Magazine 2014
International Peer-Reviewed Journal
RESEARCH HORIZONS, VOL. 4 JULY 2014
MID DAY MEALS : WHAT, WHY AND HOW
Geeta Menezes
ABSTRACT
The Mid Day Meal Scheme in India is the world’s largest school-based feeding programme, aimed at
improving the nutritional status of students and promoting the universalization of elementary education.
The Mid Day Meal Programme has been quietly feeding more than 10 crore children every day for more
than 10 years. Unfortunately, this popular and relatively successful programme makes it to the headlines
only when things go wrong - this time following the tragic death of 23 children in Bihar after eating mid
day meal at school. This study attempts to evaluate the Mid Day Meal Programme with specific reference
to Mumbai’s civic schools and highlights some of the long-standing issues in its implementation. The
study is a descriptive one, based on intensive field work research, employing both primary and secondary
data. The sample consisted of 200 school children who are entitled to avail mid day meals from 20 civic
schools, randomly selected from 24 BMC wards. Personal Observation and Detailed Semi-structured
Interviews have been used to gather first hand evidence about the implementation of the Mid Day Meal
Programme as per MDM guidelines. Descriptive Statistics has been used for in-depth analysis. The
results indicate that there is not enough awareness among the beneficiaries about Mid Day Meal
Programme details, logo, their rights and entitlements under the scheme. School teachers are not aware
of their role and responsibilities under the scheme. They need to be motivated for playing pro-active role
in the day to day functioning and monitoring of the scheme without compromising on teaching-learning
activities. Food quality and accountability mechanisms are the major limitations of the scheme. Exclusive
monitoring structures should be set up for effective monitoring and implementation of the scheme.
Processes should also be set in place to ensure vibrant community involvement so that the mid day
meal programme becomes a peoples’ programme. Given the malnutrition status of India, and especially
Maharashtra, the Mid Day Meal Programme is perhaps the best investment India can make to safeguard
its future.
Keywords : BMC schools, children, Mid Day Meals.
Origin of the Research Problem
The Mid Day Meal Programme in India is the world’s largest school feeding programme, reaching out
to about 12 crore children, in over 12.65 lakh schools/ EGS centres across the country. The Government
of India launched the National Programme of Nutritional Support to Primary Education, popularly
known as Mid-Day Meal Programme (MDMP), in August 1995, to boost enrolment in schools, and
simultaneously address the problem of malnourishment among school children. Initially, the scheme
distributed ‘dry rations’ with the expectation that states would move to serve a cooked meal within a
period of two years. However, most states continued the same way and the implementation of the
scheme largely remained a low-key concern until 2001, when the Supreme Court directed all states to
provide a cooked meal for children. From 2008-09, the programme covers all children studying in
Government, Local Body and Government-aided primary and upper primary schools and the EGS/AIE
centres including Madarsas and Maqtabs supported under SSA of all areas across the country. It is a
centrally sponsored scheme. Cooking costs are shared between the GoI and the states on a 75:25
sharing pattern. A sum of Rs.13215 crores has been allocated for the scheme in the current year. The
st
cooking cost was revised with effect from 1 July 2013 by MHRD at Rs.3.34 and Rs.5.00 per child per
day for primary and upper primary stage respectively. The calorific value of a mid-day meal at primary
stage has been fixed at a minimum of 450 calories and 12 grams of protein and for upper primary
stage it is a minimum of 700 calories and 20 grams of protein. The MDMP is also being used to support
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RESEARCH HORIZONS, VOL. 4 JULY 2014
administration of six monthly doses of deworming medication and Vitamin A supplementation, weekly
doses of iron and folic acid supplements, and other micronutrients depending on common deficiencies
found in the local area.
The Mid Day Meal Scheme has been operational in the state of Maharashtra since 1995-96. The Municipal
Council of Greater Mumbai (MCGM), also known as Brihanmumbai Municipal Corporation (BMC), was
entrusted with implementing the scheme in the metropolitan area of Mumbai in 1999-2000. Initially, the
Corporation distributed 3 kgs of dry rice per student per month to the students of classes I to V having
an attendance of more than 80 %. After the Supreme Court order, the scheme was redesigned in 2003.
