1). Number of SFSP Meals Served Has Generally Increased since 2007, but Estimates of Children Participating in the SFSP Are Unreliable

		Number of SFSP Meals Served Has Increased by 32 Percent since Fiscal Year 2007

The total number of SFSP meals served nationwide during the summer— one indicator of program participation—increased from 113 million meals  in fiscal year 2007 to 149 million meals in fiscal year 2016, or by 32  percent, according to our analysis of FNS data. 2). However,  states’ methods for calculating ADA have differed from state to state and  from year to year, according to our review of states’ survey responses  and FNS documents. Other Federal and Nonfederal Programs Help Feed Low- Income Children over the Summer to Some Extent

		Other Federal Programs Provide Meals and Nutrition Assistance Benefits over the Summer

Other federal programs that operate solely in the summer, as well as  those operating year-round, help feed low-income children in the summer  months. In July 2016, in addition to the 70 million meals provided through the  SFSP, 26 million meals were provided to low-income children through  school food authorities participating in the NSLP’s Seamless Summer  Option, according to FNS data. 3). Similarly, officials from FNS and two  regional organizations we interviewed said they were aware of children  receiving summer meals through nonfederal programs operated by faith- based and other community organizations. Although FNS and the majority of states do not collect data on nonfederal  programs, results from our state survey and interviews with SFSP  providers and organizations involved in summer meals indicate the reach  of nonfederal programs is limited. States and SFSP Providers Face Challenges with Meal Sites, Participation, and Program Administration, and FNS Actions Have Addressed Some, but Not All Areas

States and SFSP providers reported challenges with meal sites,  participation, and administration, though federal, state, and local entities  have taken steps to improve these areas. States and SFSP Providers Also Reported Challenges with Meal Site Safety and Duplicative Paperwork, and FNS’s Efforts to Address These Areas Are Limited

Seventeen states reported in our survey that ensuring summer meal sites  are in safe locations was moderately to very challenging, a challenge that  some states and SFSP providers have taken steps to help address. FNS has used its available authorities to grant some states and sponsors  flexibility with respect to the requirement that children consume summer  meals on site, such as when safety at the site is a concern; however, FNS  has not clearly communicated to all states and sponsors the  circumstances it considers when deciding whether to grant this  flexibility. Without additional understanding of children’s participation  in the SFSP, FNS lacks information critical for informing program  implementation, strategic planning, and outreach. and (3) What challenges exist, if any, in providing summer  meals to children, and to what extent does the U.S. Department of  Agriculture’s (USDA) Food and Nutrition Service (FNS) provide  assistance to states and sponsors to address these challenges? Summer and School Meals Data

To address our first objective about participation in the SFSP, we  analyzed FNS data on meals served for fiscal years 2007 through 2016. To further examine what is known about participation in the SFSP, we  also reviewed FNS’s data on estimates of children’s participation in the  program and determined that these estimates have been calculated  inconsistently and are unreliable. Using semi-structured questions, we also interviewed the state agencies  responsible for administering the SFSP in the site visit states to gather  further information on how the SFSP is administered in each state,  statewide participation in the program, related data collection activities,  any challenges to administering the program and any efforts to address  such challenges, related outreach efforts, alternative meal delivery  models being employed by SFSP sponsors, FNS guidance or technical  assistance, and the availability of nonfederally funded programs that  provide meals to low-income children over the summer.
Why GAO Did This Study

The SFSP, a federal nutrition assistance program, is intended to provide food to children in low-income areas during periods when area schools are closed for vacation. In the last decade, federal expenditures for SFSP have increased as the program has expanded, according to USDA data. GAO was asked to review the SFSP.
This report examines (1) what is known about SFSP participation, (2) other programs that help feed low-income children over the summer, and (3) challenges, if any, in providing summer meals to children and the extent to which USDA provides assistance to address these challenges. GAO reviewed relevant federal laws, regulations, and guidance; analyzed USDA's SFSP data for fiscal years 2007 through 2016; surveyed state agencies responsible for administering the SFSP in 50 states and the District of Columbia; visited a nongeneralizable group of 3 states and 30 meal sites, selected based on Census data on child poverty rates and urban and rural locations; analyzed meal site data from the 3 states; and interviewed USDA, state and national organization officials, and SFSP providers, including sponsors and site operators.

What GAO Found

Nationwide, the total number of meals served to children in low-income areas through the Summer Food Service Program (SFSP) increased from 113 to 149 million (about 32 percent) from fiscal year 2007 through 2016. The U.S. Department of Agriculture (USDA) directs states to use the number of meals served, along with other data, to estimate the number of children participating in the SFSP. However, participation estimates have been calculated inconsistently from state to state and year to year. In 2017, USDA took steps to improve the consistency of participation estimates, noting they are critical for informing program implementation and strategic planning. However, GAO determined that the method USDA directs states to use will continue to provide unreliable estimates of participation, hindering USDA's ability to use them for these purposes.
Other federal and nonfederal programs help feed low-income children over the summer to some extent, according to states GAO surveyed and SFSP providers and others GAO interviewed. For example, in July 2016, USDA data indicate about 26 million meals were served through a separate federal program that allows school meal providers to serve summer meals. Some children also received summer meals through nonfederal programs operated by faith-based organizations and foodbanks, though GAO's state survey and interviews with providers and national organizations indicate the reach of such efforts is limited.
States and SFSP providers reported challenges with meal sites, participation, and program administration; USDA has taken steps to address these areas. Specifically, in GAO's survey, a majority of states reported challenges with availability and awareness of meal sites, as well as limited program participation and administrative capacity. National, state, and local officials have taken steps to address these issues, such as increasing outreach and offering activities to attract participation. In addition, 17 states in GAO's survey and providers in the states GAO visited reported a challenge with ensuring meal sites are in safe locations. To address this safety issue, USDA has granted some states and sponsors flexibility from the requirement that children consume meals on-site. However, USDA has not broadly communicated the circumstances it considers when granting this flexibility. Further, some states and sponsors that have requested this flexibility reported difficulty obtaining data to show these circumstances exist, hampering their ability to ensure safe meal delivery.

What GAO Recommends

GAO is making four recommendations, including that USDA improve estimates of children's participation in SFSP and communicate the circumstances it considers when granting flexibilities to ensure safe meal delivery. USDA generally agreed with GAO's recommendations.