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Public Health Nutrition: 16(6), 989–994 doi:10.1017/S1368980012005101
The Brazilian school feeding programme: an example of an
integrated programme in support of food and nutrition security
Emilie Sidaner
1,
*, Daniel Balaban
2
and Luciene Burlandy
3
1
Policy and Strategy Division, World Food Programme, Via Cesare Giulo Viola 68/70, Parco de Medici,
00148 Rome, Italy:
2
WFP Centre of Excellence against Hunger, Brası
´lia, Brazil:
3
Department of Social Nutrition,
Faculty of Nutrition, Fluminense Federal University, Nitero
´i, Brazil
Submitted 19 March 2012: Final revision received 2 October 2012: Accepted 11 October 2012: First published online 6 December 2012
Abstract
Objective: The present paper analyses the advances and challenges of the school
feeding programme in Brazil (PNAE), as part of the Brazilian experience building
up an integrated food and nutrition security national system. It explores the role
of policy and regulatory frameworks in constructing quality service delivery and
intersectoral integration.
Design: Review of PNAE and federal government technical documents and
studies, legislation, minutes of meetings and official documents of the National
Council of Food and Nutrition Security from 2003 to 2011.
Setting: Food insecurity has decreased significantly in Brazil in the last decade,
indicating that appropriate choices were made in terms of public policies and
institutional arrangements, which other countries can learn from.
Subjects: Brazil food and nutrition security system; school feeding; school food.
Results: Brazil’s integrated food and nutrition security policy approach promoted
intersectorality in the food system, articulating actions to guarantee access to
healthy food and to strengthen family farming. The quality of school meals has
progressively improved; in particular, the availability of fruits and vegetables
increased. However, national standards regarding menu composition have not
yet been met. Regulations were an important factor, along with the policy
approach linking food production, nutrition, health and education. Challenges
are related to conflict of interests and to farmers’ insufficient capacity to meet
supply requirements and comply with technical procedures.
Conclusions: Local food production, school meals and nutrition education can be
linked through integrated programmes and policies, improving access to healthier
foods. Government leadership, strong legislation, civil society participation and
intersectoral decision making are determinant.
Keywords
School feeding
School nutrition
Brazil
Food and nutrition security
PNAE
The Brazilian School Feeding Program (PNAE) started in
1954. It was seen for a long time as a targeted food aid
programme designed to fight undernutrition and low
levels of education. While over the years the programme
maintained a focus on enhancing schoolchildren’s diets,
its specific objectives, institutional set-up and norms and
regulations have evolved significantly over time.
The current paper argues that the PNAE is exemplary, a
model from which other countries might draw important
lessons. Brazil’s multisectoral food and nutrition security
strategy, developed from 2003, prioritized the expansion
of school feeding and brought significant changes in the
programme’s design and implementation. Its objectives
today are to contribute to the bio-psychosocial develop-
ment and educational achievement of students by meet-
ing their nutritional needs while in the classroom, and by
supporting the formation of healthy habits through food
and nutrition education
(1)
. The programme also promotes
local family farming.
The Brazilian programme is also exemplary for its
scope, reaching more than forty-five million students,
with an allocated budget of some $US 1?9 billion for 2012.
School feeding in Brazil is a universal right of students
enrolled in public basic education and a duty of the State,
granted by the Constitution. The PNAE covers all public
and community schools in the basic education system,
from day care, kindergarten, elementary school, high
school to education for young adults.
The paper first presents the PNAE and analyses how its
objectives and standards were progressively developed as
part of a multisectoral strategy for food and nutrition
security. It then discusses monitoring, oversight and
evaluation mechanisms. The last section presents evidence
on the programme’s results and discusses the role of Brazil’s
*Corresponding author: Email emilie.sidaner@wfp.org; emiliesidaner@yahoo.fr rThe Authors 2012
integrated policy approach and school feeding legal and
regulatory frameworks in achieving these results.
Methodology
The paper is based on a review of technical documents
and evaluation studies of PNAE, relevant federal legisla-
tion, technical and evaluative reports of the federal gov-
ernment, minutes of meetings and official documents of
the National Council of Food and Nutrition Security and
national conferences from 2003 to 2011, and interviews.
