Free school meals - test of change phase: child rights and wellbeing impact assessment

Child Rights and Wellbeing Impact Assessment Template

1. Brief Summary

Type of proposal:

• Decision of a strategic nature relating to the rights and wellbeing of children

Name the proposal, and describe its overall aims and intended purpose.

Currently, universal free school meals (FSMs) are available during school term-time for over 265,000 children in primaries 1 to 5 and special schools, as well as eligible pupils in primary 6 to secondary 6. The next phase of the expansion delivery programme is for FSMs to be available to pupils in primary 6 and 7 whose parents or carers are in receipt of the Scottish Child Payment (SCP), from February 2025. It is expected that approximately 25,000 children across Scotland will benefit from this support in primaries 6 and 7.

The proposal to carry out a Test of Change in the academic year 2024/25 in 8 local authority areas, making FSMs available to pupils whose parents or carers are in receipt of SCP in S1 to S3, builds upon this work. It is not yet known how many pupils will be eligible to benefit from this Test of Change in S1 to S3. This will be established as part of work to establish pilots with local authority areas.

FSMs provide a benefit in kind which is estimated to be valued at approximately £450 per pupil per year and is recognised as a contribution that helps families on low incomes to manage their finances and reduce costs. As a result, when targeted, this policy is considered to contribute to actions which mitigate the effects of child and family poverty where families are experiencing hardship.

Uptake of FSM for those eligible in secondary is around 46%, compared to uptake in some areas in primary of 76%. It will therefore be important that the opportunity to take FSMs is promoted appropriately in the 8 local authority areas that take part in the Test of Change phase.

Start date of proposal’s development: 7 February 2025

Start date of CRWIA process: 7 February 2025

2. With reference given to the requirements of the UNCRC (Incorporation) (Scotland) Act 2024, which aspects of the proposal are relevant to/impact upon children’s rights?

Expanding the provision of FSMs is considered to have a direct positive impact with regards to the following articles of the UNCRC.

Article 3 (best interests of the child)

Though limited in the case of Test of Change Phase, expanding the provision of FSMs will provide more children and young people with access to a nutritionally balanced meal as part of the school day. This supports children and young people through the provision of healthy, nutritious food and establishment of healthy habits, particularly in the primary sector. Anecdotal evidence from families and schools consistently suggests that, over time, children and young people who eat in school become more willing to eat foods they would previously have refused. Additionally, FSMs are required to align with the standards for food and drink served in schools as set out in the Nutritional Requirements for Food and Drink in Schools (Scotland) Regulations 2020.

Article 6 (life, survival and development)

As indicated above, the Test of Change Phase will provide more children and young people with access to nutritionally balanced meals as part of the school day, thereby supporting children’s growth and development. Standards for food and drink served in schools in Scotland are covered by the Nutritional Requirements for Food and Drink in Schools (Scotland) Regulations 2020. These Regulations are based on scientific evidence and dietary advice which are designed to ensure children and young people are provided with an appropriate amount of energy and key nutrients to support their healthy growth and development.

Article 24 (health and health services)

This article makes specific reference to combatting malnutrition through the provision of adequate nutritious foods and clean drinking-water. The provision of FSMs furthers this requirement, ensuring that the food provided in schools is nutritious and healthy, aligned to the nutritional standards in schools.

Article 27 (adequate standard of living)

Under this article, State Parties are required to take appropriate measures to assist parents and others responsible for the child to implement the right to adequate standard of living and shall in case of need provide material assistance and support programmes, particularly with regards to nutrition etc. The provision of FSMs further the realisation of this article, FSMs being worth approximately £450 in kind per child per year.

Article 29 (goals of education)

School meals can positively impact children’s learning experiences. An evaluation of a universal FSMs pilot for primary school children showed increases in attainment (around two months’ more progress), and this increase was found to be greater among less affluent pupils. We will consider how any evaluation of the Test of Change phase can assist in our understanding of the benefits of providing FSM in secondary schools.

