides an overview of the federal nutrition standards for school lunches.
Table 5. Summary of the Nutrition Standards for School Lunches
Grades K-5 Grades 6-8 Grades 9-12
as of June 2025
Required offerings per week (minimum per day)a
day)a
Fruits (cups)Fruits (cups)
2.5 (0.5)2.5 (0.5)
2.5 (0.5)2.5 (0.5)
5 (1)5 (1)
Vegetables (cups)Vegetables (cups) (subgroup requirements not shown(subgroup requirements not shown)b
)b
3.75 (0.75)3.75 (0.75)
3.75 (0.75)3.75 (0.75)
5 (1)
Grains (ounce equivalents)c
8-9 (1)
8-10 (1)
10-12 (2)
Grains (ounce equivalents)c
Meats/meat alternates (ounce equivalents)Meats/meat alternates (ounce equivalents)
8-10 (1)8-10 (1)
9-10 (1)9-10 (1)
10-12 (2)10-12 (2)
Fluid milk (Fluid milk (cups)d
5 (1)
5 (1)
5 (1)
cups)d
Daily amount based on average weekly requirement
Minimum-maximum calories (kcalMinimum-maximum calories (kcal)e
)e
550-650550-650
600-700600-700
750-850
108 USDA-FNS, “Revised Child Nutrition Reauthorization 2010: Water Availability During National School Lunch
Program Meal Service,” SP-28-2011, July 12, 2011. Also see USDA-FNS, “Clarification on the Milk and Water
Requirements in the School Meal Programs,” SP 39-2019, September 23, 2019.
109 For the original implementation schedule based on the January 2012 final rule, see USDA-FNS Implementation
Timeline, http://www.fns.usda.gov/sites/default/files/implementation_timeline.pdf.
110 For further background, see CRS Report R45486, Child Nutrition Programs: Issues in the 115th Congress.
111 Appropriations acts in FY2015, FY2016, FY2017, and FY2021 made changes to milk, whole grain, and/or sodium
requirements. In December 2018, USDA under the Trump Administration issued a final rule making changes to such
requirements in school year 2019-2020 forward (these policies are discussed in CRS Insight IN11009, USDA’s Final
Rule on Milk, Whole Grains, and Sodium in School Meals and CRS Report R45486, Child Nutrition Programs: Issues
in the 115th Congress). The December 2018 rule was subsequently vacated by a U.S. District Court (see USDA-FNS,
“Child Nutrition Programs: Rescission of Milk, Whole Grains, and Sodium Flexibilities: Notice of Vacatur” 85 Federal
Register 74847, November 24, 2020), reverting the programs to the milk, sodium, and whole grain policies established
in the 2012 final rule. In February 2022, USDA under the Biden Administration issued a final rule making changes to
the milk, whole grain, and sodium requirements starting in school year 2022-2023 and stating its intentions to issue
further rulemaking for subsequent school years (see USDA-FNS, “Child Nutrition Programs: Transitional Standards for
Milk, Whole Grains, and Sodium,” 87 Federal Register 6984, February 7, 2022).
112 For more information, see CRS Report R47522, USDA’s February 2023 Proposed Rule to Update Nutrition
Standards for School Meals.
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Grades K-5 Grades 6-8 Grades 9-12
Saturated fat (percentage of total calories)
<10%
<10%
<10%
Sodium Interim Target 1 (mg)f
≤1,230
≤1,360
≤1,420
Sodium Interim Target IA (mg)f
≤1,110
≤1,225
≤1,280
Trans fat
Nutrition label or manufacturer specifications
must indicate zero grams of trans fat (less than
0.5 grams) per serving.
Source: Table adapted from 7 C.F.R. §210.10(c) as of October 2023.
a.
elementary school levels to decline up to two components at lunch, except that the students must select at elementary school levels to decline up to two components at lunch, except that the students must select at
least a 0.5 cup of the fruit or vegetable component.least a 0.5 cup of the fruit or vegetable component.
b.
b. Requirements related to vegetable subgroups (dark green, red/orange, legumes, starchy, other) are not Requirements related to vegetable subgroups (dark green, red/orange, legumes, starchy, other) are not
shown. Up to half of the fruit or vegetable offerings may be in the form of 100% juice.shown. Up to half of the fruit or vegetable offerings may be in the form of 100% juice.
c.
c. At least 80% of grains offered weekly must be whole grain-rich (defined as containing at least 50% whole-At least 80% of grains offered weekly must be whole grain-rich (defined as containing at least 50% whole-
grains, and the remaining grain, if any, must be enriched).grains, and the remaining grain, if any, must be enriched).
d.
d. All fluid milk must be low-fat (1% fat or less) or fat-free. Milk may be flavored or unflavored, provided that All fluid milk must be low-fat (1% fat or less) or fat-free. Milk may be flavored or unflavored, provided that
unflavored milk is offeredunflavored milk is offered and limits on added sugars in flavored milk are followed (starting school year 2025-2026). With milk and with other foods, schools . With milk and with other foods, schools must make substitutions for students make substitutions for students
who are considered to have a disability and whose disability restricts their diet, and who are considered to have a disability and whose disability restricts their diet, and may make substitutions make substitutions
for medical or special dietary needs.for medical or special dietary needs.
e.
e. Discretionary sources of calories (solid fats and added sugars) may be added to the meal pattern if within Discretionary sources of calories (solid fats and added sugars) may be added to the meal pattern if within
the specifications for calories, saturated fat, the specifications for calories, saturated fat, trans fat, and sodium.and sodium.
f.
Sodium Interim Target 1 must be met in SY2022-2023. Sodium Interim Target 1A must be met in SY2023-
2024.
Nutrition Standards for Competitive Foods
The HHFKA also required USDA to develop nutrition standards for other foods sold in NSLP- The HHFKA also required USDA to develop nutrition standards for other foods sold in NSLP-
and SBP-participating schools on campus during the school day. These foods are known as and SBP-participating schools on campus during the school day. These foods are known as
competitive foods (i.e., foods sold in competition with school meals). Competitive foods include (i.e., foods sold in competition with school meals). Competitive foods include
foods and drinks sold in vending machines, a la carte lines, snack bars and concession stands, and foods and drinks sold in vending machines, a la carte lines, snack bars and concession stands, and
school fundraisers. These foods do not receive a federal reimbursement. The HHFKA required school fundraisers. These foods do not receive a federal reimbursement. The HHFKA required
USDA to publish proposed nutrition standards for competitive foods within one year of the lawUSDA to publish proposed nutrition standards for competitive foods within one year of the law’s
's enactment and align the standards with the most recent Dietary Guidelines for Americans.enactment and align the standards with the most recent Dietary Guidelines for Americans.
Relying on recommendations made by the National Academies of Sciences, Engineering, and Relying on recommendations made by the National Academies of Sciences, Engineering, and
Medicine, FNS promulgated a proposed rule in April 2013 and then an interim final rule in June Medicine, FNS promulgated a proposed rule in April 2013 and then an interim final rule in June
2013, which went into effect in school year 2014-2015.2013, which went into effect in school year 2014-2015.113123 The interim final rule created nutrition The interim final rule created nutrition
standards for all non-meal foods and beverages that are sold during the school day (defined as standards for all non-meal foods and beverages that are sold during the school day (defined as
midnight until 30 minutes after dismissal). The final rule, published in July 2016, maintained the midnight until 30 minutes after dismissal). The final rule, published in July 2016, maintained the
113 Institute of Medicine, National Academies of Sciences, Engineering, and Medicine, Nutrition Standards for Foods
in Schools: Leading the Way toward Healthier Youth, 2007, https://www.nap.edu/catalog/11899/nutrition-standards-
for-foods-in-schools-leading-the-way-toward; USDA-FNS, “Interim Rule: NSLP and SBP Nutrition Standards for All
Foods Sold in Schools as Required by the Healthy, Hunger-Free Kids Act of 2010,” 78 Federal Register 79567,
December 31, 2013, https://www.federalregister.gov/documents/2013/12/31/2013-31350/national-school-lunch-
program-and-school-breakfast-program-nutrition-standards-for-all-foods-sold-in.
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interim final rules with minor changes.114interim final rules with minor changes.124 Under the final standards, competitive foods must have Under the final standards, competitive foods must have
certain primary ingredients, meet whole-grain requirements, and comply with calorie, sugar, certain primary ingredients, meet whole-grain requirements, and comply with calorie, sugar,
sodium, and fat limits, among other criteria. Schools are also limited to a list of sodium, and fat limits, among other criteria. Schools are also limited to a list ofzero- and low-
caloriespecific beverages they may sell (with larger portion sizes and caffeine allowed in high schools). beverages they may sell (with larger portion sizes and caffeine allowed in high schools).115
125 The April 2024 final rule (discussed previously) further limited added sugars in milks sold as competitive beverages and exempted bean/hummus dips from fat limits.126
Fundraisers held outside of the school day and fundraisers in which the food sold is clearly not Fundraisers held outside of the school day and fundraisers in which the food sold is clearly not
intended for consumption on campus during the school day are not subject to the competitive intended for consumption on campus during the school day are not subject to the competitive
food nutrition standards. In addition, the law and the final rule provided states with discretion to food nutrition standards. In addition, the law and the final rule provided states with discretion to
exempt infrequent fundraisers selling foods or beverages that do not meet the nutrition standards.exempt infrequent fundraisers selling foods or beverages that do not meet the nutrition standards.
The federal standards are minimum standards, and states and school districts are permitted to The federal standards are minimum standards, and states and school districts are permitted to
issue more stringent policies. Many districts already had local competitive food standards in place issue more stringent policies. Many districts already had local competitive food standards in place
prior to the HHFKA because of the 2004 child nutrition reauthorization law (P.L. 108-265), which prior to the HHFKA because of the 2004 child nutrition reauthorization law (P.L. 108-265), which
required local educational agencies to implement local school wellness policies required local educational agencies to implement local school wellness policies (discussed in the next section) that included that included
nutritional guidelines for foods sold in schoolsnutritional guidelines for foods sold in schools (local school wellness policies are discussed in the
“Other Child Nutrition Activities” section).
. Local School Wellness Policies
Local educational agencies participating in the school meals programs are required to have aLocal educational agencies participating in the school meals programs are required to have a local local
school wellness policy, which sets nutrition and health-related goals and guidelines for schools school wellness policy, which sets nutrition and health-related goals and guidelines for schools
within the jurisdiction.within the jurisdiction.116127 Local school wellness policies must include goals related to nutrition Local school wellness policies must include goals related to nutrition
and physical activity, nutrition standards for school foods that meet or exceed federal nutrition and physical activity, nutrition standards for school foods that meet or exceed federal nutrition
standards, and an implementation plan, among other content. Local educational agencies must standards, and an implementation plan, among other content. Local educational agencies must
provide opportunities for input from parents, students, school nutrition professionals, physical provide opportunities for input from parents, students, school nutrition professionals, physical
education teachers, school health professionals, school administrators, and the general public in education teachers, school health professionals, school administrators, and the general public in
developing and updating local school wellness policies.developing and updating local school wellness policies.
Food Procurement and Preparation
The majority of foods used in the school meal programs are purchased by school food authorities The majority of foods used in the school meal programs are purchased by school food authorities
using federal cash reimbursements or other funds. School food authorities also receive USDA using federal cash reimbursements or other funds. School food authorities also receive USDA
Foods (as discussed previously). School food authorities must comply with federal procurement Foods (as discussed previously). School food authorities must comply with federal procurement
rules when purchasing foods for the school meals programs.rules when purchasing foods for the school meals programs.117128 In addition, there is a In addition, there is a “"Buy American"Buy
American” requirement in statute that requires schools participating in the school meal programs requirement in statute that requires schools participating in the school meal programs
to purchase domestic commodities and products to purchase domestic commodities and products“"to the maximum extent practicable."129 to the maximum extent practicable.”118
114 USDA-FNS, “National School Lunch Program and School Breakfast Program: Nutrition Standards for All Foods
Sold in School as Required by the Healthy, Hunger-Free Kids Act of 2010; Final Rule,” 81 Federal Register 50131,
July 29, 2016, https://www.federalregister.gov/documents/2016/07/29/2016-17227/national-school-lunch-program-
and-school-breakfast-program-nutrition-standards-for-all-foods-sold-in. Related resources are available at the USDA-
FNS website, https://www.fns.usda.gov/school-meals/tools-schools-focusing-smart-snacks.
115 7 C.F.R. §210.11.
116 The 2004 child nutrition reauthorization created the requirement that local educational agencies establish school
wellness policies, and the HHFKA expanded requirements around local school wellness policies. Section 9A of the
Richard B. Russell National School Lunch Act (42 U.S.C. §1758b); 7 C.F.R. §210.31.
117 7 C.F.R. §210.21.
118 Section 12(n) of the NSLA (42 U.S.C. §1760(n)). USDA has issued guidance on the implementation of this
provision; see USDA-FNS, “Compliance with and Enforcement of the Buy American Provision in the National School
Lunch Program,” SP 38-2017, June 2017, https://www.fns.usda.gov/school-meals/compliance-enforcement-buy-
american. For further discussion, see CRS Report R45486, Child Nutrition Programs: Issues in the 115th Congress.
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Purchases may include local foods, as long as they comply with federal, state, and local Purchases may include local foods, as long as they comply with federal, state, and local
procurement regulations.procurement regulations.119
130
Many school food authorities purchase and prepare their own meals, either at a centralized district Many school food authorities purchase and prepare their own meals, either at a centralized district
kitchen or onsite at individual schools.kitchen or onsite at individual schools.120131 Alternatively, school food authorities may contract with Alternatively, school food authorities may contract with
a private food service management company to contract out procurement and/or meal a private food service management company to contract out procurement and/or meal
preparation.preparation.121132 The contracted company must comply with all school meal regulations and the The contracted company must comply with all school meal regulations and the
school food authority must retain general control over the operation of the school meals school food authority must retain general control over the operation of the school meals
programs, including financial oversight and compliance with nutrition standards.programs, including financial oversight and compliance with nutrition standards.122
133 Meal Times and Settings
In general, lunches and breakfasts are intended to be consumed onsite during the school day.In general, lunches and breakfasts are intended to be consumed onsite during the school day.123
134 Surveys have found that schools typically provide roughly 20 minutes for breakfast and 25-30 Surveys have found that schools typically provide roughly 20 minutes for breakfast and 25-30
minutes for lunch.minutes for lunch.124
135
Under SBP, students were traditionally required to arrive early for breakfast and eat it in the Under SBP, students were traditionally required to arrive early for breakfast and eat it in the
cafeteria. However, in recent years, schools and states have increasingly adopted alternative cafeteria. However, in recent years, schools and states have increasingly adopted alternative
models of breakfast service such as breakfast in the classroom, grab-and-go carts, and breakfast models of breakfast service such as breakfast in the classroom, grab-and-go carts, and breakfast
during morning breaks. Anti-hunger advocacy groups have encouraged the adoption of new during morning breaks. Anti-hunger advocacy groups have encouraged the adoption of new
models of breakfast service as a way to increase SBP participation.models of breakfast service as a way to increase SBP participation.125136 According to a 2018 survey According to a 2018 survey
by the School Nutrition Association (SNA), a membership and advocacy organization, more than by the School Nutrition Association (SNA), a membership and advocacy organization, more than
half of surveyed school districts offered both a traditional cafeteria line and alternative modes of half of surveyed school districts offered both a traditional cafeteria line and alternative modes of
breakfast service, while 43% of schools offered a cafeteria line only. Common alternatives were
119 For more information, see CRS Report R43950, Local Food Systems: Selected Farm Bill and Other Federal
Programs.
120 A nationally representative study by USDA in school year 2014-2015 found that nearly 80% of public schools
participating in NSLP cooked meals onsite, with the remainder receiving partially or fully prepared meals from a
central kitchen or other production facility (USDA-FNS, Office of Policy Support, School Nutrition and Meal Cost
Study, Final Report Volume 1: School Meal Program Operations and School Nutrition Environments, Prepared by
Mathematica Policy Research and Abt Associates, April 2019, p. A.45, https://fns-prod.azureedge.net/sites/default/
files/resource-files/SNMCS-Volume1.pdf).
121 The USDA study in school year 2014-2015 (ibid, p. A.59) found that 19.7% of public school food authorities used a
food service management company. They were most commonly tasked with menu planning, preparing and serving
meals, and overseeing private employees. A more recent, nationally representative survey conducted by USDA in
school year 2016-2017 found that 26.2% of public school food authorities used a food service management company
(USDA-FNS, Study of School Food Authority Procurement Practices, prepared by 2M Research, September 22, 2021,
p. 44, https://www.fns.usda.gov/cn/study-school-food-authority-procurement-practices).
122 USDA-FNS, “Contracting with Food Service Management Companies: Guidance for School Food Authorities,”
SP40, CACFP12, SFSP14-2016, May 2016, https://www.fns.usda.gov/updated-guidance-contracting-food-service-
management.
123 USDA-FNS, “Clarification of the Policy on Food Consumption Outside of Foodservice Area, and the Whole Grain-
Rich Requirement,” April 2014, https://fns-prod.azureedge.net/sites/default/files/cn/SP41-2014os.pdf.
124 USDA-FNS Office of Policy Support, Special Nutrition Program Operations Study: State and School Food
Authority Policies and Practices for School Meals Programs School Year 2011-12, March 2014, https://fns-
prod.azureedge.net/sites/default/files/SNOPSYear1.pdf; and School Nutrition Association, School Nutrition Operations
Report: The State of School Nutrition 2018, August 2018.
125 For example, see Food Research and Action Center (FRAC), “School Breakfast Expansion Strategies,”
http://www.frac.org/programs/school-breakfast-program/school-breakfast-expansion-strategies; and Share Our
Strength, “2017-2018 State-level Policy and Legislative Trends,” http://bestpractices.nokidhungry.org/policy-and-
advocacy/school-breakfast.
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breakfast service, while 43% of schools offered a cafeteria line only. Common alternatives were grab-and-go stations (particularly in middle and high schools) and breakfast in the classroom grab-and-go stations (particularly in middle and high schools) and breakfast in the classroom
(particularly in elementary schools).(particularly in elementary schools).126
137 School Meal Equipment Assistance Grants
At different points in the school meals programsAt different points in the school meals programs’' history, specific funds have been provided for history, specific funds have been provided for
cafeteria equipment purchases (per-meal reimbursements may also cover equipment costs). Since cafeteria equipment purchases (per-meal reimbursements may also cover equipment costs). Since
FY2013, annual appropriations acts have provided funding for school meal equipment assistance FY2013, annual appropriations acts have provided funding for school meal equipment assistance
grants to help schools prepare meals that comply with updated nutrition standards, improve food grants to help schools prepare meals that comply with updated nutrition standards, improve food
safety, and support the establishment, maintenance, or expansion of school breakfast programs safety, and support the establishment, maintenance, or expansion of school breakfast programs
($30($10 million was provided for million was provided for FY2023).127FY2024, down from $30 million in FY2023).138 These grants are awarded by FNS to state agencies, These grants are awarded by FNS to state agencies,
which distribute funds to school food authorities on a competitive basis.128
School Breakfast Expansion Grants
The HHFKA authorized competitive grants to states to help school districts “establish, maintain,
or expand the school breakfast program.”129 The law provides priority for school districts carrying
out projects in schools where at least 75% of students qualify for free or reduced-price meals and
those that have adopted or commit to adopting effective strategies to increase breakfast
participation, as identified by FNS. Appropriations acts in FY2020, FY2021, FY2022, and
FY2023 provided $5 million, $6 million, $6 million, and $3 million for these grants,
respectively.130 USDA awarded funds to four states and one territory in FY2021, and one territory
in FY2022.131
which distribute funds to school food authorities on a competitive basis.139 Child and Adult Care Food Program (CACFP)
CACFP provides federal reimbursements for meals and snacks served in approximately CACFP provides federal reimbursements for meals and snacks served in approximately140135,000 ,000
child care centers, day care homes, and adult day care centers nationwide in a typical year (see child care centers, day care homes, and adult day care centers nationwide in a typical year (see
Table 6 for participation by type of institution).for participation by type of institution).132140 Reimbursements are Reimbursements are generally provided for meals and provided for meals and
snacks served to children ages 12 and undersnacks served to children ages 12 and under, children of any age with disabilities, and chronically and chronically
disabled and elderly adults.disabled and elderly adults.133141 CACFP also supports free meals and snacks for children ages 18 and under in emergency shelters and afterschool programs in low-income areas (discussed in the "After-School Meals and Snacks" section).142
CACFP also supports free meals and snacks for children ages 18
126 School Nutrition Association, School Nutrition Operations Report: The State of School Nutrition 2018, August
2018.
127 The American Recovery and Reinvestment Act (P.L. 111-5) provided $100 million for school meals equipment
assistance grants, which was spent in FY2009-FY2011. Appropriations acts in FY2010 and from FY2013 to FY2023
have provided subsequent funding for these grants.
128 For example, see USDA-FNS, “FY 2023 National School Lunch Program Equipment Assistance Grants for School
Food Authorities,” August 3, 2023, https://www.fns.usda.gov/nslp/fy-2023-equipment-assistance-grants.
129 Section 23 of the Child Nutrition Act of 1966 (42 U.S.C. §1793).
130 P.L. 116-94, P.L. 116-260, P.L. 117-103, and P.L. 117-328. The FY2020 and FY2023 laws included a $1 million
reservation and the FY2021 and FY2022 laws included a $2 million reservation of funds for Puerto Rico, the
Commonwealth of the Northern Mariana Islands, the U.S. Virgin Islands, Guam, and American Samoa.
131 USDA-FNS, “2023 USDA Explanatory Notes–Food and Nutrition Service,” p. 35-35, https://www.usda.gov/sites/
default/files/documents/35-2023-FNS.pdf; USDA-FNS, “2024 USDA Explanatory Notes–Food and Nutrition Service,”
p. 35-39, https://www.usda.gov/sites/default/files/documents/35-2024-FNS.pdf.
132 FY2022 data from USDA-FNS, “June 2023 Keydata Report,” September 8, 2023.
133 Reimbursements are also available for meals/snacks served to migrant children ages 15 or under and children with
disabilities of any age. Elderly is defined as individuals age 60 or older. 7 C.F.R. §226.2.
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and under in emergency shelters and afterschool programs in low-income areas (discussed in the
“After-School Meals and Snacks” section).134
In general, CACFP provides cash reimbursements for up to two meals and one snack or one meal In general, CACFP provides cash reimbursements for up to two meals and one snack or one meal
and two snacks per participant daily (a meal may be a breakfast, lunch, or supper).and two snacks per participant daily (a meal may be a breakfast, lunch, or supper).135143 A smaller A smaller
share of federal aid takes the form of commodity assistance or cash in lieu of commodities and share of federal aid takes the form of commodity assistance or cash in lieu of commodities and
funds for administrative costs (discussed previously).funds for administrative costs (discussed previously).136144 The eligibility and funding rules of The eligibility and funding rules of
CACFP differ for centers (facilities or institutions) and day care homes (private homes). Day care CACFP differ for centers (facilities or institutions) and day care homes (private homes). Day care
homes must be overseen by sponsoring organizations, which handle the financial and homes must be overseen by sponsoring organizations, which handle the financial and
administrative functions of the program for local providers. Centers have the option of operating administrative functions of the program for local providers. Centers have the option of operating
independently or under a sponsor.independently or under a sponsor.
Both centers and day care homes must comply with government-established standards for other Both centers and day care homes must comply with government-established standards for other
child care programs and meet federal CACFP nutrition standards.child care programs and meet federal CACFP nutrition standards.137
145
Table 6. CACFP Participation: Centers and Day Care Homes, FY2022
Average Number of
Participants Per
Outlets
Participants
Institution
Day care homes
74,100
571,300
8
Child care centers
64,600
4,102,300
64
Adult day care centers
2,300
114,000
50
Source: USDA-FNS, “June 2023 Keydata Report,” September 8, 2023.
FY2024
participants per institutions participants per institutionsestimatedcalculated by CRS. Total number of outlets and participants are rounded to the by CRS. Total number of outlets and participants are rounded to the
nearest hundreds. nearest hundreds.Data are preliminary for FY2022.
Administration
Administration At the local level, sponsor organizations administer CACFP for all participating day care homes At the local level, sponsor organizations administer CACFP for all participating day care homes
and centers that elect to have a sponsor. Sponsors are responsible for conducting audits of and centers that elect to have a sponsor. Sponsors are responsible for conducting audits of
providers, distributing federal reimbursements, and in some instances, preparing and distributing
134 For more information on CACFP for emergency shelters, see https://www.fns.usda.gov/participation-emergency-
shelters-child-and-adult-care-food-program-cacfp—questions-and-answers.
135 Section 17(f)(2)(B) of the NSLA (42 U.S.C. §1766(f)(2)(B)). Emergency shelters can receive reimbursement for up
to three meals per day per child.
136 In CACFP, states may request any amount of cash-in-lieu of commodities per Section 17(h)(1)(D) of the NSLA
(codified at 42 U.S.C. §1766(h)(1)(D)).
137 Section 17(a)(5) of the NSLA (codified at 42 U.S.C. §1766(a)(5)); 7 C.F.R. §226.6(d). All CACFP-participating
child care centers and homes must be licensed child care providers. If federal, state, or local licensing is not available,
the institution must comply with federal, state, or local child care standards. Emergency shelters are not subject to this
requirement but they must meet state or local health and safety standards.
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meals.138providers, distributing federal reimbursements, and in some instances, preparing and distributing meals.146 They can be public or nonprofit institutions or, in some cases, for-profit institutions. They can be public or nonprofit institutions or, in some cases, for-profit institutions.139
147 Centers that choose to handle their own administrative responsibilities are referred to as Centers that choose to handle their own administrative responsibilities are referred to as
independent centers.independent centers.
Unlike centers, day care homes are required to have a sponsor organization. Sponsors receive Unlike centers, day care homes are required to have a sponsor organization. Sponsors receive
monthly federal administrative payments based on the number of homes for which they are monthly federal administrative payments based on the number of homes for which they are
responsible (sponsors, on average, have more than 100 day care homes under their responsible (sponsors, on average, have more than 100 day care homes under their
supervision).supervision).140148 They may also receive a portion of the per-meal reimbursement if they have an They may also receive a portion of the per-meal reimbursement if they have an
agreement with the day care home to prepare meals.agreement with the day care home to prepare meals.141149 If a center opts to have a sponsor, the If a center opts to have a sponsor, the
sponsor may retain a portion of the per-meal reimbursements for its administrative expenses.sponsor may retain a portion of the per-meal reimbursements for its administrative expenses.142
150
In CACFP, the state administering agency is typically the state department of education or In CACFP, the state administering agency is typically the state department of education or
department of health and/or human services.department of health and/or human services.143151 The state agency distributes federal funds and The state agency distributes federal funds and
conducts reviews of CACFP sponsor organizations and independent centers.conducts reviews of CACFP sponsor organizations and independent centers.144
152
Similar to the school meals programs, FNS provides oversight of state agencies and issues Similar to the school meals programs, FNS provides oversight of state agencies and issues
guidance and regulations to states and providers.guidance and regulations to states and providers.
Eligibility and Reimbursement
CACFP Centers
The following institutions are eligible to participate as centers in CACFP:The following institutions are eligible to participate as centers in CACFP:
• public or private public or private nonprofit (tax exempt) organizations providing nonresidential (tax exempt) organizations providing nonresidential
child care or adult day care (including school food authorities and Head Start child care or adult day care (including school food authorities and Head Start
centers),centers),145
• 153
private private for-profit organizations providing nonresidential child care or adult day organizations providing nonresidential child care or adult day
care that enroll a certain proportion of low-income participants,146 and
138 Per statute, sponsors must make at least one scheduled visit to sponsored day care homes and centers each year and
periodic unannounced site visits at not less than three-year intervals (Section 17(d)(2) of the NSLA [codified at 42
U.S.C. §1766(d)(2)]). Per regulations, sponsors must make at least three site visits each year, two of which must be
unannounced, with limited exceptions (7 C.F.R. §226.16(d)(4)(iii)). CACFP has a “serious deficiency” process that
outlines the procedures involved in terminating an institution or provider from CACFP, which involves corrective
action plans and hearings (Section 17(d)(5) of the NSLA [codified at 42 U.S.C. §1766(d)(5)]).
139 For-profit institutions may be sponsors of for-profit centers if they are part of the same legal entity. Section
17(a)(2)(D) of the NSLA (codified at 42 U.S.C. §1766(a)(2)(D)).
140 The number of day care homes divided by the number of sponsors of day care homes. USDA-FNS, “June 2023
Keydata Report,” September 8, 2023.
141 See program regulations at 7 C.F.R. §226.13.
142 Sponsors of centers may retain up to 15% of the per-meal reimbursements for administrative expenses. They may
also request a state waiver to exceed this limit. See program regulations at 7 C.F.R. §226.7(g).
143 For a list of CACFP state administering agencies, see USDA-FNS, “CACFP: Contacts,” https://www.fns.usda.gov/
contacts.
144 State agencies must annually review at least one-third of sponsors/independent centers. Further rules are specified at
7 C.F.R. §226.6(m).
145 Section 17(a)(2) of the NSLA (codified at 42 U.S.C. §1766(a)(2)). Private nonprofit institutions must have tax-
exempt status under the Internal Revenue Code of 1986 per program regulations (7 C.F.R. §226.15).
146 Section 17(a)(2) and Section 17(d)(1)(B) of the NSLA (codified at 42 U.S.C. §1766(a)(2), (d)(1)(B)). Private for-
profit institutions qualify if at least 25% of enrolled children meet the income eligibility criteria for free or reduced-
price school meals, if the institution receives compensation under the Social Services Block Grant for at least 25% of
its enrolled children, or if at least 25% of enrolled adults are Medicaid or Social Services Block Grant beneficiaries.
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• care that enroll a certain proportion of low-income participants,154 and
emergency shelters for homeless families.emergency shelters for homeless families.147
155Adult day care centers and outside school hour centers fall under the first two categories, but they Adult day care centers and outside school hour centers fall under the first two categories, but they
are subject to specific federal regulations.are subject to specific federal regulations.148
156
Income eligibility rules for CACFP centers are the same as the school meals programs: Income eligibility rules for CACFP centers are the same as the school meals programs:
participants in households at or below 130% of the poverty line qualify for free meals and snacks participants in households at or below 130% of the poverty line qualify for free meals and snacks
and those between 130% and 185% of the poverty line qualify for reduced-price meals and and those between 130% and 185% of the poverty line qualify for reduced-price meals and
snacks (a charge of no more than 40 cents for a lunch or supper, 30 cents for a breakfast, and 15 snacks (a charge of no more than 40 cents for a lunch or supper, 30 cents for a breakfast, and 15
cents for a snack).cents for a snack).149157 CACFP centers also use similar categorical eligibility criteria, including CACFP centers also use similar categorical eligibility criteria, including
participation in Head Start, foster child status, and household participation in SNAP, FDPIR, or participation in Head Start, foster child status, and household participation in SNAP, FDPIR, or
TANF assistance. Adults are categorically eligible if they participate in SNAP, FDPIR, TANF assistance. Adults are categorically eligible if they participate in SNAP, FDPIR,
Supplemental Security Income (SSI), or Medicaid.Supplemental Security Income (SSI), or Medicaid.150158 Eligibility is determined through paper Eligibility is determined through paper
applications or, in some states, direct certification-like processes.applications or, in some states, direct certification-like processes.
For CACFP centers, the reimbursement rates for breakfasts and lunches/suppers are the same as For CACFP centers, the reimbursement rates for breakfasts and lunches/suppers are the same as
the SBP breakfast reimbursement rate and NSLP lunch reimbursement rate, respectively.the SBP breakfast reimbursement rate and NSLP lunch reimbursement rate, respectively.159 The The
largest subsidies are provided for free and reduced-price meals and snacks, while paid meals largest subsidies are provided for free and reduced-price meals and snacks, while paid meals
receive a lower reimbursement.receive a lower reimbursement.151160 Unlike the school meals programs, CACFP allows centers Unlike the school meals programs, CACFP allows centers
certain flexibilities for tracking meal counts and submitting claims for reimbursement.certain flexibilities for tracking meal counts and submitting claims for reimbursement.152
161
Compared to school meals, CACFP centers are also less likely to collect meal payments from Compared to school meals, CACFP centers are also less likely to collect meal payments from
participants and more likely to incorporate meal costs into tuition. Centers are not required to participants and more likely to incorporate meal costs into tuition. Centers are not required to
adjust tuition and fees to account for CACFP funding. Centers are also allowed to charge families adjust tuition and fees to account for CACFP funding. Centers are also allowed to charge families
separately for meals and snacks, as long as there are no charges for children who qualify for free separately for meals and snacks, as long as there are no charges for children who qualify for free
meals and limited charges for those who qualify for reduced-price meals.meals and limited charges for those who qualify for reduced-price meals.153
162 CACFP Day Care Homes
Day care homes are private homes that provide nonresidential child care services. In general, any Day care homes are private homes that provide nonresidential child care services. In general, any
day care home that meets local, state, or federal child care standards may participate in CACFP.day care home that meets local, state, or federal child care standards may participate in CACFP.
Unlike centers, day care homes generally do not make eligibility determinations and receive the Unlike centers, day care homes generally do not make eligibility determinations and receive the
same reimbursement rate for every meal served. Day care homes located in a low-income area or same reimbursement rate for every meal served. Day care homes located in a low-income area or
with a low-income provider receive a higher, Tier I reimbursement rate (shown inwith a low-income provider receive a higher, Tier I reimbursement rate (shown in Table 7). To . To
receive the Tier I rate, the home must be located in an area in which at least 50% of children are receive the Tier I rate, the home must be located in an area in which at least 50% of children are
eligible for free or reduced-price meals or be operated by a provider whose household income
147 Section 17(a)(2) and Section 17(t) of the NSLA (codified at 42 U.S.C. §1766(a)(2), (t)). Emergency shelters are
facilities that provide temporary housing as defined in the McKinney-Vento Homeless Assistance Act (42 U.S.C.
§11351).
148 7 C.F.R. §226.19; 7 C.F.R. §226.19a.
149 Section 17(c)(4) of the NSLA (codified at 42 U.S.C. §1766(c)(4)); 7 C.F.R. §226.2.
150 See definition of “free meal” at 7 C.F.R. §226.2. Statute provides categorical eligibility for adults who are members
of a household receiving assistance under the Food and Nutrition Act of 2008 (7 U.S.C. §2011 et seq.) and recipients of
SSI or Medicaid. Section 17(o)(5) of the NSLA (codified at 42 U.S.C. §1766(o)(5)). Also see a summary of CACFP
eligibility rules at the USDA-FNS website, http://www.fns.usda.gov/cacfp/why-cacfp-important.
151 Section 17(c) of the NSLA (codified at 42 U.S.C. §1766(c)).
152 7 C.F.R. §226.9. Also see USDA-FNS, Independent Child Care Centers Handbook: A CACFP Handbook, May
2014, pp. 46-51, https://www.fns.usda.gov/cacfp/cacfp-handbooks.
153 7 C.F.R. §226.6(f)(1)(i). Also see USDA-FNS, Independent Child Care Centers Handbook: A CACFP Handbook,
May 2014, pp. 18-19, https://www.fns.usda.gov/cacfp/cacfp-handbooks.
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eligible for free or reduced-price meals or be operated by a provider whose household income level meets the free or reduced-price income standards.level meets the free or reduced-price income standards.154163 Day care homes that do not qualify for Day care homes that do not qualify for
Tier I rates receiveTier I rates receive Tier II (lower) rates. However, Tier II providers may seek the higher Tier I Tier II (lower) rates. However, Tier II providers may seek the higher Tier I
subsidies for individual low-income children for whom household income information is subsidies for individual low-income children for whom household income information is
collected and verified.collected and verified.
Like centers, CACFP-participating day care homes may incorporate meal costs into tuition. Like centers, CACFP-participating day care homes may incorporate meal costs into tuition.
Unlike centers, federal rules prohibit any separate meal charges.Unlike centers, federal rules prohibit any separate meal charges.155
164 Table 7. Reimbursement Rates: CACFP Centers and Day Care Homes
Per-Meal/Snack Reimbursement for the 48 Contiguous States and the District of Columbia, Per-Meal/Snack Reimbursement for the 48 Contiguous States and the District of Columbia,
School Year 2023-2024
Breakfast
Lunch/Supper
Snack
Centers
Free
$2.28
$4.25
$1.17
Reduced-price
$1.98
$3.85
$0.58
Paid
$0.38
$0.40
$0.10
Day Care Homes
Tier I
$1.65
$3.12
$0.93
Tier II
$0.59
$1.88
$0.25
Sources: USDA FNS, “School Year 2024-2025
Sources: USDA FNS, "CACFP: National Average Payment Rates, Day Care Home Food Service Payment Rates, CACFP: National Average Payment Rates, Day Care Home Food Service Payment Rates,
and Administrative Reimbursement Rates for Sponsoring Organizations of Day Care Homes for the Period July and Administrative Reimbursement Rates for Sponsoring Organizations of Day Care Homes for the Period July
1, 20231, 2024 Through June 30, Through June 30, 2024,” 882025," 89 Federal Register 4326456724, July , July 7, 2023. Separate rates are provided10, 2024.
Note: For historical reimbursement rates, rates for Alaska, for Alaska,
Guam, Hawaii, Puerto Rico, and the U.S. Virgin IslandsGuam, Hawaii, Puerto Rico, and the U.S. Virgin Islands. For historical program reimbursement rates, and administrative payment rates for sponsors of day care homes, see , see
http://www.fns.usda.gov/cacfp/reimbursement-rateshttp://www.fns.usda.gov/cacfp/reimbursement-rates..
Note: Table does not show monthly administrative payments to sponsoring organizations of day care homes.
Nutrition Standards and Food Service
Nutrition Standards
In addition to nutrition standards for school foods, the HHFKA required the Secretary of In addition to nutrition standards for school foods, the HHFKA required the Secretary of
Agriculture to update CACFPAgriculture to update CACFP’'s meal patterns. USDAs meal patterns. USDA’'s final rule, effective October 1, 2017, s final rule, effective October 1, 2017,
revised the meal patterns for meals and snacks served in centers and day care homes.revised the meal patterns for meals and snacks served in centers and day care homes.156165 It also It also
aligned nutrition standards for meals served to preschool-aged children through NSLP and SBP.aligned nutrition standards for meals served to preschool-aged children through NSLP and SBP.