Results
School food policy, standards and implementation
in Brazil
The PNAE is one of the most important strategies of
Brazil’s food and nutrition security policy. Its large cov-
erage and innovative design act to strengthen family
farming while promoting access to adequate and healthy
diets in all public schools.
In Brazil, the number of people in food insecurity and
poverty has decreased as a result of committed public
policies. The percentage of households living in food
insecurity fell from 34?8 % in 2004 to 30?5 % in 2009
(2,3)
and extreme poverty fell from 17?4 % in 2001 to less
than 9 % in 2008
(3,4)
. However, fulfilling the Human Right
to Adequate Food – as guaranteed in Constitutional
Amendment no. 64/2010
(5)
– remains a challenge. A grow-
ing prevalence of diet-related diseases including over-
weight, obesity, hypovitaminosis A and anaemia coexists
with food insecurity and malnutrition in populations that
still have problems with access to adequate food, such as
communities of descendants of slaves (quilombolas), indi-
genous people and the poorest groups. Latest estimates
(2009) indicate that 49?9 % of adults are overweight and
14?8 % are clinically obese. Children and adolescents are
also affected: in 2009, the prevalence of overweight was
34?8 % in children aged 5–9 years and 20?5% inadolescents
aged 10–19 years; the prevalence of obesity was 16?6% in
5- to 9-year-old children and 4?9% in adolescents
(3)
.The
rapidsurgeinobesityiscorrelatedwithanincreasedcon-
sumption of meat and industrialized foods with high levels
of saturated and hydrogenated fats, sugar and soft drinks,
and a reduction in the consumption of fruits, vegetables
and basic traditional foods such as beans, tubers and
rice
(3,4,6–8)
. The National Adolescent School-based Health
Survey of 2009 confirmed the prevalence of these unhealthy
eating habits among adolescents
(9,10)
.
An innovative policy approach linking food and
nutrition security articulated in the Zero Hunger Strategy
has emerged in Brazil in the last decade, aiming to
overcome these problems stemming from multiple bio-
logical, socio-economic and cultural factors. The political
leadership and support provided by the presidency, the
insertion of food and nutrition security in the governmental
agenda, and finally the combination of legal and institu-
tional mechanisms for the participation of civil society and
the partnership of different government sectors set the
conditions for the promotion of intersectorality
(11)
.
The Organic Law for Food and Nutrition Security
adopted in 2006 is a landmark policy which established a
food and nutrition security system. The system comprises
a nineteen-ministry Interministerial Chamber of Food
and Nutrition Security (CAISAN), a national council
(CONSEA), and intersectoral chambers and councils at
all levels of the government
(12)
. These arenas assemble
civil society organizations and different government sectors
to coordinate and integrate programmes and actions for
food and nutrition security. More recently, in 2011, the
CAISAN, in consultation with these bodies, formulated the
National Food and Nutrition Security Plan, which stipulates
actions promoting production, the strengthening of family
agriculture, food supply and healthy eating
(8)
.
In this context, schools have emerged as an arena for
developing initiatives linking access to adequate and
healthy food, including vegetables and fruits; promotion
of small family farms and their products; regulation of
school food; and health and nutrition education – for
instance through school gardens. The PNAE has been
significantly redesigned as part of the comprehensive
food and nutrition security approach and has become an
example of the integration of education, agriculture,
health and social protection to promote access to healthy
diets at school while strengthening family farming.
The adoption of Law 11.947 in 2009
(13)
, known as the
School Feeding Law, was a milestone that institutionalized
school feeding at federal level. The 1988 constitution
ensured the universal right to free school meals for students
enrolled in public primary schools. The 2009 law expanded
it to all students enrolled in basic education from the age of
6 months. In order to reach all students, including the most
marginalized ones, it includes high schools, philanthropic
and community schools, special education, and students
whoattendyouthandadulteducation.
Implementation of the PNAE is strongly regulated.