Since then, instead of raw grains, a cooked mid day meal is served to all primary school students.
Since January 2008, the MDMP has been extended to cover the upper primary level. BMC runs around
1
162 schools and provides cooked mid day meals to more than 3.8 lakh civic school students in
Mumbai. Mahila SHGs/NGOs are engaged in cooking and serving of mid day meals. The most
marginalised sections of the community populate these civic schools. BMC’s Mid Day Meal Programme
is supposed to address two of the most pressing problems for poor children in Mumbai-hunger and
education.
Statement of the Research Problem
BMC’s Mid Day Meal Programme is often criticised for its insipid and bland food. Media reports show
that the BMC’s annual budget for schools is Rs.1900 crore but only Rs.100 crore is spent on the Mid
Day Meal Programme for more than 3.5 lakh children. There are allegations that most BMC schools
are dishing out poor quality mid day meals and the kids are not getting food as per the government
regulations. Even the High Court has slammed BMC for failing to properly implement the Mid Day Meal
Scheme. The scheme is important in terms of its potential for addressing the problem of malnutrition
among the poor school going children. It is a matter of grave concern that the poor children have to eat
food which has low nutritive value. This calls for a comprehensive evaluation of BMC’s Mid Day Meal
Programme to judge its efficacy in relation to its objectives.
Review of Literature
Dreze and Goyal (2003), while reporting the findings of a CES survey in Chattisgarh, Karnataka and
Rajasthan, observed that cooked, nutritious mid day meals in primary schools have a major impact on
child nutrition, school attendance and social equity. However quality issues need urgent attention, if
mid day meals are to realize their full potential. Universal and nutritious mid day meals would be a
significant step towards the realization of the right to food.
Gopaldas, T. (2003) found that inspite of the Mid Day Meal Programme, the nutritional, health and
intestinal parasitic status of the school children in Gujarat was poor. The greatest dietary gaps were
with respect to Vitamin A and iron. Intestinal Helminths were seen to seriously interfere with growth,
and utilization of iron and Vitamin A. He suggested that mid day meals should be integrated with a
health package of “deworming + iron + vitamin A” in the classroom.
Afridi, F. (2005) while comparing the Mid Day Meal Scheme in Madhya Pradesh and Karnataka reported
better implementation in Karnataka where children were provided with 100 grams of rice, 20 grams of
pulses and 25 grams of vegetables with variations in cooked meals every week. Children were also
provided with iron, folic acid and deworming tablets. Community participation was high and the
programme was extended with additional community resources from Class V to Class VII. Her empirical
evidence confirmed that children in MP were getting a more nutritious diet after shifting from old daliya
scheme to new Suruchi Bhojan.
Deodhar et al. (2007) examined the implementation of Mid Day Meal Scheme in Ahmedabad city and
reported that the implementation of the scheme was lacking on the grounds of nutrition and food
safety. In terms of calorific and nutritive intake, proportionate amounts of protein and iodine were not
provided through the Mid Day Meal Scheme.
Planning Commission (2010) conducted a performance evaluation of Cooked Mid Day Meal Scheme
across India and revealed that the scheme has been successful in addressing classroom hunger and
achieving social equity. However it has resulted in diversion of attention of students and teachers from
teaching and learning activities. Most of the states did not follow the guidelines of GoI to deliver food
grains at the school point by PDS dealers, thereby resulting in the leakage of food grains.
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RESEARCH HORIZONS, VOL. 4 JULY 2014
Objective of the Study
This study is an attempt to review the performance of the Mid Day Meal Programme in Mumbai’s civic
schools in the light of MDM guidelines and highlight some of the long standing issues in its
implementation.
Research Methodology
The study is a descriptive one, based on intensive field work research, employing both primary and
secondary data. The sample consisted of 200 school children who are entitled to avail mid day meals
from 20 civic schools, randomly selected from 24 wards, giving equal representation to boys and girls.