For infants (under 12 months of age), the new meal patterns eliminated juice, encouraged For infants (under 12 months of age), the new meal patterns eliminated juice, encouraged
breastfeeding, and set guidelines for the introduction of solid foods, among other changes. For
154 Section 17(f)(3)(A)(ii)(I) of the NSLA (codified at 42 U.S.C. §1766(f)(3)(A)(ii)(I)). Sponsoring organizations may
use school data (provided by the state agency) to demonstrate that at least 50% of children in the day care home’s area
are eligible for free/reduced-price meals, or use Census data (provided by FNS) to demonstrate that at least 50% of
children in the area are members of households that meet the income standards for free or reduced-price meals. See
USDA-FNS, Area Eligibility in Child Nutrition Programs, CACFP04-2017, December 1, 2016,
https://www.fns.usda.gov/area-eligibility-child-nutrition-programs.
155 7 C.F.R. §226.18(d).
156 USDA-FNS, “Child and Adult Care Food Program: Meal Pattern Revisions Related to the Healthy, Hunger-Free
Kids Act of 2010: Final Rule,” 81 Federal Register 24348 et seq., April 25, 2016, https://www.federalregister.gov/
documents/2016/04/25/2016-09412/child-and-adult-care-food-program-meal-pattern-revisions-related-to-the-healthy-
hunger-free-kids-act.
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breastfeeding, and set guidelines for the introduction of solid foods, among other changes. For children ages one and older and adult participants, the new meal patterns increased whole grains, children ages one and older and adult participants, the new meal patterns increased whole grains,
fruits, and vegetables, limited milk to certain fruits, and vegetables, limited milk to certainvarieties157varieties166, limited sugar in cereals and yogurts, limited sugar in cereals and yogurts167, and , and
prohibited deep-fried foods. They also required that potable water be available to children prohibited deep-fried foods. They also required that potable water be available to children
throughout the day.throughout the day.
Procurement and Meal Service
CACFP institutions may purchase their own foods and prepare their own meals, or they may CACFP institutions may purchase their own foods and prepare their own meals, or they may
contract with a school or a food service management company that prepares meals for them. In contract with a school or a food service management company that prepares meals for them. In
either case, institutions must comply with federal, state, and local procurement regulations.either case, institutions must comply with federal, state, and local procurement regulations.158168 As As
noted previously, CACFP institutions also receive a certain amount of USDA Foods.noted previously, CACFP institutions also receive a certain amount of USDA Foods.
Meals must comply with state or local health, safety, and sanitation requirements for storing, Meals must comply with state or local health, safety, and sanitation requirements for storing,
preparing, and serving food, and institutions must acquire annual food safety inspections. Family-preparing, and serving food, and institutions must acquire annual food safety inspections. Family-
style meal service style meal service (where children can serve themselves from shared bowls or platters) is encouraged in CACFP.is encouraged in CACFP.159
169 Summer Food
The SFSP and the Seamless Summer Option (SSO) provide federal reimbursements for summer The SFSP and the Seamless Summer Option (SSO) provide federal reimbursements for summer
meals.meals.160170 SFSP is open to school food authorities, local public agencies, and private nonprofit SFSP is open to school food authorities, local public agencies, and private nonprofit
organizations, while SSO is specifically for school food authorities, allowing them to continue organizations, while SSO is specifically for school food authorities, allowing them to continue
operating under certain NSLP/SBP requirements into the summer. The programs share many of operating under certain NSLP/SBP requirements into the summer. The programs share many of
the same requirements, including a requirement that children consume meals onsite—known as the same requirements, including a requirement that children consume meals onsite—known as
the the“"congregate feedingcongregate feeding”" requirement—except in rural areas (discussed further below). requirement—except in rural areas (discussed further below).161
171 Summer food benefits for households with school-age children are also available through the Summer food benefits for households with school-age children are also available through the
Summer Electronic Benefits Transfer for Children (Summer EBT)Summer EBT program, which was program, which was
permanently authorized by the FY2023 Consolidated Appropriations Act (P.L. 117-328permanently authorized by the FY2023 Consolidated Appropriations Act (P.L. 117-328).).
During the COVID-19 pandemic, the summer meals programs were used during the school year During the COVID-19 pandemic, the summer meals programs were used during the school year
to facilitate free meal service (not discussed in this section).162
157 The original rule limited milk to unflavored whole milk for one-year-olds, unflavored low-fat (1%) or fat-free
(skim) milk for two- to five-year-olds, and flavored or unflavored fat-free milk or unflavored low fat milk for children
six years and older. For children ages six and older, flavored 1% milk is now allowed under USDA-FNS, “Child
Nutrition Programs: Transitional Standards for Milk, Whole Grains, and Sodium,” 87 Federal Register 6984, February
7, 2022.
158 7 C.F.R. §226.22; USDA-FNS, Independent Child Care Centers Handbook: A CACFP Handbook, May 2014, pp.
38-39, https://www.fns.usda.gov/cacfp/cacfp-handbooks.
159 Ibid, p. 37.
160 For an overview of summer meal benefits for children, see CRS In Focus IF11633, Summer Food for Children: An
Overview of Federal Aid.
161 7 C.F.R. §225.6(e)(15). USDA issued waivers of this requirement during the COVID-19 pandemic. USDA has also
provided exemptions from the congregate feeding requirement to SFSP and SSO outdoor meal sites experiencing
excessive heat.
162 Pandemic response policies are discussed briefly in the “Background” section of this report and in detail in CRS
Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic.
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to facilitate free meal service (not discussed in this section).172
Summer Food Service Program (SFSP)
The SFSP provides federal aid to school food authorities and other local public and nonprofit The SFSP provides federal aid to school food authorities and other local public and nonprofit
organizations that serve meals and snacks to children during the summer months.organizations that serve meals and snacks to children during the summer months.163173 Federal aid is Federal aid is
provided in the form of per-meal cash reimbursements and a smaller amount of commodity foods provided in the form of per-meal cash reimbursements and a smaller amount of commodity foods
and administrative funds (discussed previously). The program serves roughly 2.and administrative funds (discussed previously). The program serves roughly 2.58 million children million children
at around at around4036,000 meal sites ,000 meal sites in a typicaleach summer. summer.164
174
Similar to CACFP, SFSP is administered at the local level by sponsor organizations that operate Similar to CACFP, SFSP is administered at the local level by sponsor organizations that operate
the program at one or more meal sites (the physical location where food is served and eaten). All the program at one or more meal sites (the physical location where food is served and eaten). All
SFSP meal sites are required to have a sponsor. Sponsors may operate meal sites at a variety of SFSP meal sites are required to have a sponsor. Sponsors may operate meal sites at a variety of
locations, including schools, recreation centers, parks, churches, and public libraries.locations, including schools, recreation centers, parks, churches, and public libraries.
Unlike the other child nutrition programs, SFSP participation is generally limited (with the Unlike the other child nutrition programs, SFSP participation is generally limited (with the
exception of campsexception of camps and certain rural areas) to meal sites that serve children from ) to meal sites that serve children from“"areas in which poor economic areas in which poor economic
conditions existconditions exist”"—defined as areas or sites in which at least 50% of children are eligible for free —defined as areas or sites in which at least 50% of children are eligible for free
and reduced-price school meals (discussed further below).and reduced-price school meals (discussed further below).165
175 Administration
The following public and private nonprofit institutions are eligible to participate in SFSP as The following public and private nonprofit institutions are eligible to participate in SFSP as
sponsors:
• nonprofit organizations,
• sponsors:nonprofit organizations,
school food authorities,school food authorities,
•
state and local governments (including tribal governments),state and local governments (including tribal governments),
•
public or nonprofit summer camps (overnight and day camps), andpublic or nonprofit summer camps (overnight and day camps), and
•
public or nonprofit colleges and universities participating in the National Youth public or nonprofit colleges and universities participating in the National Youth
Sports Program.Sports Program.166
176Figure 8 displays the proportion of summer meal sponsors by institution type.
163 Sponsors may operate SFSP from May through September for children on school vacation. Sponsors may also
receive SFSP reimbursements for meals during unanticipated school closures, and sponsors administering SFSP under
a continuous school calendar system may operate SFSP at any time (7 C.F.R. §225.6(e)).
164 USDA-FNS, “June 2023 Keydata Report,” September 8, 2023. Participation data prior to the COVID-19 pandemic
from USDA-FNS, “November Keydata Report (September 2019 data),” December 13, 2019, https://www.fns.usda.gov/
data/november-keydata-report-september-2019-data. According to a May 2018 GAO report, estimates of participation
in SFSP may be unreliable because they have been calculated inconsistently across states and years. See U.S.
Government Accountability Office, Actions Needed to Improve Participation Estimates and Address Program
Challenges, GAO-18-369, May 2018, https://www.gao.gov/products/GAO-18-369.
165 Section 13(a) of the Richard B. Russell National School Lunch Act (42 U.S.C. §1761(a)).
166 Section 13(a)(7) of the NSLA (codified at 42 U.S.C. §1761(a)(7)). “Nonprofit” means tax exempt under Section
501(a) of the Internal Revenue Code of 1986 (7 C.F.R. §225.2). While SFSP sponsors are limited to nonprofit or public
institutions, state agencies may approve open meal sites located at a for-profit institution. Federal funding for the
National Youth Sports Program expired in 2006 (U.S. Department of Health and Human Services, Office of the
Assistant Secretary for Health, The National Youth Sports Strategy, October 2019, p. 31, https://health.gov/sites/
default/files/2019-10/National_Youth_Sports_Strategy.pdf).
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displays the proportion of summer meal sponsors by institution type as of summer 2018.
Estimated Percentage of Sponsors in SFSP and SSO by Organization TypeEstimated Percentage of Sponsors in SFSP and SSO by Organization Type
Source: USDA-FNS, USDA-FNS, USDA Summer Meals Study Volume 2. Sponsor and Site Operational Characteristics, prepared by , prepared by
Westat, October 2021, pp. 3-4 to 3-7, https://www.fns.usda.gov/cn/usda-summer-meals-studyWestat, October 2021, pp. 3-4 to 3-7, https://www.fns.usda.gov/cn/usda-summer-meals-study.
Notes.
Note: Numbers may not sum to 100% due to rounding. Numbers may not sum to 100% due to rounding.
Eligible sponsors must also provide year-round services to the community, with limited Eligible sponsors must also provide year-round services to the community, with limited
exceptions.exceptions.167177 In addition, all sponsors except camps must In addition, all sponsors except camps must “"conduct a regularly scheduled food conduct a regularly scheduled food
service for children from areas in which poor economic conditions existservice for children from areas in which poor economic conditions exist”" (discussed further in the (discussed further in the
next section).next section).168
178
According to statute, when selecting sponsors, states must give priority to school food authorities, According to statute, when selecting sponsors, states must give priority to school food authorities,
public and nonprofit organizations that have demonstrated successful program performance in a public and nonprofit organizations that have demonstrated successful program performance in a
prior year, new public sponsors, and new nonprofit sponsors (in that order). States must also prior year, new public sponsors, and new nonprofit sponsors (in that order). States must also
prioritize sponsors located in rural areas.prioritize sponsors located in rural areas.169
179
Sponsors are responsible for selecting meal sites, distributing meals to sites, and monitoring Sponsors are responsible for selecting meal sites, distributing meals to sites, and monitoring
sites.sites.170180 Officials at meal sites are responsible for distributing meals to children, monitoring the Officials at meal sites are responsible for distributing meals to children, monitoring the
food service, and keeping track of meals served for reimbursement. At times, a sponsor may also food service, and keeping track of meals served for reimbursement. At times, a sponsor may also
be a site (for example, camps are both sponsors and meal sites).be a site (for example, camps are both sponsors and meal sites).
State administering agencies (often state departments of education) approve sponsors, distribute State administering agencies (often state departments of education) approve sponsors, distribute
federal funds, and conduct reviews of sponsors and sites.federal funds, and conduct reviews of sponsors and sites.171181 State agencies receive SFSP funds for State agencies receive SFSP funds for
167 Residential camps are not subject to this requirement. Section 13(a)(3)(D) of the NSLA (codified at 42 U.S.C.
§1761(a)(3)(D)).
168 Section 13(a)(3)(C) of the NSLA (codified at 42 U.S.C. §1761(a)(3)(C)).
169 Section 13(a)(4) of the NSLA (codified at 42 U.S.C. §1761(a)(4)).
170 Most sponsors are responsible for overseeing 1-10 sites according to USDA-FNS, USDA Summer Meals Study
Volume 2. Sponsor and Site Operational Characteristics, prepared by Westat, October 2021, p. 3-1,
https://www.fns.usda.gov/cn/usda-summer-meals-study. Sponsors must conduct at least one site visit during the first
week of program operation; review food service operations at least once during the first four weeks of program
operation; and then maintain “a reasonable level of site monitoring” (7 C.F.R. §225.15(d)).
171 State agencies must review sponsors at least once every three years, with more frequent reviews of certain sponsors.
Further details are available at 7 C.F.R. §225.7(d)(2)(ii).
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administrative costs in addition to general child nutrition program administrative funds (discussed administrative costs in addition to general child nutrition program administrative funds (discussed
previously in the previously in the "“Administrative Funds”" section). section).
FNS distributes funds and commodities to state agencies, oversees statesFNS distributes funds and commodities to state agencies, oversees states’' implementation of implementation of
SFSP, and provides guidance and technical assistance to states and participating institutions.SFSP, and provides guidance and technical assistance to states and participating institutions.
Eligibility and Reimbursement
SFSP’
SFSP's eligibility and reimbursement rules differ for different types of areas and meal sites.s eligibility and reimbursement rules differ for different types of areas and meal sites.
Rural areas: As a result of the FY2023 Consolidated Appropriations Act (P.L. 117-328), As a result of the FY2023 Consolidated Appropriations Act (P.L. 117-328),
sponsors may provide free meals for off-site consumption (i.e., pick-up or delivery) to children in sponsors may provide free meals for off-site consumption (i.e., pick-up or delivery) to children in
rural ruralareas172areas182 if (1) the area is also considered low-income (defined as at least 50% of children if (1) the area is also considered low-income (defined as at least 50% of children
qualifying for free or reduced-price school meals)qualifying for free or reduced-price school meals)173183 or (2) the individual child qualifies for free or (2) the individual child qualifies for free
or reduced-price school meals.or reduced-price school meals.174184 Sponsors may receive reimbursement for up to two meals, or Sponsors may receive reimbursement for up to two meals, or
one meal and one snack, per child daily (however, sponsors may seek state approval to distribute one meal and one snack, per child daily (however, sponsors may seek state approval to distribute
up to 10 daysup to 10 days' worth of meals at a time). This policy became effective in summer 2023. worth of meals at a time). This policy became effective in summer 2023.
According to USDA, more than 1,000 sponsors established nearly 4,000 non-congregate rural points-of-service in summer 2024.185 Open sites are are meal sites that are open to all children in the community.meal sites that are open to all children in the community.175186 Open sites are the Open sites are the
most common type of site, comprising an estimated 83% of summer meal sites in summer most common type of site, comprising an estimated 83% of summer meal sites in summer
2018.1762018 (the most recent year of data).187 In order to participate in SFSP, open sites must be located in an area in which at least In order to participate in SFSP, open sites must be located in an area in which at least
50% of the children would be eligible for free or reduced-price school meals as demonstrated 50% of the children would be eligible for free or reduced-price school meals as demonstrated
through school data, Census data, or other approved data sources.through school data, Census data, or other approved data sources.177188 Meals must be served free to Meals must be served free to
all children at these sites, and the sponsor of the site receives reimbursement for every meal all children at these sites, and the sponsor of the site receives reimbursement for every meal
served (up to two meals or one meal and one snack per child daily).served (up to two meals or one meal and one snack per child daily).
Closed enrolled sites are meal sites (other than camps) that only serve enrolled children. In order are meal sites (other than camps) that only serve enrolled children. In order
for the site to participate in SFSP, for the site to participate in SFSP,at least 50% of the enrolled children mustclosed enrolled sites must establish that at least 50% of children qualify for free or qualify for free or
reduced-price school meals based on reduced-price school meals based onthe submission of a household application or other
documentation.178area eligibility data or individual eligibility information for enrolled children.189 Like open sites, meals are served free to all children and the sponsor receives Like open sites, meals are served free to all children and the sponsor receives
reimbursement for every meal served (up to two meals or one meal and one snack per child reimbursement for every meal served (up to two meals or one meal and one snack per child
daily).daily).
Camps include residential and day camps that provide organized programs for enrolled children. include residential and day camps that provide organized programs for enrolled children.
Unlike open and closed enrolled sites, camps do not have to demonstrate that a certain percentage Unlike open and closed enrolled sites, camps do not have to demonstrate that a certain percentage
of children meet the free and reduced-price eligibility standards in order to participate in SFSP.
172 SFSP regulations define rural at 7 C.F.R. §225.2. USDA-FNS publishes a map of such rural areas at USDA-FNS,
“Rural Designations,” https://www.fns.usda.gov/sfsp/rural-designation.
173 USDA-FNS, “Area Eligibility in Child Nutrition Programs,” SP 08-2017, CACFP 04-2017, SFSP 03-2017,
December 1, 2016, https://fns-prod.azureedge.net/sites/default/files/cn/SP08_CACFP04_SFSP03-2017os.pdf.
174 USDA-FNS, “Implementation Guidance: Summer 2023 Non-Congregate Meal Service in Rural Areas – Revised,”
February 28, 2023, https://www.fns.usda.gov/sfsp/implementation-guidance-summer-2023-non-congregate-meal-
service-rural-areas.
175 Open sites may become “restricted open sites” if they need to restrict attendance for reasons related to security,
safety, or control (7 C.F.R. §225.2). According to USDA guidance, sponsors of restricted open sites must publicly
announce the restriction. USDA-FNS, Administration Guide: Summer Food Service Program, September 2016, p. 12,
https://www.fns.usda.gov/sfsp/handbooks.
176 USDA-FNS, USDA Summer Meals Study Volume 2. Sponsor and Site Operational Characteristics, prepared by
Westat, October 2021, p. 3-7, https://www.fns.usda.gov/cn/usda-summer-meals-study.
177 Section 13(a)(1)(A) of the NSLA (42 U.S.C. §1761(a)(1)(A)). For more information on area eligibility, see USDA-
FNS, “Area Eligibility in Child Nutrition Programs,” SP 08-2017, CACFP 04-2017, SFSP 03-2017, December 1, 2016,
https://fns-prod.azureedge.net/sites/default/files/cn/SP08_CACFP04_SFSP03-2017os.pdf.
178 7 C.F.R. §225.15(f).
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of children meet the free and reduced-price eligibility standards in order to participate in SFSP. Instead, eligibility works like NSLP and SBP: camps make eligibility determinations using Instead, eligibility works like NSLP and SBP: camps make eligibility determinations using
similar income and categorical eligibility criteria for free and reduced-price meals. However, similar income and categorical eligibility criteria for free and reduced-price meals. However,
unlike the school meals programs, camps receive the same reimbursement rate for free and unlike the school meals programs, camps receive the same reimbursement rate for free and
reduced-price meals. Camps may receive reimbursement for up to three meals or two meals and reduced-price meals. Camps may receive reimbursement for up to three meals or two meals and
one snack per eligible child daily. Camps are not required to serve meals for free to all children, one snack per eligible child daily. Camps are not required to serve meals for free to all children,
and there is no paid reimbursement provided for full-price meals.and there is no paid reimbursement provided for full-price meals.
Migrant sites must demonstrate that they predominantly serve migrant children as certified by a must demonstrate that they predominantly serve migrant children as certified by a
migrant organization or a sponsor. They follow the same eligibility and reimbursement rules as migrant organization or a sponsor. They follow the same eligibility and reimbursement rules as
open sites, except that they may receive reimbursement for up to three meals or two meals and open sites, except that they may receive reimbursement for up to three meals or two meals and
one snack per child daily.one snack per child daily.
SFSP reimbursement rates (inflation-adjusted rates displayed SFSP reimbursement rates (inflation-adjusted rates displayed inin Table 8) are based on a statutory are based on a statutory
formula that takes into account operating costs (e.g., food, storage, and labor costs) and formula that takes into account operating costs (e.g., food, storage, and labor costs) and
administrative costs.administrative costs.179190 While such factors are taken into account in calculating the rates, once While such factors are taken into account in calculating the rates, once
sponsors receive the funds they can use them for any allowable program cost. Higher sponsors receive the funds they can use them for any allowable program cost. Higher
reimbursements are provided for sponsors of rural meal sites and reimbursements are provided for sponsors of rural meal sites and“"self-preparationself-preparation”" sites (meal sites (meal
sites in which a sponsor rather than sites in which a sponsor rather than a vendor prepares food).vendor prepares food).
Table 8. Reimbursement Rates: SFSP
Per-Meal/Snack Reimbursement Rates for the 48 Contiguous States and the District of Columbia, Per-Meal/Snack Reimbursement Rates for the 48 Contiguous States and the District of Columbia,
Calendar Year Calendar Year 2023
2025
Breakfast Lunch/Supper
Snack
Rural or Self-Prep
$2.83
$4.95
$1.17
All Other Sites
$2.77
$4.87
$1.14
Source: For program reimbursement rates as well as For program reimbursement rates as well as Alaska’s and Hawaii’s ratesrates for Alaska, Hawaii, and U.S. territories, see USDA-FNS, , see USDA-FNS, “"Summer Summer
Food Service Program: Food Service Program:20232025 Reimbursement Rates, Reimbursement Rates,” 88 " 90 Federal Register 10392671, January , January 6, 2023.
Notes13, 2025.
Notes: Rates are rounded to the nearest cent. Rates are rounded to the nearest cent. “Rural”"Rural" means means “"(a) any area in a county which is not a part of a (a) any area in a county which is not a part of a
Metropolitan Statistical Area or (b) any Metropolitan Statistical Area or (b) any‘pocket’'pocket' within a Metropolitan Statistical Area within a Metropolitan Statistical Area”" that is geographically that is geographically
isolated from urban areas (7 C.F.R. 225.2). isolated from urban areas (7 C.F.R. 225.2).“"Self-PrepSelf-Prep”" means that meals are prepared by the sponsor or site means that meals are prepared by the sponsor or site
(and not by a vendor).(and not by a vendor).
Nutrition Standards
Meals and snacks served through SFSP must meet federal nutrition standards. In contrast to the Meals and snacks served through SFSP must meet federal nutrition standards. In contrast to the
child nutrition programs discussed thus far, SFSPchild nutrition programs discussed thus far, SFSP’'s nutrition standards are not required to align s nutrition standards are not required to align
with the Dietary Guidelines for Americans, but are with the Dietary Guidelines for Americans, but are“"prescribed by the Secretary on the basis of prescribed by the Secretary on the basis of
tested nutritional research.tested nutritional research.”180"191 Program regulations outline the nutrition standards for breakfasts, Program regulations outline the nutrition standards for breakfasts,
lunches/suppers, and snacks.lunches/suppers, and snacks.181192 The standards prescribe minimum servings of fruits and The standards prescribe minimum servings of fruits and
vegetables, meats/meat alternatives, breads/bread alternatives, and milk. Unlike school meals and vegetables, meats/meat alternatives, breads/bread alternatives, and milk. Unlike school meals and
CACFP, there are no limits on calories, saturated CACFP, there are no limits on calories, saturatedand trans fats, and milk varieties in SFSP. fats, and milk varieties in SFSP.
Participating school food authorities may instead choose to use the NSLP and/or SBP nutrition Participating school food authorities may instead choose to use the NSLP and/or SBP nutrition
standards for SFSP.182
179 The authority for operating cost reimbursements is provided in Section 13(b)(1) of the NSLA (42 U.S.C.
§1761(b)(1)), and the authority for the administrative cost reimbursement is provided in Section 13(b)(3) of the NSLA
(42 U.S.C. §1761(b)(3)).
180 Section 13(f) of the NSLA (codified at 42 U.S.C. §1761(f)).
181 7 C.F.R. §225.16(d).
182 7 C.F.R. §225.16(f).
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Meal Service
As noted, children are required to consume meals onsite in SFSPstandards for SFSP.193
Meal Service
As noted, children are required to consume meals onsite in SFSP, unless they receive meals under the rural non-congregate feeding policy. There are also requirements . There are also requirements
around the timing of around the timing of congregate meals in SFSP, including at least one hour between meals.194meals in SFSP: there must be at least three hours between meal or snack
services and four hours between lunch and dinner if there is no snack served.183 Like the other Like the other
child nutrition programs, SFSP sponsors must comply with local or state health and sanitation child nutrition programs, SFSP sponsors must comply with local or state health and sanitation
requirements.requirements.
Seamless Summer Option (SSO)
School food authorities may participate in SFSP, or they can choose to offer summer meals School food authorities may participate in SFSP, or they can choose to offer summer meals
through SSO. SSO allows school food authorities to continue operating under certain NSLP/SBP through SSO. SSO allows school food authorities to continue operating under certain NSLP/SBP
requirements into the summer.requirements into the summer.184195 For example, it allows them to use the school meals programs For example, it allows them to use the school meals programs’
' nutrition standards, administrative review process, and reimbursement rates (nutrition standards, administrative review process, and reimbursement rates (seesee Table 4 for for
NSLP/SBP reimbursement rates). Other requirements are the same as SFSP, including rural area NSLP/SBP reimbursement rates). Other requirements are the same as SFSP, including rural area
and site eligibility rules.and site eligibility rules.185196 School food authorities are the only eligible sponsor in SSO, but they School food authorities are the only eligible sponsor in SSO, but they
can operate the program at a variety of meal sites (e.g., parks, recreation centers, libraries)can operate the program at a variety of meal sites (e.g., parks, recreation centers, libraries).
and through meal delivery and other offsite feeding mechanisms in rural areas.197
The school lunch and breakfast reimbursement rates used in SSO are lower than SFSPThe school lunch and breakfast reimbursement rates used in SSO are lower than SFSP’s
's reimbursement rates. However, school food authorities participating in SSO also receive the reimbursement rates. However, school food authorities participating in SSO also receive the
NSLP commodity reimbursement (discussed in the NSLP commodity reimbursement (discussed in the "“Commodity Assistance” " section). School section). School
food authorities may also have a reduced administrative burden under SSO. A 2018 study by food authorities may also have a reduced administrative burden under SSO. A 2018 study by
USDA found that three-quarters of sponsors operated SFSP and one-quarter operated SSO.USDA found that three-quarters of sponsors operated SFSP and one-quarter operated SSO.186
198 Summer EBT
Following a more than decade-long demonstration (discussed below), the Summer EBT program Following a more than decade-long demonstration (discussed below), the Summer EBT program
was given permanent authorizationwas permanently authorized by the FY2023 Consolidated Appropriations Act (P.L. 117- by the FY2023 Consolidated Appropriations Act (P.L. 117-
328), which gave all states and territories and some ITOs the option to operate Summer EBT 328), which gave all states and territories and some ITOs the option to operate Summer EBT
starting in summer 2024. According to the law, participating jurisdictions are to distribute federal starting in summer 2024. According to the law, participating jurisdictions are to distribute federal
funds to eligible households—in an amount of $40 per child per funds to eligible households—in an amount of $40 per child permonth during the summer—
summer month (adjusted annually for inflation)—which households can redeem at SNAP-authorized retailers for groceries. Children who receive which households can redeem at SNAP-authorized retailers for groceries. Children who receive
free or reduced-price meals during the school year free or reduced-price meals during the school yearwill beare automatically enrolled in the program automatically enrolled in the program
(though families may opt out). States participating in the program must also establish an (though families may opt out). States participating in the program must also establish an
application process—using the same eligibility criteria as free or reduced-price school meals—for application process—using the same eligibility criteria as free or reduced-price school meals—for
other children.other children.
P.L. 117-328 establishes separate program options for ITOs participating in WIC (some of whom P.L. 117-328 establishes separate program options for ITOs participating in WIC (some of whom
previously operated the Summer EBT demonstration through WIC), territories that do not operate previously operated the Summer EBT demonstration through WIC), territories that do not operate
SNAP (American Samoa, Puerto Rico, and the Northern Mariana Islands), and children who SNAP (American Samoa, Puerto Rico, and the Northern Mariana Islands), and children who
attend year-round schools.attend year-round schools.
The law requires grantees to cover at least half of administrative costs and authorizes federal The law requires grantees to cover at least half of administrative costs and authorizes federal
funding to cover the other half.
183 In addition, suppers cannot be served after 7 p.m. without a waiver from the state agency. 7 C.F.R. §225.16(c).
184 Section 13(a)(8) of the NSLA (codified at 42 U.S.C. §1761(a)(8)).
185 For a comparison of SFSP and SSO, see USDA-FNS, “Comparison of Programs: SFSP/NSLP/Seamless Option,”
January 22, 2015, https://fns-prod.azureedge.us/sites/default/files/SFSP_SeamlessComparisonChart.pdf.
186 USDA-FNS, USDA Summer Meals Study Volume 2. Sponsor and Site Operational Characteristics, prepared by
Westat, October 2021, pp. 3-4 to 3-7, https://www.fns.usda.gov/cn/usda-summer-meals-study.
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Summer Meal Demonstration Projects
funding to cover the other half.
appropriations law (P.L. 111-80appropriations law (P.L. 111-80).202).187 Using such funds, USDA tested a number of summer meal Using such funds, USDA tested a number of summer meal
delivery alternatives, including Summer EBT, food backpacks, food boxes, and meal delivery for delivery alternatives, including Summer EBT, food backpacks, food boxes, and meal delivery for
children in rural areas.children in rural areas.188203 Findings from Summer EBT were among the most promising, showing Findings from Summer EBT were among the most promising, showing
significant impacts on reducing food insecurity and improving nutrient intake.significant impacts on reducing food insecurity and improving nutrient intake.189204 Starting in Starting in
FY2015, appropriations acts designated summer meal demonstration funding for Summer EBT.FY2015, appropriations acts designated summer meal demonstration funding for Summer EBT.190
205
Using appropriated funds, the Summer EBT demonstration operated during Using appropriated funds, the Summer EBT demonstration operated during summersthe summers of 2011-2023 2011-2023
in selected states and ITOs.in selected states and ITOs.191206 The project provided electronic food benefits to households with The project provided electronic food benefits to households with
children eligible for free or reduced-price school meals. Depending on the site and year, either children eligible for free or reduced-price school meals. Depending on the site and year, either
$30 or $60 per month was provided on an EBT card. States and jurisdictions had the option to $30 or $60 per month was provided on an EBT card. States and jurisdictions had the option to
administer the project through SNAP or WIC. Participants in jurisdictions providing benefits administer the project through SNAP or WIC. Participants in jurisdictions providing benefits
through SNAP redeemed benefits for SNAP-eligible foods at SNAP-authorized retailers, while through SNAP redeemed benefits for SNAP-eligible foods at SNAP-authorized retailers, while
participants in the WIC EBT jurisdictions were limited to a smaller set of eligible foods at WIC-participants in the WIC EBT jurisdictions were limited to a smaller set of eligible foods at WIC-
authorized retailers.authorized retailers.192
207
Special Milk Program (SMP)
SMP provides funding for milk served in approximately 1,SMP provides funding for milk served in approximately 1,700600 schools, child care institutions, schools, child care institutions,
summer camps, and other institutionssummer camps, and other institutions in FY2022.193.208 Generally, schools and other participating Generally, schools and other participating
institutions may not participate in another child nutrition meal service program along with SMP. institutions may not participate in another child nutrition meal service program along with SMP.
However, schools may administer SMP for pre-kindergartners and kindergartners who are in part-However, schools may administer SMP for pre-kindergartners and kindergartners who are in part-
day sessions and do not have access to the school meals programs.194
187 Section 749(g) of P.L. 111-80. The FY2010 appropriation was $85 million, which funded demonstration activities in
summers 2011 to 2014. For more information, see CRS Report R45486, Child Nutrition Programs: Issues in the 115th
Congress.
188 For further discussion, see CRS In Focus IF11633, Summer Food for Children: An Overview of Federal Aid;
USDA-FNS, “Enhanced Summer Food Service Program (eSFSP),” https://www.fns.usda.gov/ops/enhanced-summer-
food-service-program-esfsp; and USDA-FNS, “USDA Highlights Success of Rural Summer Meals Delivery Project in
Texas,” August 13, 2019, https://www.fns.usda.gov/pressrelease/fns-001119.
189 Collins et al., Summer Electronic Benefits Transfer for Children (SEBTC) Demonstration: Evaluation Findings for
the Full Implementation Year, prepared by Abt Associates, Mathematica Policy Research, and Maximus (Alexandria,
VA: USDA-FNS, 2013), p. 105. Improvements in food insecurity varied significantly between Summer EBT sites. For
evaluations of other approaches tested through the Enhanced Summer Food Service Program (eSFSP), see USDA-FNS,
“Enhanced Summer Food Service Program,” November 8, 2013, https://www.fns.usda.gov/ops/enhanced-summer-
food-service-program-esfsp.
190 Additional appropriations for Summer EBT have been provided in each of FY2015 through FY2023.
191 Grantees in various years included Connecticut, the Cherokee Nation, the Chickasaw Nation, Delaware, the Inter
Tribal Council of Arizona, Michigan, Missouri, Nevada, Oregon, Tennessee, Texas, Virginia, Washington, and
Wisconsin. In summers 2021-2023, state grantees did not operate Summer EBT demonstrations due to the availability
of the Pandemic Electronic Benefit Transfer (P-EBT) program. However, three tribes (the Cherokee Nation, Chickasaw
Nation, and Inter Tribal Council of Arizona) operated Summer EBT demonstration projects.
192 For more information on the Summer EBT demonstration, see USDA-FNS, “2024 USDA Explanatory Notes – Food
and Nutrition Service,” p. 35-49; and USDA-FNS, Summer Electronic Benefit Transfer for Children (SEBTC)
Demonstration: Summary Report, prepared by Abt Associates Inc., May 2016, https://www.fns.usda.gov/sfsp/summer-
electronic-benefit-transfer-children-sebtc-demonstration-summary-report.
193 USDA-FNS, “National Level Annual Summary Tables FY1969-2021: Special Milk–Outlets and Milk Served,”
April 7, 2022, https://www.fns.usda.gov/pd/child-nutrition-tables.
194 Section 3 of the Child Nutrition Act of 1966 (42 U.S.C. §1772).
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day sessions and do not have access to the school meals programs.209
In SMP, participating institutions provide milk to children for free and/or at a subsidized paid In SMP, participating institutions provide milk to children for free and/or at a subsidized paid
price. Institutions are reimbursed differently based on whether they decide to provide milk for price. Institutions are reimbursed differently based on whether they decide to provide milk for
free to all children, sell milk to all children, or combine these options (provide free milk to free to all children, sell milk to all children, or combine these options (provide free milk to
eligible children and sell milk to other children) (seeeligible children and sell milk to other children) (see Table 9). If institutions choose the combined . If institutions choose the combined
option, they must establish eligibility rules for free milk.option, they must establish eligibility rules for free milk.195
210
USDA updated the nutritional requirements for milk served in SMP alongside changes to the USDA updated the nutritional requirements for milk served in SMP alongside changes to the
CACFP nutrition standards.CACFP nutrition standards.196211 The final rule, which took effect on October 1, 2017, required The final rule, which took effect on October 1, 2017, required
unflavored whole milk for one-year-olds, unflavored low-fat (1%) or unflavored fat-free milk for unflavored whole milk for one-year-olds, unflavored low-fat (1%) or unflavored fat-free milk for
children ages 2-5, and unflavored low-fat (1%) or flavored/unflavored fat-free milk for children children ages 2-5, and unflavored low-fat (1%) or flavored/unflavored fat-free milk for children
ages six and older (ages six and older (a subsequent rule in February 2022 allowssubsequent rules have allowed flavored low-fat milk for the six- flavored low-fat milk for the six-
and-older age group).and-older age group).197212 The regulations also allowed for reimbursement of non-dairy milk The regulations also allowed for reimbursement of non-dairy milk
substitutes in cases of medical or special dietary needs.substitutes in cases of medical or special dietary needs.
Table 9. Reimbursement Rates: SMP
Per Half-Pint Reimbursement, 50 States and the District of Columbia, School Year Per Half-Pint Reimbursement, 50 States and the District of Columbia, School Year 2023-2024
Free Milk to Low-
2024-2025 All Milk Served
Paid Milk
Income Children
Schools that only sell Schools that only sell
milk
$0.26
N/A
N/A
milk
Schools that provide Schools that provide
only free milkonly free milk
$0.26
N/A
N/A
Schools that sell milk
Average cost per
Schools that sell milk and provide free milkand provide free milk
N/A
$0.26
half-pint of milk
Source: USDA-FNS, USDA-FNS, “"National School Lunch, Special Milk, and School Breakfast Programs, National Average National School Lunch, Special Milk, and School Breakfast Programs, National Average
Payments/Maximum Reimbursement Rates,Payments/Maximum Reimbursement Rates,”" July July 1, 2023, 8810, 2024, 89 Federal Register 43266.
56720. Note: The average cost per half-pint of milk is determined based on receipts submitted by the institution.The average cost per half-pint of milk is determined based on receipts submitted by the institution.
After-School Meals and Snacks
CACFP and NSLP both provide federal support for snacks and meals served during after-school CACFP and NSLP both provide federal support for snacks and meals served during after-school
programs.programs.198213 The CACFP At-Risk Afterschool component provides reimbursement for up to one The CACFP At-Risk Afterschool component provides reimbursement for up to one
snack and one meal (usually supper) per child daily, whereas the NSLP Afterschool Snack option snack and one meal (usually supper) per child daily, whereas the NSLP Afterschool Snack option
provides reimbursement for snacks only. Reimbursement rates for CACFP At-Risk Afterschool provides reimbursement for snacks only. Reimbursement rates for CACFP At-Risk Afterschool
meals/snacks and NSLP afterschool snacks are the same as CACFP reimbursement rates (listed in meals/snacks and NSLP afterschool snacks are the same as CACFP reimbursement rates (listed in
Table 7).
195 Institutions can set eligibility at or below the income threshold for free school meals (130% of the poverty line) (7
C.F.R. §215.13a).
