Memorandum submitted by Local Authority
Caterers Association
INTRODUCTION
The Local Authority Caterers Association (LACA)
was formed in 1990. It is the professional body representing 800
catering managers who provide services to all sectors of Local
Authorities. Without doubt the largest provision of meals and
services by the members is school lunches. In the region of three
million meals are served on a daily basis, with a turnover in
excess of £3.75 million. 87,000 staff are employed in the
industry.
More than 100 Local Education Authorities are
represented in the membership of LACA including DSO Managers,
Private Sector Providers, Client Officers and Dieticians. In addition
over 200 manufacturers and suppliers are associate members. LACA
has consulted with its membership regarding the call for evidence
to the Education sub-Committee and has received a considerable
response. Their views have been incorporated into LACA's evidence.
BACKGROUND AND
HISTORY
The following information may assist to clarify
how the present provision of service has evolved to how it is
at the end of the twentieth century.
School Meals were provided in some schools from
the early years of the twentieth century. They were provided in
a variety of ways to provide a nourishing meal, particularly to
pupils from poor families.
The Education Act 1944
In 1944 the provision of school meals in all
state schools became a statutory law within the Education Act
of that time. The diet of the nation immediately after the Second
World War was poor, with continuing food rationing. The Government
was concerned and needed to introduce a well-balanced nutritional
meal for pupils at lunchtime. The Act had five main measures that
were to be implemented by all Local Authorities.
1. All pupils attending a state school were
entitled to a school meal at lunchtime on every school day throughout
each year.
2. The meals were to be free to those pupils
whose parents were:
3. Other pupils' parents were to pay. The
price was set by government and was the same across the country.
4. The school meal was to provide a third
of the daily nutritional requirements as laid down by the Department
of Health.
5. Each Local Authority was to make returns
to the Ministry of Education on the quantities of ingredients
used.
The 1944 Act continued until 1980.
Comment
By 1980 the provision of school lunches was
out of date, pupils wanted more modern foods and catering facilities.
The 1980 Education Act
This Act changed the role of the school catering
service and the responsibilities of the Local Authorities.
The changes from the 1944 Act were as follows:
1. No nutritional standards. The Local Education
Authority could serve what it liked.
2. The LEA was still compelled to provide
free meals to certain pupils:
(a) whose parents were unemployed; and
(b) whose parents were receiving income support.
3. Each Authority could set the charges
for the paying pupils.
4. If an Authority wished to cease providing
a paid meals service it could do so.
Comment
The change in the law that LEA's were only compelled
to provide for free meal pupils resulted in a number ceasing to
provide a school meals service to all other pupils in Primary
Schools. Examples: Dorset, Buckinghamshire, Lincolnshire, Somerset.
Changes to charges for paying pupils
As at 31 March 1980 the national charge for
a school meal was 35p. Within a year the prices across England
ranged from 35p to £1. The average was 65p. The result of
this was a drop in meal numbers in a considerable number of LEA's.
The Local Government Act 1988
This Act introduced Compulsory Competitive Tendering
to Local Authority Catering and required all the provisions to
go out to tender.
Comment
Without doubt the introduction of Compulsory
Competitive Tendering has led to some Local Education Authorities
saving money on the provision of school meals and updated the
systems and methods of production. However CCT has led to a wide
range of levels of provision in terms of nutritional standards,
portion sizes, quality, selling prices and the pay terms and conditions
of staff employed.
EVIDENCE
Fair Funding
By April 2000 all secondary schools will have
had their budget for school meals provision delegated to them.
Primary and special schools will be able to choose to have their
school meals budget delegated to them if they so wish. Early indications
are that very few are choosing this option.
The delegation of school meals budgets to secondary
schools will have a dramatic effect on the provision of school
catering. It is regrettable that the Nutritional Standards will
not be introduced at the same time as delegated budgets. LACA
stated this in the response to "Ingredients for Success".
If it is the serious intention to improve the diets of School
children by the introduction of the nutritional standards, fair
funding could seriously erode these objectives.
The private sector contractors view fair funding
as an opportunity whilst the majority of local authorities see
that it could have a serious impact on the ability to provide
a School Meals Service to the remaining primary schools. At worst
it could lead to the demise of the provision of school lunches
in a large proportion of schools.