The survey was undertaken between July-September 2013. Personal Observation and Detailed Semi-
structured Interviews have been used to gather first hand evidence about the implementation of the
Mid Day Meal Programme as per MDM guidelines. Descriptive Statistics has been used for in-depth
analysis.
Results and Discussions
The Mid Day Meal Scheme in India is the world’s largest school-based feeding programme, aimed at
improving the nutritional status of school students and promoting the universalization of elementary
education. The success of the mid day meal programme revolves around the manner in which it is
implemented at the school. The MDM guidelines categorically state that mid-day meals should be
served to all children attending school on each working day. The MDMP is routed through schools so
that correct nutrition messages, good eating habits and hygiene and sanitary practices are imparted
and inculcated in children. The awareness of the scheme should be generated through display of logo,
weekly menu, food norms, etc at prominent places in and outside the school.
Table 1: Awareness of the MDMP
Parameters
Children Responses
Yes (%)
No (%)
100%
100%
100%
98%
Aware of MDM logo and its significance
Aware of their rights and entitlements under MDMP
Aware of the details of MDMP (What & Why)
Aware of MDM weekly menu
-
-
-
2%
-
Watched any AV on MDM
100%
100%
Teachers creating awareness of MDMP
-
Table 1 evaluates the MDMP on status of awareness parameter. None of the 200 school children seem
to be aware of MDMP details, logo, their rights and entitlements under the scheme. Only 2% seem to
be aware of MDM weekly menu. The MHRD has developed 2 films on MDMP which are to be used by
schools for creating greater awareness about the meaning, rationale and entitlements under the scheme.
None of the surveyed school children have watched any audio video on MDMP. Further all 200 school
children said that their teachers have not created any awareness of the MDM scheme. They only ask
them to finish their meal because it is important for their overall well being. The maximum that the
school children know about the concept of MDM is khichdi provided from outside.
The MDMP does not merely aim to provide a cooked meal, but one satisfying prescribed nutritional
norms. As per the MDM guidelines, the prescribed nutrition to be provided by the MDM should include
4
50 kcal and 12 grams of protein to be derived from 100 grams of food grains (rice), 20 grams of
pulses, 50 grams of vegetables and 5 grams of oil for children studying in primary classes and 700 kcal
and 20 grams of protein to be derived from 150 grams of food grains (rice), 30 grams of pulses, 75
grams of vegetables and 7.5 grams of oil in upper primary classes. The MDM should be wholesome,
nutritious, tasty, digestible and vary from day to day. In addition to cooked meals, supplementary food
(
kharig, soya biscuits, fruits, jaggery, peanuts, chikki, til and rajgira ladoos, etc) should be given once
a week. Teachers should under no circumstances be assigned responsibilities that will impede or
interfere with teaching learning. They should, however, be involved in ensuring that (a) good quality,
wholesome food is served to children, and (b) the actual serving and eating is undertaken in a spirit of
togetherness, under hygienic conditions, and in an orderly manner so that the entire process is
completed in 30-40 minutes. They are required to taste the prepared meal prior to serving on rotation
basis and sign the taste register maintained in the school.
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RESEARCH HORIZONS, VOL. 4 JULY 2014
Table 2: Quantity and Quality of MDM
Parameters
Children Responses
Yes (%)
85%
100%
15%
80%
98%
10%
20%
20%
40%
100%
98%
90%
100%
80%
20%
30%
10%
10%
5%
No (%)
15%
-
Entitled and availing MDM regularly
MDM served daily
Carry food from home
85%
20%
2%
Cooked meals served hot
Satisfied with the quantity of MDM
Satisfied with the quality of MDM
Satisfied with the variety in the menu
MDM is the main meal of the day
Prefer MDM during holidays
90%
80%
80%
60%
-
Supplementary nutrition given
Satisfied with supplementary nutrition
More fruits to be included under supplementary nutrition
Provision of eating plates/ tiffins for MDMP
Parents taking feedback on MDMP
Teachers taking feedback on MDMP
Food tasted by the teacher before serving
Complained about the quality of MDM
Taken ill after consuming MDM in the last one year
MDM officials supervising MDMP
2%
10%
-
20%
80%
70%
90%
90%
95%
Table 2 evaluates the MDMP on quantity and quality parameters. Out of 200 school children surveyed,
0 reported that they do not avail cooked mid day meals regularly. 10 out of 30 skip mid day meals due
3
to quality issues and other 20 Jain students do not consume meals which have onions, garlic and
potatoes. These students get food from home. All reported that mid day meals are being served daily
(
222 working days). 98% students reported satisfaction with the quantity of mid day meals served. The
cooked mid day meals are served by approximation. They get more if asked for. 80% of them reported
that cooked meals are served hot and that their parents do take feedback on meals served in the
school. A majority of 90% have reported dissatisfaction regarding the quality of cooked meals served.