It should be noted additionally that the approach also aligns with The UN right to food. That is the human right to have regular access to adequate and safe food, allowing individuals to live a healthy life^[1]

3. Please provide a summary of the evidence gathered which will be used to inform your decision-making and the content of the proposal

Evidence from:

The Scottish Government’s latest School Healthy living survey (Supporting documents - School healthy living survey: school meal uptake statistics 2024 - gov.scot) indicated that uptake of FSM was 71 per cent in the survey day in 2024 up from 70.4 per cent in 2023. Uptake of school meals (free or paid for) was 55 per cent on survey day in 2024 (53.4 per cent in 2023).

It also indicated that uptake of FSMs increased more strongly in the primary stages receiving means-tested FSMs than those receiving universal provision between 2023 and 2024 and that uptake is highest among pupils with universal entitlement to free meals (P1-P5 and special schools) compared to where free meal provision is means-tested (P6-P7 and secondary schools)

While secondary uptake is lower with at around approximately 46%, it is hoped with this targeted approach for this Test of Change to those in receipt of SCP will raise the uptake in this group of young people.

Children and young people’s views are recognised in these considerations. The research findings set out below incorporate pupils views:

• DfE evaluation of the pilot of FSM: (Report Title (publishing.service.gov.uk))
• Education Policy Institute Evaluation of Universal Infant FSM in England: Evaluation of Universal Infant Free School Meals - The Education Policy Institute (epi.org.uk)

In general, pupils have expressed their support for the provision of FSMs on a universal basis.

In 2023, the Scottish Youth Parliament published their report ‘Young People’s Right to Food’. The research in support of the recommendations of the report, included that around three quarters (75.8%) of young people who responded said FSMs would make them more likely to eat lunch at school. The report recommended that all pupils, including secondary aged pupils should be entitled to FSMs.

In addition, the Scottish Young Parliament’s Manifesto also included that the cost of the school day should be reduced or eliminated, including in relation to school meals. The manifesto set out that overall, young people supported this. Their response was: school meals (agree: 85.4% disagree: 7.9% don’t know: 6.7%)

The Food Foundation Report included the views of children on a range of issues related to FSM provision. In summary, they expressed that

• FSM allocation is not enough
• FSM carry a stigma
• Meal times are not a valued part of the school day
• Young people want to have a say on the food they are offered

4. Further to the evidence described at ‘3’ have you identified any 'gaps' in evidence which may prevent determination of impact? If yes, please provide an explanation of how they will be addressed

As part of the Test of Change we will be appointing researchers to carry out an independent evaluation with the aim of capturing the views of those involved in delivery and of those children and young people who are in receiving these meals. This will help inform any future phases of the FSMs programme.

5. Analysis of Evidence

The evidence from the Scottish Government’s latest School Healthy living survey (Supporting documents - School healthy living survey: school meal uptake statistics 2024 - gov.scot) shows that there is considerable opportunities available to increase the uptake of FSM across S1 to S3. A more targeted approach through the data share agreement between local authorities and Social Security Scotland could help increase the uptake.

The information within the DfE evaluation of the pilot of FSM: (Report Title (publishing.service.gov.uk)) and the Education Policy Institute Evaluation of Universal Infant FSM in England: Evaluation of Universal Infant Free School Meals - The Education Policy Institute (epi.org.uk) shows support for universal FSM.

This is a view that is consistent with that of the Scottish Young Parliament’s Manifesto which also included that the cost of the school day should be reduced or eliminated, including in relation to school meals.

While there is limited evidence available in respect of S1 to S3 age children and young people, the evidence that is available suggests that expanding the provision of FSMs will have a positive impact on the rights and wellbeing of children through supporting healthy eating habits and potentially improving educational attainment.

It is considered that expanding FSMs to S1 to S3 pupils in receipt of SCP will have a positive impact on families that are experiencing challenging financial situations while allowing a continuation of service from primary.

6. What changes (if any) have been made to the proposal as a result of this assessment?

Applications have been received from 17 local authorities with a varied geographical spread. While considering the evidence provided and the budget allocation we will seek to maximise the number of eligible S1 to S3 pupils in receipt of SCP who will benefit from this Test of Change phase.