A general view from local authorities is summed
up in a quote from a LACA members consultation response:
"The scenario now presented to private sector
competitors is very attractive. They will now be able to "cherry
pick" the larger, more lucrative and profitable units. Theoretically
this could leave the authority with the task of catering for Schools,
which due to size, geographical location or other factors are
less profitable, more financially burdensome and without the economies
of scale within larger contracts. The risk will be that these
smaller units then become so expensive to run that the services
become unaffordable, thus defeating the objectives aimed for initially".
It is likely that some of the larger schools,
within the Secondary Sector in particular, see Fair Funding as
an ideal opportunity to make money for their own school. Whilst
in principle, this may not be wrong, it takes out of the pot the
monies which their smaller feeder schools require in order to
maintain services within their own sphere of operation.
There has been very limited central guidance
or advice with regard to the mechanics or formulae to be used
by LEA's in determining how funds are "fairly" distributed.
Thus, there are a number of models currently being used, and,
according to the level of subsidy (or not), which was historically
evidenced, there will be authorities and schools which will benefit
or not from the delegation model used.
It would have been helpful to receive more general
advice on methodology to be used. It would appear that the Government
had no real idea how complex the budgets can be to unravel and
delegate fairly.
There are of course advantages, it will mean
that each secondary school can set its own level of provision
and choose one of three options:
FINANCE
The school catering service is a valuable asset,
but it is not adequately profiled or funded. Set out below are
some of the areas where financial issues need to be addressed.
The members of LACA welcome and agree with the
Government's proposal to introduce nutritional standards. However
as Local Educational Authority budgets particulary for school
meals have decreased in some cases to "nil subsidy",
there are grave concerns that the introduction of the standards
will increase costs.
If the nutritional standards are to improve
the health of the nation and in particular that of school children,
we urge the Education sub-Committee to recommend to the Government
that they should give more direct funding to Local Education Authorities
for school catering. These funds should be ring fenced.
Investment into Kitchen and Dining Facilities
For many years there has generally been a very
serious lack of investment into the repair, refurbishment and
modernisation of school kitchens and dining rooms.
To attract and encourage pupils to participate
in school meals and thus eat a nutritionally balanced meal it
is vital that money becomes available to invest in the kitchens
and dining rooms.
Since the introduction of CCT and in some cases,
before, the school meals service has become a low priority for
Local Authorities with already cash strapped budgets.
The Government needs to invest and assist Local
Education Authorities to update and improve these facilities.
TAKE UP
OF MEALS
FREE AND
PAID
Free Meals
Despite the Government's support of the school
meals service, and its policy toward the health of the nation,
the eligibility for free meals since the 1980 Education Act has
diminished and changed so that the number of pupils entitled to
a free meal has shown a decline. The statistical information from
LEA's shows a difference between the take up of free meals against
those entitled to them.
Parents find it difficult, as do the school
administrators to manoeuvre through the bureaucracy which surrounds
the free meal legislation and entitlement. Thus, not everyone
entitled to use the free meals service, ultimately use it. There
needs to be a radical streamlining of the administration systems
and an awareness campaign via the benefits agencies to raise the
profile of this valuable service.
The value of the free meal allowance to pupils
in secondary schools must be maintained and in some cases increased
to ensure that these pupils can choose a nutritionally balanced
meal of good quality and adequate portion size.
The present system of free meal provision does
not give a school or Local Education Authority any incentive to
increase uptake of free meals. Due to the funding mechanisms involved
there will always be a short term, if not a long term, financial
disadvantage to increasing free meal take up. Accordingly many
LEA's do not actively promote or encourage free meal uptake.
A further point is that some schools are insistent
that free meal children should not be identified in any way and
this also inhibits any proposed promotion of meals to the free
sector. Our experience shows that the pupils entitled to free
meals are generally not concerned about being identified.
Paid meals
The DfEE consultation paper "Ingredients
for Success" indicates that a "Paid Meals Service"
should be introduced into the LEA's where it has been discontinued
since the 1980 Education Act. This is a very positive step to
ensure that all pupils attending a state school will be able to
purchase a school meal. However LACA is disappointed that the
provision may be met by a cold meal. Where this has been introduced,
experience shows us that pupils and parents are not prepared to
pay for sandwich meals that they can produce at home for a much
lower cost.