Bad food quality occasionally leads to food poisoning, invariably leading to a backlash against the
whole programme from parents and media. Further 80% have reported dissatisfaction with the variety
in the menu because khichdi is being served on most of the days. As per MDM guidelines, school mid
day meal is meant to be in addition to, and not a substitute for meals which parents should in any case
provide to children at home. 40 out of 200 school students accepted that school mid day meal was the
main meal of their day. 40% of the children preferred mid day meals during holidays. All reported that
supplementary nutrition was given on Wednesdays. A majority 98% reported satisfaction with
supplementary nutrition. 90% said that more fruits should be included under supplementary nutrition.
All the children said that the schools have provided them with tiffins for serving mid day meals. Only
20% of the students reported that their teachers take their feedback on MDMP. Further only 30% reported
that the meals are tasted by the teacher before serving. Only 10% have complained to the school
authorities about the bad quality of mid day meals and the same have reported to being taken ill after
consuming MDM in the last one year. A majority 95% said that they have not witnessed MDM officials
supervising MDMP. Food quality and accountability are the major limitations of MDMP. Mid day meals
should have more variety. School teachers are not aware of their role and responsibilities under the
scheme. They need to be motivated for playing a pro-active role in the day to day functioning and
monitoring of the scheme without compromising on teaching-learning activities.
As per MDM guidelines, cooked mid day meals contribute to the Right to Education by providing
parents a strong incentive to send children to school, facilitating regular school attendance, enhancing
children’s learning abilities, fostering social and gender equality, eliminating classroom hunger and
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helping to impart nutrition education to school children and their parents. A well organised mid day
meal can be used as an opportunity to impart various good habits to children (such as washing one’s
hands before and after eating), and to educate them about the importance of clean water, good hygiene
and related matters.
Table 3: MDMP Outcomes
Parameters
Children Responses
Yes (%)
70%
No (%)
30%
20%
30%
60%
5%
Incentive to attend school
Improves learning outcomes
Eliminates classroom hunger
Imparts nutrition education
Ensures social equality
Inculcates hygiene
80%
70%
40%
95%
60%
40%
Table 3 evaluates MDMP on outcomes parameter. 70% of the respondents accepted that MDMP is an
added incentive to attend school and plays an important role in eliminating classroom hunger. 80%
of the school children reported that MDMP helps in improving learning outcomes. Only 40% feel that
MDMP imparts nutrition education. This may be due to schools and teachers not creating enough
awareness about the scheme. A majority 95% reported that MDMP ensures social equality. No gender/
caste/community discrimination has been reported in serving or seating arrangements. Further only
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0% reported that MDMP inculcates good eating habits and hygiene and sanitary practices among
them. School authorities do not play a pro active role in ensuring that MDMP objectives are fulfilled.
MDM guidelines mandate that MDMP should also be complemented with appropriate health
interventions relating to micronutrient supplementation and de-worming, through administration of
(
a) six monthly dose for de-worming and vitamin-A supplementation, (b) weekly iron and folic-
acid supplement, zinc and (c) other appropriate supplementation depending on common deficiencies
found in the local area.
