School feeding will begin 2025 with a weakened budget; the program’s budget has already lost 42% of its purchasing power since 2010
The School Feeding Observatory
The School Feeding Observatory (ÓAÊ), created in 2021, is the result of a joint effort between Brazilian civil society organizations and social movements to monitor and mobilize society on the importance of the National School Feeding Program (Pnae). Our goal is to expand listening, narratives, and dialogue with students and their families, family farmers, and members of councils working with school feeding, in order to collectively advocate for the defense of this program.
The National School Feeding Program (PNAE): A Pillar of Food and Nutrition Security in Brazil
The National School Feeding Program (PNAE) ensures healthy meals for public school students, strengthening food security and the local economy. However, challenges such as the lack of budget adjustments and the influence of the ultra-processed food industry threaten its effectiveness
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The National School Feeding Program (PNAE) is one of Brazil’s oldest and most robust public policies for Food and Nutrition Security (SAN) and one of the most comprehensive school feeding programs in the world. However, its consolidation as a universal policy based on the principles of the Human Right to Adequate Food and Nutrition (Dhana) was the result of decades of challenges and adjustments driven by civil society.
Created in 1955 with a welfare-oriented approach, the program initially provided food mainly to alleviate hunger, reduce malnutrition, and encourage school attendance—similar to other school feeding programs in Latin America, the Caribbean, and Africa. Over time, PNAE evolved, expanding its reach and strengthening its commitment to food security. Key transformations included the provision of fresher and healthier foods, the promotion of local food culture, the recognition of regional agricultural production, and the stimulation of the local economy. These changes were driven by political and social developments and the progressive institutionalization of the fight against hunger in the government agenda through new public policies and legal frameworks.
A Universal Right to School Feeding
The main goal of PNAE is to ensure the provision of healthy and adequate meals to all students in public basic education in Brazil. The program serves more than 40 million students in public and philanthropic schools and is funded exclusively by the National Treasury. At the federal level, the National Fund for Educational Development (FNDE)—an autonomous agency under the Ministry of Education—coordinates the program by setting general guidelines and transferring financial resources to states and municipalities, which are responsible for local implementation. This decentralized model allows local administrators to tailor the program to their specific contexts, considering cultural, regional, and structural factors.
School feeding in Brazil is recognized as a fundamental right, enshrined in the Federal Constitution and regulated by Law No. 11,947/2009. The principle of universality ensures that all public school students have access to school meals regardless of their socioeconomic status, reinforcing the program’s role in promoting food and nutrition security. However, while decentralization allows states and municipalities to adapt the program to local needs, it also presents challenges, particularly for municipalities with limited management capacity or insufficient financial resources to supplement federal funding.
Innovation Beyond School Meals
PNAE stands out for its innovative guidelines, which go beyond simply providing meals, transforming school feeding into a tool for health promotion, local economic development, and social participation. One of its major innovations is the requirement that at least 30% of federal funds allocated to the program be used to purchase food directly from family farmers. This policy strengthens small producers, stimulates local food production, and ensures fresh and diverse foods in schools.
Additionally, PNAE establishes clear health promotion guidelines, restricting the supply of ultra-processed foods while encouraging the inclusion of fresh or minimally processed foods. Another key aspect of the program is civil society participation in monitoring and oversight through School Feeding Councils (CAEs), which enhance transparency and social control, allowing different community sectors to oversee resource allocation and food quality.
Impact on Nutrition and Local Economies
Studies indicate that PNAE positively impacts students’ diets and nutritional status. Adolescents who consume school meals five times a week are more likely to have a higher-quality diet, including more beans and vegetables and less soda, compared to those who do not participate or do so less frequently. Additionally, high adherence to PNAE is associated with lower rates of overweight (11%) and obesity (24%).
By prioritizing food purchases from family farmers, PNAE also boosts local economies and strengthens sustainable food systems. However, challenges persist, such as the need for adequate infrastructure in schools for food storage and preparation, as well as logistical difficulties in delivering products to remote regions.