The other concern is that LEA's who at present
provide a full hot meals service will be able to reduce to a paid
sandwich service. This has already happened in West Sussex.
"SMART CARDS"
"Smart cards" have been introduced
in a number of schools meals services. The positive results of
this have been:
— eliminating free meals stigma;
— in some instances their introduction
has speeded up the service of meals;
— administrative cost savings;
— other beneficial uses for the school,
ie security and monitoring the choice of foods; and
— reduces the need for large levels
of cash to be handled and banked daily.
The negative impact of smart cards are:
— high cost to install and maintain;
— pupils lose or forget their cards.
They can be expensive to replace;
— parents and pupils fail to top up
the balance of cash on the card;
— in some cases if the till breaks
down the whole system fails;
— cards can be stolen; and
— some members report that the service
is slower with the use of the cards.
LACA MARKET RESEARCH
This year LACA, with the generous support of
the Sanitarium Health Food Company, has commissioned the Gallup
Organisation to conduct a comprehensive national survey to assess
attitudes towards and opinions of schools meals and healthy eating.
Some of the research findings are surprising—others
disturbing. Yet all of these will lead you to one conclusion,
that more challenges lie ahead for the Government, Health experts,
Caterers and Food producers alike. With knowledge and a greater
understanding of attitudes and trends, we can work together to
improve the School Meals Service.
A précis of the findings of the survey
are enclosed as part of LACA's evidence. It should be noted that
the age group of pupils five to seven are not included in the
survey.
WAYS IN WHICH SCHOOLS CAN PROVIDE MEALS WHICH
ARE HEALTHY AND NUTRITIOUS AND WHICH CHILDREN ENJOY EATING
Our membership views this area of their responsibility
very seriously and it has been addressed by most authorities.
1. MARKETING
Set out below are strategies that have been
introduced during recent years:
National Marketing
LACA has taken the lead to improve the image
of school catering with the following:
National School Meals Week, was introduced
in 1994 to develop a whole school approach to healthy life styles.
Its objective is also to raise the publics' and most importantly
the parents' perception of the school catering service. The standards
of preperation, cooking, food and food hygiene are some of the
finest within the catering industry.
National School Cook of the Year. In
excess of 1,000 staff employed in the service take part in this
prestigious competition. It is organised by LACA and sponsored
by the Meat and Livestock Commission, promoting British Meat.
It has been highly successful and promotes the outstanding work
that catering staff undertake in providing nutritious school lunches.
The Laceys. LACA presents the LACEY Awards
to individuals, LEAs and schools at The Annual Conference. The
awards are sponsored by Manufacturers and Suppliers to the Industry.
They are in recognition of outstanding achievement in the provision
of innovative school catering.
The LACA Mark of Distinction. Addresses
not only excellence in the provision of lunches but also the whole
School approach to healthy living of which catering is a pivotal
feature in the curriculum by SNAGS etc. A brochure regarding the
LACA Mark of Distinction is enclosed.
Local Marketing
For example:
— menu leaflets and general information
to parents;
— presentations at parents evenings;
— inviting parents to visit kitchens
and dining rooms and enjoy a lunch; and
— special days and fun menus ie:
— healthy eating weeks that link to
the curriculum, classroom teaching and school based projects;
and
— competitions, for example:
— painting;
— crosswords;
— badges;
— stickers; and
— prizes;
— marketing material in dining room,
posters etc.
2. PRESENTATION
AND SERVING
OF FOOD
— modernisation of dining rooms (where
funding is available);
— modernisation of service areas (where
funding is available);
— garnishing of food and its layout
for the customer to see;
— improvement of utensils and serving
dishes on the service counter; and
3. MENUS
The planning of menus for Pupils is pivotal
to the success of the School Catering Service. The menu needs
to include modern and popular dishes that are also healthy and
nutritious. Most local authorities provide Ethnic, Vegetarian
and Religious alternatives. Local Health Authorities and Dietitians
are frequently asked to check and advise on menus.
Secondary Menu
A wide-ranging cafeteria service is provided.