Table 4: MDMP and Health Interventions
Parameters
Children Responses
Yes (%)
100%
No (%)
Children given micro-nutrients periodically
School health card maintained
-
-
100%
Table 4 evaluates MDMP on health interventions parameter. All 200 school children reported that
micronutrients (syrup/IFA tablets/deworming tablets and protein powder packets) are administered
periodically in their schools and school health card is also maintained by all the schools.
MDM guidelines also mandate that Grievances Redressal Mechanism should be put in place by
installing a toll free telephone number for enabling the public to register their grievances; Community
participation should be encouraged for ensuring transparency and accountability in the scheme;
Processes should also be set in place to ensure vibrant community involvement so that the mid day
meal programme becomes a peoples’ programme; Schools should maintain a roster of community
members involved in the programme; Community members should be encouraged to make
observations on the implementation of the scheme and the schools should make available a register
for regular recording of such observations; Schools should weigh the quantity of cooked mid day
meals supplied by the food service providers; An Emergency Medical Plan should be prepared to
deal with any untoward incident; Exclusive monitoring structures should be set up for effective
monitoring and implementation of the scheme; Safety and hygiene standards must be set and
practiced with rigor.
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Table 5: School Checklist
Parameters
No. of School Responses
Yes
02
02
02
-
No
18
18
18
20
-
MDM logo displayed
Weekly menu displayed
Details of the MDMP displayed
Details of the Food Service Provider displayed
MDM register maintained
20
20
02
05
02
02
-
MDM Taste register maintained
-
Weighing the food quantity before serving
Sending food sample for testing
18
15
18
18
20
20
20
20
20
20
18
20
20
20
20
-
Roster of community participation maintained
Observations of community members on MDMP
Dedicated toll free telephone number for GRM displayed
Record of number of complaints received from children
Record of number of complaints received from teachers
Record of number of complaints received from parents
Record of feedback taken on MDMP
-
-
-
-
Record of any action taken
-
Any Emergency Medical Plan in place
02
-
Any copy of Inspection Report by MDM officials
Safety and Hygiene Standards
-
Processes set in place to ensure vibrant community participation
Any program to mobilize mothers in supervising MDMP
Extent of Variation ( registered versus actual)
Any Gender/ Caste/Community discrimination observed
MDMP creating disruption in teaching-learning
-
-
20
-
20
20
-
Table 5 evaluates MDMP on the basis of school’s adherence to MDM guidelines. Only 2 of the 20
schools surveyed have displayed MDMP logo, MDMP details and weekly menu details. None of the
surveyed schools have displayed contact number and details of the food service providers. All the
schools have maintained MDM register and MDM taste register with the relevant details; however the
quality of record keeping is a serious concern. Further only 2 of the schools were seen weighing the
food provided by the food service provider before serving. MDM guidelines also mandate that MDM
food samples should be kept for one day for getting it tested by BMC laboratory in case any untoward
incident of food poisoning occurs in the school. Only 5 of the sample schools were seen adhering to
this specific guideline. These schools were seen keeping a sample of mid day meal in sealed jars for
one day for testing by an assigned BMC laboratory in case of any untoward incident happening in the
school. But they do not submit food sample for testing the nutrition content or the presence of e-coli,
etc. in mid day meals. Again only 2 of the 20 surveyed schools have maintained a roster of community
participation, and have recorded observations of community members on MDMP. None of these schools
have displayed dedicated toll free telephone number for Grievances Redressal Mechanism under the
MDMP. The school authorities seem to be unaware of any such number.
Further no school has a record of the number of complaints received from either the children or the
parents or the teachers. There is absolutely no practice of taking any feedback on MDMP and so there
is no record of any related action taken. Even the BMC/MDM officials do not bother to inspect the
scheme as implemented in different schools and so none of these schools have any copy of inspection
report by MDM officials. Only 2 of these schools have an Emergency Medical Plan in place, in the
sense that they have contact details of nearby Primary Health Centre. Further most of the schools fail
on safety and hygiene standards also. Safety and hygiene are absolutely crucial for the success of mid
day meals. Vibrant community involvement in the day to day functioning of the scheme is important to
make MDMP a people’s programme. Support of the community members, including mothers could
also be solicited to ensure that children wash their hands with soap before eating, use clean plates and
glasses, avoid littering and wastage of food, and rinse their hands and mouth after eating. None of the
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RESEARCH HORIZONS, VOL. 4 JULY 2014
surveyed schools have taken any steps towards mobilizing mothers and other community members in
daily supervision and monitoring of MDMP. The community should be empowered to play a more
active role in the day to day management and monitoring of the scheme. Around 15% variation (number
of school children availing mid day meals as per MDM register and the number of children actually
availing mid day meals on the day of visit) was noticed in all of the surveyed schools. No gender/caste/
community discrimination was observed in any of these schools in serving or seating arrangements.