196 USDA-FNS, Child and Adult Care Food Program: Meal Pattern Revisions Related to the Healthy, Hunger-Free
Kids Act of 2010, final rule, 81 Federal Register 24347, April 25, 2016, https://www.federalregister.gov/documents/
2016/04/25/2016-09412/child-and-adult-care-food-program-meal-pattern-revisions-related-to-the-healthy-hunger-free-
kids-act.
197 Ibid; USDA-FNS, “Child Nutrition Programs: Transitional Standards for Milk, Whole Grains, and Sodium,” 87
Federal Register 6984, February 7, 2022.
198 The CACFP At-Risk Afterschool snack/meal program is authorized in Section 17(r) of the NSLA (42 U.S.C.
§1766(r)); the NSLP snack program is authorized in Section 17A of the NSLA (42 U.S.C. §1766a).
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link to page 38 School Meals and Other Child Nutrition Programs: Background and Funding
CACFP At-Risk Afterschool Meals and Snacks
CACFP At-Risk Afterschool Meals and Snacks The CACFP At-Risk Afterschool component was authorized as a demonstration project in 1994 The CACFP At-Risk Afterschool component was authorized as a demonstration project in 1994
((P.L. 103-448), expanded over time, and made available to all states by the HHFKA.P.L. 103-448), expanded over time, and made available to all states by the HHFKA.199214 At-Risk At-Risk
Afterschool meal providers include the same types of institutions that are eligible to become Afterschool meal providers include the same types of institutions that are eligible to become
CACFP centers (see the institutional eligibility rules in CACFP centers (see the institutional eligibility rules inthe “CACFP Centers” sectionthe "CACFP Centers" section); however, ); however,
they do not need to operate the child/day care component of CACFP in order to operate the At-they do not need to operate the child/day care component of CACFP in order to operate the At-
Risk Afterschool component. Additionally, At-Risk Afterschool providers must be located in Risk Afterschool component. Additionally, At-Risk Afterschool providers must be located in
areas wherethe attendance area of a school in which at least 50% of children at least 50% of children in the community are eligible for free or reduced-price are eligible for free or reduced-price
school meals.school meals.200215 The afterschool program must also have The afterschool program must also have “"an educational or enrichment an educational or enrichment
purpose.purpose.”201"216 Unlike the traditional CACFP, which is available to children ages 12 and under, the Unlike the traditional CACFP, which is available to children ages 12 and under, the
At-Risk Afterschool component allows participation through age 18.At-Risk Afterschool component allows participation through age 18.
Participating institutions receive reimbursement for up to one snack and one meal (e.g., supper) Participating institutions receive reimbursement for up to one snack and one meal (e.g., supper)
per child daily, and meals and snacks are provided for free to all children. Meals and snacks must per child daily, and meals and snacks are provided for free to all children. Meals and snacks must
meet federal nutrition standards.meet federal nutrition standards.202217 Institutions may operate the At-Risk Afterschool program in Institutions may operate the At-Risk Afterschool program in
the after-school hours and on weekends, holidays, and breaks during the school year.the after-school hours and on weekends, holidays, and breaks during the school year.
In FY2022
In FY2024, the CACFP At-Risk Afterschool component served a daily average of , the CACFP At-Risk Afterschool component served a daily average of 3.12.7 million million
children.children.203
218 NSLP Afterschool Snacks
The NSLP Afterschool Snack option was authorized in the 1998 child nutrition reauthorization The NSLP Afterschool Snack option was authorized in the 1998 child nutrition reauthorization
act (P.L. 105-336). It allows NSLP-participating schools to receive federal reimbursement for one act (P.L. 105-336). It allows NSLP-participating schools to receive federal reimbursement for one
snack per child daily in eligible afterschool programs during the school year.snack per child daily in eligible afterschool programs during the school year.204219 According to According to
USDA guidance, eligible afterschool programs must provide USDA guidance, eligible afterschool programs must provide“"organized, regularly scheduled organized, regularly scheduled
activities in a structured and supervised environment,activities in a structured and supervised environment,”" including an educational or enrichment including an educational or enrichment
activity.activity.205
220
Schools that choose to operate the NSLP Afterschool Snack component may do so in one of two Schools that choose to operate the NSLP Afterschool Snack component may do so in one of two
ways: (1) like the CACFP At-Risk Afterschool component, if at least 50% of ways: (1) like the CACFP At-Risk Afterschool component, if at least 50% ofchildrenstudents in the school are eligible are eligible
for free and reduced-price meals, the schools may provide free snacks to all children, or (2) if this for free and reduced-price meals, the schools may provide free snacks to all children, or (2) if this
criterion is not met, the schools may offer free, reduced-price, or full price snacks, based on criterion is not met, the schools may offer free, reduced-price, or full price snacks, based on
household income eligibility (like the school meals programs). household income eligibility (like the school meals programs).TheHistorically, the vast majority of snacks vast majority of snacks
provided through this program provided through this programarehave been provided under the first option. under the first option.206221 Snacks served through the NSLP Snacks served through the NSLP
Afterschool Snack component must comply with federal nutrition standards.207
199 Prior to HHFKA, 13 states were permitted to offer CACFP At-Risk After-School meals (instead of just a snack); the
law allowed all CACFP state agencies to offer such meals. S.Rept. 111-178, p. 7.
200 Emergency shelters do not need to meet this requirement.
201 Section 17(r) of the NSLA (42 U.S.C. §1766(r)).
202 7 C.F.R. §226.20.
203 CRS communication with USDA-FNS in November 2023.
204 Schools may also operate the NSLP Afterschool Snack component in the hours after summer school sessions.
205 USDA-FNS, “NSLP Afterschool Snack Service—FAQs,” November 2013, https://www.fns.usda.gov/school-meals/
afterschool-snacks-faqs.
206 J. Guthrie, Feeding Children After School: The Expanding Role of USDA Child Nutrition Programs, USDA
Economic Research Service, Amber Waves, March 1, 2012, https://www.ers.usda.gov/amber-waves/2012/march/
feeding-children-after-school.
207 7 C.F.R. §210.10(o).
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School Meals and Other Child Nutrition Programs: Background and Funding
In recent years, the NSLP Afterschool Snack component has served a daily average of roughly
one million children.208
Afterschool Snack component must comply with federal nutrition standards.222
FFVP provides formula grants to states to fund fresh fruit and vegetable snacks in selected FFVP provides formula grants to states to fund fresh fruit and vegetable snacks in selected
elementary schools.elementary schools.209224 Under a statutory formula, about half the funding is distributed equally to Under a statutory formula, about half the funding is distributed equally to
each state and the remainder is allocated by state population. States must prioritize funding for each state and the remainder is allocated by state population. States must prioritize funding for
schools with high proportions of students who are eligible for free or reduced-price meals. schools with high proportions of students who are eligible for free or reduced-price meals.
Schools must participate in NSLP in order to receive a FFVP grant. States set annual per-student Schools must participate in NSLP in order to receive a FFVP grant. States set annual per-student
grant amounts (between $50 and $75). Schools may provide fresh fruit and vegetable snacks to grant amounts (between $50 and $75). Schools may provide fresh fruit and vegetable snacks to
students at any time of day outside of the breakfast or lunch service.students at any time of day outside of the breakfast or lunch service.210225 Schools offer snacks to all Schools offer snacks to all
children in attendance (regardless of family income).children in attendance (regardless of family income).
As noted previously, FFVPAs noted previously, FFVP’'s funding structure differs from the other child nutrition programs. s funding structure differs from the other child nutrition programs.
FFVP is funded by a mandatory transfer of funds from Section 32 of the Act of August 24, 1935. FFVP is funded by a mandatory transfer of funds from Section 32 of the Act of August 24, 1935.
The authorizing law provided $150 million for school year 2011-2012, which is adjusted annually The authorizing law provided $150 million for school year 2011-2012, which is adjusted annually
for inflation.for inflation.211 For FY2023226 For FY2025, FNS allocated approximately $, FNS allocated approximately $238232 million (including carryover million (including carryover
funds) for FFVP to states.funds) for FFVP to states.212
227
FFVP has been amended over time both by farm bills and by child nutrition reauthorization bills. FFVP has been amended over time both by farm bills and by child nutrition reauthorization bills.
FFVP was created by the 2002 farm bill (P.L. 107-171) as a pilot project. The 2004 child nutrition FFVP was created by the 2002 farm bill (P.L. 107-171) as a pilot project. The 2004 child nutrition
reauthorization act (P.L. 108-265) made the program permanent and provided funding for a reauthorization act (P.L. 108-265) made the program permanent and provided funding for a
limited number of states and Indian reservations. The 2008 farm bill (P.L. 110-246) expanded limited number of states and Indian reservations. The 2008 farm bill (P.L. 110-246) expanded
FFVP’FFVP's mandatory funding through Section 32 and enabled all states to participate in the s mandatory funding through Section 32 and enabled all states to participate in the
program. The 2014 farm bill (P.L. 113-79) essentially made no changes to FFVP but provided $5 program. The 2014 farm bill (P.L. 113-79) essentially made no changes to FFVP but provided $5
million for a demonstration project to test offering frozen, canned, and dried fruits and vegetables million for a demonstration project to test offering frozen, canned, and dried fruits and vegetables
in the program. Four states (Alaska, Delaware, Kansas, and Maine) participated in the pilot in in the program. Four states (Alaska, Delaware, Kansas, and Maine) participated in the pilot in
school year 2014-2015 and an evaluation was published in 2017.213
208 FY2019 data from USDA-FNS, “September 2020 Keydata Report,” January 27, 2021, https://www.fns.usda.gov/
data/september-2020-keydata-report; FY2020 data from USDA-FNS, “March Keydata Report (November 2020 data),”
March 12, 2021, https://www.fns.usda.gov/data/march-keydata-report-november-2020-data; FY2021 data from
“September 2022 Keydata Report,” December 9, 2022, https://www.fns.usda.gov/data/september-2022-keydata-report;
FY2022 data from USDA-FNS, “June 2023 Keydata Report,” September 8, 2023, https://www.fns.usda.gov/data/June-
2023-keydata-report.
209 Section 19 of the NSLA (42 U.S.C. §1769a). FFVP currently operates according to statute and USDA guidance.
USDA-FNS issued a proposed rule in 2012 to codify statutory requirements in regulations, but a final rule has not been
published.
210 USDA-FNS, Fresh Fruit and Vegetable Program: A Handbook for Schools, December 2010, https://fns-
prod.azureedge.net/sites/default/files/handbook.pdf.
211 Section 19(i) of the NSLA (42 U.S.C. §1769a(i)).
212 USDA-FNS, “Fresh Fruit and Vegetable Program (FFVP): Allocation of Funds for FY2023,” June 23, 2022,
https://www.fns.usda.gov/ffvp/allocation-funds-fy-2023.
213 Briefel et al., Evaluation of the Pilot Project for Canned, Frozen, or Dried Fruits and Vegetables in the Fresh Fruit
and Vegetable Program (FFVP-CFD), prepared by Mathematica Policy Research (Alexandria, VA: USDA-FNS,
January 2017), https://fns-prod.azureedge.net/sites/default/files/ops/FFVP-CFD.pdf. For more information on proposals
to include frozen, canned, and dried fruits and vegetables in FFVP, see CRS Report R45486, Child Nutrition
Programs: Issues in the 115th Congress.
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School Meals and Other Child Nutrition Programs: Background and Funding
Other Child Nutrition Activities
school year 2014-2015 and an evaluation was published in 2017.228 Other Child Nutrition Activities Federal child nutrition laws authorize, and child nutrition funding supports, several additional Federal child nutrition laws authorize, and child nutrition funding supports, several additional
initiatives and activities, such as studies and evaluations, training and technical assistance, initiatives and activities, such as studies and evaluations, training and technical assistance,
technology improvements, and food safety initiatives.technology improvements, and food safety initiatives.214229 Selected initiatives and activities are Selected initiatives and activities are
discussed below.
Healthy Meals Incentives Initiative
In 2022, USDA (during the Biden Administration) announced that it would use $100 million in
COVID-19 response funding under the Consolidated Appropriations Act, 2021 (P.L. 116-260) to
implement a Healthy Meals Incentives Initiative.215 The initiative includes (1) grants for small
and/or rural school food authorities to invest in staffing, training, and kitchen improvements,
among other changes intended to improve nutrition in school meals,216 (2) School Food System
Transformation Challenge grants to “stimulate innovation ... in the K-12 school food
marketplace” through collaborative projects between school districts, food producers, suppliers,
distributors, and/or community partners,217 (3) non-monetary recognition awards for school food
authorities that have made significant improvements to nutrition in school meals,218 and (4)
summits for grant recipients to share best practices.
FNS contracted with four entities (Boise State University, Chef Ann Foundation, Full Plates Full
Potential, and Illinois Public Health Institute) to carry out the School Food System
Transformation Challenge grants and with Action for Healthy Kids to carry out the other three
components of the initiative.219
Farm to School Program
discussed below. Farm to School Program The farm to school program, which includes grants to organizations, technical assistance, and The farm to school program, which includes grants to organizations, technical assistance, and
research, was authorized by the HHFKA in 2010.research, was authorized by the HHFKA in 2010.220230 It expanded upon FNS It expanded upon FNS’'s existing farm to school efforts, defined broadly as "s existing farm to
214 This section does not list all related child nutrition activities. For further details on these and other functions funded
by the child nutrition programs account, see USDA-FNS, “2024 USDA Explanatory Notes–Food and Nutrition
Service,” https://www.usda.gov/sites/default/files/documents/35-2024-FNS.pdf.
215 USDA-FNS, “Healthy Meals Incentives for Schools,” https://www.fns.usda.gov/cn/healthy-meals-incentives.
Broadly, Division N, Title VII, Section 751 of P.L. 116-260 provided funding for the Secretary of Agriculture “to
prevent, prepare for, and respond to coronavirus by providing support for agricultural producers, growers, and
processors impacted by coronavirus, including producers and growers of specialty crops, non-specialty crops, dairy,
livestock, and poultry, producers that supply local food systems, including farmers markets, restaurants, and schools.”
According to USDA’s Request for Applications (RFA) for the subgrants, “the activities under this RFA are expected to
result in increased demand for nutritious agricultural products and therefore benefit the producers that supply SFAs
with these products.”
216 Action for Healthy Kids, “Healthy Meals Incentives Grants for Small and/or Rural School Food Authorities:
Request for Applications,” April 6, 2023, https://healthymealsincentives.org/wp-
content/uploads/2023/04/HMI_SubGrantRFA_4623_FINAL.pdf.
217 USDA-FNS, “USDA Makes Available More Than $60 Million in School Meals, Launches New Partnership,”
October 11, 2023, https://www.fns.usda.gov/news-item/usda-0207.33; USDA-FNS, “Development and Implementation
of Healthy Meals Incentives School Food System Transformation Challenge Sub-Grants – Cooperative Agreement:
Fiscal Year 2023 Request for Applications (RFA),” CFDA 10.579, November 10, 2022.
218 Ibid. This initiative is based in part on the previous USDA HealthierUS School Challenge (carried out under the
Obama Administration), according to USDA-FNS, “2024 USDA Explanatory Notes–Food and Nutrition Service,”
https://www.usda.gov/sites/default/files/documents/35-2024-FNS.pdf.
219 USDA-FNS, “Healthy Meals Incentives for Schools,” https://www.fns.usda.gov/cn/healthy-meals-incentives.
220 Section 243 of P.L. 111-296, adding Section 18(g) of the NSLA (42 U.S.C. §1769(g)).
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School Meals and Other Child Nutrition Programs: Background and Funding
school efforts, defined broadly as “efforts that bring regionally and locally produced foods into efforts that bring regionally and locally produced foods into
school cafeterias,school cafeterias,”" with a focus on enhancing child nutrition. with a focus on enhancing child nutrition.221231 The goals of these efforts include The goals of these efforts include
increasing fruit and vegetable consumption among students, supporting local farmers and rural increasing fruit and vegetable consumption among students, supporting local farmers and rural
communities, and providing nutrition and agriculture education. The farm to school program has communities, and providing nutrition and agriculture education. The farm to school program has
mandatory funding of $5 million, which has been supplemented with discretionary funds in recent mandatory funding of $5 million, which has been supplemented with discretionary funds in recent
years.years.222
232
One component of the farm to school program is farm to school grants, which are awarded by One component of the farm to school program is farm to school grants, which are awarded by
FNS on a competitive basis to schools, nonprofit entities, and agricultural producers and FNS on a competitive basis to schools, nonprofit entities, and agricultural producers and
processors for the purpose of establishing programs that improve schoolsprocessors for the purpose of establishing programs that improve schools’' access to locally access to locally
produced foods. They may be used for training, supporting operations, planning, purchasing produced foods. They may be used for training, supporting operations, planning, purchasing
equipment, developing school gardens, nutrition education, developing partnerships, and other equipment, developing school gardens, nutrition education, developing partnerships, and other
activities.activities.223 In FY2023233 In FY2024, FNS awarded $, FNS awarded $10.7 million for 103 grants14.3 million to 154 grantees, which were projected to , which were projected to
serve more than 3,000 schools and 1.2 million students.serve more than 3,000 schools and 1.2 million students.224
234
In FY2022, FNS used American Rescue Plan Act of 2021 (P.L. 117-2) funding to provide an In FY2022, FNS used American Rescue Plan Act of 2021 (P.L. 117-2) funding to provide an
additional $60 million in non-competitive farm to school program funding to states for use over a additional $60 million in non-competitive farm to school program funding to states for use over a
four-year period. FNS distributed the funding using a formula based on statesfour-year period. FNS distributed the funding using a formula based on states’' NSLP NSLP
participation.participation.225
235 Institute of Child Nutrition
The Institute of Child Nutrition The Institute of Child Nutrition (ICN) provides technical assistance, instruction, and materials for provides technical assistance, instruction, and materials for
nutrition and food service professionals and other local administrators of child nutrition programs nutrition and food service professionals and other local administrators of child nutrition programs
on a variety of topics. The institute receives $5 million a year in mandatory funding appropriated on a variety of topics. The institute receives $5 million a year in mandatory funding appropriated
in statute.226in statute.236 It has also received additional discretionary funding in recent fiscal years.237 The institute is currently located at the University of Mississippi. The institute is currently located at the University of Mississippi.
Team Nutrition
The Team Nutrition initiative supports federally and state-developed nutrition education and The Team Nutrition initiative supports federally and state-developed nutrition education and
promotion initiatives. This includes grants for state agencies to develop programs to improve promotion initiatives. This includes grants for state agencies to develop programs to improve
school meal quality, such as by training school nutrition professionals. From 2004 to 2018, Team school meal quality, such as by training school nutrition professionals. From 2004 to 2018, Team
Nutrition also included the HealthierUS Schools Challenge, which was a voluntary certification Nutrition also included the HealthierUS Schools Challenge, which was a voluntary certification
initiative designed to recognize schools that create a healthy school environment through the initiative designed to recognize schools that create a healthy school environment through the
promotion of nutrition and physical activity.promotion of nutrition and physical activity.227
221 USDA-FNS, The Farm to School Program—2012-2015: Four Years in Review, p. 3.
222 Mandatory funding for the farm to school program is provided under Section 18(g)(8)(A) of the NSLA (42 U.S.C.
§1769(g)(8)(A)). The program also received $14 million in annual appropriations in FY2023.
223 For more information, see USDA-FNS’s Office of Community Food Systems website: http://www.fns.usda.gov/
farmtoschool/farm-school; and CRS Report R46538, Local and Urban Food Systems: Selected Farm Bill and Other
Federal Programs.
224 USDA-FNS, “Biden-Harris Administration Announces Investments in Urban Agriculture, Food and Market Access
through President Biden’s Investing in America Agenda,” July 21, 2023, https://www.fns.usda.gov/news-item/usda-
0155.23.
225 USDA-FNS, “2024 USDA Explanatory Notes – Food and Nutrition Service,” p. 35-40.
226 Section 21(e)(1)(A) of the NSLA (42 U.S.C. §1769b-1(e)(1)(A)).
227 See the USDA-FNS website, http://www.fns.usda.gov/hussc/healthierus-school-challenge-smarter-lunchrooms.
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Food Safety
238 Healthy Meals Incentives Initiative
sanitation standards for food storage, preparation, and service. Schools participating in the school sanitation standards for food storage, preparation, and service. Schools participating in the school
meals programs must obtain food safety inspections by a state or local government agency at least meals programs must obtain food safety inspections by a state or local government agency at least
twice a year.twice a year.228244 There are also food safety inspections for USDA Foods. There are also food safety inspections for USDA Foods.229245 FNS also receives FNS also receives
annual funding to carry out food safety training for state and local program operators.annual funding to carry out food safety training for state and local program operators.230
246 FNS Activities
Approximately $Approximately $100120 million was provided in million was provided in FY2023FY2024 for FNS activities including technology, for FNS activities including technology,
research, training and technical assistance, and payment oversight.research, training and technical assistance, and payment oversight.231247 This funding supports, for This funding supports, for
example, computer systems such as the USDA Foods ordering and purchasing application, FNS example, computer systems such as the USDA Foods ordering and purchasing application, FNS
technical assistance, and guidance to states in implementing corrective actions to payment technical assistance, and guidance to states in implementing corrective actions to payment
errors.errors.232
248 Further Information
CRS reports:CRS reports:
• CRS In Focus IF10266, CRS In Focus IF10266, Child Nutrition Reauthorization (CNR): An Overview
• CRS Report R46681, USDA Nutrition Assistance Programs: Response to the
COVID-19 Pandemic
• CRS In Focus IF11633, Summer Food for Children: An Overview of Federal Aid
•
CRS In Focus IF11633, Summer Food for Children: An Overview of Federal Aid
CRS Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic
CRS Report R46888, CRS Report R46888, Amending Eligibility Rules for Free and Reduced-Price
School Meals: Background and Policy Options
•
CRS Report R46371, CRS Report R46371, Serving Free School Meals through the Community
Eligibility Provision (CEP): Background and Participation
•
CRS Report R47199, CRS Report R47199, The School Foodservice Workforce: Characteristics and
Labor Market Outcomes
•
CRS Report R42353, CRS Report R42353, Domestic Food Assistance: Summary of Programs
•
CRS Report R45486, CRS Report R45486, Child Nutrition Programs: Issues in the 115th Congress
•
CRS Report R44373, CRS Report R44373, Tracking Child Nutrition Reauthorization in the 114th
Congress: An Overview
•
CRS Report R41354, CRS Report R41354, Child Nutrition and WIC Reauthorization: P.L. 111-296
(summarizes the Healthy, Hunger-Free Kids Act of 2010)(summarizes the Healthy, Hunger-Free Kids Act of 2010)
• CRS Report RL34081
CRS In Focus IF12193, , Farm and Food Support Under USDA’'s Section 32
Account
Program
228 Section 9(h) of the NSLA (42 U.S.C. §1758(h)).
229 Section 29 of the NSLA (42 U.S.C. §1769j).
230 USDA, FNS, “2024 USDA Explanatory Notes – Food and Nutrition Service,” p. 35-14.
231 Ibid.
232 For more information on these and other USDA-FNS activities, see USDA-FNS, “2023 USDA Explanatory Notes–
Food and Nutrition Service,” https://www.usda.gov/sites/default/files/documents/35-2023-FNS.pdf.
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School Meals and Other Child Nutrition Programs: Background and Funding
• CRS Report RL33299, CRS Report RL33299, Child Nutrition and WIC Legislation in the 108th and
109th Congresses (summarizes the Child Nutrition and WIC Reauthorization Act (summarizes the Child Nutrition and WIC Reauthorization Act
of 2004)of 2004)
Other resources:Other resources:
• USDA-FNS website: https://www.fns.usda.govUSDA-FNS website: https://www.fns.usda.gov
•
The USDA-FNS page of the The USDA-FNS page of the Federal Register: https://www.federalregister.gov/: https://www.federalregister.gov/
agencies/food-and-nutrition-serviceagencies/food-and-nutrition-service
•
USDA-FNS Congressional Budget Justifications: USDA-FNS Congressional Budget Justifications: https://www.usda.gov/about-usda/general-information/staff-offices/office-budget-and-program-analysis/congressional-justifications
Appendix A.
https://www.usda.gov/cj
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School Meals and Other Child Nutrition Programs: Background and Funding
Appendix A. A Brief History of Federal Child
Nutrition Programs
Other Historical Resources
The Emergence of School
The
The National Food Service Management Institute (now National Food Service Management Institute (now
Lunches and the National
the Institute of Child Nutrition), with funding from the Institute of Child Nutrition), with funding from
USDA, produced a 15-minute video documenting the USDA, produced a 15-minute video documenting the
School Lunch Program
history of the child nutrition programs through 2007. history of the child nutrition programs through 2007.
“"A Journey Through the History of Child Nutrition A Journey Through the History of Child Nutrition
When the first federal aid for school lunches
Programs” is available on the Institute of Child
was provided in the 1930s, local school lunch
Nutrition’s YouTube page (https://youtu.be/
Programs" is available on the Institute of Child Nutrition's YouTube page (https://youtu.be/9E29Qg5G0g4).
programs were already operational in many
9E29Qg5G0g4).
cities and localities across the United States.cities and localities across the United States.233
250 Many of these early lunch programs were started by charitable womenMany of these early lunch programs were started by charitable women’'s organizations at the turn s organizations at the turn
of the century in an effort to feed hungry children. Over time, they transitioned to school boards of the century in an effort to feed hungry children. Over time, they transitioned to school boards
and school districts. These programs received a combination of private, local, and state and school districts. These programs received a combination of private, local, and state
funding.funding.234
251
The federal government became involved in school lunch programs during the Great Depression The federal government became involved in school lunch programs during the Great Depression
both as a way to feed hungry children and support the farm economy. Initially, federal aid was both as a way to feed hungry children and support the farm economy. Initially, federal aid was
provided in the form of cafeteria equipment and labor. In 1932, the Reconstruction Finance provided in the form of cafeteria equipment and labor. In 1932, the Reconstruction Finance
Corporation began providing loans to states and school districts to cover the cost of cafeteria Corporation began providing loans to states and school districts to cover the cost of cafeteria
space and equipment for school lunch programs.space and equipment for school lunch programs.235252 In 1935, the Works Progress Administration, a In 1935, the Works Progress Administration, a
New Deal agency, began sponsoring womenNew Deal agency, began sponsoring women’'s employment in school lunchrooms. Federal food s employment in school lunchrooms. Federal food
support for school lunches began that same year, when Section 32 of the Act of August 24, 1935 support for school lunches began that same year, when Section 32 of the Act of August 24, 1935
(P.L. 74-320) was enacted. The act provided 30% of customs receipts to USDA to purchase (P.L. 74-320) was enacted. The act provided 30% of customs receipts to USDA to purchase
surplus commodities from farmers impacted by the depression. These commodities were donated surplus commodities from farmers impacted by the depression. These commodities were donated
through various outlets for domestic consumption, including school lunch programs.through various outlets for domestic consumption, including school lunch programs.
With commodity aid came the first federal regulations for school lunch programs. USDA required With commodity aid came the first federal regulations for school lunch programs. USDA required
recipient organizations, through their agreements with state agencies, to operate school lunch recipient organizations, through their agreements with state agencies, to operate school lunch
programs on a nonprofit basis, maintain any existing local funding for school lunches, keep programs on a nonprofit basis, maintain any existing local funding for school lunches, keep
records of foods received, serve meals free to poor children, and ensure that such children would records of foods received, serve meals free to poor children, and ensure that such children would
not be identified to their peers, among other requirements.not be identified to their peers, among other requirements.236
253
The availability of federal aid contributed to a rapid increase in the number of school lunch The availability of federal aid contributed to a rapid increase in the number of school lunch
programs. However, in 1943, federal commodity aid declined as Section 32 surplus commodities programs. However, in 1943, federal commodity aid declined as Section 32 surplus commodities
were diverted to feed U.S. armed forces in World War II. In addition, federal support for
233 The first cities to institute school lunch programs included Boston, Chicago, Cleveland, Cincinnati, Los Angeles,
Milwaukee, New York, Philadelphia, and St. Louis. G.W. Gunderson, The National School Lunch Program:
Background and Development, USDA-FNS, 1971, https://www.fns.usda.gov/nslp/history (hereinafter, Gunderson
1971); A.R. Ruis, Eating to Learn, Learning to Eat: The Origins of School Lunch in the United States (New
Brunswick: Rutgers University Press, 2017), pp. 22-27; Susan Levine, School Lunch Politics: The Surprising History
of America’s Favorite Welfare Program (Princeton, NJ: Princeton University Press, 2008), p. 22 (hereinafter, Levine
2008).
234 Ibid.
235 Levine 2008, p. 44.
236 Gunderson 1971; The Bureau of Agricultural Economics, USDA, “The School Lunch Program and Agricultural
Surplus Disposal,” Miscellaneous Publications No. 467, October 1941.
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were diverted to feed U.S. armed forces in World War II. In addition, federal support for lunchroom labor disappeared with the elimination of the Works Progress Administration.lunchroom labor disappeared with the elimination of the Works Progress Administration.237254 In the In the
midst of declining aid, Congress provided the first cash assistance—$50 million in Section 32 midst of declining aid, Congress provided the first cash assistance—$50 million in Section 32
funds—for funds—for“"a school milk and lunch programa school milk and lunch program”" in the 1944 Department of Agriculture in the 1944 Department of Agriculture
Appropriation Act (P.L. 78-129). The introduction of cash assistance marked a shift in the lunch Appropriation Act (P.L. 78-129). The introduction of cash assistance marked a shift in the lunch
program.program.238255 For the first time, schools could purchase their own foods in addition to receiving For the first time, schools could purchase their own foods in addition to receiving
federally purchased commodities.federally purchased commodities.
Annual appropriations acts continued cash support for school lunches until 1946, when the Annual appropriations acts continued cash support for school lunches until 1946, when the
National School Lunch Act (P.L. 79-396) was enacted. Signed into law on June 4, 1946, by National School Lunch Act (P.L. 79-396) was enacted. Signed into law on June 4, 1946, by
President Truman, the National School Lunch Act permanently authorized appropriations of President Truman, the National School Lunch Act permanently authorized appropriations of
“"such sums as may be necessarysuch sums as may be necessary”" for the National School Lunch Program. (The act would later for the National School Lunch Program. (The act would later
be renamed the be renamed the“"Richard B. Russell National School Lunch Act,Richard B. Russell National School Lunch Act,”" recognizing Senator Russell recognizing Senator Russell’s
's role in the passage of the legislation and his earlier support for the school lunch program within role in the passage of the legislation and his earlier support for the school lunch program within
New Deal programs and during his tenure as the Chairman of the Agriculture Appropriations New Deal programs and during his tenure as the Chairman of the Agriculture Appropriations
subcommittee.subcommittee.239256) The law required participating schools to serve lunches for free or at a reduced ) The law required participating schools to serve lunches for free or at a reduced
price to students who were deemed by local school authorities as unable to pay the full cost of a price to students who were deemed by local school authorities as unable to pay the full cost of a
lunch. Funds were to be distributed to states based on the number of school-aged children in the lunch. Funds were to be distributed to states based on the number of school-aged children in the
state and the statestate and the state’'s need, as measured by per-capita income, and states were to match federal s need, as measured by per-capita income, and states were to match federal
funds dollar-for-dollar. States were to distribute funding on a monthly basis to schools based on funds dollar-for-dollar. States were to distribute funding on a monthly basis to schools based on
the number of meals served that met the number of meals served that met“"minimum nutritional requirements prescribed by the minimum nutritional requirements prescribed by the
Secretary on the basis of tested, nutritional researchSecretary on the basis of tested, nutritional research”" (P.L. 79-396). (P.L. 79-396).240257 Cash assistance could not Cash assistance could not
be used for cafeteria equipment, and separate funds were authorized for this purpose ($10 million be used for cafeteria equipment, and separate funds were authorized for this purpose ($10 million
annually); however, Congress subsequently prohibited appropriations for equipment assistance annually); however, Congress subsequently prohibited appropriations for equipment assistance
from FY1948 to FY1967.from FY1948 to FY1967.241
258
NSLP remained relatively unchanged from 1946 to 1960. However, during this timeframe, NSLP remained relatively unchanged from 1946 to 1960. However, during this timeframe,
concerns emerged over the funding formula. One concern was that the formula prioritized concerns emerged over the funding formula. One concern was that the formula prioritized
funding for schools with large numbers of school-aged children rather than actual participants in funding for schools with large numbers of school-aged children rather than actual participants in
the program. There was also concern that schools with high proportions of needy children the program. There was also concern that schools with high proportions of needy children
received the same amount of aid as those with wealthier families, even though they had to serve a received the same amount of aid as those with wealthier families, even though they had to serve a
larger number of meals for free or at a reduced-price.larger number of meals for free or at a reduced-price.242259 In 1962, P.L. 87-823 changed the funding In 1962, P.L. 87-823 changed the funding
formula to be based on the number of school lunches served in the state in the preceding school formula to be based on the number of school lunches served in the state in the preceding school
year instead of the number of school-aged children. The law also authorized additional year instead of the number of school-aged children. The law also authorized additional“"special special
assistance”assistance" for state-selected schools in poor economic areas (however, special assistance was not for state-selected schools in poor economic areas (however, special assistance was not
funded until 1966).243
237 Gunderson 1971.
238 However, commodity assistance continued to make up a large share of federal support for school lunches, and
exceeded cash assistance until 1970. J.Y. Jones, “Appendix A: Child Nutrition Programs: A Narrative Legislative
History and Program Analysis” in U.S. Congress, House Committee on Education and Labor, Child Nutrition
Programs: Issues for the 103d Congress, 103rd Cong., 2nd sess., Serial No. 103-H (Washington, DC: GPO, 1994)
(hereinafter, Jones 1994).
239 J.T. Gay, “Richard B. Russell and the National School Lunch Program,” The Georgia Historical Quarterly, 80(4),
1996, pp. 860-863.
240 Jones 1994, p. 41. USDA provided the highest reimbursement (up to 9 cents) for a “complete” Type A meal that
was designed to provide one-third to one-half of a child’s daily nutritional intake; up to 6 cents was provided for an
“incomplete” Type B meal; and up to 2 cents for a Type C meal, which was simply a half-pint of milk. To see the
original nutritional requirements for each type of meal, see Gunderson 1971.
241 Jones 1994, pp. 59-61.
242 Jones 1994, pp. 41, 63-64; Levine 2008, p. 128.
243 CRS DL741517, “Brief History of Child Nutrition Legislation,” by Kathryn Michelman and Joe Richardson, 1974.
(continued...)
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funded until 1966).260
Other notable changes to NSLP occurred in the 1970s. In 1970, P.L. 91-248 extended special Other notable changes to NSLP occurred in the 1970s. In 1970, P.L. 91-248 extended special
assistance to all schools participating in NSLP.assistance to all schools participating in NSLP.244261 The law also reduced the state matching The law also reduced the state matching
requirement and established the first national eligibility guidelines for free and reduced-price requirement and established the first national eligibility guidelines for free and reduced-price
meals at 100% of the federal poverty level (later in the decade increased to 125% for free lunches meals at 100% of the federal poverty level (later in the decade increased to 125% for free lunches
and 195% for reduced-price lunches). In 1971, another significant change occurred with the and 195% for reduced-price lunches). In 1971, another significant change occurred with the
enactment of P.L. 92-153, which guaranteed states a certain level of federal cash assistance by enactment of P.L. 92-153, which guaranteed states a certain level of federal cash assistance by
specifying average per-meal reimbursement rates for free, reduced-price, and paid lunches.specifying average per-meal reimbursement rates for free, reduced-price, and paid lunches.245
262 The Addition of Other Child Nutrition Programs
In the 1960s, federal child nutrition efforts expanded beyond school lunches.In the 1960s, federal child nutrition efforts expanded beyond school lunches.246263 On October 11, On October 11,
1966, the Child Nutrition Act of 1966 (P.L. 89-642) was enacted.1966, the Child Nutrition Act of 1966 (P.L. 89-642) was enacted.247264 It formally authorized the It formally authorized the
Special Milk Program (SMP) and authorized the School Breakfast Program (SBP) as a pilot Special Milk Program (SMP) and authorized the School Breakfast Program (SBP) as a pilot
program. The SMP was based on predecessor USDA school milk programs that had operated program. The SMP was based on predecessor USDA school milk programs that had operated
since the 1940s.since the 1940s.248265 SBP was a newer concept that USDA had piloted in the 1965-1966 school SBP was a newer concept that USDA had piloted in the 1965-1966 school
year.year.249266 In a House Agriculture Committee hearing on the Child Nutrition Act, then-Secretary of In a House Agriculture Committee hearing on the Child Nutrition Act, then-Secretary of
Agriculture Orville L. Freeman testified thatAgriculture Orville L. Freeman testified that:
These proposals will permit us to begin a comprehensive effort to broaden child nutrition These proposals will permit us to begin a comprehensive effort to broaden child nutrition
programs in this country. They are based on what we have learned in 20 years of
programs in this country. They are based on what we have learned in 20 years of administration of the National School Lunch Act, and they reflect a careful assessment of administration of the National School Lunch Act, and they reflect a careful assessment of
gaps which now exist in the nutritional needs of children in this country.gaps which now exist in the nutritional needs of children in this country.250
267
The SMP provided reimbursements for milk in schools, nonprofit child care centers, summer The SMP provided reimbursements for milk in schools, nonprofit child care centers, summer
camps, and other nonprofit institutions. At the time, schools and institutions could participate in camps, and other nonprofit institutions. At the time, schools and institutions could participate in
both SMP and NSLP. Meanwhile, SBP was authorized for two fiscal years and required states to both SMP and NSLP. Meanwhile, SBP was authorized for two fiscal years and required states to
prioritize funds for prioritize funds for“"schools drawing attendance from areas in which poor economic conditions schools drawing attendance from areas in which poor economic conditions
exist and to those schools to which a substantial proportion of the children enrolled must travel exist and to those schools to which a substantial proportion of the children enrolled must travel
long distances dailylong distances daily”" (P.L. 89-642). (P.L. 89-642).251268 (Congress later expanded priority to include (Congress later expanded priority to include “"schools in schools in
According to Gunderson 1971, “The selection of the schools for receiving the special reimbursement from Section 11
funds was to be based upon five factors: The economic condition of the area from which the schools draw attendance;
The need for free or reduced-price lunches; The percent of free or reduced-price lunches being served in such schools;
The price of the lunch in such schools as compared with the average price of lunches served in the State; [and] The
need for additional assistance as evidenced by the financial position of the lunch program in such schools.”
