Nutrition Policy Institute
Article

Texas Food Service Director Survey Findings: Experiences transitioning from meals free of charge for all students

  • August 28, 2024
  • By Monica D Zuercher, Lorrene D Ritchie, Wendi Gosliner

Research Brief • August 2024 • Download PDF (224 KB)

Background

In March 2023, an online survey gathered insights from Texas foodservice directors (FSDs) about their experiences implementing school meals during the 2022-23 school year (SY) after the federal waivers allowing school meals to be served free of charge to all students ended. A total of 367 FSDs and other foodservice personnel responded to the survey, representing 31% of Texas school districts.

Table 1. Respondent characteristics (n=367).

Characteristic

% of Sample

Foodservice Directors

88%

Other School Nutrition Personnel

12%

Urban or Suburban

28%

Small Enrollment Size (<2,500 students)

69%

No CEP or Provisions 1 or 2

47%

40% or more students eligible for Free or Reduced-Price Meals

79%

Key Findings

The end of the federal waivers allowing meals to be served free of charge to all students was associated with negative impacts on meal participation, finances, and operations 

Approximately half of FSDs reported reduced meal participation (54%) and food service revenues (44%). Many also reported a rise in unpaid meal charges (43%) and administrative burden (57%). Staffing challenges were also reported, with 55% facing increased difficulties (Figure 1).

Bar chart showing 57% of respondents reported increased paperwork or administrative burdens, 55% increased staffing challenges, 54% noted a decline in school meal participation, and 44% experienced reduced food service revenues. Additionally, 43% observed an increase in unpaid meal charges or debt, and 32% encountered greater parent or student confusion regarding meal costs.
Figure 1. Most common changes reported by Texas FSDs implementing school meal programs during SY 2022-23, compared to SY 2021-22.

Income verification posed challenges, with fewer families returning meal applications

Direct certification was the primary method for determining eligibility for free or reduced-price meals, used by 98% of FSDs. Among the FSDs that reported using traditional meal applications (66%), the mean return rates were estimated at only half (48%). Those using alternative income forms (26%) reported even lower return rates at 33%. Most districts (73%) reported offering online application options to streamline the process and 25% reported lower return rates compared to pre-pandemic levels. 

Multiple factors helped support Texas FSDs during the SY 2022-23

The top factors that helped support SFAs include increased federal reimbursement rates (87%), support from district administration (87%), and federal Supply Chain Assistance Funds (78%), state technical assistance (76%) and state funding (70%) (Figure 2). 

Bar chart showing 87% of respondents found increased federal reimbursement rate or funding of school meals and a supportive district administration to be key supports. Additionally, 78% were supported by the availability of federal Supply Chain Assistance (SCA) funds, 76% utilized technical assistance, such as webinars, provided by the state, and 70% relied on state funding to support school meals.
Figure 2. Most common factors that helped support Texas FSDs during the SY 2022-23.

FSDs faced many challenges in implementing school meal programs in the SY 2022-23

Operational challenges also existed, with 79% facing financial sustainability issues, 77% burdened by administrative tasks, and 73% struggling with product availability. Staffing shortages (73%) and inadequate wages (76%) further complicated operations (Figure 3).

Bar chart showing 79% of respondents identified cost or financial stability of the school as a major challenge. Additionally, 77% reported challenges related to paperwork and administrative tasks, while 76% struggled with inadequate wages to recruit new staff. Additionally, 73% faced staffing shortages as well as product or ingredient availability.
Figure 3. Most common food service operational challenges Texas FSDs attribute to implementing school meals in SY 2022-23.

FSDs reported some challenges with cafeteria operations

Over a third of SFAs reported challenges with inadequate refrigeration or freezer space (39%) and inadequate time-to-eat for students (35%) (Figure 4). Other challenges in the cafeteria included long lines for students to get the food (29%) and inadequate kitchen preparation space (26%) and dining space (26%).

Bar chart showing 39% reported insufficient refrigeration and freezer space and 35% insufficient time for students to eat. Long time in line for students to get the meals was a challenge for 29% of FSDs, while 26% reported insufficient kitchen preparation space and inadequate or crowded dining space. Furthermore, 22% reported inadequate meal service space.
Figure 4. Most common challenges with cafeteria operations Texas FSDs attribute to implementing school meals in SY 2022-23.

FSDs reported concerns about the financial sustainability of school meal programs.

Only about a third of respondents reported that current reimbursements covered the full cost of producing breakfast (34%) and lunch (37%). Suggested reimbursement rates to meet federal standards were $3.86 for breakfast and $5.27 for lunch. To consistently include fresh, local produce, the suggested rates were higher: $3.98 for breakfast and $5.40 for lunch. 

The maximum federal reimbursements at the time were $2.67 and $4.58 for free breakfast and free lunch, respectively. 

FSDs who reported that the current reimbursement wasn’t enough to cover the costs of producing the meals identified the factors impacting their financial deficit

Almost all SFAs reported that the costs of food (98%) and supplies (97%) impacted their revenues (Figure 5). Most SFAs also reported labor (82%) and equipment (77%) costs, as well as decreased student participation in meal programs (72%), as factors impacting their revenues.

Bar chart showing 98% reported food costs impacted their revenues, while 97% reported supply costs. Labor costs impacted 82% of FSDs, while equipment costs 77%. Additionally, 72% reported that decreased meal program participation impacted their revenues.
Figure 5. Most common factors Texas FSDs reported impacted their revenues in SY 2022-23.

FSDs identified additional technical assistance and training that could benefit their SFA

Most SFAs reported needing help to increase student participation in meal programs (85%), procurement (85%), and finding ways to better engage students in school foodservices (82%) (Figure 6). Other ways in which SFAs can be assisted include making meals more appealing to students (79%) and engaging parents in school foodservices (74%).

Bar chart showing 85% reported needing help to increase student participation in meal programs and with procurement. 82% reported needing help finding ways to better engage students in school foodservices, 79% making meals more appealing to students, and 74% engaging parents in school foodservices.
Figure 6. Most common additional technical assistance and training that Texas FSDs reported their SFA could benefit from.

Texas FSDs reported perceived barriers to student participation in school meals. 

Top barriers include students preferring meals from home (65%), finding portions insufficient (59%), and preferring to eat á la carte options (53%). Half of FSDs reported students disliking the meal’s taste and getting tired of the options as additional barriers to student participation.

Conclusion

The 2022-23 FSD survey highlighted significant impacts and challenges faced by Texas schools in the post-pandemic era. The transition away from federal waivers allowing school meals to be served free of charge to all students negatively affected meal participation, school foodservice financial stability, and operational procedures. Effective communication and support from federal and state programs have helped maintain effective school meal programs. The findings emphasize the need for continued financial support and operational adjustments to ensure the success of school meal programs in Texas.

Acknowledgements: The Nutrition Policy Institute, University of California Division of Agriculture and Natural Resources, is funded to conduct an evaluation of California’s Universal School Meals through CA SB 170 (2021), CA SB 154 (2022), and CA SB 101 (2023). We thank the school nutrition personnel who took the time to respond to the survey. For more information, visit NPI's School Meals for All website.

Suggested Citation: Zuercher M, Esparza E, Ritchie L, Gosliner W. Research Brief: Texas Food Service Director Survey Findings: Experiences transitioning from meals free of charge for all students. Nutrition Policy Institute, University of California, Agriculture and Natural Resources. 28 August 2024.

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