The actual serving and eating is undertaken in a spirit of togetherness and in an orderly manner.
Further in all the schools it was observed that the MDMP was not interfering with teaching learning
activities. As is evident from the above analysis, the MDMP represents the best and the worst of India.
It is one of the more “successful” (in terms of regularity and scale) food security programmes initiated
by the Government of India. Recent economic research clearly documents the positive impact of the
scheme on enrolment, attendance, retention and nutrition. The biggest challenge is to achieve a radical
improvement in the quality of mid day meals and in accountability mechanisms. Monitoring of MDMP
is not a high priority in the daily business of BMC. Interactive Voice Response System should be
introduced for daily monitoring of the MDMP in BMC schools. Civil society organizations and private
agencies can be engaged to beef up the monitoring system. Food inspectors may be deployed to
periodically check the quality of prepared meals. Everyone can contribute towards ensuring that the
MDMP serves its objectives. There is a role for everyone: parents, teachers, concerned community
members, media, and researchers.
Research Limitations
Any evaluation of the Mid Day Meal Programme should also include tracking fund flows and expenditures
from their first point of release (Government of India) to their final point of receipt (schools). Further
analyzing the role of food service providers would have given more valuable insights into the functioning
of the MDMP.
Conclusion
Mid Day Meals are an important terrain of future engagement, not just for the State, but also for social
movements and indeed the public at large. A concurrent third party evaluation of the Mid Day Meal
Programme in Mumbai’s civic schools is attempted so that the problems in the implementation of the
programme can be identified and rectified. The MDMP is of immense benefit for both education and
nutrition of children. However, it is necessary to improve its implementation. The tragedy that happened
in Bihar some days back should not be repeated anywhere in the country. 23 children, most under 10
years of age, had died after eating midday meal at a school on July 16, 2013 in Saran district of Bihar.
The cooking oil used was suspected to be laced with insecticide. At a time when mid-day meals are
under scrutiny after the Bihar school tragedy, the BMC has no mechanism in place to monitor the
quality of food supplied to school kids in Mumbai. The study is an attempt to sensitise all the stake
holders involved, regarding the broad vision of the Mid Day Meal Programme. Instead of just spending
money and believing that this is all it takes to implement the MDMP, the BMC should do some out-of-
the-box thinking and show that it really means business when it comes to nutrition for children.
References
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the Programme.” Economic And Political Weekly 40.15 (2005): 1528-1534. Print.
Deodhar, S. et. al. “Mid-Day Meal Scheme: Understanding Critical Issues with reference to Ahmedabad
City.” IIM Ahmedabad 03.03 (2007). Print.
Dreze, J. & Kingdon, G. “The Future of Mid-Day Meals.” Economic And Political Weekly 38.44
(
2003): 4673-4683. Print.
Gopaldas, T. “Towards Effective School Health.” The Fresh Initiative. (2003). Available at http://
www.righttofoodindia.org/data/fresh.pdf.
Planning Commission, GoI. “Performance Evaluation of CMDM.” Programme Evaluation
Organization, New Delhi. (2010). Print.
Khera, Reetika. “Mid-Day Meals: Looking Ahead.” Economic And Political Weekly 48.32 (2013): 12-
1
4. Print.
www.mdm.nic.in
www.mcgm.gov.in
Dr. Geeta Menezes : Assistant Professor, Head, Dept. of Economics, Mithibai College of Arts, Mumbai
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