School feeding is the responsibility of the National Fund
for Development of Education (FNDE), a structure linked
to the Ministry of Education. FNDE Resolution no. 38/2009
sets the administrative rules and technical standards for
implementation of the School Feeding Law
(1)
. The nutri-
tional quality of meals is not a new concern: the 2001
National Plan of Education defined for the first time
the minimum energy and protein levels by age to be
provided by school meals and a 2006 interministerial
ordinance set out further guidelines on the nutritional
profile of school meals
(14)
. However, the nutritional
specifications of school meals detailed in Resolution
no. 38/2009 represent a further step. The Resolution
increased the proportion of daily nutritional needs to be
covered by school meals: on average, meals should
990 E Sidaner et al.
provide at least 20 % of the daily nutritional needs of
students enrolled in part-time basic education when one
meal is offered; and at least 30 % of the daily nutritional
needs when two or more meals are offered and in schools
located in indigenous communities and quilombos. The
amount goes up to 70 % for children enrolled in full-time
basic education where, in addition to the 4 h of compulsory
education, students remain at school for complementary
activities, with a total of 8 h spent in school.
More significantly, in line with the objective of promo-
ting healthy eating habits, the Resolution sets standards
on menu composition: respect of traditional practices and
local eating preferences; recommended maximum values
for added sugar, fat, saturated fat and salt; mandatory
inclusion of fruits and vegetables (at a minimum, three
portions or 200 g per student per week); and restriction
of processed foods with high levels of sodium and
saturated fats. The procurement of soft drinks with FNDE
funds is forbidden. However, there are no standards on
maximum energy content. In addition, the Resolution
states that schools should promote and ensure the inclu-
sion of food and nutrition education in the teaching and
learning process.
The existence of a strong legal framework with
operational regulations supports consistent, high-quality
service delivery. Each executing unit must have a nutri-
tionist who is in charge of the elaboration of menus in
line with nutritional norms. However, in 2010, 15 % of
municipalities did not have a nutritionist on their staff due
to lack of resources and professionals in the region. In
such cases, municipalities still need to contract the service
of a professional nutritionist to sign off on the menus.
The connection between school feeding and agri-
culture is another key achievement of the Law. Since its
adoption in 2009, 30 % of the financial resources trans-
ferred by FNDE must be used to procure food from family
farmers and rural family enterprises, with a priority given
to organic or ecological products. This is a strategy that
not only supports family farming by connecting farmers
with a secured market with pre-negotiated prices, but one
that also increases the amount of local, fresh products
available in school menus.
Civil society participation in the formulation of the
school feeding legislation was strong and in fact crucial
for its approval in the National Congress. Through
CONSEA, representatives from different sectors of the
government and civil society organizations (including
non-governmental organizations, universities and social
organizations) gathered to express their views on school
feeding
(11)
.
In response to the new standards, per capita amounts
provided by the FNDE for food procurement have
increased significantly since 2003 (Fig. 1). Currently,
the amounts vary from $US 0?19 to $US 0?56 per student
per day, depending on the type of school (higher
amounts are allocated to kindergartens, indigenous and
quilombolas schools and full day schools). For the year
2011, the PNAE budget was approximately R$ 3?2 billion
($US 1?94 billion) for 44?8 million students daily
(equivalent, on average, to R$ 71 or $US 44 per student
per annum, considering that some students receive up to
three meals per day)
(15)
. In 2010, PNAE represented
11?6 % of the national budget for food and nutrition
security programmes and actions
(16)
.
The execution of the programme was progressively
decentralized in the 1990s. Executing agencies (munici-
palities and State Secretariats of Education) are responsible
for receiving and supplementing the resources of the federal
government for the implementation of the programme.
While the amount of additional resources varies greatly, the
FNDE estimates that municipalities and states provide on
average R$ 0?10 (US$ 0?06) per capita daily.
Monitoring, oversight and evaluation
PNAE has established different mechanisms to monitor
the quality of implementation and to control that resources
are spent in compliance with the rules established by law.
Monitoring activities are coordinated by a small team at
central level which collects information through ques-
tionnaires, interviews and observations, and guides the
implementation of the programme. FNDE works in part-
nership with eight Collaboration Centres on School Food
and Nutrition (CECANE) within Federal Universities to
implement the national food and nutrition security policy
and to inform its public policy making through research
and monitoring.