244 CRS Memorandum 831481, Chronology of Major Federal Food Assistance Legislation (Food Stamps, Child
Nutrition Programs and Elderly Nutrition) 1932-1983, by Jean Yavis Jones, November 1983 (hereinafter, CRS
Memorandum 831481 (1983)).
245 CRS Memorandum 831481 (1983); Jones 1994, p. 43.
246 Levine 2008, p. 127; Jones 1994, p. 64.
247 Section 2 provided the purpose of the act: “In recognition of the demonstrated relationship between food and good
nutrition and the capacity of children to develop and learn, based on the years of cumulative successful experience
under the National School Lunch Program with its significant contributions in the field of applied nutrition research, it
is hereby declared to be the policy of Congress that these efforts shall be extended, expanded, and strengthened under
the authority of the Secretary of Agriculture as a measure to safeguard the health and well-being of the Nation’s
children, and to encourage the domestic consumption of agricultural and other foods, by assisting States, through
grants-in-aid and other means, to meet more effectively the nutritional needs of our children.”
248 Gunderson 1971.
249 U.S. Congress, House Committee on Agriculture, Hearing on H.R. 13361 and Bills to Amend and Make Permanent
the Special Milk Program for Children, committee print, 89th Cong., 2nd Sess., June 23 and June 24, 1966, H. Prt. 66-
126 (Washington, DC: GPO, 1966), p. 16.
250 Ibid, p. 12.
251 USDA-FNS, “School Breakfast Program: Program History,” July 2013, https://www.fns.usda.gov/sbp/program-
history.
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which there is a special need for improving the nutrition and dietary practices of children of which there is a special need for improving the nutrition and dietary practices of children of
working mothers and children from low-income familiesworking mothers and children from low-income families”" (P.L. 92-32).) The Child Nutrition Act (P.L. 92-32).) The Child Nutrition Act
of 1966 also gave the Secretary the authority to provide higher reimbursements to schools with of 1966 also gave the Secretary the authority to provide higher reimbursements to schools with
“"severe need.severe need.”" Like NSLP, the law specified that breakfasts Like NSLP, the law specified that breakfasts “"meet minimum nutritional meet minimum nutritional
requirements prescribed by the Secretary on the basis of tested nutritional research,requirements prescribed by the Secretary on the basis of tested nutritional research,”" and be and be
served for free or at a reduced price to children unable to pay the full price of a meal, as served for free or at a reduced price to children unable to pay the full price of a meal, as
determined by local school authorities (P.L. 89-642).determined by local school authorities (P.L. 89-642).
In 1968, child nutrition efforts were further expanded with the authorization of the Special Food In 1968, child nutrition efforts were further expanded with the authorization of the Special Food
Service Program for Children (SFSPC), a pilot program to fund meals in summer and child care Service Program for Children (SFSPC), a pilot program to fund meals in summer and child care
settings (P.L. 90-302). SFSPC provided the first federal assistance for summer meals for children settings (P.L. 90-302). SFSPC provided the first federal assistance for summer meals for children
and the first dedicated assistance for meals served in child care settings.and the first dedicated assistance for meals served in child care settings.252269 Similar to SBP, SFSPC Similar to SBP, SFSPC
was targeted to areas with poor economic conditions and a high number of working mothers.was targeted to areas with poor economic conditions and a high number of working mothers.
In 1975, the program was split into the separate Child Care Food Program (CCFP) and the In 1975, the program was split into the separate Child Care Food Program (CCFP) and the
Summer Food Service Program (SFSP) (P.L. 94-105). CCFP was open to public and nonprofit Summer Food Service Program (SFSP) (P.L. 94-105). CCFP was open to public and nonprofit
institutions that met child care licensing or other official child care standards, while SFSP institutions that met child care licensing or other official child care standards, while SFSP
retained a focus on institutions in low-income areas.retained a focus on institutions in low-income areas.253270 Meals were provided for free to all Meals were provided for free to all
children at SFSP sites, whereas CCFP conducted free and reduced-price eligibility determinations children at SFSP sites, whereas CCFP conducted free and reduced-price eligibility determinations
like NSLP.like NSLP.
1980 to 2010
The long-standing growth of child nutrition programs was contrasted with budget cuts in the early The long-standing growth of child nutrition programs was contrasted with budget cuts in the early
1980s, which were part of larger efforts to reduce federal domestic spending.1980s, which were part of larger efforts to reduce federal domestic spending.254271 The Omnibus The Omnibus
Reconciliation Act of 1980 (P.L. 96-499) reduced FY1981 funding for child nutrition programs Reconciliation Act of 1980 (P.L. 96-499) reduced FY1981 funding for child nutrition programs
by approximately $400 million (9%) of the child nutrition budget.by approximately $400 million (9%) of the child nutrition budget.255272 The law achieved savings by The law achieved savings by
lowering reimbursement rates in the programs and eliminating commodity assistance for lowering reimbursement rates in the programs and eliminating commodity assistance for
breakfast, among other changes.breakfast, among other changes.256273 Larger spending cuts followed with the Omnibus Larger spending cuts followed with the Omnibus
Reconciliation Act of 1981, which made changes that collectively cut $1.4 billion (25%) of the Reconciliation Act of 1981, which made changes that collectively cut $1.4 billion (25%) of the
child nutrition budget (Title VIII of P.L. 97-35child nutrition budget (Title VIII of P.L. 97-35).274).257 Many of the policy changes made by the law Many of the policy changes made by the law
remain in place today. For example, the law restricted eligibility from 195% of poverty to 185% remain in place today. For example, the law restricted eligibility from 195% of poverty to 185%
of poverty for reduced-price meals and set eligibility at 130% for free meals in the NSLP, SBP, of poverty for reduced-price meals and set eligibility at 130% for free meals in the NSLP, SBP,
and CCFP. It also raised allowable charges for reduced-price lunches from 20 cents to 40 cents and CCFP. It also raised allowable charges for reduced-price lunches from 20 cents to 40 cents
and for reduced-price breakfasts from 10 cents to 30 cents.and for reduced-price breakfasts from 10 cents to 30 cents.258275 In a major change to SMP, the law In a major change to SMP, the law
excluded schools/institutions that participated in another child nutrition meals program from excluded schools/institutions that participated in another child nutrition meals program from
participating in SMP—cutting SMPparticipating in SMP—cutting SMP’'s budget by 77%.s budget by 77%.259276 In CCFP, the law restricted participation In CCFP, the law restricted participation
from children ages 18 and under to children ages 12 and under, and reduced the maximum from children ages 18 and under to children ages 12 and under, and reduced the maximum
252 Early appropriations for school lunches in 1944 and 1945 had allowed states to spend a small percentage of funds on
food served in child care centers. The National School Lunch Act of 1946 made permanent support for meals served in
residential child care institutions only.
253 Low-income areas were defined as areas in which at least one-third of children qualified for free or reduced-price
meals.
254 Jones 1994, p. 44.
255 CRS Memorandum 831481 (1983); Jones 1994, p. 44.
256 CRS Memorandum 831481 (1983); Jones 1994, p. 86.
257 Jones 1994, p. 44.
258 CRS Memorandum 831481 (1983).
259 Jones 1994, pp. 44-45.
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number of reimbursable meals from three meals and two snacks per child daily to two meals and number of reimbursable meals from three meals and two snacks per child daily to two meals and
one snack per child daily. The law also eliminated equipment assistance for school meals.one snack per child daily. The law also eliminated equipment assistance for school meals.
Child nutrition programs were subsequently excluded from budget deficit reduction measures in Child nutrition programs were subsequently excluded from budget deficit reduction measures in
the late 1980s and 1990s, and new policies led to the expansion of the programs during this the late 1980s and 1990s, and new policies led to the expansion of the programs during this
timeframe.timeframe.260277 For example, amendments to the programs in these years authorized start-up grants For example, amendments to the programs in these years authorized start-up grants
for school breakfast programs, expanded CCFP to adult day care centers (and renamed for school breakfast programs, expanded CCFP to adult day care centers (and renamed it(?) the Child the Child
and Adult Care Food Program, or CACFP), and provided new funding for afterschool snacks and Adult Care Food Program, or CACFP), and provided new funding for afterschool snacks
through NSLP and CACFP.through NSLP and CACFP.261278 But what had potentially the longest-term impact on expansion was But what had potentially the longest-term impact on expansion was
a policy change intended to reduce paperwork in the school meals programs: automatic a policy change intended to reduce paperwork in the school meals programs: automatic
(categorical) eligibility for free meals for children in food stamp (now SNAP) and Aid to Families (categorical) eligibility for free meals for children in food stamp (now SNAP) and Aid to Families
with Dependent Children (now TANF) households, which was enacted in 1986—and direct with Dependent Children (now TANF) households, which was enacted in 1986—and direct
certification of such children for free meals without household applications, which was enacted in certification of such children for free meals without household applications, which was enacted in
1989.1989.262
279
Other policies in the late 1980s and 1990s focused on improving program integrity. The 1989 Other policies in the late 1980s and 1990s focused on improving program integrity. The 1989
child nutrition reauthorization (P.L. 101-147) required USDA to create a standardized process child nutrition reauthorization (P.L. 101-147) required USDA to create a standardized process
through which states would review school food authoritiesthrough which states would review school food authorities’' administration of NSLP and SBP administration of NSLP and SBP
(known as administrative reviews).(known as administrative reviews).263280 In CACFP, following USDA Office of the Inspector In CACFP, following USDA Office of the Inspector
General (OIG) audits in the 1990s that found instances of abuse and mismanagement, the General (OIG) audits in the 1990s that found instances of abuse and mismanagement, the
Agricultural Risk Protection Act of 2000 (P.L. 106-224) made a number of changes aimed at Agricultural Risk Protection Act of 2000 (P.L. 106-224) made a number of changes aimed at
improving program integrity in CACFP.improving program integrity in CACFP.264281 The act required CACFP sponsors to conduct more The act required CACFP sponsors to conduct more
frequent and unannounced site visits of sponsored centers and homes, restricted nonprofit frequent and unannounced site visits of sponsored centers and homes, restricted nonprofit
institutions’institutions' eligibility to those with tax-exempt status, and excluded institutions deemed eligibility to those with tax-exempt status, and excluded institutions deemed
ineligible to participate in any other public program based on violations of program requirements. ineligible to participate in any other public program based on violations of program requirements.
Other legislation was aimed at improving program integrity in the school meals programs.Other legislation was aimed at improving program integrity in the school meals programs.
Program integrity continued to be a focus in the 2004 child nutrition reauthorization (P.L. 108-Program integrity continued to be a focus in the 2004 child nutrition reauthorization (P.L. 108-
265), which made changes to school food authorities265), which made changes to school food authorities’' verification of household applications for verification of household applications for
free and reduced-price meals. Specifically, the law set a sample size of applications that schools free and reduced-price meals. Specifically, the law set a sample size of applications that schools
must review, established a focus on must review, established a focus on“"error-proneerror-prone”" applications (applications near the income applications (applications near the income
eligibility thresholds), and authorized direct (automatic) household application verification eligibility thresholds), and authorized direct (automatic) household application verification
processes.processes.265282 In addition, the law required states to conduct additional administrative reviews of In addition, the law required states to conduct additional administrative reviews of
school food authorities with a high level of administrative error or risk of error.school food authorities with a high level of administrative error or risk of error.266
283
The 2004 child nutrition reauthorization also continued the expansion of free school meals to new The 2004 child nutrition reauthorization also continued the expansion of free school meals to new
categories of children. Specifically, the law extended categorical eligibility and direct certification categories of children. Specifically, the law extended categorical eligibility and direct certification
260 Jones 1994, p. 45.
261 Jones 1994, pp. 46-47.
262 USDA-FNS, Direct Certification in the National School Lunch Program: State Implementation Progress Report to
Congress, Office of Research and Analysis, December 2008, p. 3, https://www.fns.usda.gov/direct-certification-
national-school-lunch-program-state-implementation-progress.
263 Jones 1994, p. 68.
264 See, for example, USDA Office of Inspector General, Food and Nutrition Service: for free school meals to homeless children, migrant children, and children served under the Runaway and Homeless Youth Act.
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P.L. 90-302; P.L. 94-105. Adult day care was added in 1987 (Older Americans Act Amendments of 1987; P.L. 100-175). Also see Institute of Medicine, Child and Adult Care Food
Program: National Report on Program Abuses, Audit Report No. 27601-7-SF, August 1999, https://www.Program: Aligning Dietary Guidance for All, 2011, p. 30; USDA-FNS, "Summer Food Service Program History," https://www.fns.usda.gov/sfsp/program-history (accessed December 10, 2023).
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School meal state policy trackers include Food Research and Action Center (FRAC), "School Meals Legislation and Funding by State," updated July 2023, https://frac.org/wp-content/uploads/School-Meals-State-Legislation-Chart.pdf and School Nutrition Association, "Quarterly State Legislative Reports," https://schoolnutrition.org/LegislationPolicy/StateLegislationPolicyReports.
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CBO, "Details About Baseline Projections for Selected Programs: Child Nutrition Programs: January 2025," January 2025, https://www.cbo.gov/system/files/2025-01/51293-2025-01-childnutrition.pdf.
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For a list of states that adopted state funding for universal free meals, see the state map available at FRAC, "Healthy School Meals for All," https://frac.org/healthy-school-meals-for-all. The states that had adopted universal free school meal policies as of the cover date of this report were California, Colorado, Massachusetts, Maine, Michigan, Minnesota, New Mexico, New York, and Vermont. School meal state policy trackers include Food Research and Action Center, "School Meals Legislation and Funding by State," updated July 2023, https://frac.org/wp-content/uploads/School-Meals-State-Legislation-Chart.pdf and School Nutrition Association, "Quarterly State Legislative Reports," https://schoolnutrition.org/LegislationPolicy/StateLegislationPolicyReports.
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Grantees in various years included Connecticut, the Cherokee Nation, the Chickasaw Nation, Delaware, the Inter Tribal Council of Arizona, Michigan, Missouri, Nevada, Oregon, Tennessee, Texas, Virginia, Washington, and Wisconsin. In the summers of 2021-2023, state grantees did not operate Summer EBT demonstrations due to the availability of the Pandemic Electronic Benefit Transfer (P-EBT) program. However, three tribes (the Cherokee Nation, Chickasaw Nation, and Inter Tribal Council of Arizona) operated Summer EBT demonstration projects.
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254.
255.
256.
257.
258.
259.
260.
261.
262.
263.
264.
265.
266.
267.
268.
269.
270.
271.
272.
273.
274.
275.
276.
277.
278.
279.
280.
281.
282.
283.
284.
285.
usda.gov/
oig/webdocs/27601-7-SF.pdf.
265 USDA-FNS, Verification of Eligibility for Free and Reduced Price Meals in the National School Lunch and School
Breakfast Programs, 73 Federal Register 76847, December 18, 2008.
266 For more information, see CRS Report RL33299, Child Nutrition and WIC Legislation in the 108th and 109th
Congresses.
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School Meals and Other Child Nutrition Programs: Background and Funding
for free school meals to homeless children, migrant children, and children served under the
Runaway and Homeless Youth Act.
The most recent child nutrition reauthorization as of the date of this report was the Healthy,
Hunger-Free Kids Act of 2010 (HHFKA; P.L. 111-296). The HHFKA continued the expansion of
school meals in a few ways. It made foster children categorically eligible for free school meals,
and allowed direct certification of such children. It also included a pilot project for direct
certification (but not categorical eligibility) of children in Medicaid households for free and
reduced-price meals based on an income test. In addition, the HHFKA created the Community
Eligibility Provision (CEP), through which eligible schools can provide free meals to all students.
As discussed in this report, the HHFKA also made changes to nutritional requirements in the
school meals programs and CACFP. Specifically, the law required USDA to update the nutrition
standards for school meals within a certain timeframe and align the standards with the Dietary
Guidelines for Americans (per an existing statutory requirement).267 The law also required USDA
to issue new nutrition standards regulating all foods sold on school campuses during the school
day (“competitive foods”). (Previous standards applied only to competitive foods sold during
meal service.) In addition, the HHFKA required USDA to update the nutrition standards for
CACFP meals and snacks within a certain timeframe and align them with the Dietary Guidelines
for Americans.268
267 The 1994 child nutrition reauthorization (P.L. 103-448) required schools to serve breakfasts and lunches that were
consistent with the Dietary Guidelines for Americans.
268 For more information, see CRS Report R45486, Child Nutrition Programs: Issues in the 115th Congress. Also see
Janet Poppendieck, Free for All: Fixing School Food in America (Berkeley, CA: University of California Press, 2010).
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School Meals and Other Child Nutrition Programs: Background and Funding
Appendix B. Spending on Child Nutrition
Programs, FY1992-FY2022
Table B-1. Expenditures on Selected Child Nutrition Programs, FY1992-FY2022
(Actual)
(billions of nominal dollars)
Fiscal Year
NSLP
SBP
CACFP
SFSP
Total
1992
4.56
0.79
1.10
0.21
6.65
1993
4.75
0.87
1.22
0.22
7.07
1994
5.02
0.96
1.35
0.23
7.56
1995
5.16
1.05
1.46
0.24
7.91
1996
5.35
1.12
1.53
0.25
8.26
1997
5.55
1.21
1.57
0.24
8.58
1998
5.83
1.27
1.55
0.26
8.92
1999
6.02
1.35
1.62
0.27
9.25
2000
6.15
1.39
1.68
0.27
9.49
2001
6.48
1.45
1.74
0.27
9.93
2002
6.85
1.57
1.85
0.26
10.53
2003
7.19
1.65
1.93
0.26
11.02
2004
7.63
1.78
2.02
0.26
11.68
2005
8.03
1.93
2.11
0.27
12.34
2006
8.19
2.04
2.15
0.28
12.66
2007
8.74
2.16
2.24
0.29
13.43
2008
9.32
2.37
2.40
0.33
14.41
2009
9.99
2.58
2.53
0.35
15.46
2010
10.88
2.86
2.64
0.36
16.74
2011
11.30
3.03
2.72
0.37
17.43
2012
11.58
3.28
2.85
0.40
18.11
2013
12.22
3.51
2.99
0.43
19.16
2014
12.66
3.69
3.13
0.47
19.94
2015
13.00
3.89
3.31
0.49
20.69
2016
13.57
4.21
3.52
0.48
21.78
2017
13.64
4.25
3.54
0.48
21.92
2018
13.82
4.40
3.62
0.47
22.32
2019
14.20
4.55
3.73
0.47
22.96
2020
10.32
3.55
3.02
4.31
21.20
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School Meals and Other Child Nutrition Programs: Background and Funding
Fiscal Year
NSLP
SBP
CACFP
SFSP
Total
2021
9.32
3.13
3.80
10.67
26.92
2022
22.98
6.50
3.93
0.60
34.01
Source: USDA-FNS, “Child Nutrition Tables: NSLP, SBP and SMP—Program Costs—Cash and Commodities;
Child and Adult Care Food—Participation, Meals and Costs; and Summer Food Service—Participation, Meals and
Costs,” October 13, 2023, https://www.fns.usda.gov/pd/child-nutrition-tables.
Notes: NSLP category includes entitlement and bonus commodities and spending on the Seamless Summer
Option. Graph does not show all child nutrition program spending (e.g., it excludes FFVP, state administrative
expenses, and discretionary grants). FY2022 data are preliminary.
Table B-2. Expenditures on Selected Child Nutrition Programs, FY1992-FY2022
(Inflation-Adjusted)
(billions of FY2022 dollars)
Fiscal Year
NSLP
SBP
CACFP
SFSP
Total
1992
8.74
1.52
2.10
0.39
12.75
1993
8.84
1.63
2.28
0.41
13.16
1994
9.18
1.76
2.48
0.42
13.84
1995
9.17
1.86
2.60
0.42
14.05
1996
9.32
1.95
2.67
0.43
14.37
1997
9.47
2.07
2.68
0.42
14.63
1998
9.86
2.15
2.62
0.44
15.07
1999
10.06
2.25
2.71
0.45
15.46
2000
10.01
2.27
2.74
0.44
15.46
2001
10.27
2.30
2.76
0.43
15.76
2002
10.71
2.45
2.89
0.41
16.46
2003
10.91
2.51
2.92
0.39
16.73
2004
11.28
2.63
2.99
0.39
17.28
2005
11.48
2.76
3.02
0.38
17.64
2006
11.31
2.82
2.97
0.38
17.49
2007
11.74
2.91
3.01
0.39
18.05
2008
12.10
3.07
3.12
0.42
18.71
2009
13.00
3.36
3.30
0.45
20.10
2010
13.90
3.65
3.37
0.46
21.38
2011
14.10
3.79
3.40
0.47
21.75
2012
14.17
4.01
3.49
0.49
22.17
2013
14.75
4.24
3.61
0.52
23.12
2014
15.04
4.38
3.72
0.55
23.69
2015
15.37
4.60
3.91
0.58
24.45
2016
15.94
4.95
4.13
0.56
25.57
2017
15.76
4.91
4.08
0.56
25.31
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School Meals and Other Child Nutrition Programs: Background and Funding
2018
15.61
4.96
4.09
0.53
25.20
2019
15.75
5.04
4.14
0.53
25.46
2020
11.23
3.86
3.29
4.69
23.08
2021
9.87
3.31
4.02
11.30
28.50
2022
22.98
6.50
3.93
0.60
34.01
Source: CRS calculations using USDA-FNS, “Child Nutrition Tables: NSLP, SBP and SMP—Program Costs—
Cash and Commodities; Child and Adult Care Food—Participation, Meals and Costs; and Summer Food
Service—Participation, Meals and Costs,” October 13, 2023, https://www.fns.usda.gov/pd/child-nutrition-tables.
Notes: Amounts are in FY2022 dol ars, adjusted for GDP inflation by CRS using Office of Management and
Budget (OMB), "Historical Tables: Table 10.1—Gross Domestic Product and Deflators Used in the Historical
Tables: 1940–2028," March 2023. NSLP category includes entitlement and bonus commodities and spending on
the Seamless Summer Option. Graph does not show all child nutrition program spending (e.g., it excludes FFVP,
state administrative expenses, and discretionary grants). FY2022 data are preliminary.
Author Information
Kara Clifford Billings
Analyst in Social Policy
Acknowledgments
Prior CRS reports written by Randy Aussenberg, CRS Specialist in Nutrition Assistance Policy, and Joe
Richardson, former CRS Specialist, provided framework for this report.
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or
material from a third party, you may need to obtain the permission of the copyright holder if you wish to
copy or otherwise use copyrighted material.
Congressional Research Service
R46234 · VERSION 10 · UPDATED
57
Contents
- Background
- Child Nutrition Funding
- Federal Funding
- Per-Meal Cash Reimbursements
- Summer EBT Benefits
- Commodity Assistance
- Administrative Funds
- Other Federal Funding
- Nonfederal Funding
- Spending Trends
- National School Lunch Program (NSLP) and School Breakfast Program (SBP)
- Administration
- Eligibility and Reimbursement
- Income Eligibility
- Categorical Eligibility
- Direct Certification
- Verification of Eligibility
- Reimbursement
- Special Options
- Community Eligibility Provision (CEP)
- Provisions 1, 2, and 3
- Nutrition Standards and Food Service
- Nutrition Standards for School Meals
- Nutrition Standards for Competitive Foods
- Local School Wellness Policies
- Food Procurement and Preparation
- Meal Times and Settings
- School Meal Equipment Assistance Grants
- Child and Adult Care Food Program (CACFP)
- Administration
- Eligibility and Reimbursement
- CACFP Centers
- CACFP Day Care Homes
- Nutrition Standards and Food Service
- Nutrition Standards
- Procurement and Meal Service
- Summer Food
- Summer Food Service Program (SFSP)
- Administration
- Eligibility and Reimbursement
- Nutrition Standards
- Meal Service
- Seamless Summer Option (SSO)
- Summer EBT
- Special Milk Program (SMP)
- After-School Meals and Snacks
- CACFP At-Risk Afterschool Meals and Snacks
- NSLP Afterschool Snacks
- Fresh Fruit and Vegetable Program (FFVP)
- Other Child Nutrition Activities
- Farm to School Program
- Institute of Child Nutrition
- Team Nutrition
- Healthy Meals Incentives Initiative
- Food Safety
- FNS Activities
- Further Information
Figures
- Figure 1. Appropriations for Child Nutrition Programs, FY2024
- Figure 2. Average School Food Authority (SFA) Revenue by Source, School Year 2014-2015
- Figure 3. Expenditures on Major Child Nutrition Programs, FY2004-FY2024
- Figure 4. Federal, State, and Local Roles in the School Meals Programs
- Figure 5. Certification Pathways for Free and Reduced-Price School Meals
- Figure 6. CEP Schools as a Proportion of NSLP Schools, School Years 2014-2015 to 2023-2024
- Figure 7. Community Eligibility Provision (CEP) Reimbursement Formula
- Figure 8. Summer Meal Sponsors by Type, 2018
Tables
- Table 1. Child Nutrition Programs: Legislative Authorities and Descriptions
- Table 2. Example: NSLP Per-Meal Reimbursements, School Year 2024-2025
- Table 3. School Meals Income Eligibility Guidelines for a Household of Four
- Table 4. Reimbursement Rates: NSLP and SBP
- Table 5. Summary of the Nutrition Standards for School Lunches as of June 2025
- Table 6. CACFP Participation: Centers and Day Care Homes, FY2024
- Table 7. Reimbursement Rates: CACFP Centers and Day Care Homes
- Table 8. Reimbursement Rates: SFSP
- Table 9. Reimbursement Rates: SMP
Summary
The federal government has a long history of investing in programs for feeding children,settings. Administered by the U.S. Department of Agriculturesettings. Administered by the U.S. Department of Agriculture
(the (the school meals programs), which subsidize meals for ), which subsidize meals for
elementary and secondary schools in a typical school year. CACFP supports food served to children in child care, elementary and secondary schools in a typical school year. CACFP supports food served to children in child care,
day care, and afterschool settings; SFSP and SSO provide funding for summer meals and snacks; Summer EBT day care, and afterschool settings; SFSP and SSO provide funding for summer meals and snacks; Summer EBT
provides grocery benefits for households with school-age children over the summer; FFVP sponsors fruit and provides grocery benefits for households with school-age children over the summer; FFVP sponsors fruit and
vegetable snacks in elementary schools; and SMP subsidizes milk in schools and institutions that do not vegetable snacks in elementary schools; and SMP subsidizes milk in schools and institutions that do not
participate in other child nutrition programs. In general, the largest subsidies are provided for free or reduced-participate in other child nutrition programs. In general, the largest subsidies are provided for free or reduced-
price meals and snacks served to price meals and snacks served to
afterschool meal and snack programs, farm to school initiatives, and school meal equipment grants.afterschool meal and snack programs, farm to school initiatives, and school meal equipment grants.
Selected Child Nutrition Programs: Estimated Participants and Meal Sites,
FY2024 Source: CRS, based on USDA-FNS, CRS, based on USDA-FNS,
Note: FY2024 data are preliminary and subject to USDA revision.
which was mandatory spending. Most child nutrition programs are considered which was mandatory spending. Most child nutrition programs are considered appropriated entitlements, meaning , meaning
that their authorizing statutes establish a legal obligation to make payments, but that obligation is fulfilled through that their authorizing statutes establish a legal obligation to make payments, but that obligation is fulfilled through
cash reimbursements that states distribute to schools and institutionscash reimbursements that states distribute to schools and institutions, which is used toward the cost of operating the programs. A smaller amount of federal funding is . A smaller amount of federal funding is
provided in the form of federally purchased foods and cash for statesprovided in the form of federally purchased foods and cash for states
Lunch Act and the Child Nutrition Act of 1966 as amended. These laws were most recently reauthorized by the Lunch Act and the Child Nutrition Act of 1966 as amended. These laws were most recently reauthorized by the
Healthy, Hunger-Free Kids Act of 2010 (HHFKA, P.L. 111-296), which made several changes to the child Healthy, Hunger-Free Kids Act of 2010 (HHFKA, P.L. 111-296), which made several changes to the child
nutrition programs. For example, the act created the Community Eligibility Provision, an option for eligible nutrition programs. For example, the act created the Community Eligibility Provision, an option for eligible
schools to provide free meals to all students. It also required USDA to update nutrition standards in the school schools to provide free meals to all students. It also required USDA to update nutrition standards in the school
meals programs and CACFP within a certain timeframe. While certain provisions of the HHFKA expired at the meals programs and CACFP within a certain timeframe. While certain provisions of the HHFKA expired at the
end of FY2015, program operations have continued with annual appropriations. More recently, temporary changes end of FY2015, program operations have continued with annual appropriations. More recently, temporary changes
to the child nutrition programs were made in response to the COVID-19 pandemic (to the child nutrition programs were made in response to the COVID-19 pandemic (
Background
The child nutrition programs (summarized in Table 1)children in schools, child care, summer programs, and other institutional settings in all 50 states, children in schools, child care, summer programs, and other institutional settings in all 50 states,
the District of Columbia, and the U.S. territories.the District of Columbia, and the U.S. territories.
households with school-age children. The programs are administered by the U.S. Department of households with school-age children. The programs are administered by the U.S. Department of
agencies (often state departments of education) for distribution to school districts and other agencies (often state departments of education) for distribution to school districts and other
participating institutions and, in the case of summer grocery benefits, for distribution to participating institutions and, in the case of summer grocery benefits, for distribution to
households.households.
otherwise qualifying households.otherwise qualifying households.3
Children (WIC), which provides grocery benefits to pregnant and postpartum women, infants, Children (WIC), which provides grocery benefits to pregnant and postpartum women, infants,
and young children. WIC has typically been reauthorized with the child nutrition programs but is and young children. WIC has typically been reauthorized with the child nutrition programs but is
generally not considered a child nutrition program because it is funded under a separate account, generally not considered a child nutrition program because it is funded under a separate account,
and is not discussed in this report.and is not discussed in this report.4
created the National School Lunch Program (NSLP).created the National School Lunch Program (NSLP).
school lunches following early aid beginning in the 1930s. Other child nutrition programs were school lunches following early aid beginning in the 1930s. Other child nutrition programs were
added in the decades to follow as policymakers expanded feeding programs beyond the school added in the decades to follow as policymakers expanded feeding programs beyond the school
setting. The Child Nutrition Act of 1966 formalized the Special Milk Program (SMP) and created setting. The Child Nutrition Act of 1966 formalized the Special Milk Program (SMP) and created
the School Breakfast Program (SBP) as a pilot program.the School Breakfast Program (SBP) as a pilot program.
summer meals was piloted in 1968 and separated into the Child Care Food Program (now summer meals was piloted in 1968 and separated into the Child Care Food Program (now
CACFP) and the Summer Food Service Program (SFSP) in 1975.CACFP) and the Summer Food Service Program (SFSP) in 1975.
the Nationthe Nation
commodities and other food.commodities and other food.
School Lunch Act (NSLA) and the Child Nutrition Act of 1966.School Lunch Act (NSLA) and the Child Nutrition Act of 1966.
24, 193524, 1935, also provides a portion of child nutrition funding. Congressional jurisdiction over the also provides a portion of child nutrition funding. Congressional jurisdiction over the
underlying three laws has typically been exercised by the Senate Agriculture, Nutrition, and underlying three laws has typically been exercised by the Senate Agriculture, Nutrition, and
Forestry Committee, the House Education and Workforce (or Labor) Committee, and, to a limited Forestry Committee, the House Education and Workforce (or Labor) Committee, and, to a limited
extent (relating to Section 32), the House Agriculture Committee.extent (relating to Section 32), the House Agriculture Committee.
reauthorizes expiring authorities. The child nutrition programs were most recently reauthorized reauthorizes expiring authorities. The child nutrition programs were most recently reauthorized
by the Healthy, Hunger-Free Kids Act of 2010 (HHFKA, P.L. 111-296). Some of the authorities by the Healthy, Hunger-Free Kids Act of 2010 (HHFKA, P.L. 111-296). Some of the authorities
created or extended in the HHFKA expired on September 30, 2015; however, program operations created or extended in the HHFKA expired on September 30, 2015; however, program operations
have continued with annual appropriations.have continued with annual appropriations.
jurisdiction marked up child nutrition reauthorization bills but these proposals were not enacted.jurisdiction marked up child nutrition reauthorization bills but these proposals were not enacted.
12 Likewise, during the Likewise, during the
nutrition reauthorization bill (H.R. 8450) out of committee. The nutrition reauthorization bill (H.R. 8450) out of committee. The
further action on the bill.further action on the bill.
provides detail on each program, including a discussion of how they are administered, eligibility provides detail on each program, including a discussion of how they are administered, eligibility
rules for institutions and participants, nutritional and other program requirements, and recent rules for institutions and participants, nutritional and other program requirements, and recent
policy changes. Changes to child nutrition programs that policy changes. Changes to child nutrition programs that
pandemic are pandemic are
Program
Authorizing Statute
Description
Per-Child Benefit
NSLP
Subsidized lunches (free, reduced-price, and paid rate) for children in preschool through grade 12.
A smaller number of children in residential child care institutions are also served.a Includes an afterschool snack program option (the Includes an afterschool snack program option (theNSLP Afterschool Snack Program) and a summer NSLP Afterschool Snack Program) and a summer
meals program option (the Seamless Summer meals program option (the Seamless Summer
Option).Option).
One lunch (option for one snack) daily
SBP
Section 4 of the Child Nutrition Act of 1966 (42 U.S.C. §1773)
care institutions are also care institutions are also
One breakfast daily
CACFP
Afterschool meals and snacks for children who attend an organized afterschool program in a low-income area.
One meal and one snack daily
SFSP
Summer meals for children who visit community sites or attend summer programs, or for delivery/pick-up in rural areas.
SSO
Summer meals for children who visit school sites or programs, or for delivery/pick-up in rural areas.
Summer EBT
Summer grocery benefits for households with children eligible for free and reduced-price meals.
$40 per child in the household per summer month
SMP
kindergarten programs (who do not have access to kindergarten programs (who do not have access to
Quantity not specified
FFVP
and not all elementary schools may be covered.and not all elementary schools may be covered.
Quantity not specified
temporary shelters for abused children and for runaway children; long-term care facilities for chronically temporary shelters for abused children and for runaway children; long-term care facilities for chronically
ill children; and juvenile detention centerschildren; and juvenile detention centers
Child Nutrition Program Operations During the COVID-19
Pandemic Starting in March 2020 and continuing through school years 2020-2021 and 2021-2022, many Starting in March 2020 and continuing through school years 2020-2021 and 2021-2022, many
school districts operated the summer meals programs in lieu of the school meals programs.school districts operated the summer meals programs in lieu of the school meals programs.
summer meals programs, under USDA policy facilitated by COVID-19 pandemic response laws, summer meals programs, under USDA policy facilitated by COVID-19 pandemic response laws,
enabled schools to serve free meals to all students without eligibility determinations. With enabled schools to serve free meals to all students without eligibility determinations. With
expanded waiver authority and supplemental funding from COVID-19 pandemic response acts, expanded waiver authority and supplemental funding from COVID-19 pandemic response acts,
USDA also waived several child nutrition program requirements during the pandemic.USDA also waived several child nutrition program requirements during the pandemic.
example, USDA allowed parent pick-up and home delivery of meals, waived certain nutritional example, USDA allowed parent pick-up and home delivery of meals, waived certain nutritional
requirements, and allowed virtual monitoring of program operations.requirements, and allowed virtual monitoring of program operations.15
announced a transition back to normal child nutrition program operations starting in the 2022-announced a transition back to normal child nutrition program operations starting in the 2022-
2023 school year. However, some waivers remained in effect and program operators received 2023 school year. However, some waivers remained in effect and program operators received
enhanced funding (approximately $3 billion) in summer 2022 and school year 2022-2023 as a enhanced funding (approximately $3 billion) in summer 2022 and school year 2022-2023 as a
result of the Keep Kids Fed Act of 2022 (P.L. 117-158result of the Keep Kids Fed Act of 2022 (P.L. 117-158).16
through 2023-2024through 2023-2024, USDA distributed USDA distributed approximately $3.7 billion in $3.7 billion in
and school food authorities using Commodity Credit Corporation authority.and school food authorities using Commodity Credit Corporation authority.
survey conducted by USDA, 97% of school food authorities reported at least one continuing survey conducted by USDA, 97% of school food authorities reported at least one continuing
supply chain-related challenge supply chain-related challenge
shortages, and product shortages.shortages, and product shortages.18
For further information on child nutrition policies during the pandemic, including the Pandemic Electronic Benefit Transfer (P-EBT) program, see CRS Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic. Child Nutrition Funding Federal Funding Most funding for child nutrition programs is considered mandatory spending. However, unlike Most funding for child nutrition programs is considered mandatory spending. However, unlike
some mandatory programs, child nutrition programs require an appropriation of funding. This is some mandatory programs, child nutrition programs require an appropriation of funding. This is
because the programsbecause the programs
requirement for a certain level of spending, but the statute does not provide the funding directly. requirement for a certain level of spending, but the statute does not provide the funding directly.
Such programs are sometimes referred to as Such programs are sometimes referred to as appropriated entitlements or or appropriated
mandatories..
made available, entitled recipients (e.g., states, institutions, and participants) may have legal made available, entitled recipients (e.g., states, institutions, and participants) may have legal
recourse.recourse.20
child nutrition programs is open-ended. Because there is no specified limit on the number of child nutrition programs is open-ended. Because there is no specified limit on the number of
beneficiaries or the total amount of benefits that will be paid, spending fluctuates based on the beneficiaries or the total amount of benefits that will be paid, spending fluctuates based on the
number of meals and snacks served in the programs and statutorily set, annually adjusted per-number of meals and snacks served in the programs and statutorily set, annually adjusted per-
meal reimbursement rates. Congress typically considers USDAmeal reimbursement rates. Congress typically considers USDA
appropriations decisions.appropriations decisions.
reimbursements, commodity assistance, and administrative funds. The programs also have a reimbursements, commodity assistance, and administrative funds. The programs also have a
smaller amount of discretionary funding (determined in annual appropriations acts) and smaller amount of discretionary funding (determined in annual appropriations acts) and
mandatory funding (directly provided in the authorizing law, not annual appropriations acts). mandatory funding (directly provided in the authorizing law, not annual appropriations acts).
These funding streams are discussed in further detail below.These funding streams are discussed in further detail below.
