COMMISSION EUROPÉENNE DIRECTION GÉNÉRALE DE L'AGRICULTURE ET DU DÉVELOPPEMENT RURAL

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1 COMMISSION EUROPÉENNE DIRECTION GÉNÉRALE DE L'AGRICULTURE ET DU DÉVELOPPEMENT RURAL Direction C. Économie des marchés agricoles et OCM unique C.2. Huile d olive, produits horticoles Bruxelles, le 26 mars 2012 AT D(2012) Note de dossier School Fruit Scheme national evaluation reports Synthesis of the main findings 1. Context of the synthesis and its limitations Member States participating to the European School Fruit Scheme (SFS) have submitted national reports containing the results of the evaluation of the implementation and effectiveness of their School Fruit Scheme in the scholastic year 2010/2011. In line with Article 12 of Regulation (EC) No 288/2009, these reports were to be submitted to the Commission by 29 February All 24 participating Member States have submitted their evaluation reports and a vast majority of MS followed the Commission's request to provide also a non-compulsory summary in English in order to facilitate and speed-up the work on the analysis of the main findings. Available summaries were screened and this document provides a synthesis of the main findings of national evaluations. It is structured around five main topics, namely the structure and methodology, main results of evaluations, main determinants of the success of SFS, main areas of criticism and finally conclusions and recommendations. However, it should be borne in mind that the work was done exclusively on the basis of available summaries which are not as comprehensive and detailed as the full reports, which could have an impact on the analysis. 2. Structure of the reports and the methodology followed In the absence of a standardised uniform format for the evaluation reports, it is evident that the structure and length of received reports and summaries varies greatly (length of reports in certain cases even exceeding 300 pages). The quality and comprehensiveness of information provided can be in general assessed as being very good with considerable efforts being invested in the evaluation process, in particular given the limitations and the timing of the evaluation (only the second year of implementation). A vast majority of MS evaluated both the administrative implementation of the Scheme (process evaluation) and its effectiveness concerning the consumption of F&V and children's eating habits (effect evaluation), with only few MS putting greater focus on the administrative implementation. 1

2 The methods of measurements used were quite uniform, with two approaches prevailing: before and after comparison with baseline measurements carried out before the Scheme's implementation and a control measurement at the end, and with vs. without comparison with an intervention group of participating schools/children being compared to the control group of those not participating. As regards the methods/instruments of data collection, the evaluations were almost uniformly undertaken by means of surveys with questionnaires (illustrated, on-line, paper versions etc) and group discussions, which were in certain cases accompanied by food diaries (for example 3-day food record method in PL, Food Dudes Quick Eating Diary in IE, 24h food recall in SI and LU etc) and even weight/height measurements of children by school nurses (PL). The target group surveyed/interviewed were in almost all MS the children, school directors, teachers, school officials, and in majority of cases also parents, while interviews with public health specialists (LT), representatives of the local or central administration (FR, RO) and suppliers (HU) were less frequent. 3. Main findings and results of the evaluation 3.1. Impact of the Scheme on children's consumption of F&V products and knowledge In the majority of MS, this analysis was done on the basis of quantitative and qualitative data obtained from children and/or parents and/or teachers. In spite of the short duration of the SFS, the results and findings concerning the Scheme's effectiveness as regards the impact on children's eating habits (consumption of F&V) and their knowledge/awareness indicate that: the Scheme has been overwhelmingly positively received and has proved to be extremely popular with children, teachers and parents alike with an almost unanimous support for its continuation; results of many evaluations indicate that the Scheme has led to an increased level of F&V consumption/intake in schools (21% increase in PL, 65% in IT) compared to the control group, and in certain cases also at home (MT, IT); encouragement to eat more F&V has had in certain cases also a positive spill-over effect to periods outside F&V distribution in schools (e.g. RO established that the impact remained also after SFS ended in school, NL evaluation shows that children started bringing more fruit to school even on "non-fruit days"); in some MS positive differences in the consumption were observed in particular with regard to socio-economically disadvantaged groups (DE, SI) and this group has warmly welcomed the Scheme (SK); the difference was observed also in the consumption of fruit which is much higher than the one of vegetables, as well as in relation to the gender with boys consuming less than girls; few evaluations have, on the other hand, concluded that after only one year of assessment there are not yet sufficient grounds to judge whether the positive attitude towards SFS has had an effect on the actual consumption (NL) and no significant statistical differences in the consumption patterns were established in before-after and with-without comparisons (PT, SK, BE/Fl); 2

3 most of the evaluations also indicate a very positive development and an increase in the knowledge of children about the need and health benefits of consuming F&V and of the minimum recommended daily intake; conclusions were different with regard to the impact of the Scheme on the lifestyle of children in general (consumption of other popular snacks like sweets, soft drinks etc), where in certain cases (PL, HU) it was established that there was no visible impact, while occasionally it has led to a positive change (NL less biscuits consumed); majority of evaluations did not assess the potential impact of SFS on children's weight (overweight/obesity) because of the short situation of the Scheme (would not yield results) and other factors contributing to overweight in children (physical activity etc); A large number of evaluations have directly involved also parents in the evaluation and the feedback can be summarised as follows: parents have responded very positively to the Scheme and its objectives; a large number of evaluations indicate that the Scheme has had a positive influence on parents, mostly with regard to their attitudes towards their children's diet for example by providing more F&V products in lunch-boxes (IE, PL, MT), variation and availability of those products at home and to a lesser degree even on their own consumption (29% in NL); some evaluations conclude that parents should be better integrated into the Scheme by providing them more information and involving them in different activities (through accompanying measures) Implementation of the Scheme in MS Evaluation reports assessed also the administrative implementation of the SFS and the satisfaction with the programme among schools. This process evaluation has yielded the following results: a vast majority of schools in MS were very positive about the Scheme and they want it to continue; administrative work and requirements were considered in many cases as manageable, while on the other hand for some MS the evaluation reports warn of excessive administrative and financial burden for schools which might discourage them from participating (DK, BG, NL, AT etc); in addition to financial resources, accompanying measures and administrative burden, which are described in points below, certain other parameters were emphasised as being very important for the Scheme's success, namely the willingness and active engagement of teachers/directors, increase provision of information and promotion of the Scheme, assurances about the continuation of the Scheme, extension of the target group to cover more children, increasing the diversity of products offered (increases attractiveness), product quality and nutritional aspects are just as important as quantity etc. 3