Since 2008, a main component of the monitoring system
has been a computerized monitoring tool (SIM-PNAE)
which was first introduced in two states and is progres-
sively being rolled out to all states. SIM-PNAE is geared
towards the management and implementation of the pro-
gramme. It provides a tool for nutritionists to design menus
that are compliant with FNDE regulations. The information
provided by nutritionists can be used to analyse the school
50
45
40
35
30
No. of students (millions)
25
20
15
10
5
0
R$ (billions)
3·5
3·0
2·5
2·0
1·5
1·0
0·5
0·0
2003
2004
2005
2006
2007
2008
2009
2011
2010
Year
Fig. 1 Evolution of funding ( ) and number of beneficiaries
() of the Brazilian School Feeding Program (PNAE),
2003–2011
(15)
Brazil school feeding: a policy analysis 991
menus in each school and monitor indicators such as the
percentage of menus that meet nutritional guidelines and
the percentage of executing ent ities that spen d 30 % of
resources on family agriculture procurement.
Mandatory and elected School Nutrition Councils (CAE)
are a strategic mechanism for civil society participation
and control at local level. They monitor and control the
implementation, meal quality and compliance with pro-
gramme regulations. They are also responsible for the first
approval of the municipalities’ and states’ financial reports.
The accounts are then transmitted to FNDE for final
approval, ensuring the transparent use of public resources.
It appears that, at the moment, PNAE monitoring and
evaluation mechanisms focus on management and imple-
mentation. While CONSEA monitors indicators of food
and nutrition security – and the Human Right to Adequate
Food, there are no data on school feeding’s specific role
in relation to the improvement of these indicators.
One challenge identified by FNDE is inadequate research
to support the school feeding policy
(17)
.
From 2010, a research programme funded by FNDE has
been developed in partnership with CECANE. It includes
the evaluation of local purchases from family farming, the
nutritional composition of school meals, the impacts of
food and nutrition education activities, and the influence
of CAE. It also includes the anthropometric and food
consumption profile of students. Baseline data were col-
lected in 2010 from a random sample of municipalities.
Final results are expected in 2012/2013.
Research design faces challenges inherent to the pro-
gramme such as the multiple objectives and dimensions
of school feeding to be evaluated and attribution issues.
As school feeding is part of a comprehensive strategy for
food and nutrition security, it is difficult to establish to
what extent observed results are due to the school feed-
ing programme specifically. As the 2009 Resolution does
not include guidance and indicators for results measure-
ment, indicators for all existing processes and indicators
of effectiveness needed to be developed.
Impact of policy
At school level, the PNAE, in combination with other pro-
grammes such as the Food Acquisition Program (PAA), has
progressively improved the availability and consumption of
fruits and vegetables. According to a survey conducted by
PNAE in 2950 municipalities, in 2004, 28 % of school menus
offered fruits and 57 % offered vegetables. By 2006 these
values had risen to 62 % and 80 % respectively, as shown
in Fig. 2
(18)
.
The PAA was established in 2003 to promote purchases of
food products directly from family farmers. An evaluation of
the PAA conducted in 2006 in the South and Northeast
regions indicated that schools receiving food from PAA
declared the programme had increased food quality and
availability. The PAA has other benefits, such as lower cost
of school meals, the elimination of intermediaries and the
stimulation of the local economy
(19)
. It also contributes to an
increase in the purchase of regional foods, especially fruits
and vegetables, in schools and social institutions
(20)
.
As per the preliminary findings of the baseline survey
conducted in 2010 by the FNDE (ongoing research), the
quality of menus has continued to improve in recent
years, even if it still falls short of the recommendations.
For instance, on average, in 2010 school meals provided
135 g of fruits and vegetables per week and 90 % of
school menus offered vegetables (compared with 80 % in
2006). Menus included 1?5 g of added salt per week (the
recommendation is a maximum of 1 g).* Considering that it
was the first year of implementation of the new legislation,
the government’s expectation is that the quality of school
meals will continue to move towards the recommendations
established in FNDE Resolution no. 38/2009.
Municipal governments, particularly in metropolitan
areas, face challenges when purchasing from family
farmers. These are related to the farmers’ supply capacity
and the difficulties encountered by small producers in
dealing with technical procedures and delivery arrange-
ments, budget and purchasing processes. Issues with
meal preparation (time spent, ability to prepare fresh
food), political resistance of former suppliers and eco-
nomic interests linked to agri-business and the food
industry are additional challenges to the inclusion of fresh
products from family farmers in the school menus
(11)
.