The FY2025 full-year continuing resolution (P.L. 119-4) generally provided funding for projects and activities in the same amounts and under the same authorities and conditions as provided in FY2024 funding laws. Child nutrition programs and activities received $33.3 billion under P.L. 118-42 for FY2024. Nearly $29 billion of these funds were transferred to the child nutrition programs from Section 32 of the Act billion of these funds were transferred to the child nutrition programs from Section 32 of the Act
of August 24, 1935.of August 24, 1935.
Figure 1 presents presents
appropriations may not match expenditures appropriations may not match expenditures (presented later in this report) because most child nutrition funds carry over (they because most child nutrition funds carry over (they
Figure 1. Appropriations for Child Nutrition Programs, FY2024 Sources: CRS, based on the Consolidated Appropriations Act, CRS, based on the Consolidated Appropriations Act,
technical assistance, technical assistance, Team Nutrition grants, research, and payment oversight. b. Includes $5 million in annual mandatory funding provided by
SFSP, and SMP) takes the form of per-meal cash reimbursements. These rates are specified in the SFSP, and SMP) takes the form of per-meal cash reimbursements. These rates are specified in the
price) meals/snacks served by participating providers are subsidized, those served for free or at a price) meals/snacks served by participating providers are subsidized, those served for free or at a
reduced price to lower-income children earn higher rates. Meals must meet federal nutritional reduced price to lower-income children earn higher rates. Meals must meet federal nutritional
in high-poverty areas receive an extra in high-poverty areas receive an extra
highlighted within the subsequent discussions of each program.highlighted within the subsequent discussions of each program.
participating school districts and institutions. Districts and institutions must record daily counts of participating school districts and institutions. Districts and institutions must record daily counts of
meals in each category and report monthly counts to the state agency in order to receive meals in each category and report monthly counts to the state agency in order to receive
reimbursement. Once they receive federal funds, participating institutions are allowed to spend reimbursement. Once they receive federal funds, participating institutions are allowed to spend
these funds on most aspects of their food service operations.these funds on most aspects of their food service operations.
Table 2 provides an example of the per-lunch reimbursement rate for school districts and provides an example of the per-lunch reimbursement rate for school districts and
participant benefits in NSLP. Reimbursement rates for each child nutrition program are listed in participant benefits in NSLP. Reimbursement rates for each child nutrition program are listed in
the sections to follow.the sections to follow.
Table 2. Example: NSLP Per-Meal Reimbursements, School Year
Meal Category
What the Participating Child Receives
Free
$4.43-$4.69
Free lunch
Reduced-price
$4.03-$4.29
Paid
$0.42-$0.59
Payments/Maximum Reimbursement Rates,Payments/Maximum Reimbursement Rates,
variations in reimbursement rates for lunches meeting certain statutory criteria. Average national rates are variations in reimbursement rates for lunches meeting certain statutory criteria. Average national rates are
shown; states may apportion funds among school districts above or below the average rates.shown; states may apportion funds among school districts above or below the average rates.
amount of benefits for households ($40 per eligible child per summer month) with an annual amount of benefits for households ($40 per eligible child per summer month) with an annual
inflation adjustment (discussed further in the inflation adjustment (discussed further in the "
distributed to state agencies, territories, and tribes for distribution to households. distributed to state agencies, territories, and tribes for distribution to households.
foods (foods (USDA Foods) and some cash in lieu of commodities. USDA Foods are foods purchased by ) and some cash in lieu of commodities. USDA Foods are foods purchased by
programs.programs.
under the law, referred to as under the law, referred to as entitlement commodity assistance. In NSLP and CACFP, statute assistance. In NSLP and CACFP, statute
provides a per-meal commodity reimbursement (an inflation-adjusted rate of provides a per-meal commodity reimbursement (an inflation-adjusted rate of
in school year in school year
however, commodities distributed through NSLP may be used for school breakfasts.however, commodities distributed through NSLP may be used for school breakfasts.
amount of commodity assistance is also provided to certain types of institutions participating in amount of commodity assistance is also provided to certain types of institutions participating in
SFSP.SFSP.
Foods catalog.Foods catalog.
agencies to send foods for further processing or distribute them to schools and institutions. agencies to send foods for further processing or distribute them to schools and institutions.
Schools/institutions and state agencies can elect to receive a certain amount of commodity Schools/institutions and state agencies can elect to receive a certain amount of commodity
assistance in the form of cash (this is the case for less than 1% of NSLP commodity aid but nearly assistance in the form of cash (this is the case for less than 1% of NSLP commodity aid but nearly
funding provided for lunch reimbursements and child nutrition commodities.funding provided for lunch reimbursements and child nutrition commodities.
commodity assistance is distributed through NSLP.commodity assistance is distributed through NSLP.
purchased at USDApurchased at USDA
separate budget authorities.separate budget authorities.
through child nutrition programs.through child nutrition programs.
36 Administrative Funds
child nutrition funding for its administrative expenses related to child nutrition programs and child nutrition funding for its administrative expenses related to child nutrition programs and
WIC.WIC.
's administrative expenses in carrying out the programs and activities under that act (which include administrative expenses in carrying out the programs and activities under that act (which include
SBP, SMP, other child nutrition activities, and WIC).SBP, SMP, other child nutrition activities, and WIC).
There is also specific funding authorized for state agencies There is also specific funding authorized for state agencies
of child nutrition programs. According to statute, federal funding for statesof child nutrition programs. According to statute, federal funding for states
expenses must equal at least 1.5% of federal expenditures on NSLP, SBP, CACFP, and SMP in expenses must equal at least 1.5% of federal expenditures on NSLP, SBP, CACFP, and SMP in
the second preceding fiscal year.the second preceding fiscal year.
their share of spending on the four programs. Any remaining funds are allocated by the Secretary their share of spending on the four programs. Any remaining funds are allocated by the Secretary
of Agriculture on a discretionary basis; per program regulations, states receive additional amounts of Agriculture on a discretionary basis; per program regulations, states receive additional amounts
for CACFP, commodity distribution, and administrative reviews of schools/institutions.for CACFP, commodity distribution, and administrative reviews of schools/institutions.
states receive administrative funds, they can apportion them among child nutrition programs and states receive administrative funds, they can apportion them among child nutrition programs and
activities as they see fit.activities as they see fit.
of their summer meal aid.of their summer meal aid.
administrative costs. In CACFP, institutions that oversee day care homes receive separate administrative costs. In CACFP, institutions that oversee day care homes receive separate
monthly payments for administrative expenses based on the number of day care homes under monthly payments for administrative expenses based on the number of day care homes under
their jurisdiction.their jurisdiction.
45 Other Federal Funding
authorizing law. For example, FFVP receives mandatory funding from Section 32 and the farm to authorizing law. For example, FFVP receives mandatory funding from Section 32 and the farm to
school program receives mandatory funding under the NSLA.school program receives mandatory funding under the NSLA.
the Team Nutrition initiative and school meals equipment grants. the Team Nutrition initiative and school meals equipment grants.
The farm to school program has also received discretionary funding (in addition to its mandatory funding) in recent years.
years 2021-2022 through 2023-2024, USDA distributed years 2021-2022 through 2023-2024, USDA distributed
states and school food authorities using Commodity Credit Corporation authority.states and school food authorities using Commodity Credit Corporation authority.
47 In 2022, USDA again used the Commodity Credit Corporation to distribute $177 million to state agencies and school food authorities to purchase local and regional foods for use in school meal programs under the Local Food for Schools (LFS) Cooperative Agreement Program.48 Nonfederal Funding Federal subsidies do not necessarily cover the full cost of meals and snacks prepared by schools Federal subsidies do not necessarily cover the full cost of meals and snacks prepared by schools
and institutions.and institutions.
school districts, local governments, and other entities. NSLP school districts, local governments, and other entities. NSLP
million from all states combined annually.million from all states combined annually.
Figure 2. Average School Food Authority (SFA) Revenue by Source, School Year 2014-2015 Source: CRS based on USDA FNS, FNS, School Nutrition and Meal Cost
Study, Final Report Volume 3: School Meal Costs and Revenues, Office of Policy Support, April 2019, , Office of Policy Support, April 2019,
https://www.fns.usda.gov/https://www.fns.usda.gov/school-nutrition-and-meal-cost-study.
Notes: Graph reflects average revenue, and as such, the percentage breakdown may vary between school food authorities. In addition, it is possible that the distribution of school food authority revenue has changed since school year 2014-2015.
Spending Trends Federal spending on child nutrition programs has generally increased over time (see Figure 3). There are several reasons for this increase, including annual inflation adjustments to per-meal reimbursement rates, a relative increase in free school meal participation compared to other meal categories, spending under pandemic response policies, and authorization of the national Summer EBT program.55A recent exception to this trend occurred in FY2020, at the start of the COVID-19 pandemic. Participation in programs declined as institutions closed, decreasing spending. By FY2021, an increase in summer meal program participation again increased spending (pandemic policies are discussed in the "Child Nutrition Program Operations During the COVID-19 Pandemic" text box).
Under current law, the Congressional Budget Office (CBO) predicts that federal spending on the child nutrition programs will continue to increase over the next decade, with annual outlays of more than $49 billion by 2035 as a result of food price inflation and other factors.56 As shown in Figure 3, federal spending on the major child nutrition programs was approximately $32 billion in FY2024.57
Figure 3
. Expenditures on Major Child Nutrition Programs, FY2004-FY2024Figure is interactive in the HTML version of this report.
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new Highcharts.Chart("IAG-2114784215", options); } } });</script> Source: Expenditures are from USDA-FNS, "Child Nutrition Tables," April 11, 2025,child-nutrition-tableschild-nutrition-tables
expenses, and discretionary grantsexpenses, and discretionary grants
Breakfast Program (SBP)
NSLP and SBP (the NSLP and SBP (the school meals programs) provide federal support for meals served in ) provide federal support for meals served in
more than 90,000 public and private elementary and secondary schools nationwide.90,000 public and private elementary and secondary schools nationwide.
meals served in a smaller number of residential child care institutions.meals served in a smaller number of residential child care institutions.
aid in the form of cash reimbursements for every meal they serve that meets federal nutritional aid in the form of cash reimbursements for every meal they serve that meets federal nutritional
requirements (limited to one breakfast and lunch per child daily). The largest subsidies are requirements (limited to one breakfast and lunch per child daily). The largest subsidies are
provided for free and reduced-price meals served to eligible students based on income eligibility provided for free and reduced-price meals served to eligible students based on income eligibility
and categorical eligibility rules (discussed below). Schools also receive a certain amount of and categorical eligibility rules (discussed below). Schools also receive a certain amount of
commodity assistance per lunch served (discussed previously). Schools participating in NSLP commodity assistance per lunch served (discussed previously). Schools participating in NSLP
have the option of providing afterschool snacks through the program, and schools participating in have the option of providing afterschool snacks through the program, and schools participating in
NSLP or SBP have the option of providing summer meals and snacks through the Seamless NSLP or SBP have the option of providing summer meals and snacks through the Seamless
Summer Option (discussed in the Summer Option (discussed in the "
require schools to have a school lunch and/or breakfast program, and some require schools to require schools to have a school lunch and/or breakfast program, and some require schools to
operate such programs through NSLP and/or SBP. operate such programs through NSLP and/or SBP.
school meals programs. Among those changes was a requirement that USDA update the nutrition school meals programs. Among those changes was a requirement that USDA update the nutrition
standards for school meals and create new nutritional requirements for foods sold in NSLP and standards for school meals and create new nutritional requirements for foods sold in NSLP and
SBP schools within a certain timeframe. The law also created the Community Eligibility SBP schools within a certain timeframe. The law also created the Community Eligibility
Provision, through which eligible schools can provide free meals to all students. These changes Provision, through which eligible schools can provide free meals to all students. These changes
are discussed further within this section.are discussed further within this section.
other.other.
requirements. Differences between the programs are noted where applicable.requirements. Differences between the programs are noted where applicable.
tends to be lower than in NSLP for several reasons, including the traditionally required early tends to be lower than in NSLP for several reasons, including the traditionally required early
arrival by students in order to receive a meal before school starts.arrival by students in order to receive a meal before school starts.
relevant to child nutrition programs more broadly (e.g., the farm to school program) are discussed relevant to child nutrition programs more broadly (e.g., the farm to school program) are discussed
Administration
Locally, the school meals programs are usually administered by school districts. Statute and Locally, the school meals programs are usually administered by school districts. Statute and
regulations designate regulations designate school food authorities as the local authorities in charge of operating the as the local authorities in charge of operating the
school meal programs; typically, these are food service departments within school districts.school meal programs; typically, these are food service departments within school districts.
64 Local educational agencies—the broader school district or school board—also play a role in Local educational agencies—the broader school district or school board—also play a role in
administering the school meal programs.administering the school meal programs.
refer informally to the local administrative entities in the school meals programs.refer informally to the local administrative entities in the school meals programs.
such as food procurement, preparation, and service and tracking meals for reimbursement, while such as food procurement, preparation, and service and tracking meals for reimbursement, while
local educational agencies handle administrative duties, such as processing applications and local educational agencies handle administrative duties, such as processing applications and
certifying children for free and reduced-price school meals.certifying children for free and reduced-price school meals.
education.education.
to school food authorities and overseeing school districtsto school food authorities and overseeing school districts
and school food authorities through seven regional offices. FNS also provides oversight of state and school food authorities through seven regional offices. FNS also provides oversight of state
agencies, including by conducting management evaluations.agencies, including by conducting management evaluations.
68 Figure 4 depicts the federal, state, and local roles in administering the school meals programs.depicts the federal, state, and local roles in administering the school meals programs.
Figure 4. Federal, State, and Local Roles in the School Meals Programs
Source: CRS, based on current law and regulations.CRS, based on current law and regulations.
The school meals programs do not exclusively serve low-income children. Any student in an The school meals programs do not exclusively serve low-income children. Any student in an
NSLP or SBP participating school may purchase a school meal; however, children must meet NSLP or SBP participating school may purchase a school meal; however, children must meet
program eligibility rules in order to receive a free or reduced-price meal.program eligibility rules in order to receive a free or reduced-price meal.
other special options), children are certified for free or reduced-price school meals through one of other special options), children are certified for free or reduced-price school meals through one of
two pathwaystwo pathways
reimbursement for those meals. If children are certified for reduced-price meals, the school food reimbursement for those meals. If children are certified for reduced-price meals, the school food
authority receives a slightly lower reimbursement. School food authorities also receive a much authority receives a slightly lower reimbursement. School food authorities also receive a much
smaller paid-rate reimbursement for meals served to children who pay for smaller paid-rate reimbursement for meals served to children who pay for
School food authorities must follow federal guidelines in setting the price of paid meals.School food authorities must follow federal guidelines in setting the price of paid meals.
participate in the Community Eligibility Provision or other special options (discussed below in participate in the Community Eligibility Provision or other special options (discussed below in
the the "
Figure 5. Certification Pathways for Free and Reduced-Price School Meals
Source: CRS adaptation of figure from U.S. Government Accountability Office (GAO), CRS adaptation of figure from U.S. Government Accountability Office (GAO), School Meals Programs:
USDA Has Enhanced Controls, but Additional Verification Could Help Ensure Legitimate Program Access, GAO-14-262, , GAO-14-262,
May 2014, p. 13.May 2014, p. 13.
not depict direct certification of children for reduced-price meals through Medicaid in demonstration states or not depict direct certification of children for reduced-price meals through Medicaid in demonstration states or
practices used in Community Eligibility Provision (CEP) schools and other schools using special options. practices used in Community Eligibility Provision (CEP) schools and other schools using special options.
FPG = federal poverty guidelines; SNAP = Supplemental Nutrition Assistance Program.
following ranges:following ranges:
Department of Health and Human Services, and are updated annually for inflation. FNS publishes Department of Health and Human Services, and are updated annually for inflation. FNS publishes
the corresponding income limits by household size for free and reduced-price meals in the the corresponding income limits by household size for free and reduced-price meals in the
Federal Register on an annual basis. on an annual basis.
and reduced-price meals for a household of four.and reduced-price meals for a household of four.
online application that includes the income of each household member, the household size, and online application that includes the income of each household member, the household size, and
other information.other information.
deductions), including earnings and wages, certain public assistance benefits (such as deductions), including earnings and wages, certain public assistance benefits (such as
unemployment compensation, social security benefits, and child support payments), and unemployment compensation, social security benefits, and child support payments), and
retirement and pension income.retirement and pension income.
twice monthly, or monthly income, which school district officials compare to the federal poverty twice monthly, or monthly income, which school district officials compare to the federal poverty
guidelines to determine eligibility for free meals, reduced-price meals, or neither.guidelines to determine eligibility for free meals, reduced-price meals, or neither.
only need to fill out one application if they have multiple children in the same school district.only need to fill out one application if they have multiple children in the same school district.
Table 3. School Meals Income Eligibility Guidelines for a Household of Four
, DC, and Territories, School Year 2024-2025
Meal Type
Annual Income for a Household of Four
Free
than or equal to 185%
Paid
N/A
N/A
Source: USDA FNS, USDA FNS,
eligibility-guidelines. Categorical Eligibility
fall into a certain category (called fall into a certain category (called categorical eligibility). Per statute, children are automatically ). Per statute, children are automatically
eligible for free lunches and breakfasts (without consideration of household income) if they areeligible for free lunches and breakfasts (without consideration of household income) if they are
provide a case number on the application) or through direct certification (discussed in the next provide a case number on the application) or through direct certification (discussed in the next
section). The vast majority of categorically eligible children are certified for free meals through section). The vast majority of categorically eligible children are certified for free meals through
direct certification.direct certification.
Food Stamp and Aid to Families with Dependent Children programs, respectively).Food Stamp and Aid to Families with Dependent Children programs, respectively).
eligibility enabled schools to make use of other programseligibility enabled schools to make use of other programs
and reduced the number of applications that families had to fill out.and reduced the number of applications that families had to fill out.
categories were added over time.categories were added over time.
Direct Certification
certify children for free meals based on documentation of the childcertify children for free meals based on documentation of the child
category without the need for a household application.category without the need for a household application.
programs and categories that convey categorical eligibility.programs and categories that convey categorical eligibility.
agencies (e.g., state SNAP and state educational agencies) cross-checking program rolls.agencies (e.g., state SNAP and state educational agencies) cross-checking program rolls.
of matched children is sent to the school district, which certifies children for free meals without of matched children is sent to the school district, which certifies children for free meals without
the need for a household application.the need for a household application.
direct certification typically involves school district communication with a local or state official direct certification typically involves school district communication with a local or state official
who can provide documentation of the childwho can provide documentation of the child
certification with SNAP, with nationwide implementation taking effect in school year 2008-2009. certification with SNAP, with nationwide implementation taking effect in school year 2008-2009.
As of school year 2018-2019 (the most recent data available), USDA reported that 98% of As of school year 2018-2019 (the most recent data available), USDA reported that 98% of
children in SNAP households were directly certified for free school meals.children in SNAP households were directly certified for free school meals.
was the initiation of a demonstration project to test direct certification with Medicaid (see the text was the initiation of a demonstration project to test direct certification with Medicaid (see the text
box below). The law also funded performance incentive grants for high-performing states and box below). The law also funded performance incentive grants for high-performing states and
authorized corrective action plans for low-performing states in direct certification activities.authorized corrective action plans for low-performing states in direct certification activities.
85 Direct Certification with Medicaid Demonstration
in Medicaid and children in Medicaid households. Unlike the other programs used to directly certify children for in Medicaid and children in Medicaid households. Unlike the other programs used to directly certify children for
school meals, Medicaid does school meals, Medicaid does not convey categorical eligibility for free school meals, but rather identifies children in convey categorical eligibility for free school meals, but rather identifies children in
households that would meet the income eligibility thresholds for either free or reduced-price school meals.households that would meet the income eligibility thresholds for either free or reduced-price school meals.
School Lunch ActSchool Lunch Act
directly certify children directly certify children only for free meals for free meals
available data, direct certification with Medicaid led to more children being certified through direct certification available data, direct certification with Medicaid led to more children being certified through direct certification
rather than application and to some newly certified children. They also found that state administrative costs were rather than application and to some newly certified children. They also found that state administrative costs were
90 Verification of Eligibility
with a focus on applications close to the eligibility threshold (with a focus on applications close to the eligibility threshold (
91 School districts may also conduct verification of questionable applications. Verification is not School districts may also conduct verification of questionable applications. Verification is not
required for children who are directly certified for free or reduced-price meals. (Note that districts required for children who are directly certified for free or reduced-price meals. (Note that districts
participating in Provisions 1, 2, and 3 participating in Provisions 1, 2, and 3 [see the "Provisions 1, 2, and 3" section] must meet verification requirements for the years in which must meet verification requirements for the years in which
they administer household applications.)they administer household applications.)
conduct their verification activities, but if data cannot be verified in this way, schools must conduct their verification activities, but if data cannot be verified in this way, schools must
contact households to verify the information provided on the application. A childcontact households to verify the information provided on the application. A child
status may stay the same or change (e.g., from free meals to reduced-price meals or loss of status may stay the same or change (e.g., from free meals to reduced-price meals or loss of
eligibility) as a result of verification of household income, or if the household does not respond to eligibility) as a result of verification of household income, or if the household does not respond to
verification outreach (in which case eligibility would be lost, though that decision can be verification outreach (in which case eligibility would be lost, though that decision can be
appealed).appealed).
Reimbursement
(free, reduced-price, and paid) that meet federal nutrition requirements. School food authorities (free, reduced-price, and paid) that meet federal nutrition requirements. School food authorities
then submit claims for reimbursement to the state agency, which submits the claims to FNS. then submit claims for reimbursement to the state agency, which submits the claims to FNS.
Approved reimbursements are distributed to school food authorities by the state agency, usually Approved reimbursements are distributed to school food authorities by the state agency, usually
on a monthly basis. Per statute, reimbursement rates are adjusted for inflation annually.on a monthly basis. Per statute, reimbursement rates are adjusted for inflation annually.
shows NSLP and SBP reimbursement rates for school year shows NSLP and SBP reimbursement rates for school year
authorities also receive a per-lunch commodity reimbursement, discussed previously under authorities also receive a per-lunch commodity reimbursement, discussed previously under
"
school food authorities that are compliant with the updated federal nutrition standards for school school food authorities that are compliant with the updated federal nutrition standards for school
2 cents per lunch if they serve 60% or more of their lunches at a free or reduced price.2 cents per lunch if they serve 60% or more of their lunches at a free or reduced price.95 For For
breakfasts, school food authorities receive higher reimbursements breakfasts, school food authorities receive higher reimbursements for free and reduced-price meals (an additional 47 cents per breakfast) if they serve 40% or more if they serve 40% or more
lunches at a free or reduced price (referred to as lunches at a free or reduced price (referred to as severe need schools). schools).
almost any aspect of the school food service operation. However, federal cash reimbursements almost any aspect of the school food service operation. However, federal cash reimbursements
must go into a nonprofit school food service account that is subject to federal regulations.must go into a nonprofit school food service account that is subject to federal regulations.
97 Payments for non-program foods (e.g., vending machine sales) must also accrue to the nonprofit Payments for non-program foods (e.g., vending machine sales) must also accrue to the nonprofit
school food service account.school food service account.
a a School Nutrition and Meal Cost Study, which found that the average reported, which found that the average reported cost of producing cost of producing
a reimbursable lunch was $3.81 in school year 2014-2015 (reported costs were defined as those a reimbursable lunch was $3.81 in school year 2014-2015 (reported costs were defined as those
charged to the school food service account).charged to the school food service account).
reimbursement ($3.32) for lunches in school year 2014-2015. When unreported costs were reimbursement ($3.32) for lunches in school year 2014-2015. When unreported costs were
included (costs outside of the food service account; for example, labor costs associated with included (costs outside of the food service account; for example, labor costs associated with
processing applications), the cost of producing the average reimbursable lunch was $6.02. As processing applications), the cost of producing the average reimbursable lunch was $6.02. As
noted previously, childrennoted previously, children
Table 4. Reimbursement Rates: NSLP and SBP
2024-2025 Lunch Rate
Base Rate
Bonus for School Food Authorities (SFAs) That Served 60%+ Lunches at F/RP
Bonus for SFAs Certified as Compliant with Nutrition Standards
Free
$4.43
+$0.02
+$0.09
$4.69
Reduced-price
$4.03
+$0.02
+$0.09
$4.29
Paid
$0.42
+$0.02
+$0.09
$0.59
Breakfast Rate
Free
$2.37
$2.84
Reduced-price
$2.07
$2.54
Paid
$0.39
$0.39
Payments/Maximum Reimbursement Rates,Payments/Maximum Reimbursement Rates,
Alaska, Guam, Hawaii, Puerto Rico, and the U.S. Virgin Islands). For historical rates, see Alaska, Guam, Hawaii, Puerto Rico, and the U.S. Virgin Islands). For historical rates, see
https://www.fns.usda.gov/school-meals/rates-reimbursementhttps://www.fns.usda.gov/school-meals/rates-reimbursement
. Notes: F/RP = free or reduced-price. The percentage of lunchesF/RP = free or reduced-price. The percentage of lunches
percentage of percentage of
States can apportion funds among school food authorities above or below the average rates; however, in NSLP States can apportion funds among school food authorities above or below the average rates; however, in NSLP
they can only do so up to the maximum rate. States may also supplement federal reimbursements with state they can only do so up to the maximum rate. States may also supplement federal reimbursements with state
funding.funding.
Community Eligibility Provision (CEP)
eligible schools, groups of schools, and school districts to offer free meals to all enrolled eligible schools, groups of schools, and school districts to offer free meals to all enrolled
students.students.
of at least 25% (USDA lowered the eligibility threshold from 40% to 25% as of school year 2023-of at least 25% (USDA lowered the eligibility threshold from 40% to 25% as of school year 2023-
2024).2024).
without a household application (i.e., who are directly certified for free meals through SNAP or without a household application (i.e., who are directly certified for free meals through SNAP or
another program/category).another program/category).
to participate in CEP, and they must opt-in to CEP.to participate in CEP, and they must opt-in to CEP.
expanded the option nationwide in school year 2014-2015. Eligible schools, groups of schools, expanded the option nationwide in school year 2014-2015. Eligible schools, groups of schools,
and entire school districts may participate; if participation is as a group, the ISP is calculated on a and entire school districts may participate; if participation is as a group, the ISP is calculated on a
group basis. Local educational agencies have until June 30 of each year to notify USDA of the group basis. Local educational agencies have until June 30 of each year to notify USDA of the
schools in their jurisdiction that will participate in CEP.schools in their jurisdiction that will participate in CEP.
the Food Research and Action Centerthe Food Research and Action Center (a research and advocacy organization), approximately , approximately
school year school year
estimated proportion of CEP schools out of all NSLP schools since school year 2014-2015 (the estimated proportion of CEP schools out of all NSLP schools since school year 2014-2015 (the
first year of nationwide implementation).
Figure 6. CEP Schools as a Proportion of NSLP Schools,School Years 2014-2015 to 2023-2024
Source: CRS-calculated proportions using USDA FNS-742 administrative data for FY2015-FY2024.
Notes: Includes CEP schools in states operating universal free meal policies. CEP percentages not shown for school years 2020-2021 and 2021-2022, during which the vast majority of schools operated under COVID-19 response policies that enabled them to receive reimbursement for free meals served to all students. Therefore, CEP policies that enabled them to receive reimbursement for free meals served to all students. Therefore, CEPparticipation in these years is not relevant. In addition, NSLP participation is lower in school year 2020-2021 than participation in these years is not relevant. In addition, NSLP participation is lower in school year 2020-2021 than
a typical year because many school food authorities chose to operate the summer meals programs instead of a typical year because many school food authorities chose to operate the summer meals programs instead of
NSLP as a result of pandemic response policies (discussed NSLP as a result of pandemic response policies (discussed further in the in the
the COVID-19 Pandemic
every meal served. Instead, the law provides a funding formula: the ISP is multiplied by a factor every meal served. Instead, the law provides a funding formula: the ISP is multiplied by a factor
of 1.6 to estimate the proportion of students who would be eligible for free or reduced-price of 1.6 to estimate the proportion of students who would be eligible for free or reduced-price
meals had they been certified via application.meals had they been certified via application.
will be reimbursed at the free-meal rate, with the remainder reimbursed at the much lower paid-will be reimbursed at the free-meal rate, with the remainder reimbursed at the much lower paid-
meal rate. For example, if a CEP school has an ISP of 40%, then 64% of its meals served would meal rate. For example, if a CEP school has an ISP of 40%, then 64% of its meals served would
be reimbursed at the free-meal rate and 36% would be reimbursed at the paid-meal rate. Schools be reimbursed at the free-meal rate and 36% would be reimbursed at the paid-meal rate. Schools
that identify 62.5% or more students as eligible for free meals receive the free-meal that identify 62.5% or more students as eligible for free meals receive the free-meal
reimbursement for all meals served (62.5% multiplied by 1.6 equals 100%).reimbursement for all meals served (62.5% multiplied by 1.6 equals 100%). Figure 7 provides a provides a
visual representation of the CEP reimbursement formula for participating schools, groups of visual representation of the CEP reimbursement formula for participating schools, groups of
choose to do so more frequently if desired.choose to do so more frequently if desired.
years, schools can drop out of CEP at any time.years, schools can drop out of CEP at any time.
free meals. However, the option may or may not be financially beneficial for schools depending free meals. However, the option may or may not be financially beneficial for schools depending
on their proportion of identified students.on their proportion of identified students.
Figure 7. Community Eligibility Provision (CEP) Reimbursement Formula
Source: Graphic created by CRS based on current law. Graphic created by CRS based on current law.
Notes: The Identified Student Percentage (ISP) is the percentage of The Identified Student Percentage (ISP) is the percentage of
meals without a household application. The ISP is multiplied by 1.6 to calculate the proportion of meals meals without a household application. The ISP is multiplied by 1.6 to calculate the proportion of meals
reimbursed at the free rate; the remainder of meals are reimbursed at the lower paid rate. For free and paid reimbursed at the free rate; the remainder of meals are reimbursed at the lower paid rate. For free and paid
reimbursement rates in school year reimbursement rates in school year
alternative certification and reimbursement procedures. These options are intended to reduce alternative certification and reimbursement procedures. These options are intended to reduce
paperwork for school administrators and families.paperwork for school administrators and families.
they still require some household applications. A schoolthey still require some household applications. A school
option may depend on financial considerations. There were option may depend on financial considerations. There were
operating Provisions 1, 2, or 3 in operating Provisions 1, 2, or 3 in
school year 2023-2024.109 Provision 1 allows schools with high proportions (80% or more) of students eligible for free and allows schools with high proportions (80% or more) of students eligible for free and
reduced-price meals to make free meal eligibility determinations that remain in effect for two reduced-price meals to make free meal eligibility determinations that remain in effect for two
to process reduced-price meal applications annually).to process reduced-price meal applications annually).
110 Provision 2 and and Provision 3 are open to all schools. Similar to CEP, schools, groups of schools, are open to all schools. Similar to CEP, schools, groups of schools,
or school districts must agree to provide free meals (lunches or school districts must agree to provide free meals (lunches or lunches/breakfasts) to all students lunches/breakfasts) to all students
in order to participate in Provision 2 or Provision 3. Under Provision 2, schools are reimbursed in order to participate in Provision 2 or Provision 3. Under Provision 2, schools are reimbursed
over a four-year period over a four-year period
during the first yearduring the first year to total meals served in subsequent years. Eligibility determinations in the first year are based on direct certification . Eligibility determinations in the first year are based on direct certification
and household applications (a difference from CEP). Under Provision 3, schools are similarly household applications (a difference from CEP). Under Provision 3, schools are similarly
required to make eligibility determinations in the first year of a four-year period. However, in this required to make eligibility determinations in the first year of a four-year period. However, in this
case, schools receive the same level of federal assistance over the next three years, which is case, schools receive the same level of federal assistance over the next three years, which is
adjusted for enrollment and inflation (there are no separate payments for free/reduced-price/paid adjusted for enrollment and inflation (there are no separate payments for free/reduced-price/paid
meals).meals).
111 Nutrition Standards and Food Service
Nutrition Standards for School Meals
meals programs.meals programs.
USDA to update the nutrition standards for school meals within 18 months of the lawUSDA to update the nutrition standards for school meals within 18 months of the law
based on recommendations from the Food and Nutrition Board at the National Academies of based on recommendations from the Food and Nutrition Board at the National Academies of
Sciences, Engineering, and Medicine.Sciences, Engineering, and Medicine.
reimbursement of 6 cents per lunch (adjusted annually for inflation) for reimbursement of 6 cents per lunch (adjusted annually for inflation) for
compliant with the updated standards (the rate is compliant with the updated standards (the rate is
the 2010 Dietary Guidelines for Americans (per an existing statutory requirement) as well as the the 2010 Dietary Guidelines for Americans (per an existing statutory requirement) as well as the
recommendations from the National Academies of Sciences, Engineering, and Medicine.recommendations from the National Academies of Sciences, Engineering, and Medicine.
standards required increased servings of fruits, vegetables, whole grains, and meats/meat standards required increased servings of fruits, vegetables, whole grains, and meats/meat
alternates in lunches and breakfasts. They also restricted milk to unflavored low-fat (1%) and alternates in lunches and breakfasts. They also restricted milk to unflavored low-fat (1%) and
flavored and unflavored fat-free varieties, set limits on calories and sodium in school meals, and flavored and unflavored fat-free varieties, set limits on calories and sodium in school meals, and
during meal service in the cafeteria.during meal service in the cafeteria.
school year 2013-2014 for breakfasts. A few requirements phased in over multiple school school year 2013-2014 for breakfasts. A few requirements phased in over multiple school
years.years.
changes to the whole grain, sodium, and milk requirements were made through appropriations changes to the whole grain, sodium, and milk requirements were made through appropriations
acts and USDA rulemaking.acts and USDA rulemaking.
standards and standards and
meals, as long as they meet the federal standards.meals, as long as they meet the federal standards.
122 Table 5 provides an overview of the federal nutrition standards for school lunches.provides an overview of the federal nutrition standards for school lunches.
Table 5. Summary of the Nutrition Standards for School Lunches
as of June 2025
Grades K-5
Grades 6-8
Grades 9-12
5 (1)
8-9 (1)
8-10 (1)
10-12 (2)
cups)d
5 (1)
5 (1)
5 (1)
750-850
Saturated fat (percentage of total calories)
<10%
<10%
<10%
Added sugars (percentage of total calories): must be implemented by July 1, 2027
<10%
<10%
<10%
Sodium Limit: in place through June 30, 2027
≤1,110
≤1,225
≤1,280
Sodium Limit: must be implemented by July 1, 2027
≤935 mg
≤1,035 mg
≤1,080 mg
Source: Table adapted from 7 C.F.R. §210.10(c) as of June 2025.
a. School food authorities must allow high school students and can optionally allow students at the middle and School food authorities must allow high school students and can optionally allow students at the middle andleast a 0.5 cup of the fruit or vegetable component.least a 0.5 cup of the fruit or vegetable component.
who are considered to have a disability and whose disability restricts their diet, and who are considered to have a disability and whose disability restricts their diet, and may make substitutions make substitutions
for medical or special dietary needs.for medical or special dietary needs.
Nutrition Standards for Competitive Foods
and SBP-participating schools on campus during the school day. These foods are known as and SBP-participating schools on campus during the school day. These foods are known as
competitive foods (i.e., foods sold in competition with school meals). Competitive foods include (i.e., foods sold in competition with school meals). Competitive foods include
foods and drinks sold in vending machines, a la carte lines, snack bars and concession stands, and foods and drinks sold in vending machines, a la carte lines, snack bars and concession stands, and
school fundraisers. These foods do not receive a federal reimbursement. The HHFKA required school fundraisers. These foods do not receive a federal reimbursement. The HHFKA required
USDA to publish proposed nutrition standards for competitive foods within one year of the lawUSDA to publish proposed nutrition standards for competitive foods within one year of the law
's enactment and align the standards with the most recent Dietary Guidelines for Americans.enactment and align the standards with the most recent Dietary Guidelines for Americans.
Medicine, FNS promulgated a proposed rule in April 2013 and then an interim final rule in June Medicine, FNS promulgated a proposed rule in April 2013 and then an interim final rule in June
2013, which went into effect in school year 2014-2015.2013, which went into effect in school year 2014-2015.
standards for all non-meal foods and beverages that are sold during the school day (defined as standards for all non-meal foods and beverages that are sold during the school day (defined as
midnight until 30 minutes after dismissal). The final rule, published in July 2016, maintained the midnight until 30 minutes after dismissal). The final rule, published in July 2016, maintained the
certain primary ingredients, meet whole-grain requirements, and comply with calorie, sugar, certain primary ingredients, meet whole-grain requirements, and comply with calorie, sugar,
sodium, and fat limits, among other criteria. Schools are also limited to a list of sodium, and fat limits, among other criteria. Schools are also limited to a list of
intended for consumption on campus during the school day are not subject to the competitive intended for consumption on campus during the school day are not subject to the competitive
food nutrition standards. In addition, the law and the final rule provided states with discretion to food nutrition standards. In addition, the law and the final rule provided states with discretion to
exempt infrequent fundraisers selling foods or beverages that do not meet the nutrition standards.exempt infrequent fundraisers selling foods or beverages that do not meet the nutrition standards.
issue more stringent policies. Many districts already had local competitive food standards in place issue more stringent policies. Many districts already had local competitive food standards in place
prior to the HHFKA because of the 2004 child nutrition reauthorization law (P.L. 108-265), which prior to the HHFKA because of the 2004 child nutrition reauthorization law (P.L. 108-265), which
required local educational agencies to implement local school wellness policies required local educational agencies to implement local school wellness policies (discussed in the next section) that included that included
nutritional guidelines for foods sold in schoolsnutritional guidelines for foods sold in schools
. Local School Wellness Policies
school wellness policy, which sets nutrition and health-related goals and guidelines for schools school wellness policy, which sets nutrition and health-related goals and guidelines for schools
within the jurisdiction.within the jurisdiction.
and physical activity, nutrition standards for school foods that meet or exceed federal nutrition and physical activity, nutrition standards for school foods that meet or exceed federal nutrition
standards, and an implementation plan, among other content. Local educational agencies must standards, and an implementation plan, among other content. Local educational agencies must
provide opportunities for input from parents, students, school nutrition professionals, physical provide opportunities for input from parents, students, school nutrition professionals, physical
education teachers, school health professionals, school administrators, and the general public in education teachers, school health professionals, school administrators, and the general public in
developing and updating local school wellness policies.developing and updating local school wellness policies.