4 3.3. Accompanying measures Several evaluation reports also assessed the importance of accompanying measures in influencing children's eating habits and the correlation between the use of accompanying measures and the effectiveness of the Scheme. The results were diverging. Some reports indicate that the use of accompanying measures do not contribute to the effectiveness of the Scheme (DK, DE Saarland), while most of other evaluations regard accompanying measures are very important and one of the key factors for the success of the Scheme (DE Rhineland-Palatinate, IT, HU, CY, LU, ES). Criticisms and recommendations with regard to accompanying measures are summaries below in following chapters. 4. Main determinants of SFS success The results of national evaluations indicate that the success of the SFS could be to the largest extent, but not exclusively, attributed to the following factors/elements and their combination: the free provision of fruit and vegetable products with high frequency and duration, the experience of communal eating, group dynamics and the peer modelling: many evaluations (DE, PL, PT, DK, IT, AT, BG) have pointed out that SFS neutralises one of the reasons why children do not consume F&V in schools ("schoolmates not eating it") by creating opportunities where F&V are consumed together in a classroom with friends, high product quality (to avoid bad experiences in the process) and diversity (to avoid monotony and to introduce new products to children), increased provision of information about the Scheme to schools, parents, local producers and local community at large to enhance networking and Scheme's promotion, accompanying measures, involving also parents, inclusion of socio-economically disadvantaged groups (DE, HU, SK, BG, HU), but targeting should not be restricted exclusively to these groups in order to avoid stigmatisation (DE). 5. Areas of criticism and shortcomings in the implementation The shortcomings in the implementation are in most cases not directly related to the Scheme itself but are rather linked to the on-the-spot organisation, financial constraints and administrative overload. According to the majority of reports, the following elements are identified as the shortcomings in the implementation of the Scheme and they should be addressed in the future: organisational and logistical difficulties: issues related to the suppliers, storage, distribution arrangements at school, lack of school staff, 4

5 financial constraints: national financial resources are becoming increasingly limited for SFS, in particular if they are to be borne exclusively by schools, commune or parents themselves, administrative burden: managing application process and administration burdensome for schools, complexity of legislation and requirements (BE/Wa, ES etc), accompanying measures which were characterised as either been too costly (so minimum effort was invested), not fully implemented as envisaged, their efficiency and content not monitored, their content was too one-dimensional etc, lack of communication and information about the Scheme. 6. Recommendations and way forward Results of national evaluations in certain cases also provide recommendations which mostly concern the following areas: target group of the Scheme: several MS see the need to extend the Scheme to allow more children to benefit from the Scheme, while others see the need for targeted intervention in relation to more "vulnerable" groups, such as socio-economically disadvantaged and also boys who tend to consume less F&V products (DE, SI etc); better communication and increased provision of information about the Scheme; in order to be more effective, the duration and the frequency of the distribution would have to be increased, together with the diversity of products (emphasis that vegetables are in general less consumed and popular); more systematic involvement of parents and other actors/stakeholders (producers etc); increased funding, co-financing and EU funding for accompanying measures to off-set the financial constraints mentioned in earlier chapters; reduction of administrative burden linked to the implementation of the Scheme. General conclusions: The following general conclusions could be drawn from the summaries of national evaluation reports (representing the majority of conclusions): 1. The evaluation results show that the embedding of the SFS in MS has been extremely successful and that there is an overwhelming support for its continuation. Predominantly positive results concerning the Scheme's impact on the consumption of F&V and knowledge about health benefits of those products should be regarded as an encouraging start and not already as a proof of the effectiveness of the Scheme in changing children's eating habits in the long-term. For the latter to be achieved and measured, the evaluation would have to take place after a longer duration of the Scheme and with some periodicity to be able to capture the trends. 5

6 It should be rather concluded that the evaluation reports show that the Scheme has a very strong potential and is an appropriate tool to radicalise the eating habits of children towards consuming more fruit and vegetables for the future. 2. Criticisms and shortcomings identified in most cases do not target directly the Scheme and its main cornerstones but they evolve around the administrative burden (stemming either from stringent national requirements or from the EU legislation), organisationallogistical problems related to the delivery/distribution of products and the financing. 3. Accompanying measures are in most cases considered as very important for the success of the Scheme but shortcomings in their implementation were identified and lack of financing was emphasised. 4. It is evident from many evaluations that there is a strong need to increase the visibility and provide more and better targeted information about the Scheme, as well as to involve more systematically different actors and stakeholders (in particular parents, local producers, local community in general etc). 5. As regards the distribution of products and targeting, it can be concluded that most of MS see the potential to strengthen the effectiveness of the Scheme by increasing the duration and frequency of the distribution of products, including their variety. Several evaluations see the benefits of targeting socio-economically disadvantaged groups and express the need to find better ways to target different groups, either based on age (primary vs secondary schools) and/or gender (boys vs girls). Alisa Tiganj Administrator 6