This normally includes a meal of the day, fast foods, pasta dishes,
vegetarian options, salad bar and jacket potatoes. For dessert
a hot pudding, buns, biscuits, cakes, fresh fruit, yoghurt and
drinks are offered.
Some secondary schools have one or two "chipless"
days per week. Many Local Education Authorities have a pricing
policy to give discounts on healthier items. Competitions are
introduced that are linked to free visits to local swimming pools
and sport centres.
Primary Menu
Some Primary Schools do not have a choice of
menu particularly in the small rural schools. The maximum choice
that LACA recommends is three main meals including a vegetarian
option, potatoes, pasta, rice or bread, two vegetables or salad,
and desserts ranging from hot puddings, fresh fruit, cold desserts
and yoghurt.
GOOD PRACTICE
It is true to say that the vast majority of
Local Education Authorities set nutritional standards within their
contract specifications which will probably comply with the minimum
nutritional standards when they become law.
Most Local Education Authorities have a healthy
eating policy based on the recommendations of NACNE and COMA and
many use the Caroline Walker Trust guidelines.
Set out below are the key areas that have been
addressed:
Reduction of Sugar in:
— custard and milk sauces by half;
— milk puddings by a quarter; and
— fruit pies, crumbles and stewed fruits.
Increased fibre by the use of:
— wholemeal flour in gingerbread, chocolate
sponge, chocolate biscuits, chocolate shortcake, crumble and all
biscuits at between 50 per cent and 25 per cent;
— brown rice or a mixture of brown
and white;
— whole-wheat pasta or a mixture of
brown and white;
— jacket potatoes in Secondary Schools
on a daily basis; and
— vegetarian alternatives that are
rich in fibre by using pulses such as lentils, chick peas and
beans.
Reduction of Fat:
— for primary schools, chips and one
other fried and roast potato dishes, maximum of one of each per
week;
— using low fat spreads wherever possible;
— using more cottage cheese and hard
low fat cheese eg Edam;
— providing Low fat yoghurts; and
— oven bake or grill rather than fry.
Reduction of additives where possible.
WHOLE SCHOOL
APPROACH
One of the most important issues for the future
is to promote a whole school approach to food and nutrition.
Set out below are some of the innovations which
are taking place:
— Food Policies have been established.
Where this has taken place ownership of the policy by all food
providers including Governors, the School management team, Parents
and Pupils/Students is essential.
— Food and nutrition committees are
particularly successful in Secondary Schools, which include Teachers,
Pupils/Students, Parents and Caterers. These committees can be
based on SNAG (School Nutrition Action Groups).
— Presentations at Parents evenings
by the school caterer.
— Menus to be sent home to primary
school parents.
Curriculum
Educational Strategies within the classroom
need to be linked to pupil experience.
A curriculum based approach. Placing more emphasis
on teaching our young people about diet and eating healthily.
Reintroduce more home economic teaching. There needs to be an
increase in the teaching of cooking skills and diets in the National
Curriculum.
Research
More research needs to be carried out on the
links between diet, health and behaviour.
The Government's "Ingredients for Success"
proposal has fallen short of a whole School approach by not including
all food outlets throughout the day.
MINIMUM NUTRITIONAL
STANDARDS
As stated earlier in this evidence LACA welcomes
and is very committed to the introduction of minimum nutritional
standards particularly for those pupils attending primary schools.
The objective of this policy is very laudable but it will only
be successful if the pupil eats the food provided. Getting the
balance right is a difficult challenge that faces all school caterers.
Nutrition is what is eaten not what is on the plate. This may
be a very obvious statement. However, school caterers cannot change
the eating habits of the pupils alone. It has to be a National
approach from Government, Local Authorities, Teachers, Health
Educators, Dietitians, Parents, and above all the pupils themselves.
It is hard to see how we are all going to meet
this challenge in Secondary Schools where pupils' choice of meals
generally is for foods high in fat and sugar.
It is to be hoped that if we can influence the
next generation of pupils aged five to 11 into good eating habits
it will continue into their adolescence and adult life.
INGREDIENTS FOR
SUCCESS
A copy of LACA's response to the DfEE consultation
paper "Ingredients for Success" is enclosed.
Although it is a long document LACA recommends
members of the sub-committee to read the recommendations put into
this response.
October 1999
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