Food Procurement and Preparation
using federal cash reimbursements or other funds. School food authorities also receive USDA using federal cash reimbursements or other funds. School food authorities also receive USDA
Foods (as discussed previously). School food authorities must comply with federal procurement Foods (as discussed previously). School food authorities must comply with federal procurement
rules when purchasing foods for the school meals programs.rules when purchasing foods for the school meals programs.
to purchase domestic commodities and products to purchase domestic commodities and products
procurement regulations.procurement regulations.
kitchen or onsite at individual schools.kitchen or onsite at individual schools.
a private food service management company to contract out procurement and/or meal a private food service management company to contract out procurement and/or meal
preparation.preparation.
school food authority must retain general control over the operation of the school meals school food authority must retain general control over the operation of the school meals
programs, including financial oversight and compliance with nutrition standards.programs, including financial oversight and compliance with nutrition standards.
133 Meal Times and Settings
134 Surveys have found that schools typically provide roughly 20 minutes for breakfast and 25-30 Surveys have found that schools typically provide roughly 20 minutes for breakfast and 25-30
minutes for lunch.minutes for lunch.
cafeteria. However, in recent years, schools and states have increasingly adopted alternative cafeteria. However, in recent years, schools and states have increasingly adopted alternative
models of breakfast service such as breakfast in the classroom, grab-and-go carts, and breakfast models of breakfast service such as breakfast in the classroom, grab-and-go carts, and breakfast
during morning breaks. Anti-hunger advocacy groups have encouraged the adoption of new during morning breaks. Anti-hunger advocacy groups have encouraged the adoption of new
models of breakfast service as a way to increase SBP participation.models of breakfast service as a way to increase SBP participation.
by the School Nutrition Association (SNA), a membership and advocacy organization, more than by the School Nutrition Association (SNA), a membership and advocacy organization, more than
half of surveyed school districts offered both a traditional cafeteria line and alternative modes of half of surveyed school districts offered both a traditional cafeteria line and alternative modes of
(particularly in elementary schools).(particularly in elementary schools).
137 School Meal Equipment Assistance Grants
cafeteria equipment purchases (per-meal reimbursements may also cover equipment costs). Since cafeteria equipment purchases (per-meal reimbursements may also cover equipment costs). Since
FY2013, annual appropriations acts have provided funding for school meal equipment assistance FY2013, annual appropriations acts have provided funding for school meal equipment assistance
grants to help schools prepare meals that comply with updated nutrition standards, improve food grants to help schools prepare meals that comply with updated nutrition standards, improve food
safety, and support the establishment, maintenance, or expansion of school breakfast programs safety, and support the establishment, maintenance, or expansion of school breakfast programs
which distribute funds to school food authorities on a competitive basis.139 Child and Adult Care Food Program (CACFP)
CACFP provides federal reimbursements for meals and snacks served in approximately CACFP provides federal reimbursements for meals and snacks served in approximately
child care centers, day care homes, and adult day care centers nationwide in a typical year (see child care centers, day care homes, and adult day care centers nationwide in a typical year (see
Table 6 for participation by type of institution).for participation by type of institution).
snacks served to children ages 12 and undersnacks served to children ages 12 and under
disabled and elderly adults.disabled and elderly adults.
and two snacks per participant daily (a meal may be a breakfast, lunch, or supper).and two snacks per participant daily (a meal may be a breakfast, lunch, or supper).
share of federal aid takes the form of commodity assistance or cash in lieu of commodities and share of federal aid takes the form of commodity assistance or cash in lieu of commodities and
funds for administrative costs (discussed previously).funds for administrative costs (discussed previously).
CACFP differ for centers (facilities or institutions) and day care homes (private homes). Day care CACFP differ for centers (facilities or institutions) and day care homes (private homes). Day care
homes must be overseen by sponsoring organizations, which handle the financial and homes must be overseen by sponsoring organizations, which handle the financial and
administrative functions of the program for local providers. Centers have the option of operating administrative functions of the program for local providers. Centers have the option of operating
independently or under a sponsor.independently or under a sponsor.
child care programs and meet federal CACFP nutrition standards.child care programs and meet federal CACFP nutrition standards.
FY2024
Outlets
Participants
Average Number of Participants Per Institution
Day care homes
68,900
623,800
9
Child care centers
63,600
3,980,400
63
Adult day care centers
2,300
117,600
51
Total
134,800
4,721,800
35
Source: USDA-FNS, "February 2025 Keydata Report," May 9, 2025.
Notes: Participation estimated by USDA-FNS based on average daily meals served; average number of Participation estimated by USDA-FNS based on average daily meals served; average number ofparticipants per institutions participants per institutions
nearest hundreds. nearest hundreds.
Administration At the local level, sponsor organizations administer CACFP for all participating day care homes At the local level, sponsor organizations administer CACFP for all participating day care homes
and centers that elect to have a sponsor. Sponsors are responsible for conducting audits of and centers that elect to have a sponsor. Sponsors are responsible for conducting audits of
147 Centers that choose to handle their own administrative responsibilities are referred to as Centers that choose to handle their own administrative responsibilities are referred to as
independent centers.independent centers.
monthly federal administrative payments based on the number of homes for which they are monthly federal administrative payments based on the number of homes for which they are
responsible (sponsors, on average, have more than 100 day care homes under their responsible (sponsors, on average, have more than 100 day care homes under their
supervision).supervision).
agreement with the day care home to prepare meals.agreement with the day care home to prepare meals.
sponsor may retain a portion of the per-meal reimbursements for its administrative expenses.sponsor may retain a portion of the per-meal reimbursements for its administrative expenses.
department of health and/or human services.department of health and/or human services.
conducts reviews of CACFP sponsor organizations and independent centers.conducts reviews of CACFP sponsor organizations and independent centers.
guidance and regulations to states and providers.guidance and regulations to states and providers.
Eligibility and Reimbursement
CACFP Centers
centers),centers),
are subject to specific federal regulations.are subject to specific federal regulations.
participants in households at or below 130% of the poverty line qualify for free meals and snacks participants in households at or below 130% of the poverty line qualify for free meals and snacks
and those between 130% and 185% of the poverty line qualify for reduced-price meals and and those between 130% and 185% of the poverty line qualify for reduced-price meals and
snacks (a charge of no more than 40 cents for a lunch or supper, 30 cents for a breakfast, and 15 snacks (a charge of no more than 40 cents for a lunch or supper, 30 cents for a breakfast, and 15
cents for a snack).cents for a snack).
participation in Head Start, foster child status, and household participation in SNAP, FDPIR, or participation in Head Start, foster child status, and household participation in SNAP, FDPIR, or
TANF assistance. Adults are categorically eligible if they participate in SNAP, FDPIR, TANF assistance. Adults are categorically eligible if they participate in SNAP, FDPIR,
Supplemental Security Income (SSI), or Medicaid.Supplemental Security Income (SSI), or Medicaid.
applications or, in some states, direct certification-like processes.applications or, in some states, direct certification-like processes.
the SBP breakfast reimbursement rate and NSLP lunch reimbursement rate, respectively.the SBP breakfast reimbursement rate and NSLP lunch reimbursement rate, respectively.159 The The
largest subsidies are provided for free and reduced-price meals and snacks, while paid meals largest subsidies are provided for free and reduced-price meals and snacks, while paid meals
receive a lower reimbursement.receive a lower reimbursement.
certain flexibilities for tracking meal counts and submitting claims for reimbursement.certain flexibilities for tracking meal counts and submitting claims for reimbursement.
participants and more likely to incorporate meal costs into tuition. Centers are not required to participants and more likely to incorporate meal costs into tuition. Centers are not required to
adjust tuition and fees to account for CACFP funding. Centers are also allowed to charge families adjust tuition and fees to account for CACFP funding. Centers are also allowed to charge families
separately for meals and snacks, as long as there are no charges for children who qualify for free separately for meals and snacks, as long as there are no charges for children who qualify for free
meals and limited charges for those who qualify for reduced-price meals.meals and limited charges for those who qualify for reduced-price meals.
162 CACFP Day Care Homes
day care home that meets local, state, or federal child care standards may participate in CACFP.day care home that meets local, state, or federal child care standards may participate in CACFP.
same reimbursement rate for every meal served. Day care homes located in a low-income area or same reimbursement rate for every meal served. Day care homes located in a low-income area or
with a low-income provider receive a higher, Tier I reimbursement rate (shown inwith a low-income provider receive a higher, Tier I reimbursement rate (shown in Table 7). To . To
receive the Tier I rate, the home must be located in an area in which at least 50% of children are receive the Tier I rate, the home must be located in an area in which at least 50% of children are
Tier I rates receiveTier I rates receive Tier II (lower) rates. However, Tier II providers may seek the higher Tier I Tier II (lower) rates. However, Tier II providers may seek the higher Tier I
subsidies for individual low-income children for whom household income information is subsidies for individual low-income children for whom household income information is
collected and verified.collected and verified.
Unlike centers, federal rules prohibit any separate meal charges.Unlike centers, federal rules prohibit any separate meal charges.
164 Table 7. Reimbursement Rates: CACFP Centers and Day Care Homes
Breakfast
Lunch/Supper
Snack
Centers
Free
$2.37
$4.43
$1.21
Reduced-price
$2.07
$4.03
$0.60
Paid
$0.39
$0.42
$0.11
Day Care Homes
Tier I
$1.66
$3.15
$0.93
Tier II
$0.60
$1.90
$0.26
and Administrative Reimbursement Rates for Sponsoring Organizations of Day Care Homes for the Period July and Administrative Reimbursement Rates for Sponsoring Organizations of Day Care Homes for the Period July
Guam, Hawaii, Puerto Rico, and the U.S. Virgin IslandsGuam, Hawaii, Puerto Rico, and the U.S. Virgin Islands
http://www.fns.usda.gov/cacfp/reimbursement-rateshttp://www.fns.usda.gov/cacfp/reimbursement-rates.
Nutrition Standards and Food Service
Nutrition Standards
Agriculture to update CACFPAgriculture to update CACFP
revised the meal patterns for meals and snacks served in centers and day care homes.revised the meal patterns for meals and snacks served in centers and day care homes.
aligned nutrition standards for meals served to preschool-aged children through NSLP and SBP.aligned nutrition standards for meals served to preschool-aged children through NSLP and SBP.
fruits, and vegetables, limited milk to certain fruits, and vegetables, limited milk to certain
prohibited deep-fried foods. They also required that potable water be available to children prohibited deep-fried foods. They also required that potable water be available to children
throughout the day.throughout the day.
Procurement and Meal Service
contract with a school or a food service management company that prepares meals for them. In contract with a school or a food service management company that prepares meals for them. In
either case, institutions must comply with federal, state, and local procurement regulations.either case, institutions must comply with federal, state, and local procurement regulations.
noted previously, CACFP institutions also receive a certain amount of USDA Foods.noted previously, CACFP institutions also receive a certain amount of USDA Foods.
preparing, and serving food, and institutions must acquire annual food safety inspections. Family-preparing, and serving food, and institutions must acquire annual food safety inspections. Family-
style meal service style meal service (where children can serve themselves from shared bowls or platters) is encouraged in CACFP.is encouraged in CACFP.
169 Summer Food
The SFSP and the Seamless Summer Option (SSO) provide federal reimbursements for summer The SFSP and the Seamless Summer Option (SSO) provide federal reimbursements for summer
meals.meals.
organizations, while SSO is specifically for school food authorities, allowing them to continue organizations, while SSO is specifically for school food authorities, allowing them to continue
operating under certain NSLP/SBP requirements into the summer. The programs share many of operating under certain NSLP/SBP requirements into the summer. The programs share many of
the same requirements, including a requirement that children consume meals onsite—known as the same requirements, including a requirement that children consume meals onsite—known as
the the
171 Summer food benefits for households with school-age children are also available through the Summer food benefits for households with school-age children are also available through the
permanently authorized by the FY2023 Consolidated Appropriations Act (P.L. 117-328permanently authorized by the FY2023 Consolidated Appropriations Act (P.L. 117-328).
Summer Food Service Program (SFSP)
The SFSP provides federal aid to school food authorities and other local public and nonprofit The SFSP provides federal aid to school food authorities and other local public and nonprofit
organizations that serve meals and snacks to children during the summer months.organizations that serve meals and snacks to children during the summer months.
provided in the form of per-meal cash reimbursements and a smaller amount of commodity foods provided in the form of per-meal cash reimbursements and a smaller amount of commodity foods
and administrative funds (discussed previously). The program serves roughly 2.and administrative funds (discussed previously). The program serves roughly 2.
at around at around
the program at one or more meal sites (the physical location where food is served and eaten). All the program at one or more meal sites (the physical location where food is served and eaten). All
SFSP meal sites are required to have a sponsor. Sponsors may operate meal sites at a variety of SFSP meal sites are required to have a sponsor. Sponsors may operate meal sites at a variety of
locations, including schools, recreation centers, parks, churches, and public libraries.locations, including schools, recreation centers, parks, churches, and public libraries.
exception of campsexception of camps and certain rural areas) to meal sites that serve children from ) to meal sites that serve children from
conditions existconditions exist
and reduced-price school meals (discussed further below).and reduced-price school meals (discussed further below).
175 Administration
displays the proportion of summer meal sponsors by institution type as of summer 2018.
Figure 8. Summer Meal Sponsors by Type, 2018
Source: USDA-FNS, USDA-FNS, USDA Summer Meals Study Volume 2. Sponsor and Site Operational Characteristics, prepared by , prepared by
Westat, October 2021, pp. 3-4 to 3-7, https://www.fns.usda.gov/cn/usda-summer-meals-studyWestat, October 2021, pp. 3-4 to 3-7, https://www.fns.usda.gov/cn/usda-summer-meals-study
exceptions.exceptions.
service for children from areas in which poor economic conditions existservice for children from areas in which poor economic conditions exist
next section).next section).
public and nonprofit organizations that have demonstrated successful program performance in a public and nonprofit organizations that have demonstrated successful program performance in a
prior year, new public sponsors, and new nonprofit sponsors (in that order). States must also prior year, new public sponsors, and new nonprofit sponsors (in that order). States must also
prioritize sponsors located in rural areas.prioritize sponsors located in rural areas.
sites.sites.
food service, and keeping track of meals served for reimbursement. At times, a sponsor may also food service, and keeping track of meals served for reimbursement. At times, a sponsor may also
be a site (for example, camps are both sponsors and meal sites).be a site (for example, camps are both sponsors and meal sites).
federal funds, and conduct reviews of sponsors and sites.federal funds, and conduct reviews of sponsors and sites.
previously in the previously in the "
SFSP, and provides guidance and technical assistance to states and participating institutions.SFSP, and provides guidance and technical assistance to states and participating institutions.
Eligibility and Reimbursement
Rural areas: As a result of the FY2023 Consolidated Appropriations Act (P.L. 117-328), As a result of the FY2023 Consolidated Appropriations Act (P.L. 117-328),
sponsors may provide free meals for off-site consumption (i.e., pick-up or delivery) to children in sponsors may provide free meals for off-site consumption (i.e., pick-up or delivery) to children in
rural rural
qualifying for free or reduced-price school meals)qualifying for free or reduced-price school meals)
or reduced-price school meals.or reduced-price school meals.
one meal and one snack, per child daily (however, sponsors may seek state approval to distribute one meal and one snack, per child daily (however, sponsors may seek state approval to distribute
up to 10 daysup to 10 days' worth of meals at a time). This policy became effective in summer 2023. worth of meals at a time). This policy became effective in summer 2023.
According to USDA, more than 1,000 sponsors established nearly 4,000 non-congregate rural points-of-service in summer 2024.185 Open sites are are meal sites that are open to all children in the community.meal sites that are open to all children in the community.
most common type of site, comprising an estimated 83% of summer meal sites in summer most common type of site, comprising an estimated 83% of summer meal sites in summer
50% of the children would be eligible for free or reduced-price school meals as demonstrated 50% of the children would be eligible for free or reduced-price school meals as demonstrated
through school data, Census data, or other approved data sources.through school data, Census data, or other approved data sources.
all children at these sites, and the sponsor of the site receives reimbursement for every meal all children at these sites, and the sponsor of the site receives reimbursement for every meal
served (up to two meals or one meal and one snack per child daily).served (up to two meals or one meal and one snack per child daily).
Closed enrolled sites are meal sites (other than camps) that only serve enrolled children. In order are meal sites (other than camps) that only serve enrolled children. In order
for the site to participate in SFSP, for the site to participate in SFSP,
reduced-price school meals based on reduced-price school meals based on
reimbursement for every meal served (up to two meals or one meal and one snack per child reimbursement for every meal served (up to two meals or one meal and one snack per child
daily).daily).
Camps include residential and day camps that provide organized programs for enrolled children. include residential and day camps that provide organized programs for enrolled children.
Unlike open and closed enrolled sites, camps do not have to demonstrate that a certain percentage Unlike open and closed enrolled sites, camps do not have to demonstrate that a certain percentage
similar income and categorical eligibility criteria for free and reduced-price meals. However, similar income and categorical eligibility criteria for free and reduced-price meals. However,
unlike the school meals programs, camps receive the same reimbursement rate for free and unlike the school meals programs, camps receive the same reimbursement rate for free and
reduced-price meals. Camps may receive reimbursement for up to three meals or two meals and reduced-price meals. Camps may receive reimbursement for up to three meals or two meals and
one snack per eligible child daily. Camps are not required to serve meals for free to all children, one snack per eligible child daily. Camps are not required to serve meals for free to all children,
and there is no paid reimbursement provided for full-price meals.and there is no paid reimbursement provided for full-price meals.
Migrant sites must demonstrate that they predominantly serve migrant children as certified by a must demonstrate that they predominantly serve migrant children as certified by a
migrant organization or a sponsor. They follow the same eligibility and reimbursement rules as migrant organization or a sponsor. They follow the same eligibility and reimbursement rules as
open sites, except that they may receive reimbursement for up to three meals or two meals and open sites, except that they may receive reimbursement for up to three meals or two meals and
one snack per child daily.one snack per child daily.
formula that takes into account operating costs (e.g., food, storage, and labor costs) and formula that takes into account operating costs (e.g., food, storage, and labor costs) and
administrative costs.administrative costs.
sponsors receive the funds they can use them for any allowable program cost. Higher sponsors receive the funds they can use them for any allowable program cost. Higher
reimbursements are provided for sponsors of rural meal sites and reimbursements are provided for sponsors of rural meal sites and
sites in which a sponsor rather than sites in which a sponsor rather than a vendor prepares food).vendor prepares food).
Table 8. Reimbursement Rates: SFSP
2025
Breakfast
Snack
Rural or Self-Prep
$3.09
$5.40
$1.28
All Other Sites
$3.03
$5.31
$1.25
Food Service Program: Food Service Program:
Metropolitan Statistical Area or (b) any Metropolitan Statistical Area or (b) any
isolated from urban areas (7 C.F.R. 225.2). isolated from urban areas (7 C.F.R. 225.2).
(and not by a vendor).(and not by a vendor).
child nutrition programs discussed thus far, SFSPchild nutrition programs discussed thus far, SFSP
with the Dietary Guidelines for Americans, but are with the Dietary Guidelines for Americans, but are
tested nutritional research.tested nutritional research.
lunches/suppers, and snacks.lunches/suppers, and snacks.
vegetables, meats/meat alternatives, breads/bread alternatives, and milk. Unlike school meals and vegetables, meats/meat alternatives, breads/bread alternatives, and milk. Unlike school meals and
CACFP, there are no limits on calories, saturated CACFP, there are no limits on calories, saturated
Participating school food authorities may instead choose to use the NSLP and/or SBP nutrition Participating school food authorities may instead choose to use the NSLP and/or SBP nutrition
around the timing of around the timing of congregate meals in SFSP, including at least one hour between meals.194
child nutrition programs, SFSP sponsors must comply with local or state health and sanitation child nutrition programs, SFSP sponsors must comply with local or state health and sanitation
requirements.requirements.
Seamless Summer Option (SSO)
School food authorities may participate in SFSP, or they can choose to offer summer meals School food authorities may participate in SFSP, or they can choose to offer summer meals
through SSO. SSO allows school food authorities to continue operating under certain NSLP/SBP through SSO. SSO allows school food authorities to continue operating under certain NSLP/SBP
requirements into the summer.requirements into the summer.
' nutrition standards, administrative review process, and reimbursement rates (nutrition standards, administrative review process, and reimbursement rates (
NSLP/SBP reimbursement rates). Other requirements are the same as SFSP, including rural area NSLP/SBP reimbursement rates). Other requirements are the same as SFSP, including rural area
and site eligibility rules.and site eligibility rules.
can operate the program at a variety of meal sites (e.g., parks, recreation centers, libraries)can operate the program at a variety of meal sites (e.g., parks, recreation centers, libraries)
's reimbursement rates. However, school food authorities participating in SSO also receive the reimbursement rates. However, school food authorities participating in SSO also receive the
NSLP commodity reimbursement (discussed in the NSLP commodity reimbursement (discussed in the "
food authorities may also have a reduced administrative burden under SSO. A 2018 study by food authorities may also have a reduced administrative burden under SSO. A 2018 study by
USDA found that three-quarters of sponsors operated SFSP and one-quarter operated SSO.USDA found that three-quarters of sponsors operated SFSP and one-quarter operated SSO.
198 Summer EBT
Following a more than decade-long demonstration (discussed below), the Summer EBT program Following a more than decade-long demonstration (discussed below), the Summer EBT program
328), which gave all states and territories and some ITOs the option to operate Summer EBT 328), which gave all states and territories and some ITOs the option to operate Summer EBT
starting in summer 2024. According to the law, participating jurisdictions are to distribute federal starting in summer 2024. According to the law, participating jurisdictions are to distribute federal
funds to eligible households—in an amount of $40 per child per funds to eligible households—in an amount of $40 per child per
summer month (adjusted annually for inflation)—which households can redeem at SNAP-authorized retailers for groceries. Children who receive which households can redeem at SNAP-authorized retailers for groceries. Children who receive
free or reduced-price meals during the school year free or reduced-price meals during the school year
(though families may opt out). States participating in the program must also establish an (though families may opt out). States participating in the program must also establish an
application process—using the same eligibility criteria as free or reduced-price school meals—for application process—using the same eligibility criteria as free or reduced-price school meals—for
other children.other children.
previously operated the Summer EBT demonstration through WIC), territories that do not operate previously operated the Summer EBT demonstration through WIC), territories that do not operate
SNAP (American Samoa, Puerto Rico, and the Northern Mariana Islands), and children who SNAP (American Samoa, Puerto Rico, and the Northern Mariana Islands), and children who
attend year-round schools.attend year-round schools.
funding to cover the other half.
In summer 2024, 37 states, DC, five territories, and two ITOs operated Summer EBT.199 Federal funding totaled approximately $2.5 billion for benefits and $250 million for administrative costs.200 USDA also made an additional $100 million available in discretionary funding under the Consolidated Appropriations Act, 2024 (P.L. 118-42) for noncompetitive technology grants for implementation of Summer EBT (not subject to the administrative match requirement).201
Summer Meal Demonstration Projects
Summer meal demonstration projects were first authorized and funded by the FY2010 Summer meal demonstration projects were first authorized and funded by the FY2010appropriations law (P.L. 111-80appropriations law (P.L. 111-80).202
delivery alternatives, including Summer EBT, food backpacks, food boxes, and meal delivery for delivery alternatives, including Summer EBT, food backpacks, food boxes, and meal delivery for
children in rural areas.children in rural areas.
significant impacts on reducing food insecurity and improving nutrient intake.significant impacts on reducing food insecurity and improving nutrient intake.
FY2015, appropriations acts designated summer meal demonstration funding for Summer EBT.FY2015, appropriations acts designated summer meal demonstration funding for Summer EBT.
in selected states and ITOs.in selected states and ITOs.
children eligible for free or reduced-price school meals. Depending on the site and year, either children eligible for free or reduced-price school meals. Depending on the site and year, either
$30 or $60 per month was provided on an EBT card. States and jurisdictions had the option to $30 or $60 per month was provided on an EBT card. States and jurisdictions had the option to
administer the project through SNAP or WIC. Participants in jurisdictions providing benefits administer the project through SNAP or WIC. Participants in jurisdictions providing benefits
through SNAP redeemed benefits for SNAP-eligible foods at SNAP-authorized retailers, while through SNAP redeemed benefits for SNAP-eligible foods at SNAP-authorized retailers, while
participants in the WIC EBT jurisdictions were limited to a smaller set of eligible foods at WIC-participants in the WIC EBT jurisdictions were limited to a smaller set of eligible foods at WIC-
authorized retailers.authorized retailers.
SMP provides funding for milk served in approximately 1,SMP provides funding for milk served in approximately 1,
summer camps, and other institutionssummer camps, and other institutions
institutions may not participate in another child nutrition meal service program along with SMP. institutions may not participate in another child nutrition meal service program along with SMP.
However, schools may administer SMP for pre-kindergartners and kindergartners who are in part-However, schools may administer SMP for pre-kindergartners and kindergartners who are in part-
price. Institutions are reimbursed differently based on whether they decide to provide milk for price. Institutions are reimbursed differently based on whether they decide to provide milk for
free to all children, sell milk to all children, or combine these options (provide free milk to free to all children, sell milk to all children, or combine these options (provide free milk to
eligible children and sell milk to other children) (seeeligible children and sell milk to other children) (see Table 9). If institutions choose the combined . If institutions choose the combined
option, they must establish eligibility rules for free milk.option, they must establish eligibility rules for free milk.
CACFP nutrition standards.CACFP nutrition standards.
unflavored whole milk for one-year-olds, unflavored low-fat (1%) or unflavored fat-free milk for unflavored whole milk for one-year-olds, unflavored low-fat (1%) or unflavored fat-free milk for
children ages 2-5, and unflavored low-fat (1%) or flavored/unflavored fat-free milk for children children ages 2-5, and unflavored low-fat (1%) or flavored/unflavored fat-free milk for children
ages six and older (ages six and older (
and-older age group).and-older age group).
substitutes in cases of medical or special dietary needs.substitutes in cases of medical or special dietary needs.
Table 9. Reimbursement Rates: SMP
2024-2025 All Milk Served
Free Milk to Low-Income Children
$0.27
N/A
N/A
only free milkonly free milk
$0.27
N/A
N/A
N/A
$0.27
Average cost per half-pint of milk
Payments/Maximum Reimbursement Rates,Payments/Maximum Reimbursement Rates,
56720. Note: The average cost per half-pint of milk is determined based on receipts submitted by the institution.The average cost per half-pint of milk is determined based on receipts submitted by the institution.
After-School Meals and Snacks
CACFP and NSLP both provide federal support for snacks and meals served during after-school CACFP and NSLP both provide federal support for snacks and meals served during after-school
programs.programs.
snack and one meal (usually supper) per child daily, whereas the NSLP Afterschool Snack option snack and one meal (usually supper) per child daily, whereas the NSLP Afterschool Snack option
provides reimbursement for snacks only. Reimbursement rates for CACFP At-Risk Afterschool provides reimbursement for snacks only. Reimbursement rates for CACFP At-Risk Afterschool
meals/snacks and NSLP afterschool snacks are the same as CACFP reimbursement rates (listed in meals/snacks and NSLP afterschool snacks are the same as CACFP reimbursement rates (listed in
Table 7).
CACFP At-Risk Afterschool Meals and Snacks The CACFP At-Risk Afterschool component was authorized as a demonstration project in 1994 The CACFP At-Risk Afterschool component was authorized as a demonstration project in 1994
Afterschool meal providers include the same types of institutions that are eligible to become Afterschool meal providers include the same types of institutions that are eligible to become
CACFP centers (see the institutional eligibility rules in CACFP centers (see the institutional eligibility rules in
they do not need to operate the child/day care component of CACFP in order to operate the At-they do not need to operate the child/day care component of CACFP in order to operate the At-
Risk Afterschool component. Additionally, At-Risk Afterschool providers must be located in Risk Afterschool component. Additionally, At-Risk Afterschool providers must be located in
school meals.school meals.
purpose.purpose.
At-Risk Afterschool component allows participation through age 18.At-Risk Afterschool component allows participation through age 18.
per child daily, and meals and snacks are provided for free to all children. Meals and snacks must per child daily, and meals and snacks are provided for free to all children. Meals and snacks must
meet federal nutrition standards.meet federal nutrition standards.
the after-school hours and on weekends, holidays, and breaks during the school year.the after-school hours and on weekends, holidays, and breaks during the school year.
children.children.
218 NSLP Afterschool Snacks
The NSLP Afterschool Snack option was authorized in the 1998 child nutrition reauthorization The NSLP Afterschool Snack option was authorized in the 1998 child nutrition reauthorization
act (P.L. 105-336). It allows NSLP-participating schools to receive federal reimbursement for one act (P.L. 105-336). It allows NSLP-participating schools to receive federal reimbursement for one
snack per child daily in eligible afterschool programs during the school year.snack per child daily in eligible afterschool programs during the school year.
USDA guidance, eligible afterschool programs must provide USDA guidance, eligible afterschool programs must provide
activities in a structured and supervised environment,activities in a structured and supervised environment,
activity.activity.
ways: (1) like the CACFP At-Risk Afterschool component, if at least 50% of ways: (1) like the CACFP At-Risk Afterschool component, if at least 50% of
for free and reduced-price meals, the schools may provide free snacks to all children, or (2) if this for free and reduced-price meals, the schools may provide free snacks to all children, or (2) if this
criterion is not met, the schools may offer free, reduced-price, or full price snacks, based on criterion is not met, the schools may offer free, reduced-price, or full price snacks, based on
household income eligibility (like the school meals programs). household income eligibility (like the school meals programs).
provided through this program provided through this program
Afterschool Snack component must comply with federal nutrition standards.222
The NSLP Afterschool Snack component serves 1.3 million snacks on average daily.223
Fresh Fruit and Vegetable Program (FFVP)FFVP provides formula grants to states to fund fresh fruit and vegetable snacks in selected FFVP provides formula grants to states to fund fresh fruit and vegetable snacks in selected
elementary schools.elementary schools.
each state and the remainder is allocated by state population. States must prioritize funding for each state and the remainder is allocated by state population. States must prioritize funding for
schools with high proportions of students who are eligible for free or reduced-price meals. schools with high proportions of students who are eligible for free or reduced-price meals.
Schools must participate in NSLP in order to receive a FFVP grant. States set annual per-student Schools must participate in NSLP in order to receive a FFVP grant. States set annual per-student
grant amounts (between $50 and $75). Schools may provide fresh fruit and vegetable snacks to grant amounts (between $50 and $75). Schools may provide fresh fruit and vegetable snacks to
students at any time of day outside of the breakfast or lunch service.students at any time of day outside of the breakfast or lunch service.
children in attendance (regardless of family income).children in attendance (regardless of family income).
FFVP is funded by a mandatory transfer of funds from Section 32 of the Act of August 24, 1935. FFVP is funded by a mandatory transfer of funds from Section 32 of the Act of August 24, 1935.
The authorizing law provided $150 million for school year 2011-2012, which is adjusted annually The authorizing law provided $150 million for school year 2011-2012, which is adjusted annually
for inflation.for inflation.
funds) for FFVP to states.funds) for FFVP to states.
FFVP was created by the 2002 farm bill (P.L. 107-171) as a pilot project. The 2004 child nutrition FFVP was created by the 2002 farm bill (P.L. 107-171) as a pilot project. The 2004 child nutrition
reauthorization act (P.L. 108-265) made the program permanent and provided funding for a reauthorization act (P.L. 108-265) made the program permanent and provided funding for a
limited number of states and Indian reservations. The 2008 farm bill (P.L. 110-246) expanded limited number of states and Indian reservations. The 2008 farm bill (P.L. 110-246) expanded
program. The 2014 farm bill (P.L. 113-79) essentially made no changes to FFVP but provided $5 program. The 2014 farm bill (P.L. 113-79) essentially made no changes to FFVP but provided $5
million for a demonstration project to test offering frozen, canned, and dried fruits and vegetables million for a demonstration project to test offering frozen, canned, and dried fruits and vegetables
in the program. Four states (Alaska, Delaware, Kansas, and Maine) participated in the pilot in in the program. Four states (Alaska, Delaware, Kansas, and Maine) participated in the pilot in
school year 2014-2015 and an evaluation was published in 2017.228 Other Child Nutrition Activities Federal child nutrition laws authorize, and child nutrition funding supports, several additional Federal child nutrition laws authorize, and child nutrition funding supports, several additional
initiatives and activities, such as studies and evaluations, training and technical assistance, initiatives and activities, such as studies and evaluations, training and technical assistance,
technology improvements, and food safety initiatives.technology improvements, and food safety initiatives.
discussed below. Farm to School Program The farm to school program, which includes grants to organizations, technical assistance, and The farm to school program, which includes grants to organizations, technical assistance, and
research, was authorized by the HHFKA in 2010.research, was authorized by the HHFKA in 2010.
school cafeterias,school cafeterias,
increasing fruit and vegetable consumption among students, supporting local farmers and rural increasing fruit and vegetable consumption among students, supporting local farmers and rural
communities, and providing nutrition and agriculture education. The farm to school program has communities, and providing nutrition and agriculture education. The farm to school program has
mandatory funding of $5 million, which has been supplemented with discretionary funds in recent mandatory funding of $5 million, which has been supplemented with discretionary funds in recent
years.years.
FNS on a competitive basis to schools, nonprofit entities, and agricultural producers and FNS on a competitive basis to schools, nonprofit entities, and agricultural producers and
processors for the purpose of establishing programs that improve schoolsprocessors for the purpose of establishing programs that improve schools
produced foods. They may be used for training, supporting operations, planning, purchasing produced foods. They may be used for training, supporting operations, planning, purchasing
equipment, developing school gardens, nutrition education, developing partnerships, and other equipment, developing school gardens, nutrition education, developing partnerships, and other
activities.activities.
serve more than 3,000 schools and 1.2 million students.serve more than 3,000 schools and 1.2 million students.
additional $60 million in non-competitive farm to school program funding to states for use over a additional $60 million in non-competitive farm to school program funding to states for use over a
four-year period. FNS distributed the funding using a formula based on statesfour-year period. FNS distributed the funding using a formula based on states
participation.participation.
235 Institute of Child Nutrition
The Institute of Child Nutrition The Institute of Child Nutrition (ICN) provides technical assistance, instruction, and materials for provides technical assistance, instruction, and materials for
nutrition and food service professionals and other local administrators of child nutrition programs nutrition and food service professionals and other local administrators of child nutrition programs
on a variety of topics. The institute receives $5 million a year in mandatory funding appropriated on a variety of topics. The institute receives $5 million a year in mandatory funding appropriated
Team Nutrition
The Team Nutrition initiative supports federally and state-developed nutrition education and The Team Nutrition initiative supports federally and state-developed nutrition education and
promotion initiatives. This includes grants for state agencies to develop programs to improve promotion initiatives. This includes grants for state agencies to develop programs to improve
school meal quality, such as by training school nutrition professionals. From 2004 to 2018, Team school meal quality, such as by training school nutrition professionals. From 2004 to 2018, Team
Nutrition also included the HealthierUS Schools Challenge, which was a voluntary certification Nutrition also included the HealthierUS Schools Challenge, which was a voluntary certification
initiative designed to recognize schools that create a healthy school environment through the initiative designed to recognize schools that create a healthy school environment through the
promotion of nutrition and physical activity.promotion of nutrition and physical activity.
238 Healthy Meals Incentives Initiative
In 2022, USDA (during the Biden Administration) announced it would use $100 million in COVID-19 response funding under the Consolidated Appropriations Act, 2021 (P.L. 116-260) to implement a Healthy Meals Incentives Initiative.239 The initiative includes (1) grants for small and/or rural school food authorities to invest in staffing, training, and kitchen improvements, among other changes intended to improve nutrition in school meals;240 (2) School Food System Transformation Challenge grants to "stimulate innovation ... in the K-12 school food marketplace" through collaborative projects between school districts, food producers, suppliers, distributors, and/or community partners;241 (3) nonmonetary recognition awards for school food authorities that have made significant improvements to nutrition in school meals;242 and (4) summits for grant recipients to share best practices.
FNS contracted with four entities (Boise State University, the Chef Ann Foundation, Full Plates Full Potential, and the Illinois Public Health Institute) to carry out the School Food System Transformation Challenge grants and with Action for Healthy Kids to carry out the other three components of the initiative.243
Food Safety Foods served in any child nutrition program must comply with state or local health, safety, and Foods served in any child nutrition program must comply with state or local health, safety, andsanitation standards for food storage, preparation, and service. Schools participating in the school sanitation standards for food storage, preparation, and service. Schools participating in the school
meals programs must obtain food safety inspections by a state or local government agency at least meals programs must obtain food safety inspections by a state or local government agency at least
twice a year.twice a year.
annual funding to carry out food safety training for state and local program operators.annual funding to carry out food safety training for state and local program operators.
246 FNS Activities
Approximately $Approximately $
research, training and technical assistance, and payment oversight.research, training and technical assistance, and payment oversight.
example, computer systems such as the USDA Foods ordering and purchasing application, FNS example, computer systems such as the USDA Foods ordering and purchasing application, FNS
technical assistance, and guidance to states in implementing corrective actions to payment technical assistance, and guidance to states in implementing corrective actions to payment
errors.errors.
248 Further Information
CRS reports:CRS reports:
Account
of 2004)of 2004)
Nutrition Programs
Other Historical Resources
USDA, produced a 15-minute video documenting the USDA, produced a 15-minute video documenting the
This section provides a high-level summary of the federal child nutrition programs from their inceptions through 2010, when the most recent child nutrition reauthorization law was enacted.249
The Emergence of School Lunches and the National School Lunch Program
When the first federal aid for school lunches was provided in the 1930s, local school lunch programs were already operational in many250 Many of these early lunch programs were started by charitable womenMany of these early lunch programs were started by charitable women
of the century in an effort to feed hungry children. Over time, they transitioned to school boards of the century in an effort to feed hungry children. Over time, they transitioned to school boards
and school districts. These programs received a combination of private, local, and state and school districts. These programs received a combination of private, local, and state
funding.funding.
both as a way to feed hungry children and support the farm economy. Initially, federal aid was both as a way to feed hungry children and support the farm economy. Initially, federal aid was
provided in the form of cafeteria equipment and labor. In 1932, the Reconstruction Finance provided in the form of cafeteria equipment and labor. In 1932, the Reconstruction Finance
Corporation began providing loans to states and school districts to cover the cost of cafeteria Corporation began providing loans to states and school districts to cover the cost of cafeteria
space and equipment for school lunch programs.space and equipment for school lunch programs.