The Role of Civil Society in Defending PNAE
Civil society plays a key role in advocating for and strengthening the program. The School Feeding Observatory (ÓAÊ) has been one of the leading actors in this effort, conducting research, monitoring implementation, and engaging in political advocacy to ensure PNAE’s continuity and improvement. One of ÓAÊ’s main initiatives is the “Reajusta PNAE Sempre” (Adjust PNAE Always) campaign, which proposes creating a legal mechanism to guarantee annual adjustments in federal funding, correcting inflation losses and ensuring greater budget predictability for school feeding.
Currently, PNAE lacks a permanent adjustment mechanism, making it vulnerable to inflation and food price fluctuations. When adjustments do occur, they depend on government decisions and budget negotiations in Congress, without a transparent and predictable methodology. This jeopardizes the ability of states and municipalities to provide quality meals and directly affects compliance with the program’s nutritional guidelines.
A Global Model for School Feeding Policies
In recent years, strengthening school feeding policies has become a global trend, driven by the Sustainable Development Goals (SDGs). Governments worldwide have expanded their school feeding programs as a strategy to combat hunger, improve child nutrition, and support local economies. The PNAE model has served as a reference for many of these initiatives, and Brazil has been actively involved in international cooperation to support other countries in implementing similar policies. This cooperation occurs mainly through partnerships with the Food and Agriculture Organization (FAO) and the World Food Programme (WFP), as well as the recent launch of the Global Alliance Against Hunger by Brazil, which recognizes the importance of school feeding programs.
Despite its international recognition, PNAE faces significant challenges, particularly regarding the influence of the ultra-processed food industry on public policies. Corporate interests and conflicts of interest pose threats to the program’s integrity, potentially undermining its nutritional guidelines and the progress achieved over the years. It is crucial for civil society to remain vigilant and mobilized to ensure that PNAE remains aligned with the Human Right to Adequate Food and Nutrition (Dhana) and continues to contribute effectively to the health and well-being of future generations.
PNAE is a powerful tool for ensuring rights, promoting food security, and strengthening sustainable food systems. Its history and impact make it an inspiring model for other countries seeking to build public policies that integrate nutrition, education, and socio-economic development. The continued commitment of civil society and international cooperation will be essential to ensure its sustainability and improvement, guaranteeing that more children and adolescents have access to healthy and high-quality meals in schools.
This article is a summary of the publication “For School Feeding Programs Worldwide Aligned with the Principle of the Human Right to Adequate Food and Nutrition: A Contribution from Brazilian Civil Society”, available in Spanish here and English here.
Questions and answers
1. Who is entitled to receive free school meals?
The Pnae (National School Feeding Program) is universal, meaning that all students enrolled in basic education in public federal, state, district, and municipal schools (early childhood education, elementary school, high school, and education for young people and adults), as well as those enrolled in public, philanthropic, and community schools (partnered with the government), are entitled to school meals.
2. How does the National School Feeding Program work?
The National Fund for Education Development (FNDE), the institution responsible for PNAE at the national level and subordinated to the Ministry of Education, transfers financial resources to states, municipalities, and federal schools in 10 monthly installments (from February to November) to cover 200 school days, based on the number of enrolled students in each educational network. The federal government allocates the following amount per student per school day to states and municipalities:
| Modality | Amount in BRL | Amount in USD |
| Daycares (including those in indigenous areas and quilombola communities) | R$ 1.37 | US$ 0.23 |
| Preschool (except in indigenous and quilombola areas) | R$ 0.72 | US$ 0.12 |
| Indigenous and quilombola schools | R$ 0.86 | US$ 0.14 |
| Elementary and high school | R$ 0.50 | US$ 0.08 |
| Full-time education | R$ 1.37 | US$ 0.23 |
| Support for full-time high schools | R$ 2.56 | US$ 0.42 |
| Students receiving specialized educational support | R$ 0.68 | US$ 0.11 |
| Education for young people and adults | R$ 0.41 | US$ 0.07 |
These supplementary transfers must be complemented by the states’ and municipalities’ own resources. Although the Federal Constitution establishes the responsibility of all three government levels, it does not specify the minimum percentage that each level should invest. The reality is very unequal across the country, with some states and municipalities allocating their own budgets while others limit their investments to logistics and human resources. There is a need to demand more resources for school meals from all three levels of government. The program can be managed in a “centralized” manner, where the education departments acquire food and supply schools; “school-based,” where schools acquire the food themselves; or a combined model. Outsourced management by states and municipalities can only be done with their own funds, as federal resources are solely for food purchase. If a state or municipality wants to outsource, they must cover those costs with their own budget, without affecting the federal funds intended exclusively for school meals. The ÓAÊ (Observatory of School Feeding) opposes outsourcing. Of the funds transferred by the FNDE, about 30% (approximately R$ 1.2 billion annually, or US$ 197.37 million) must be allocated to directly purchasing food from family farming to generate income, stimulate local economies, improve the nutritional quality of meals, and value regional food culture.