School feeding, along with other interventions, has
contributed to important improvements in education,
nutrition and food security in Brazil in the last 10 years.
They build on past achievements and consequent pro-
gramme adjustments to accomplish these goals.
As indicated before, the percentage of households
living in food insecurity fell sizeably to reach 30?5% in
2009. Although still a problem in some specific regions
and for some specific groups such as indigenous people
and quilombolas, the prevalence of child stunting in the
poorest region of the country was also significantly reduced.
% of school menus
80
70
60
40
50
30
20
10
0
28 %
62 % 57 %
80 %
Fruits Vegetables
Fig. 2 Provision of fruits and vegetables by the Brazilian
School Feeding Program (PNAE) in 2004 ( ) and 2006 ( )
(18)
* Preliminary results, communication from A Peixinho, National Coordi-
nator of PNAE, December 2011.
992 E Sidaner et al.
In the Northeast, child stunting prevalence fell by one-
third between 1986 and 1996 (from 33?9 % to 22?2 %) and
by almost three-quarters between 1996 and 2006 (from
22?2 % to 5?9 %).
Conclusions
The example of the Brazilian school feeding programme
shows that it is possible to link food production, school
meals and nutrition education through comprehensive pro-
grammes and policies. It also shows that improving access to
healthier foods, like fruits and vegetables, and respecting
regional cultures, food habits and the specific nutritional
requirements of the population can be treated successfully as
integrated objectives. At the same time, of course, important
challenges remain and must yet be addressed.
The paper explains the role of the comprehensive food
and nutrition security approach to promote inter-
sectorality in the food security system in Brazil. The
approach has supported the articulation of actions to
guarantee access to healthy food, especially in schools,
and those to strengthen family farming. Strong govern-
ment leadership, the intersectoral decision-making pro-
cess and political pressure of civil society organizations
were key factors in this process. Governments play
an important leadership and support role in realizing
these objectives, in particular through the elaboration of
legislation and norms. The example of Brazil also shows
that governments can play an important role in shaping
procurement practices and supporting local agriculture
due to the volume of the institutional purchases.
The results and innovative approaches of the Brazilian
school feeding programme, as well as its policy and
operational challenges, make it an interesting example
from which other countries can draw lessons to develop
and strengthen their own school food programmes. The
institutional approach can also be an inspiration for
developed countries which could benefit from strength-
ening the link between food provision at school, the
development of healthy diets and local food production.
At the moment, however, there is little evidence available
on the specific impacts of school feeding on school-
children’s diets, nutrition and educational achievement, and
on family farmers’ food security and income. Specific chal-
lenges in measuring results are related to one of the major
strengths of the programme: its integrated and multisectoral
approach.
Acknowledgements
Sources of funding: This research received no specific
grant from any funding agency in the public, commercial
or not-for-profit sector. Ethics: Ethical approval was not
required. Conflicts of interest: D.B. is the former President
of the FNDE and, since 2011, the Director of the WFP
Centre of Excellence against Hunger. Authors’ contribu-
tion: E.S. wrote the paragraphs on nutritional standards
and regulations and on overall costs in the ‘School food
policy, standards and implementation in Brazil’ section
and the ‘Monitoring, oversight and evaluation’ section.
She edited the paper and wrote the abstract, introduction
and conclusions with inputs from other authors. L.B.
conducted the policy analysis and wrote the ‘School food
policy, standards and implementation in Brazil’ section. In
the ‘Impact of policy’ section, she contributed with the
results of PAA, challenges and impacts on food security
and nutritional status of children. D.B. provided overall
guidance and contributed with the sections on imple-
mentation – nutritionists, decentralized implementation
and costs at decentralized levels, role of CAE. In the
section ‘Impact of policy’, he provided the information on
the changes in menu composition over time and provided
the related graph (Fig. 2). Each author has seen and
approved the contents of the submitted manuscript.
Acknowledgements: The authors would like to thank
PNAE, and in particular Albaneide Peixinho, for the
information and materials that contributed to a large
extent to this paper. The authors also express their gra-
titude to Christiani Buani for her support in collecting
data and information and for her input.
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