New Deal agency, began sponsoring womenNew Deal agency, began sponsoring women
support for school lunches began that same year, when Section 32 of the Act of August 24, 1935 support for school lunches began that same year, when Section 32 of the Act of August 24, 1935
(P.L. 74-320) was enacted. The act provided 30% of customs receipts to USDA to purchase (P.L. 74-320) was enacted. The act provided 30% of customs receipts to USDA to purchase
surplus commodities from farmers impacted by the depression. These commodities were donated surplus commodities from farmers impacted by the depression. These commodities were donated
through various outlets for domestic consumption, including school lunch programs.through various outlets for domestic consumption, including school lunch programs.
recipient organizations, through their agreements with state agencies, to operate school lunch recipient organizations, through their agreements with state agencies, to operate school lunch
programs on a nonprofit basis, maintain any existing local funding for school lunches, keep programs on a nonprofit basis, maintain any existing local funding for school lunches, keep
records of foods received, serve meals free to poor children, and ensure that such children would records of foods received, serve meals free to poor children, and ensure that such children would
not be identified to their peers, among other requirements.not be identified to their peers, among other requirements.
programs. However, in 1943, federal commodity aid declined as Section 32 surplus commodities programs. However, in 1943, federal commodity aid declined as Section 32 surplus commodities
midst of declining aid, Congress provided the first cash assistance—$50 million in Section 32 midst of declining aid, Congress provided the first cash assistance—$50 million in Section 32
funds—for funds—for
Appropriation Act (P.L. 78-129). The introduction of cash assistance marked a shift in the lunch Appropriation Act (P.L. 78-129). The introduction of cash assistance marked a shift in the lunch
program.program.
federally purchased commodities.federally purchased commodities.
National School Lunch Act (P.L. 79-396) was enacted. Signed into law on June 4, 1946, by National School Lunch Act (P.L. 79-396) was enacted. Signed into law on June 4, 1946, by
President Truman, the National School Lunch Act permanently authorized appropriations of President Truman, the National School Lunch Act permanently authorized appropriations of
be renamed the be renamed the
's role in the passage of the legislation and his earlier support for the school lunch program within role in the passage of the legislation and his earlier support for the school lunch program within
New Deal programs and during his tenure as the Chairman of the Agriculture Appropriations New Deal programs and during his tenure as the Chairman of the Agriculture Appropriations
subcommittee.subcommittee.
price to students who were deemed by local school authorities as unable to pay the full cost of a price to students who were deemed by local school authorities as unable to pay the full cost of a
lunch. Funds were to be distributed to states based on the number of school-aged children in the lunch. Funds were to be distributed to states based on the number of school-aged children in the
state and the statestate and the state
funds dollar-for-dollar. States were to distribute funding on a monthly basis to schools based on funds dollar-for-dollar. States were to distribute funding on a monthly basis to schools based on
the number of meals served that met the number of meals served that met
Secretary on the basis of tested, nutritional researchSecretary on the basis of tested, nutritional research
be used for cafeteria equipment, and separate funds were authorized for this purpose ($10 million be used for cafeteria equipment, and separate funds were authorized for this purpose ($10 million
annually); however, Congress subsequently prohibited appropriations for equipment assistance annually); however, Congress subsequently prohibited appropriations for equipment assistance
from FY1948 to FY1967.from FY1948 to FY1967.
concerns emerged over the funding formula. One concern was that the formula prioritized concerns emerged over the funding formula. One concern was that the formula prioritized
funding for schools with large numbers of school-aged children rather than actual participants in funding for schools with large numbers of school-aged children rather than actual participants in
the program. There was also concern that schools with high proportions of needy children the program. There was also concern that schools with high proportions of needy children
received the same amount of aid as those with wealthier families, even though they had to serve a received the same amount of aid as those with wealthier families, even though they had to serve a
larger number of meals for free or at a reduced-price.larger number of meals for free or at a reduced-price.
formula to be based on the number of school lunches served in the state in the preceding school formula to be based on the number of school lunches served in the state in the preceding school
year instead of the number of school-aged children. The law also authorized additional year instead of the number of school-aged children. The law also authorized additional
assistance to all schools participating in NSLP.assistance to all schools participating in NSLP.
requirement and established the first national eligibility guidelines for free and reduced-price requirement and established the first national eligibility guidelines for free and reduced-price
meals at 100% of the federal poverty level (later in the decade increased to 125% for free lunches meals at 100% of the federal poverty level (later in the decade increased to 125% for free lunches
and 195% for reduced-price lunches). In 1971, another significant change occurred with the and 195% for reduced-price lunches). In 1971, another significant change occurred with the
enactment of P.L. 92-153, which guaranteed states a certain level of federal cash assistance by enactment of P.L. 92-153, which guaranteed states a certain level of federal cash assistance by
specifying average per-meal reimbursement rates for free, reduced-price, and paid lunches.specifying average per-meal reimbursement rates for free, reduced-price, and paid lunches.
262 The Addition of Other Child Nutrition Programs
In the 1960s, federal child nutrition efforts expanded beyond school lunches.In the 1960s, federal child nutrition efforts expanded beyond school lunches.
1966, the Child Nutrition Act of 1966 (P.L. 89-642) was enacted.1966, the Child Nutrition Act of 1966 (P.L. 89-642) was enacted.
Special Milk Program (SMP) and authorized the School Breakfast Program (SBP) as a pilot Special Milk Program (SMP) and authorized the School Breakfast Program (SBP) as a pilot
program. The SMP was based on predecessor USDA school milk programs that had operated program. The SMP was based on predecessor USDA school milk programs that had operated
since the 1940s.since the 1940s.
year.year.
Agriculture Orville L. Freeman testified thatAgriculture Orville L. Freeman testified that
programs in this country. They are based on what we have learned in 20 years of administration of the National School Lunch Act, and they reflect a careful assessment of administration of the National School Lunch Act, and they reflect a careful assessment of
gaps which now exist in the nutritional needs of children in this country.gaps which now exist in the nutritional needs of children in this country.
camps, and other nonprofit institutions. At the time, schools and institutions could participate in camps, and other nonprofit institutions. At the time, schools and institutions could participate in
both SMP and NSLP. Meanwhile, SBP was authorized for two fiscal years and required states to both SMP and NSLP. Meanwhile, SBP was authorized for two fiscal years and required states to
prioritize funds for prioritize funds for
exist and to those schools to which a substantial proportion of the children enrolled must travel exist and to those schools to which a substantial proportion of the children enrolled must travel
long distances dailylong distances daily
working mothers and children from low-income familiesworking mothers and children from low-income families
of 1966 also gave the Secretary the authority to provide higher reimbursements to schools with of 1966 also gave the Secretary the authority to provide higher reimbursements to schools with
requirements prescribed by the Secretary on the basis of tested nutritional research,requirements prescribed by the Secretary on the basis of tested nutritional research,
served for free or at a reduced price to children unable to pay the full price of a meal, as served for free or at a reduced price to children unable to pay the full price of a meal, as
determined by local school authorities (P.L. 89-642).determined by local school authorities (P.L. 89-642).
Service Program for Children (SFSPC), a pilot program to fund meals in summer and child care Service Program for Children (SFSPC), a pilot program to fund meals in summer and child care
settings (P.L. 90-302). SFSPC provided the first federal assistance for summer meals for children settings (P.L. 90-302). SFSPC provided the first federal assistance for summer meals for children
and the first dedicated assistance for meals served in child care settings.and the first dedicated assistance for meals served in child care settings.
was targeted to areas with poor economic conditions and a high number of working mothers.was targeted to areas with poor economic conditions and a high number of working mothers.
Summer Food Service Program (SFSP) (P.L. 94-105). CCFP was open to public and nonprofit Summer Food Service Program (SFSP) (P.L. 94-105). CCFP was open to public and nonprofit
institutions that met child care licensing or other official child care standards, while SFSP institutions that met child care licensing or other official child care standards, while SFSP
retained a focus on institutions in low-income areas.retained a focus on institutions in low-income areas.
children at SFSP sites, whereas CCFP conducted free and reduced-price eligibility determinations children at SFSP sites, whereas CCFP conducted free and reduced-price eligibility determinations
like NSLP.like NSLP.
1980 to 2010
The long-standing growth of child nutrition programs was contrasted with budget cuts in the early The long-standing growth of child nutrition programs was contrasted with budget cuts in the early
1980s, which were part of larger efforts to reduce federal domestic spending.1980s, which were part of larger efforts to reduce federal domestic spending.
Reconciliation Act of 1980 (P.L. 96-499) reduced FY1981 funding for child nutrition programs Reconciliation Act of 1980 (P.L. 96-499) reduced FY1981 funding for child nutrition programs
by approximately $400 million (9%) of the child nutrition budget.by approximately $400 million (9%) of the child nutrition budget.
lowering reimbursement rates in the programs and eliminating commodity assistance for lowering reimbursement rates in the programs and eliminating commodity assistance for
breakfast, among other changes.breakfast, among other changes.
Reconciliation Act of 1981, which made changes that collectively cut $1.4 billion (25%) of the Reconciliation Act of 1981, which made changes that collectively cut $1.4 billion (25%) of the
child nutrition budget (Title VIII of P.L. 97-35child nutrition budget (Title VIII of P.L. 97-35).274
remain in place today. For example, the law restricted eligibility from 195% of poverty to 185% remain in place today. For example, the law restricted eligibility from 195% of poverty to 185%
of poverty for reduced-price meals and set eligibility at 130% for free meals in the NSLP, SBP, of poverty for reduced-price meals and set eligibility at 130% for free meals in the NSLP, SBP,
and CCFP. It also raised allowable charges for reduced-price lunches from 20 cents to 40 cents and CCFP. It also raised allowable charges for reduced-price lunches from 20 cents to 40 cents
and for reduced-price breakfasts from 10 cents to 30 cents.and for reduced-price breakfasts from 10 cents to 30 cents.
excluded schools/institutions that participated in another child nutrition meals program from excluded schools/institutions that participated in another child nutrition meals program from
participating in SMP—cutting SMPparticipating in SMP—cutting SMP
from children ages 18 and under to children ages 12 and under, and reduced the maximum from children ages 18 and under to children ages 12 and under, and reduced the maximum
one snack per child daily. The law also eliminated equipment assistance for school meals.one snack per child daily. The law also eliminated equipment assistance for school meals.
the late 1980s and 1990s, and new policies led to the expansion of the programs during this the late 1980s and 1990s, and new policies led to the expansion of the programs during this
timeframe.timeframe.
for school breakfast programs, expanded CCFP to adult day care centers (and renamed for school breakfast programs, expanded CCFP to adult day care centers (and renamed it(?) the Child the Child
and Adult Care Food Program, or CACFP), and provided new funding for afterschool snacks and Adult Care Food Program, or CACFP), and provided new funding for afterschool snacks
through NSLP and CACFP.through NSLP and CACFP.
a policy change intended to reduce paperwork in the school meals programs: automatic a policy change intended to reduce paperwork in the school meals programs: automatic
(categorical) eligibility for free meals for children in food stamp (now SNAP) and Aid to Families (categorical) eligibility for free meals for children in food stamp (now SNAP) and Aid to Families
with Dependent Children (now TANF) households, which was enacted in 1986—and direct with Dependent Children (now TANF) households, which was enacted in 1986—and direct
certification of such children for free meals without household applications, which was enacted in certification of such children for free meals without household applications, which was enacted in
1989.1989.
child nutrition reauthorization (P.L. 101-147) required USDA to create a standardized process child nutrition reauthorization (P.L. 101-147) required USDA to create a standardized process
through which states would review school food authoritiesthrough which states would review school food authorities
(known as administrative reviews).(known as administrative reviews).
General (OIG) audits in the 1990s that found instances of abuse and mismanagement, the General (OIG) audits in the 1990s that found instances of abuse and mismanagement, the
Agricultural Risk Protection Act of 2000 (P.L. 106-224) made a number of changes aimed at Agricultural Risk Protection Act of 2000 (P.L. 106-224) made a number of changes aimed at
improving program integrity in CACFP.improving program integrity in CACFP.
frequent and unannounced site visits of sponsored centers and homes, restricted nonprofit frequent and unannounced site visits of sponsored centers and homes, restricted nonprofit
ineligible to participate in any other public program based on violations of program requirements. ineligible to participate in any other public program based on violations of program requirements.
Other legislation was aimed at improving program integrity in the school meals programs.Other legislation was aimed at improving program integrity in the school meals programs.
265), which made changes to school food authorities265), which made changes to school food authorities
free and reduced-price meals. Specifically, the law set a sample size of applications that schools free and reduced-price meals. Specifically, the law set a sample size of applications that schools
must review, established a focus on must review, established a focus on
eligibility thresholds), and authorized direct (automatic) household application verification eligibility thresholds), and authorized direct (automatic) household application verification
processes.processes.
school food authorities with a high level of administrative error or risk of error.school food authorities with a high level of administrative error or risk of error.
categories of children. Specifically, the law extended categorical eligibility and direct certification categories of children. Specifically, the law extended categorical eligibility and direct certification
The most recent child nutrition reauthorization as of the cover date of this report was the Healthy, Hunger-Free Kids Act of 2010 (HHFKA; P.L. 111-296). The HHFKA continued the expansion of school meals in a few ways. It made foster children categorically eligible for free school meals, and allowed direct certification of such children. It also included a pilot project for direct certification (but not categorical eligibility) of children in Medicaid households for free and reduced-price meals based on an income test. In addition, the HHFKA created the Community Eligibility Provision (CEP), through which eligible schools can provide free meals to all students.
As discussed in this report, the HHFKA also made changes to nutritional requirements in the school meals programs and CACFP. Specifically, the law required USDA to update the nutrition standards for school meals within a certain timeframe and align the standards with the Dietary Guidelines for Americans (per an existing statutory requirement).284 The law also required USDA to issue new nutrition standards regulating all foods sold on school campuses during the school day ("competitive foods"). (Previous standards applied only to competitive foods sold during meal service.) In addition, the HHFKA required USDA to update the nutrition standards for CACFP meals and snacks within a certain timeframe and align them with the Dietary Guidelines for Americans.285Prior CRS reports written by Randy Aussenberg, CRS Specialist in Nutrition Assistance Policy, Joe Richardson, former CRS Specialist, and Jean Jones, former CRS Specialist, provided framework for this report. Brion Long, CRS Visual Information Specialist, provided design assistance.
Footnotes
Virtually all of the child nutrition programs operate in Puerto Rico, Guam, and the U.S. Virgin Islands. The use of the term "state" in this report refers to these jurisdictions as well. In the case of Summer EBT, it also includes some tribal entities. The term does not include the Northern Mariana Islands and American Samoa, which receive block grants in lieu of child nutrition programs. For more information on child nutrition programs in the Northern Mariana Islands and American Samoa, see U.S. Department of the Interior, Office of Insular Affairs, Region IX Federal Regional Council, Outer Pacific Committee, FY2016 Report on Federal Financial Assistance to the U.S. Pacific and Caribbean Islands, May 1, 2017, p. 10, https://www.doi.gov/sites/doi.gov/files/uploads/fy16-report-on-federal-financial-assistance-to-the-insular-areas.pdf.
For a list of administering agencies by state, see U.S. Department of Agriculture (USDA), Food and Nutrition Service (FNS), "Contact Map," https://www.fns.usda.gov/fns-contacts. In past instances, the federal government (via USDA-FNS's regional offices) has, for certain states, taken the place of state agencies (e.g., where a state has chosen not to operate a specific program or where there is a state prohibition on aiding private schools).
In addition to serving children, CACFP supports food in adult day care facilities.
For more information on WIC, see CRS Report R44115, A Primer on WIC: The Special Supplemental Nutrition Program for Women, Infants, and Children.
P.L. 79-396; Gordon W. Gunderson, National School Lunch Program: Background and Development, 1971, https://www.fns.usda.gov/nslp/program-history. The 1946 law supported school lunch programs by giving formula grant funding to states based on factors such as per capita income, rather than the present-day open-ended entitlements based largely on eligibility and participation rules.
P.L. 89-642.
See declaration of purposes in the NSLA and the Child Nutrition Act of 1966.
In 1999, P.L. 106-78 renamed the National School Lunch Act in Senator Richard B. Russell's honor.
Exceptions include a California program to provide SFSP snacks year-round, which was not extended. USDA's authority to conduct food safety audits and funding for a National Hunger Clearinghouse were not extended in FY2016 but were subsequently extended by appropriations acts in each of FY2017 through FY2022. For more information, see CRS In Focus IF10266, Child Nutrition Reauthorization (CNR): An Overview; or CRS memo CD1304737, Expiration of the Healthy, Hunger-free Kids Act of 2010 (P.L. 111-296), available to congressional clients on request.
For more information, see CRS Report R44373, Tracking Child Nutrition Reauthorization in the 114th Congress: An Overview.
In school year 2021-2022, school districts had the option to operate SSO during the school year. In school year 2020-2021, school districts and other types of meal providers such as nonprofit organizations were also allowed to operate SFSP.
For child nutrition waiver authorities, see Section 12(l) of the Richard B. Russell National School Lunch Act (codified at 42 U.S.C. §1760(l)) and Sections 2102-2202 of the Families First Coronavirus Response Act (FFCRA; P.L. 116-127).
For a list of child nutrition program waivers that USDA issued during the pandemic, see USDA-FNS, "Child Nutrition COVID-19 Waivers," https://www.fns.usda.gov/fns-disaster-assistance/fns-responds-covid-19/child-nutrition-covid-19-waivers.
For funding levels, see USDA-FNS, "2025 USDA Explanatory Notes – Food and Nutrition Service," p. 34-10, https://www.usda.gov/sites/default/files/documents/34-FNS-2025-ExNotes.pdf. For a list of waivers applicable to summer 2022 and school year 2022-2023, see USDA, FNS, "CN Flexibilities for Summer 2022 and School Year 2022-23," September 22, 2022, https://www.fns.usda.gov/cn/flexibilies-summer-22-sy-22-23.
USDA-FNS, "Fourth Allocation of Supply Chain Assistance Funds to Alleviate Supply Chain Disruptions in the School Meals Programs," SP 19-2023, August 7, 2023, https://www.fns.usda.gov/cn/fourth-allocation-supply-chain-assistance-sca-funds.
USDA-FNS, "Results of USDA's Food and Nutrition Service-Administered School Food Authority Survey II on Supply Chain Disruption and Student Participation," July 25, 2023, https://www.fns.usda.gov/cn/results-fns-administered-sfa-survey2-supply-chain-disruption.
For further discussion of appropriated entitlements, see CRS Report RS20129, Entitlements and Appropriated Entitlements in the Federal Budget Process.
U.S. Government Accountability Office (GAO), GAO Budget Glossary, p. 13, http://www.gao.gov/products/GAO-05-734SP.
U.S. Congress, House Committee on Appropriations, H.R. 4366/P.L. 118-42 [Legislative Text and Explanatory Statement]: Book 1 of 2: Divisions A-F, committee print, 118th Cong., 2nd sess., 2024, H.Prt. 56-550, p. 205 (hereinafter, "H. Prt. 56-550"). Section 32 is a permanent appropriation of 30% of the previous calendar year's customs receipts. For more information on Section 32, see CRS In Focus IF12193, Farm and Food Support Under USDA's Section 32 Account.
Includes carryover funds. USDA-FNS, "Fresh Fruit and Vegetable Program: Allocation of Funds for Fiscal Year 2024," SP 17-2023, May 31, 2023 and USDA-FNS, "Fresh Fruit and Vegetable Program: Allocation of Funds for Fiscal Year 2025," SP 21-2024, May 20, 2024.
For more detail on how inflation adjustment is conducted, see the child nutrition program section of CRS Report R42000, Inflation-Indexing Elements in Federal Entitlement Programs. Most reimbursements (including for schools and child care centers) are indexed annually based on the Consumer Price Index for All Urban Consumers (CPI-U) Food Away from Home Component. For family child care homes, the annual indexing is based on the CPI-U Food at Home Component.
The authorizing statutes for all four of the main child nutrition programs include nutritional requirements for the meals and snacks served; these are sometimes referred to as "nutrition standards," "nutrition guidelines," or "meal patterns." The nutrition standards differ by program in consideration of different age groups served and the settings in which meals are served, among other factors. See program regulations for nutritional requirements: NSLP, 7 C.F.R. §210.10; SBP, 7 C.F.R. §220.8; CACFP, 7 C.F.R. §226.20; SFSP, 7 C.F.R. §225.16.
USDA-FNS, "National School Lunch, Special Milk, and School Breakfast Programs, National Average Payments/Maximum Reimbursement Rates," July 10, 2024, 89 Federal Register 56720.
USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," p. 34-14, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf. For a summary of the allocation process, see USDA-FNS, "Summer EBT Administrative Funding Process for FY 2024," October 18, 2023, https://www.fns.usda.gov/sebt/administrative-funding-process-fy24.
For more information, see USDA-FNS, "USDA Foods in Schools," https://www.fns.usda.gov/usda-fis.
Section 6(c) of the NSLA (42 U.S.C. §1755(c)) and Section 17(h)(1)(B) of the NSLA (42 U.S.C. §1766(h)(1)(B)); and USDA-FNS, "Food Distribution Program: Value of Donated Foods From July 1, 2024, Through June 30, 2025," 89 Federal Register 56286, July 9, 2024, https://www.federalregister.gov/documents/2024/07/09/2024-15031/food-distribution-program-value-of-donated-foods-from-july-1-2024-through-june-30-2025.
Section 6(d) of the NSLA (codified at 42 U.S.C. §1755(d)) prohibits commodity support based on the number of breakfasts served through SBP. However, Section 4(b)(4) of the Child Nutrition Act of 1966 (codified at 42 U.S.C. §1773(b)(4)) authorizes USDA to provide at least 3 cents in commodity assistance per breakfast "whenever stocks of agricultural commodities are acquired by the Secretary or the Commodity Credit Corporation and are not likely to be sold by the Secretary or the Commodity Credit Corporation or otherwise used in programs of commodity sale or distribution."
Section 13(h) of the NSLA (codified at 42 U.S.C. §1761(h)). Per program regulations, SFSP sponsor organizations eligible for commodity assistance include "Self-preparation sponsors; sponsors which have entered into an agreement with a school or school food authority for the preparation of meals; and sponsors which are school food authorities and have competitively procured Program meals from the same food service management company from which they competitively procured meals for the National School Lunch Program during the last period in which school was in session." (7 C.F.R. §225.9(b)). Statute does not specify the level of entitlement commodity funding for SFSP. In FY2024, institutions participating in SFSP received approximately $652,000 in commodity assistance, according to USDA-FNS, "February 2025 Keydata Report," May 9, 2025.
For a list of products offered, see USDA-FNS, "USDA Foods Available List," https://www.fns.usda.gov/usda-fis/usda-foods-available. Under a Pilot Project for Unprocessed Fruits and Vegetables authorized by the 2014 farm bill (§4202 of P.L. 113-79) under Section 6(f) of the NSLA (codified at 42 U.S.C. §1755(f)), USDA may allow up to eight states to use a portion of their commodity assistance dollars to purchase unprocessed fruits and vegetables from suppliers outside of the federal USDA Foods supply chain. For a list of participating states, see USDA-FNS, "Pilot Project for Procurement of Unprocessed Fruits and Vegetables," https://www.fns.usda.gov/usda-fis/pilot-project-procurement-unprocessed-fruits-and-vegetables.
0.9% of NSLP entitlement commodity aid and 99.0% of CACFP entitlement commodity aid was in the form of cash in FY2024, according to USDA-FNS, "February 2025 Keydata Report," May 9, 2025. Kansas receives cash payments in lieu of USDA Foods as a result of the National School Lunch Act and Child Nutrition Act amendments of 1975. Fewer than 50 school districts also receive cash or commodity letters of credit in lieu of USDA Foods under Section 18(b) of the NSLA (codified at 42 U.S.C. §1769(b)) as a result of demonstration projects that began in the 1980s and early 1990s. In CACFP, states may request any amount of cash-in-lieu of commodities per Section 17(h)(1)(D) of the NSLA (codified at 42 U.S.C. §1766(h)(1)(D)).
Section 6(e) of the NSLA (codified at 42 U.S.C. §1755(e)). Not less than 12% of the assistance provided under Section 6 (commodity assistance) and Section 4 and Section 11 (NSLP cash reimbursements) of the NSLA must be provided as Section 6 commodity assistance. Prior to FY2018, bonus commodity assistance was allowed to count toward this requirement.
Entitlement commodity spending totaled $1.56 billion in NSLP, $184 million in CACFP, and $652,000 in SFSP in FY2024. USDA-FNS, "February 2025 Keydata Report," May 9, 2025.
These separate budget authorities are Section 32 of the Act of August 24, 1935, and the Commodity Credit Corporation (CCC). For more information on Section 32, see CRS In Focus IF12193, Farm and Food Support Under USDA's Section 32 Account. For more information on CCC, see CRS Report R44606, The Commodity Credit Corporation (CCC).
Bonus food data from USDA-FNS, "Child Nutrition Tables: NSLP, SBP and SMP—Program Costs—Cash and Commodities," accessed June 17, 2025, https://www.fns.usda.gov/pd/child-nutrition-tables and USDA-FNS Keydata files.
Section 6 of the Richard B. Russell National School Lunch Act (codified at 42 U.S.C. §1755).
Section 14 of the Child Nutrition Act of 1966 (codified at 42 U.S.C. §1783).
Section 7 of the Child Nutrition Act of 1966 (codified at 42 U.S.C. §1776).
7 C.F.R. §235.4.
7 C.F.R. §235.6.
Section 13(k)(1) of the NSLA (codified at 42 U.S.C. §1761(k)(1)); 7 C.F.R. §225.5.
Section 502(c) of the FY2023 Consolidated Appropriations Act (P.L. 117-328).
Section 19 of the NSLA (codified at 42 U.S.C. §1769(i)(6)(B)).
Section 17(f)(3)(B) of the NSLA (codified at 42 U.S.C. §1766(f)(3)(B)); 7 C.F.R. §226.12.
Other child nutrition activities with mandatory funding include the Institute of Child Nutrition, administrative reviews, technical assistance for program integrity, and professional standards for school food service personnel. See USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," p. 34-15, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf.
USDA-FNS, "Fourth Allocation of Supply Chain Assistance Funds to Alleviate Supply Chain Disruptions in the School Meals Programs," SP 19-2023, August 7, 2023, https://www.fns.usda.gov/cn/fourth-allocation-supply-chain-assistance-sca-funds.
More information on LFS, including funding data, is available at USDA, Agricultural Marketing Service (AMS), "Local Food for Schools Cooperative Agreement Program," https://www.ams.usda.gov/selling-food-to-usda/lfs.
Based on a study by USDA of meal costs in school year 2014-2015, the average lunch reimbursement ($2.26) covered 62% of the average reported (direct) cost ($3.66) of producing a reimbursable lunch and 41% of the average full (including indirect) cost ($5.55) of producing a reimbursable lunch. USDA-FNS, School Nutrition and Meal Cost Study, Final Report Volume 3: School Meal Costs and Revenues, Office of Policy Support, April 2019, p. 53, https://www.fns.usda.gov/school-nutrition-and-meal-cost-study.
Section 7(a)(1) of the NSLA (codified at 42 U.S.C. §1756(a)(1)). The required contribution in NSLP equals 30% of Section 4 funds (the NSLP base reimbursement) made available to states in school year 1980-1981 (not inflation adjusted), which was $200 million according to U.S. Congress, Senate Committee on Agriculture, Nutrition, and Forestry, Child Nutrition Programs: Description, History, Issues, and Options, committee print, 98th Cong., 1st Sess., January 1983, S. Prt. 98-15 (Washington, DC: GPO, 1983), p. 8. States must also maintain level funding to the amount expended in FY1977 for state administrative expenses associated with NSLP, SBP, and SMP, per Section 7(f) of Child Nutrition Act (codified at 42 U.S.C. §1776(f)), which amounted to approximately $9 million nationally in FY2024, according to GAO, Child Nutrition Programs: USDA Could Enhance Its Management and Oversight of State Administrative Expenses, GAO-25-106977, April 2025, p. 11.
Section 13A(d) of the Richard B. Russell National School Lunch Act (codified at 42 U.S.C. 1762(d)).
For a list of states that adopted state funding for universal free meals, see state map available at FRAC, "Healthy School Meals for All," https://frac.org/healthy-school-meals-for-all. The nine states that have adopted universal free school meal policies as of the cover date of this report are California, Colorado, Massachusetts, Maine, Michigan, Minnesota, New Mexico, New York, and Vermont.
USDA-FNS, School Nutrition and Meal Cost Study, Final Report Volume 3: School Meal Costs and Revenues, Office of Policy Support, April 2019, p. 43, https://www.fns.usda.gov/school-nutrition-and-meal-cost-study.
For more information, see CRS Report R48515, School Lunch and Breakfast Participation: A Snapshot of Recent Trends.
USDA-FNS, "February 2025 Keydata Report," May 9, 2025
As of fall 2023, 94,150 schools participated in NSLP and 90,764 schools participated in SBP (with substantial overlap), according to USDA-FNS, "February 2025 Keydata Report," May 9, 2025. This includes private schools. In FY2024, nearly 4,200 private schools participated in NSLP and close to 3,100 private schools participated in SBP, according to CRS communication with USDA-FNS in April 2024.
In fall 2023, approximately 1,700 residential child care institutions (RCCIs) participated in NSLP and SBP (ibid). This report refers to "schools," but it should be understood that for NSLP and SBP, it means both schools and RCCIs. RCCIs are defined as follows in school meal program regulations: "The term 'residential child care institutions' includes, but is not limited to: homes for the mentally, emotionally or physically impaired, and unmarried mothers and their infants; group homes; halfway houses; orphanages; temporary shelters for abused children and for runaway children; long-term care facilities for chronically ill children; and juvenile detention centers. A long-term care facility is a hospital, skilled nursing facility, intermediate care facility, or distinct part thereof, which is intended for the care of children confined for 30 days or more." (7 C.F.R. §210.2). Nonresidential child care centers are eligible to participate in CACFP.
There is limited research on schools that opt out of the federal school meals programs. An older (1993) GAO analysis found that smaller and wealthier schools were more likely to drop out of NSLP. GAO found that common reasons for departure included financial considerations and compliance with federal nutrition standards. See GAO, Schools That Left the National School Lunch Program, December 1993, https://www.gao.gov/assets/80/78774.pdf.
For more information, see CRS Report R48515, School Lunch and Breakfast Participation: A Snapshot of Recent Trends.
USDA estimated that 94% of schools operating NSLP also operated SBP in FY2020 prior to the COVID-19 pandemic (USDA-FNS, "2023 USDA Explanatory Notes–Food and Nutrition Service," p. 35-14, https://www.usda.gov/sites/default/files/documents/35-2023-FNS.pdf).
See definitions of school food authority and local educational agencies at 7 C.F.R. §210.2 and 7 C.F.R. §220.2.
Ibid.
For a list of state administrative agencies, see USDA FNS, "Contact Map," https://www.fns.usda.gov/contacts/contact-map.
Section 22(b)(1)(C)(i) of the NLSA (codified at 42 U.S.C. §1769c(b)(1)(C)(i)). HHFKA required states to "conduct audits and reviews during a three-year cycle or other period prescribed by the Secretary." Regulations require reviews once every three years, with the potential for a one-year extension (a four-year cycle) (7 C.F.R. §210.18(c)). On February 22, 2019, USDA published a policy memorandum (SP 12-2019, Flexibility for the Administrative Review Cycle Requirement, https://www.fns.usda.gov/school-meals/flexibility-administrative-review-cycle-requirement) that allows state agencies to request a waiver to extend the review cycle for up to two additional years (a five-year cycle).
U.S. Government Accountability Office (GAO), USDA Has Reported Taking Some Steps to Reduce Improper Payments but Should Comprehensively Assess Fraud Risks, GAO-19-389, May 2019, p. 7.
The HHFKA set requirements around the price of paid meals, amending Section 12(p) of the NSLA (codified at 42 U.S.C. §1760(p)). However, appropriations laws from FY2018 forward waived these requirements for many schools. For more information, see USDA-FNS, "Paid Lunch Equity: Guidance for SY 2025-2026," May 14, 2025, https://www.fns.usda.gov/schoolmeals/paid-lunch-equity-guidance-sy2025-26 and CRS Report R45486, Child Nutrition Programs: Issues in the 115th Congress.
For the purposes of school meal eligibility, household is defined as "a group of related or nonrelated individuals, who are not residents of an institution or boarding house, but who are living as one economic unit" (7 C.F.R. §245.2).
Section 9(b)(1) of the NSLA (42 U.S.C. §1758(b)(1).
Links to Federal Register notices for recent school years are available at USDA FNS, "Child Nutrition Programs: Income Eligibility Guidelines," https://www.fns.usda.gov/schoolmeals/income-eligibility-guidelines.
There is a requirement that the adult household member filling out the application provide the last four digits of his/her Social Security number (Section 9(d)(1) of the NSLA), or, according to program regulations, indicate that they do not have one (7 C.F.R. §245.6(a)(6)). The law does not allow for citizenship eligibility restrictions; Section 742(a) of P.L. 104-193 states that individuals who are eligible for free public education benefits under state and local law shall remain eligible to receive school lunch and school breakfast benefits.
7 C.F.R. §245.6(a)(5)(ii). Also see USDA-FNS, "Child Nutrition Programs: Income Eligibility Guidelines," 85 Federal Register 16050, March 20, 2020; USDA-FNS, Eligibility Manual for School Meals: Determining and Verifying Eligibility, July 2017, https://www.fns.usda.gov/cn/eligibility-manual-school-meals; and USDA-FNS, "Applying for Free and Reduced Price School Meals," https://www.fns.usda.gov/schoolmeals/model-application.
Ibid. Households are asked to report this income for the most recent period prior to the application, unless it does not reflect their typical income, in which case they can provide the amount of income they normally receive in a month.
See Section 9(b)(12)(A) of the Richard B. Russell National School Lunch Act (codified at 42 U.S.C. §1758(b)(12)(A)) for the more specific definitions of these categories. SNAP, FDPIR, and TANF have income limits, but the other qualifications as defined in the statute are not limited by income.
According to CRS calculations using USDA-FNS 742 data for FY2024, 97% of categorically eligible students were directly certified for free school meals, compared to 3% certified by household application.
USDA-FNS, Direct Certification in the National School Lunch Program: State Implementation Progress: Report to Congress, December 2008, p. 3.
See, for example, U.S. Government Accountability Office, School-Meals Programs: USDA Has Enhanced Controls, but Additional Verification Could Help Ensure Legitimate Program Access, GAO-14-262, May 2014, pp. 16-19, http://www.gao.gov/products/GAO-14-262.
Direct certification authority is in Section 9(b)(4)-(5) of the Richard B. Russell National School Lunch Act (codified at 42 U.S.C. §1758(b)(4)-(5)). Direct certification is defined in NSLP/SBP program regulations at 7 C.F.R. §245.2.
USDA-FNS, Direct Certification in the National School Lunch Program: State Implementation Progress, School Year 2014–2015: Report to Congress, Office of Policy Support, Special Nutrition Programs Report No. CN-15-DC, December 2016, p. xiii.
However, parents and guardians are notified of the child's enrollment in free meals and are allowed to opt-out.
USDA-FNS, Eligibility Manual for School Meals: Determining and Verifying Eligibility, July 2017, https://www.fns.usda.gov/eligibility-manual-school-meals.
USDA-FNS, Direct Certification in the National School Lunch Program State Implementation Progress Report to Congress SY 2017-2018 and SY 2018-2019, June 2021, https://www.fns.usda.gov/cn/direct-certification-national-school-lunch-program-state-implementation-progress-report.
See CRS Report R41354, Child Nutrition and WIC Reauthorization: P.L. 111-296, for further discussion of these and related policies.
USDA-FNS, "National School Lunch and School Breakfast Program Demonstration Projects to Evaluate Direct Certification with Medicaid," October 10, 2024, https://www.fns.usda.gov/cn/direct-certification-medicaid-demonstration-project.
Section 9(b)(15) of the NSLA (codified at 42 USC §1758(b)(15)), as added by Section 103 of P.L. 111-296; Section 18(c) of the NSLA (codified at 42 USC §1769(c)).
USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," p. 34-31, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf. For a list of participating states, see USDA-FNS, "National School Lunch and School Breakfast Program Demonstration Projects to Evaluate Direct Certification with Medicaid," October 10, 2024, https://www.fns.usda.gov/cn/direct-certification-medicaid-demonstration-project.
USDA-FNS, Office of Policy Support, Evaluation of Demonstrations of National School Lunch Program and School Breakfast Program Direct Certification of Children Receiving Medicaid Benefits: Year 1 Report, prepared by Mathematica Policy Research, January 2015, https://www.fns.usda.gov/evaluation-demonstrations-national-school-lunch-program-and-school-breakfast-program-direct; USDA-FNS, Final Report: Direct Certification with Medicaid for Free and Reduced-Price Meals (DCMF/RP) Demonstration, Year 1, prepared by Mathematica Policy Research, August 2019, https://www.fns.usda.gov/research/cn/evaluation-dcm-free-reduced-price-meals; USDA-FNS, Direct Certification with Medicaid for Free and Reduced-Price Meals (DCM-F/RP) Demonstration, Year 2, prepared by Mathematica Policy Research, September 2020, https://www.fns.usda.gov/research/nslp/evaluation-dcm-free-reduced-price-meals-frp; and USDA-FNS, Office of Policy Support, Direct Certification with Medicaid for Free and Reduced-Price Meals (DCM-F/RP) Demonstration, School Year 2019-2020 Report, prepared by Mathematica Policy Research, March 2022, https://www.fns.usda.gov/cn/usda-dcm-frp-demonstration.
Ibid.
In general, local educational agencies must review the smallest of 3,000 of all applications or 3% of error-prone applications. If the local educational agency has a nonresponse rate below 20% or has more than 20,000 children approved by application for free/reduced-price meals and a recently improved response rate, they may use alternative sampling approaches. See Section 9(b)(3)(D) of the NSLA or program regulations at 7 C.F.R. Section 245.6a.
