Minimal Federal Restriction of Competitive Foods

Competitive foods are those foods sold in schools, during the school day,  that are not part of the federal school meal programs—that is, they  compete with the nutritionally regulated school meal programs. Almost All Schools Sold Competitive Foods in 2003-2004, and Middle School Availability Has Increased over the Last 5 Years

Nearly 9 out of 10 schools sold competitive foods to students in 2003-2004,  and over the last 5 years, the availability of competitive foods has  increased both in middle schools and in a la carte lines in many schools. High schools and middle schools were more likely to sell competitive  foods than elementary schools. Types of Competitive Foods Ranged from Nutritious to Less Nutritious, with High and Middle Schools Selling a Wider Variety of Items

Competitive foods available through a la carte lines, vending machines,  and school stores ranged from nutritious items, such as vegetables and  salad, to less nutritious items, such as soda and candy. Many People Made Decisions about Competitive Food Sales, but No One Person Commonly Had Responsibility over All Sales in a School

Many people, including district and school officials as well as members of  groups selling foods in schools, made decisions about competitive food  sales, but no one person consistently had responsibility for all competitive  food sales at the school level. Moreover, principals also made decisions about competitive food policies  in their schools. Many Different Groups Were Directly Involved in Deciding What to Sell and Selling Competitive Foods

In addition to the district and school officials involved in decisions related  to competitive food policy, myriad individuals and groups were directly  involved in the sale of competitive foods. Many Schools Raised a Substantial Amount of Revenue through Competitive Food Sales and Used It to Support Food Service Operations and Student Activities

Many schools generated substantial revenue through competitive food  sales in 2003-2004, often using this revenue to support food service  operations and student activities. In particular, we estimate that  about 30 percent of all high schools generated more than $125,000 per  school through competitive food sales in 2003-2004, while about 30  percent of all elementary schools generated more than $5,000 per school  through these sales (see fig. School Districts We Visited Substituted Healthy Competitive Foods for Less Nutritious Items while Overcoming Obstacles to Change, and the Effects on Revenue Were Unclear

The six school districts we visited all recently took steps to substitute  healthy competitive foods for less nutritious items while overcoming  several obstacles to change, and in the end, the effects of these changes on  revenue were unclear. Although the districts we visited increased the  availability of healthy competitive foods and decreased less nutritious  items through differing approaches, perseverant and committed  individuals took actions in each district to initiate and lead the process of  change while also taking steps to involve and obtain support from those  affected. In particular,  officials in almost all of the districts visited cited opposition because of  concerns about future revenue losses as a barrier to changing the  availability of competitive foods. However, these  data did not account for other factors that may also have affected  revenues. In addition, several of the schools reported  increases in school meal participation. GAO-04-673.
Why GAO Did This Study

Recent increases in child obesity have sparked concerns about competitive foods--foods sold to students at school that are not part of federally reimbursable school meals. The nutritional value of these foods is largely unregulated, and students can often purchase these foods in addition to or instead of school meals. In our April 2004 report on competitive foods (GAO-04-673), we reported that several states had enacted competitive food policies that were more restrictive than federal regulations. However, these policies differed widely in the type and extent of restrictions. In addition, it was unclear how and to what extent states were monitoring compliance with these policies. GAO was also asked to provide a national picture of competitive foods in schools, as well as strategies that districts and schools themselves are taking to limit the availability of less nutritious competitive foods. This report provides information from two nationally representative surveys about the prevalence of competitive foods in schools, competitive foods restrictions and groups involved in their sale, and the amounts and uses of revenue generated from the sale of competitive foods. It also provides information about strategies schools have used to limit the availability of less nutritious competitive foods, based on visits to a total of six school districts in California, Connecticut, Mississippi, Missouri, and South Carolina.

What GAO Found

Nearly 9 out of 10 schools sold competitive foods to students in school year 2003-2004, and the availability of competitive foods sold in middle schools and through a la carte lines has increased over the last 5 years. Schools often sold these foods in or near the cafeteria and during lunch, and the competitive foods available ranged from nutritious items such as fruit and milk to less nutritious items such as soda and candy. High and middle schools were more likely to sell competitive foods than elementary schools. Many different people made decisions about competitive food sales, but no one person commonly had responsibility for all sales in a school. In a majority of schools, district officials made competitive food policies, while school food authority directors and principals made decisions about specific sales. Other groups, such as student clubs and booster groups, also made competitive food decisions through their direct involvement in sales. Many schools, particularly high schools and middle schools, generated substantial revenues through competitive food sales in 2003-2004. Specifically, the nearly 30 percent of high schools generating the most revenue from these sales raised more than $125,000 per school. Food services, responsible for providing federal school meals, generally spent the revenue they generated through a la carte sales on food service operations. Other school groups often used revenues for student activities. The six school districts visited all recently took steps to substitute healthy items for less nutritious competitive foods. In each district, committed individuals took actions to initiate and lead change while also involving those affected. However, districts faced several barriers to change, including opposition due to concerns about revenue losses. In the districts visited, the effects of changes on revenues were often unclear because of limited data.