See Section 4 and Section 11 of the NSLA for the lunch reimbursement rates and Section 4 of the Child Nutrition Act of 1966 for breakfast reimbursement rates.
USDA-FNS, "SFA Certification of Compliance with Meal Requirements Data by State," July 30, 2024, https://www.fns.usda.gov/cn/coc-meal-requirements-state-data (accessed July 2025).
The Healthy, Hunger-Free Kids Act of 2010 (P.L. 111-296) provided an additional 6 cents per-lunch reimbursement (adjusted annually for inflation) to schools meeting the updated nutritional guidelines requirements. USDA-FNS, "National School Lunch, Special Milk, and School Breakfast Programs, National Average Payments/Maximum Reimbursement Rates," July 10, 2024, 89 Federal Register 56720 (separately lists rates for Alaska, Guam, Hawaii, Puerto Rico, and the U.S. Virgin Islands).
Section 4(b)(2) of the NSLA (codified at 42 U.S.C. §1753(b)(2)).
Section 4(d) of the Child Nutrition Act of 1966 (codified at 42 U.S.C. §1773(d)).
7 C.F.R. §210.14.
Section 12(p) of the NSLA (codified at 42 U.S.C. §1760(q)).
USDA-FNS, School Nutrition and Meal Cost Study, Final Report Volume 3: School Meal Costs and Revenues, Office of Policy Support, April 2019, https://www.fns.usda.gov/school-nutrition-and-meal-cost-study.
For further detail on CEP, see CRS Report R46371, Serving Free School Meals through the Community Eligibility Provision (CEP): Background and Participation.
USDA-FNS, "Child Nutrition Programs: Community Eligibility Provision-Increasing Options for Schools," 88 Federal Register 65778, September 26, 2023.
A school's number of identified students is essentially the same as its number of directly certified students, except that the number of identified students does not include students who are directly certified for reduced-price meals through the Medicaid demonstration. For the definition of "identified students" in regulations, see 7 C.F.R. §245.9(f)(1)(ii).
7 CFR §245.9(f)(4); USDA-FNS, "National School Lunch Program and School Breakfast Program: Eliminating Applications through Community Eligibility as Required by the Healthy, Hunger-Free Kids Act of 2010," 81 Federal Register 50194, July 29, 2016.
Food Research and Action Center (FRAC), "Community Eligibility: The Key to Hunger-Free Schools, School Year 2023–2024," December 2024, https://frac.org/community-eligibility.
Statute allows USDA to set the reimbursement multiplier between 1.3 and 1.6; USDA has set the multiplier at 1.6. USDA-FNS, "National School Lunch Program and School Breakfast Program: Eliminating Applications Through Community Eligibility as Required by the Healthy, Hunger-Free Kids Act of 2010," 81 Federal Register 50194, July 29, 2016, p. 50201.
7 C.F.R. §245.9(f).
7 C.F.R. §245.9(j).
USDA-FNS, "Provisions 1, 2, and 3," May 6, 2014, https://www.fns.usda.gov/school-meals/provisions-1-2-and-3.
USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," p. 34-32, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf.
Section 11(a)(1) of the NSLA (codified at 42 U.S.C. §1759a(a)(1)); 7 C.F.R. §245.9; USDA-FNS, "Provisions 1, 2, and 3," May 6, 2014, https://www.fns.usda.gov/school-meals/provisions-1-2-and-3.
Ibid.
The current nutrition standards for school meals are located at 7 C.F.R. §210.10 (lunches) and 7 C.F.R. §220.8 (breakfasts).
Section 201 of P.L. 111-296. Institute of Medicine, National Academies of Sciences, Engineering, and Medicine, School Meals: Building Blocks for Healthy Children, Washington, DC, 2010.
USDA-FNS, "National School Lunch, Special Milk, and School Breakfast Programs, National Average Payments/Maximum Reimbursement Rates," July 10, 2024, 89 Federal Register 56720.
USDA-FNS, "Nutrition Standards in the National School Lunch and School Breakfast Programs," 77 Federal Register 17, January 26, 2012, https://www.federalregister.gov/documents/2012/01/26/2012-1010/nutrition-standards-in-the-national-school-lunch-and-school-breakfast-programs.
The 1994 child nutrition reauthorization (P.L. 103-448) required schools to serve meals consistent with the Dietary Guidelines for Americans. The Dietary Guidelines for Americans are food-based recommendations developed jointly by USDA and the U.S. Department of Health and Human Services and updated every five years. For more information, see CRS Report R44360, Dietary Guidelines for Americans: Frequently Asked Questions.
USDA-FNS, "Revised Child Nutrition Reauthorization 2010: Water Availability During National School Lunch Program Meal Service," SP-28-2011, July 12, 2011. Also see USDA-FNS, "Clarification on the Milk and Water Requirements in the School Meal Programs," SP 39-2019, September 23, 2019.
See "Implementation Timeline" in USDA-FNS, "Nutrition Standards in the National School Lunch and School Breakfast Programs," 77 Federal Register 17, January 26, 2012, https://www.federalregister.gov/documents/2012/01/26/2012-1010/nutrition-standards-in-the-national-school-lunch-and-school-breakfast-programs.
For further background, see CRS Report R45486, Child Nutrition Programs: Issues in the 115th Congress.
For more information, see CRS Report R47522, USDA's Latest Update to Nutrition Standards for School Meals.
Ibid.
USDA-FNS, "Enhancing Child Nutrition Program Meal Standards," SP 15-2025, June 2, 2025, https://www.fns.usda.gov/schoolmeals/enhancing-meal-standards.
Institute of Medicine, National Academies of Sciences, Engineering, and Medicine, Nutrition Standards for Foods in Schools: Leading the Way toward Healthier Youth, 2007, https://www.nap.edu/catalog/11899/nutrition-standards-for-foods-in-schools-leading-the-way-toward; USDA-FNS, "Interim Rule: NSLP and SBP Nutrition Standards for All Foods Sold in Schools as Required by the Healthy, Hunger-Free Kids Act of 2010," 78 Federal Register 79567, December 31, 2013, https://www.federalregister.gov/documents/2013/12/31/2013-31350/national-school-lunch-program-and-school-breakfast-program-nutrition-standards-for-all-foods-sold-in.
USDA-FNS, "National School Lunch Program and School Breakfast Program: Nutrition Standards for All Foods Sold in School as Required by the Healthy, Hunger-Free Kids Act of 2010; Final Rule," 81 Federal Register 50131, July 29, 2016, https://www.federalregister.gov/documents/2016/07/29/2016-17227/national-school-lunch-program-and-school-breakfast-program-nutrition-standards-for-all-foods-sold-in. Related resources are available at the USDA-FNS website, https://www.fns.usda.gov/school-meals/nutrition-standards/smartsnacks
7 C.F.R. §210.11.
For more information, see CRS Report R47522, USDA's Latest Update to Nutrition Standards for School Meals.
The 2004 child nutrition reauthorization created the requirement that local educational agencies establish school wellness policies, and the HHFKA expanded requirements around local school wellness policies. Section 9A of the Richard B. Russell National School Lunch Act (42 U.S.C. §1758b); 7 C.F.R. §210.31.
7 C.F.R. §210.21.
Section 12(n) of the NSLA (42 U.S.C. §1760(n)). USDA has issued guidance on the implementation of this provision; see USDA-FNS, "Buy American Provisions Related to the Final Rule - CNP Meal Patterns Consistent with the 2020-25 DGAs," SP 23-2024, May 29, 2024, https://www.fns.usda.gov/cn/buy-american-provisions and CRS Report R47522, USDA's Latest Update to Nutrition Standards for School Meals.
For more information, see CRS Report R43950, Local Food Systems: Selected Farm Bill and Other Federal Programs.
A nationally representative study by USDA in school year 2014-2015 found that nearly 80% of public schools participating in NSLP cooked meals onsite, with the remainder receiving partially or fully prepared meals from a central kitchen or other production facility (USDA-FNS, Office of Policy Support, School Nutrition and Meal Cost Study, Final Report Volume 1: School Meal Program Operations and School Nutrition Environments, Prepared by Mathematica Policy Research and Abt Associates, April 2019, p. A.45).
The USDA study in school year 2014-2015 (ibid, p. A.59) found that 19.7% of public school food authorities used a food service management company. They were most commonly tasked with menu planning, preparing and serving meals, and overseeing private employees. A more recent, nationally representative survey conducted by USDA in school year 2016-2017 found that 26.2% of public school food authorities used a food service management company (USDA-FNS, Study of School Food Authority Procurement Practices, prepared by 2M Research, September 22, 2021, p. 44, https://www.fns.usda.gov/cn/study-school-food-authority-procurement-practices).
USDA-FNS, "Contracting with Food Service Management Companies: Guidance for School Food Authorities," SP40, CACFP12, SFSP14-2016, May 2016, https://www.fns.usda.gov/updated-guidance-contracting-food-service-management.
USDA-FNS, "Clarification of the Policy on Food Consumption Outside of Foodservice Area, and the Whole Grain-Rich Requirement," April 2014, https://www.fns.usda.gov/cn/clarification-policy-food-consumption-outside-foodservice-area-and-whole-grain-rich-requirement.
USDA-FNS Office of Policy Support, Special Nutrition Program Operations Study: State and School Food Authority Policies and Practices for School Meals Programs School Year 2011-12, March 2014, https://fns-prod.azureedge.net/sites/default/files/SNOPSYear1.pdf; and School Nutrition Association, School Nutrition Operations Report: The State of School Nutrition 2018, August 2018.
For example, see Food Research and Action Center (FRAC), "School Breakfast Expansion Strategies," http://www.frac.org/programs/school-breakfast-program/school-breakfast-expansion-strategies.
School Nutrition Association, School Nutrition Operations Report: The State of School Nutrition 2018, August 2018.
The American Recovery and Reinvestment Act (P.L. 111-5) provided $100 million for school meals equipment assistance grants, which was spent in FY2009-FY2011. Appropriations acts in FY2010 and from FY2013 to FY2024 have provided subsequent funding for these grants (FY2025 amounts not available as of the cover date of this report).
See, for example, USDA-FNS, "NSLP Equipment Assistance Grant State Allocations by Year,", https://www.fns.usda.gov/nslp/equipment-assistance-grants (accessed June 11, 2025).
FY2024 data from USDA-FNS, "February 2025 Keydata Report," May 9, 2025.
Reimbursements are also available for meals/snacks served to migrant children ages 15 or under and children with disabilities of any age. Elderly is defined as individuals age 60 or older. 7 C.F.R. §226.2.
For more information on CACFP for emergency shelters, see https://www.fns.usda.gov/participation-emergency-shelters-child-and-adult-care-food-program-cacfp—questions-and-answers.
Section 17(f)(2)(B) of the NSLA (42 U.S.C. §1766(f)(2)(B)). Emergency shelters can receive reimbursement for up to three meals per day per child.
In CACFP, states may request any amount of cash-in-lieu of commodities per Section 17(h)(1)(D) of the NSLA (codified at 42 U.S.C. §1766(h)(1)(D)).
Section 17(a)(5) of the NSLA (codified at 42 U.S.C. §1766(a)(5)); 7 C.F.R. §226.6(d). All CACFP-participating child care centers and homes must be licensed child care providers. If federal, state, or local licensing is not available, the institution must comply with federal, state, or local child care standards. Emergency shelters are not subject to this requirement but they must meet state or local health and safety standards.
Per statute, sponsors must make at least one scheduled visit to sponsored day care homes and centers each year and periodic unannounced site visits at not less than three-year intervals (Section 17(d)(2) of the NSLA [codified at 42 U.S.C. §1766(d)(2)]). Per regulations, sponsors must make at least three site visits each year, two of which must be unannounced, with limited exceptions (7 C.F.R. §226.16(d)(4)(iii)). CACFP has a "serious deficiency" process that outlines the procedures involved in terminating an institution or provider from CACFP, which involves corrective action plans and hearings (Section 17(d)(5) of the NSLA [codified at 42 U.S.C. §1766(d)(5)]).
For-profit institutions may be sponsors of for-profit centers if they are part of the same legal entity. Section 17(a)(2)(D) of the NSLA (codified at 42 U.S.C. §1766(a)(2)(D)).
The number of day care homes divided by the number of sponsors of day care homes. USDA-FNS, "February 2025 Keydata Report," May 9, 2025.
See program regulations at 7 C.F.R. §226.13.
Sponsors of centers may retain up to 15% of the per-meal reimbursements for administrative expenses. They may also request a state waiver to exceed this limit. See program regulations at 7 C.F.R. §226.7(g).
For a list of CACFP state administering agencies, see USDA-FNS, "CACFP: Contacts," https://www.fns.usda.gov/contacts.
State agencies must annually review at least one-third of sponsors/independent centers. Further rules are specified at 7 C.F.R. §226.6(m).
Section 17(a)(2) of the NSLA (codified at 42 U.S.C. §1766(a)(2)). Private nonprofit institutions must have tax-exempt status under the Internal Revenue Code of 1986 per program regulations (7 C.F.R. §226.15).
Section 17(a)(2) and Section 17(d)(1)(B) of the NSLA (codified at 42 U.S.C. §1766(a)(2), (d)(1)(B)). Private for-profit institutions qualify if at least 25% of enrolled children meet the income eligibility criteria for free or reduced-price school meals, if the institution receives compensation under the Social Services Block Grant for at least 25% of its enrolled children, or if at least 25% of enrolled adults are Medicaid or Social Services Block Grant beneficiaries.
Section 17(a)(2) and Section 17(t) of the NSLA (codified at 42 U.S.C. §1766(a)(2), (t)). Emergency shelters are facilities that provide temporary housing as defined in the McKinney-Vento Homeless Assistance Act (42 U.S.C. §11351).
7 C.F.R. §226.19; 7 C.F.R. §226.19a.
Section 17(c)(4) of the NSLA (codified at 42 U.S.C. §1766(c)(4)); 7 C.F.R. §226.2.
See definition of "free meal" at 7 C.F.R. §226.2. Statute provides categorical eligibility for adults who are members of a household receiving assistance under the Food and Nutrition Act of 2008 (7 U.S.C. §2011 et seq.) and recipients of SSI or Medicaid. Section 17(o)(5) of the NSLA (codified at 42 U.S.C. §1766(o)(5)). Also see a summary of CACFP eligibility rules at the USDA-FNS website, http://www.fns.usda.gov/cacfp/why-cacfp-important.
Federal Register notices for recent school years are available at USDA-FNS, "CACFP Reimbursement Rates," https://www.fns.usda.gov/cacfp/reimbursement-rates.
Section 17(c) of the NSLA (codified at 42 U.S.C. §1766(c)).
7 C.F.R. §226.9. Also see USDA-FNS, Independent Child Care Centers Handbook: A CACFP Handbook, May 2014, pp. 46-51, https://www.fns.usda.gov/cacfp/cacfp-handbooks.
7 C.F.R. §226.6(f)(1)(i). Also see USDA-FNS, Independent Child Care Centers Handbook: A CACFP Handbook, May 2014, pp. 18-19, https://www.fns.usda.gov/cacfp/cacfp-handbooks.
Section 17(f)(3)(A)(ii)(I) of the NSLA (codified at 42 U.S.C. §1766(f)(3)(A)(ii)(I)). Sponsoring organizations may use school data (provided by the state agency) to demonstrate that at least 50% of children in the day care home's area are eligible for free/reduced-price meals, or use Census data (provided by FNS) to demonstrate that at least 50% of children in the area are members of households that meet the income standards for free or reduced-price meals. See USDA-FNS, "Area Eligibility in Child Nutrition Programs," December 1, 2016, https://www.fns.usda.gov/cn/area-eligibility-memo.
7 C.F.R. §226.18(d).
USDA-FNS, "Child and Adult Care Food Program: Meal Pattern Revisions Related to the Healthy, Hunger-Free Kids Act of 2010: Final Rule," 81 Federal Register 24348 et seq., April 25, 2016, https://www.federalregister.gov/documents/2016/04/25/2016-09412/child-and-adult-care-food-program-meal-pattern-revisions-related-to-the-healthy-hunger-free-kids-act.
The original rule limited milk to unflavored whole milk for one-year-olds, unflavored low-fat (1%) or fat-free (skim) milk for two- to five-year-olds, and flavored or unflavored fat-free milk or unflavored low fat milk for children six years and older. For children ages six and older, flavored 1% milk was later allowed under USDA-FNS, "Child Nutrition Programs: Transitional Standards for Milk, Whole Grains, and Sodium," 87 Federal Register 6984, February 7, 2022. USDA's April 2024 final rule solidified the change to allow flavored 1% milk for children ages 6 and older in CACFP, as discussed in CRS Report R47522, USDA's Latest Update to Nutrition Standards for School Meals.
USDA's April 2024 rule changed the product-specific "total" sugar limits to "added" sugar limits, as discussed in CRS Report R47522, USDA's Latest Update to Nutrition Standards for School Meals.
7 C.F.R. §226.22; USDA-FNS, Independent Child Care Centers Handbook: A CACFP Handbook, May 2014, pp. 38-39, https://www.fns.usda.gov/cacfp/cacfp-handbooks.
Ibid, p. 37.
For an overview of summer meal benefits for children, see CRS In Focus IF11633, Summer Food for Children: An Overview of Federal Aid.
7 C.F.R. §225.6(e)(15). USDA issued waivers of this requirement during the COVID-19 pandemic. USDA has also provided exemptions from the congregate feeding requirement to SFSP and SSO outdoor meal sites experiencing excessive heat.
Pandemic response policies are discussed briefly in the "Background" section of this report and in detail in CRS Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic.
Sponsors may operate SFSP from May through September for children on school vacation. Sponsors may also receive SFSP reimbursements for meals during unanticipated school closures, and sponsors administering SFSP under a continuous school calendar system may operate SFSP at any time (7 C.F.R. §225.6(e)).
USDA-FNS, "February 2025 Keydata Report," May 9, 2025. According to a May 2018 GAO report, estimates of participation in SFSP may be unreliable because they have been calculated inconsistently across states and years. See U.S. Government Accountability Office, Actions Needed to Improve Participation Estimates and Address Program Challenges, GAO-18-369, May 2018, https://www.gao.gov/products/GAO-18-369.
Section 13(a) of the Richard B. Russell National School Lunch Act (42 U.S.C. §1761(a)).
Section 13(a)(7) of the NSLA (codified at 42 U.S.C. §1761(a)(7)). "Nonprofit" means tax exempt under Section 501(a) of the Internal Revenue Code of 1986 (7 C.F.R. §225.2). While SFSP sponsors are limited to nonprofit or public institutions, state agencies may approve open meal sites located at a for-profit institution. Federal funding for the National Youth Sports Program expired in 2006 (U.S. Department of Health and Human Services, Office of the Assistant Secretary for Health, The National Youth Sports Strategy, October 2019, p. 31.
Residential camps are not subject to this requirement. Section 13(a)(3)(D) of the NSLA (codified at 42 U.S.C. §1761(a)(3)(D)).
Section 13(a)(3)(C) of the NSLA (codified at 42 U.S.C. §1761(a)(3)(C)).
Section 13(a)(4) of the NSLA (codified at 42 U.S.C. §1761(a)(4)).
Most sponsors are responsible for overseeing 1-10 sites according to USDA-FNS, USDA Summer Meals Study Volume 2. Sponsor and Site Operational Characteristics, prepared by Westat, October 2021, p. 3-1, https://www.fns.usda.gov/cn/usda-summer-meals-study. Sponsors must conduct at least one site visit during the first week of program operation; review food service operations at least once during the first four weeks of program operation; and then maintain "a reasonable level of site monitoring" (7 C.F.R. §225.15(d)).
State agencies must review sponsors at least once every three years, with more frequent reviews of certain sponsors. Further details are available at 7 C.F.R. §225.7(d)(2)(ii).
SFSP regulations define rural at 7 C.F.R. §225.2. USDA-FNS publishes a map of such rural areas at USDA-FNS, "Rural Designations," https://www.fns.usda.gov/sfsp/rural-designation.
USDA-FNS, "Area Eligibility in Child Nutrition Programs," December 1, 2016, https://www.fns.usda.gov/cn/area-eligibility-memo.
For USDA's guidance on the rural non-congregate feeding policy, see USDA-FNS, "SUN Meals To-Go (Non-Congregate Summer Meal Service)," https://www.fns.usda.gov/summer/sunmeals2go/non-congregate (accessed June 17, 2025).
USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," p. 34-26, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf.
Open sites may become "restricted open sites" if they need to restrict attendance for reasons related to security, safety, or control (7 C.F.R. §225.2). According to USDA guidance, sponsors of restricted open sites must publicly announce the restriction. USDA-FNS, Administration Guide: Summer Food Service Program, September 2016, p. 12.
USDA-FNS, USDA Summer Meals Study Volume 2. Sponsor and Site Operational Characteristics, prepared by Westat, October 2021, p. 3-7, https://www.fns.usda.gov/cn/usda-summer-meals-study.
Section 13(a)(1)(A) of the NSLA (42 U.S.C. §1761(a)(1)(A)). For more information on area eligibility, see USDA-FNS, "Area Eligibility in Child Nutrition Programs," December 1, 2016, https://www.fns.usda.gov/cn/area-eligibility-memo.
7 C.F.R. §225.2, as amended by USDA-FNS, "Streamlining Program Requirements and Improving Integrity in the Summer Food Service Program (SFSP)," 87 Federal Register 57304, September 19, 2022.
The authority for operating cost reimbursements is provided in Section 13(b)(1) of the NSLA (42 U.S.C. §1761(b)(1)), and the authority for the administrative cost reimbursement is provided in Section 13(b)(3) of the NSLA (42 U.S.C. §1761(b)(3)).
Section 13(f) of the NSLA (codified at 42 U.S.C. §1761(f)).
7 C.F.R. §225.16(d).
7 C.F.R. §225.16(f).
7 C.F.R. §225.16(c).
Section 13(a)(8) of the NSLA (codified at 42 U.S.C. §1761(a)(8)).
For a comparison of SFSP and SSO, see USDA-FNS, "Comparison of Programs: SFSP/NSLP/Seamless Option," January 22, 2015, https://fns-prod.azureedge.us/sites/default/files/SFSP_SeamlessComparisonChart.pdf.
For USDA's guidance on the rural non-congregate feeding policy, see USDA-FNS, "SUN Meals To-Go (Non-Congregate Summer Meal Service)," https://www.fns.usda.gov/summer/sunmeals2go/non-congregate (accessed June 17, 2025).
USDA-FNS, USDA Summer Meals Study Volume 2. Sponsor and Site Operational Characteristics, prepared by Westat, October 2021, pp. 3-4 to 3-7, https://www.fns.usda.gov/cn/usda-summer-meals-study.
USDA-FNS, "2024 SUN Bucks Implementing States, Territories, and Tribes," June 4, 2025, https://www.fns.usda.gov/sebt/implementation.
FY2024 data from USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," p. 34-14, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf.
USDA-FNS, "Summer EBT Technology Grants," August 7, 2024, https://www.fns.usda.gov/grant/summer-ebt-technology-grants and USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," pp. 34-35, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf.
Section 749(g) of P.L. 111-80. The FY2010 appropriation was $85 million, which funded demonstration activities in summers 2011 to 2014. For more information, see CRS Report R45486, Child Nutrition Programs: Issues in the 115th Congress.
For further discussion, see CRS In Focus IF11633, Summer Food for Children: An Overview of Federal Aid; USDA-FNS, "Enhanced Summer Food Service Program (eSFSP)," https://www.fns.usda.gov/ops/enhanced-summer-food-service-program-esfsp; and USDA-FNS, "USDA Highlights Success of Rural Summer Meals Delivery Project in Texas," August 13, 2019.
Collins et al., Summer Electronic Benefits Transfer for Children (SEBTC) Demonstration: Evaluation Findings for the Full Implementation Year, prepared by Abt Associates, Mathematica Policy Research, and Maximus (Alexandria, VA: USDA-FNS, 2013), p. 105. Improvements in food insecurity varied significantly between Summer EBT sites. For evaluations of other approaches tested through the Enhanced Summer Food Service Program (eSFSP), see USDA-FNS, "Enhanced Summer Food Service Program," November 8, 2013, https://www.fns.usda.gov/research/sfsp/enhanced.
Additional appropriations for the Summer EBT demonstration were provided in each of FY2015 through FY2023.
For more information on the Summer EBT demonstration, see USDA-FNS, "2024 USDA Explanatory Notes – Food and Nutrition Service," p. 35-49; and USDA-FNS, Summer Electronic Benefit Transfer for Children (SEBTC) Demonstration: Summary Report, prepared by Abt Associates Inc., May 2016, https://www.fns.usda.gov/sfsp/summer-electronic-benefit-transfer-children-sebtc-demonstration-summary-report.
USDA-FNS, "National Level Annual Summary Tables FY1969-2024: Special Milk–Outlets and Milk Served," May 9, 2025, https://www.fns.usda.gov/pd/child-nutrition-tables.
Section 3 of the Child Nutrition Act of 1966 (42 U.S.C. §1772).
Institutions can set eligibility at or below the income threshold for free school meals (130% of the poverty line) (7 C.F.R. §215.13a).
USDA-FNS, Child and Adult Care Food Program: Meal Pattern Revisions Related to the Healthy, Hunger-Free Kids Act of 2010, final rule, 81 Federal Register 24347, April 25, 2016, https://www.federalregister.gov/documents/2016/04/25/2016-09412/child-and-adult-care-food-program-meal-pattern-revisions-related-to-the-healthy-hunger-free-kids-act.
Ibid. For a summary of recent changes to the flavored 1% milk requirement, see CRS Report R47522, USDA's Latest Update to Nutrition Standards for School Meals.
The CACFP At-Risk Afterschool snack/meal program is authorized in Section 17(r) of the NSLA (42 U.S.C. §1766(r)); the NSLP snack program is authorized in Section 17A of the NSLA (42 U.S.C. §1766a).
Prior to HHFKA, 13 states were permitted to offer CACFP At-Risk After-School meals (instead of just a snack); the law allowed all CACFP state agencies to offer such meals. S.Rept. 111-178, p. 7.
Emergency shelters do not need to meet this requirement.
Section 17(r) of the NSLA (42 U.S.C. §1766(r)).
7 C.F.R. §226.20.
USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," pp. 34-25, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf.
Schools may also operate the NSLP Afterschool Snack component in the hours after summer school sessions.
USDA-FNS, "NSLP Afterschool Snack Service—FAQs," November 2013, https://www.fns.usda.gov/school-meals/afterschool-snacks-faqs.
J. Guthrie, Feeding Children After School: The Expanding Role of USDA Child Nutrition Programs, USDA Economic Research Service, Amber Waves, March 1, 2012, https://www.ers.usda.gov/amber-waves/2012/march/feeding-children-after-school.
7 C.F.R. §210.10(o). An April 2024 final rule aligned required nutrition standards in the NSLP Afterschool Snack program with those used in the CACFP At-Risk Afterschool meal and snack program starting in school year 2025-2026, as discussed in CRS Report R47522, USDA's Latest Update to Nutrition Standards for School Meals.
USDA does not report the number of participants. USDA-FNS, "February 2025 Keydata Report," May 9, 2025.
Section 19 of the NSLA (42 U.S.C. §1769a). FFVP currently operates according to statute and USDA guidance. USDA-FNS issued a proposed rule in 2012 to codify statutory requirements in regulations, but a final rule has not been published.
USDA-FNS, Fresh Fruit and Vegetable Program: A Handbook for Schools, December 2010, https://www.fns.usda.gov/ffvp/handbook-schools.
Section 19(i) of the NSLA (42 U.S.C. §1769a(i)).
USDA-FNS, "Fresh Fruit and Vegetable Program: Allocation of Funds for Fiscal Year 2025," SP 21-2024, May 20, 2024.
Briefel et al., Evaluation of the Pilot Project for Canned, Frozen, or Dried Fruits and Vegetables in the Fresh Fruit and Vegetable Program (FFVP-CFD), prepared by Mathematica Policy Research (Alexandria, VA: USDA-FNS, January 2017), https://www.fns.usda.gov/research/evaluation-elementary-schools-pilot-project-canned-frozen-or-dried-fruits-and-vegetables-fresh. For more information on proposals to include frozen, canned, and dried fruits and vegetables in FFVP, see, Child Nutrition Programs: Issues in the 115th Congress.
This section does not list all related child nutrition activities. For further details on these and other functions funded by the child nutrition programs account, see USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," pp. 34-25, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf.
Section 243 of P.L. 111-296, adding Section 18(g) of the NSLA (42 U.S.C. §1769(g)).
USDA-FNS, The Farm to School Program—2012-2015: Four Years in Review, p. 3.
Mandatory funding for the farm to school program is provided under Section 18(g)(8)(A) of the NSLA (42 U.S.C. §1769(g)(8)(A)). The program also received $5 million in annual appropriations in FY2024, a decrease from $14 million in FY2023.
For more information, see USDA-FNS's Office of Community Food Systems website: http://www.fns.usda.gov/farmtoschool/farm-school; and CRS Report R46538, Local and Urban Food Systems: Selected Farm Bill and Other Federal Programs.
USDA-FNS, "Biden-Harris Administration Announces Investments in Urban Agriculture, Food and Market Access through President Biden's Investing in America Agenda," July 21, 2023, https://www.usda.gov/about-usda/news/press-releases/2023/07/21/biden-harris-administration-announces-investments-urban-agriculture-food-and-market-access-through.
USDA-FNS, "2024 USDA Explanatory Notes – Food and Nutrition Service," p. 35-40.
Section 21(e)(1)(A) of the NSLA (42 U.S.C. §1769b-1(e)(1)(A)).
For example, the FY2024 appropriations act (P.L. 118-42) provided $1 million for the ICN, the FY2023 act (P.L. 117-328) provided $2 million, and the FY2022 act (P.L. 117-103) provided $2 million.
White House Archives, "The HealthierUS School Challenge," https://letsmove.obamawhitehouse.archives.gov/healthierus-school-challenge.
USDA-FNS, "Healthy Meals Incentives for Schools," https://www.fns.usda.gov/cn/healthy-meals-incentives. Broadly, Division N, Title VII, Section 751 of P.L. 116-260 provided funding for the Secretary of Agriculture "to prevent, prepare for, and respond to coronavirus by providing support for agricultural producers, growers, and processors impacted by coronavirus, including producers and growers of specialty crops, non-specialty crops, dairy, livestock, and poultry, producers that supply local food systems, including farmers markets, restaurants, and schools." According to USDA's Request for Applications (RFA) for the subgrants, "the activities under this RFA are expected to result in increased demand for nutritious agricultural products and therefore benefit the producers that supply SFAs with these products."
Action for Healthy Kids, "Healthy Meals Incentives Grants for Small and/or Rural School Food Authorities: Request for Applications," April 6, 2023, https://healthymealsincentives.org/wp-content/uploads/2023/04/HMI_SubGrantRFA_4623_FINAL.pdf.
USDA-FNS, "USDA Makes Available More Than $60 Million in School Meals, Launches New Partnership," October 11, 2023, https://www.usda.gov/about-usda/news/press-releases/2023/10/11/usda-makes-available-more-60-million-school-meals-launches-new-partnership; and USDA-FNS, "Development and Implementation of Healthy Meals Incentives School Food System Transformation Challenge Sub-Grants – Cooperative Agreement: Fiscal Year 2023 Request for Applications (RFA)," CFDA 10.579, November 10, 2022.
Ibid. This initiative is based in part on the previous USDA HealthierUS School Challenge (carried out under the Obama Administration), according to USDA-FNS, "2024 USDA Explanatory Notes–Food and Nutrition Service," https://www.usda.gov/sites/default/files/documents/35-2024-FNS.pdf.
USDA-FNS, "Healthy Meals Incentives for Schools," https://www.fns.usda.gov/cn/healthy-meals-incentives.
Section 9(h) of the NSLA (42 U.S.C. §1758(h)).
Section 29 of the NSLA (42 U.S.C. §1769j).
USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," pp. 34-14, https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf.
Ibid.
For more information on these and other USDA-FNS activities, see USDA-FNS, "2026 USDA Explanatory Notes–Food and Nutrition Service," https://www.usda.gov/sites/default/files/documents/34-2026-CJ-FNS.pdf.
The Healthy, Hunger-Free Kids Act of 2010 (P.L. 111-296). Child nutrition policies have been included in certain laws since then, including Consolidated Appropriations Act, 2023 (P.L. 117-328), which amended summer meal programs and permanently authorized the Summer EBT program.
The first cities to institute school lunch programs included Boston, Chicago, Cleveland, Cincinnati, Los Angeles, Milwaukee, New York, Philadelphia, and St. Louis. G.W. Gunderson, The National School Lunch Program: Background and Development, USDA-FNS, 1971, https://www.fns.usda.gov/nslp/history (hereinafter, Gunderson 1971); A.R. Ruis, Eating to Learn, Learning to Eat: The Origins of School Lunch in the United States (New Brunswick: Rutgers University Press, 2017), pp. 22-27; Susan Levine, School Lunch Politics: The Surprising History of America's Favorite Welfare Program (Princeton, NJ: Princeton University Press, 2008), p. 22 (hereinafter, Levine 2008).
Ibid.
Levine 2008, p. 44.
Gunderson 1971; The Bureau of Agricultural Economics, USDA, "The School Lunch Program and Agricultural Surplus Disposal," Miscellaneous Publications No. 467, October 1941.
Gunderson 1971.
However, commodity assistance continued to make up a large share of federal support for school lunches, and exceeded cash assistance until 1970. J.Y. Jones, "Appendix A: Child Nutrition Programs: A Narrative Legislative History and Program Analysis" in U.S. Congress, House Committee on Education and Labor, Child Nutrition Programs: Issues for the 103d Congress, 103rd Cong., 2nd sess., Serial No. 103-H (Washington, DC: GPO, 1994) (hereinafter, Jones 1994).
J.T. Gay, "Richard B. Russell and the National School Lunch Program," The Georgia Historical Quarterly, 80(4), 1996, pp. 860-863.
Jones 1994, p. 41. USDA provided the highest reimbursement (up to 9 cents) for a "complete" Type A meal that was designed to provide one-third to one-half of a child's daily nutritional intake; up to 6 cents was provided for an "incomplete" Type B meal; and up to 2 cents for a Type C meal, which was simply a half-pint of milk. To see the original nutritional requirements for each type of meal, see Gunderson 1971.
Jones 1994, pp. 59-61.
Jones 1994, pp. 41, 63-64; Levine 2008, p. 128.
CRS DL741517, "Brief History of Child Nutrition Legislation," by Kathryn Michelman and Joe Richardson, 1974. According to Gunderson 1971, "The selection of the schools for receiving the special reimbursement from Section 11 funds was to be based upon five factors: The economic condition of the area from which the schools draw attendance; The need for free or reduced-price lunches; The percent of free or reduced-price lunches being served in such schools; The price of the lunch in such schools as compared with the average price of lunches served in the State; [and] The need for additional assistance as evidenced by the financial position of the lunch program in such schools."
CRS Memorandum 831481, Chronology of Major Federal Food Assistance Legislation (Food Stamps, Child Nutrition Programs and Elderly Nutrition) 1932-1983, by Jean Yavis Jones, November 1983 (hereinafter, CRS Memorandum 831481 (1983)).
CRS Memorandum 831481 (1983); Jones 1994, p. 43.
Levine 2008, p. 127; Jones 1994, p. 64.
Section 2 provided the purpose of the act: "In recognition of the demonstrated relationship between food and good nutrition and the capacity of children to develop and learn, based on the years of cumulative successful experience under the National School Lunch Program with its significant contributions in the field of applied nutrition research, it is hereby declared to be the policy of Congress that these efforts shall be extended, expanded, and strengthened under the authority of the Secretary of Agriculture as a measure to safeguard the health and well-being of the Nation's children, and to encourage the domestic consumption of agricultural and other foods, by assisting States, through grants-in-aid and other means, to meet more effectively the nutritional needs of our children."
Gunderson 1971.
U.S. Congress, House Committee on Agriculture, Hearing on H.R. 13361 and Bills to Amend and Make Permanent the Special Milk Program for Children, committee print, 89th Cong., 2nd Sess., June 23 and June 24, 1966, H. Prt. 66-126 (Washington, DC: GPO, 1966), p. 16.
Ibid, p. 12.
USDA-FNS, "School Breakfast Program: Program History," July 2013, https://www.fns.usda.gov/sbp/program-history (accessed December 2023).
Early appropriations for school lunches in 1944 and 1945 had allowed states to spend a small percentage of funds on food served in child care centers. The National School Lunch Act of 1946 made permanent support for meals served in residential child care institutions only.
Low-income areas were defined as areas in which at least one-third of children qualified for free or reduced-price meals.
Jones 1994, p. 44.
CRS Memorandum 831481 (1983); Jones 1994, p. 44.
CRS Memorandum 831481 (1983); Jones 1994, p. 86.
Jones 1994, p. 44.
CRS Memorandum 831481 (1983).
Jones 1994, pp. 44-45.
Jones 1994, p. 45.
Jones 1994, pp. 46-47.
USDA-FNS, Direct Certification in the National School Lunch Program: State Implementation Progress Report to Congress, Office of Research and Analysis, December 2008, p. 3, https://www.fns.usda.gov/direct-certification-national-school-lunch-program-state-implementation-progress.
Jones 1994, p. 68.
See, for example, USDA Office of Inspector General, Food and Nutrition Service: Child and Adult Care Food Program: National Report on Program Abuses, Audit Report No. 27601-7-SF, August 1999, https://usdaoig.oversight.gov/sites/default/files/reports/2023-07/27601-7-SF.pdf.
USDA-FNS, "Verification of Eligibility for Free and Reduced Price Meals in the National School Lunch and School Breakfast Programs," 73 Federal Register 76847, December 18, 2008.
For more information, see CRS Report RL33299, Child Nutrition and WIC Legislation in the 108th and 109th Congresses.
The 1994 child nutrition reauthorization (P.L. 103-448) required schools to serve breakfasts and lunches that were consistent with the Dietary Guidelines for Americans.
For more information, see CRS Report R45486, Child Nutrition Programs: Issues in the 115th Congress. Also see Janet Poppendieck, Free for All: Fixing School Food in America (Berkeley, CA: University of California Press, 2010).