3. What are the guidelines of PNAE?
According to Law No. 11.947/2009, the program’s guidelines are: I – Providing healthy and adequate food, using varied, safe foods that respect culture, traditions, and healthy eating habits, contributing to student growth and development and improving school performance, in accordance with their age and health, including those needing specific attention. II – Including food and nutrition education in the teaching and learning process, addressing food, nutrition, and healthy lifestyle practices within the context of food security and nutrition. III – Ensuring universal access for students enrolled in public basic education. IV – Ensuring community participation in social control and monitoring actions by states, the Federal District, and municipalities to guarantee the provision of healthy and adequate school meals. V – Supporting sustainable development, with incentives for purchasing diverse food products produced locally, preferably by family farming and rural family entrepreneurs, prioritizing indigenous and quilombola communities. VI – Guaranteeing the right to school meals to ensure students’ food and nutritional security, with equal access, respecting biological differences related to age, health conditions, and those in social vulnerability.
4. What foods should be served to students?
School menus should be developed by a responsible nutritionist based on the Food Guide for the Brazilian Population and the Food Guide for Brazilian Children under 2 years old, using minimally processed or fresh foods, respecting nutritional needs, eating habits, local food culture, sustainability, and regional agricultural diversity. Menus should accommodate students with special dietary needs, such as celiac disease, diabetes, hypertension, anemia, allergies, and intolerances. They should also respect the cultural specifics of indigenous and quilombola communities. In part-time schools, at least 280g per student per week of fresh fruits, vegetables, and legumes (FLV) must be offered. In full-time schools, at least 520g per student per week of FLV must be provided. Lactose beverages with additives or sweeteners should be limited to a maximum of once per month in part-time schools and twice per month in full-time schools. Biscuits, cookies, bread, or cakes should be offered at most twice a week in part-time schools, three times a week when two or more meals are served, and seven times a week in full-time schools. Trans fats in industrialized foods are prohibited in all menus. The offering of ultraprocessed foods and the addition of sugar, honey, or sweeteners in food and beverages for children under three years old is prohibited. Further details can be found in FNDE Resolution No. 06/2020.
5. How does the purchase of food from family farming work?
According to Law 11.947/2009, at least 30% of the resources transferred by the FNDE to states and municipalities must be used to directly purchase food from family farming and rural family entrepreneurs, or their organizations, prioritizing agrarian reform settlements, indigenous communities, and quilombola communities. Food from family farming can be purchased through public calls, which specify the foods and quantities based on the menus developed by the responsible nutritionist. The government can only purchase directly from family farming and their organizations, without intermediaries. Only family farmers and rural entrepreneurs registered in the National Family Farming Register (CAF) can supply food to Pnae.
6. What are the School Feeding Councils?
The School Feeding Councils (CAE) are formal spaces for social participation in the program, mandatory in every state and municipality, linked to education departments. They are collegiate bodies of oversight, permanence, deliberation, and advisory. The CAEs’ responsibilities include:
- Monitoring and overseeing the application of resources and PNAE execution.
- Analyzing financial reports.
- Reporting irregularities to FNDE, the Federal Court of Accounts, the General Comptroller of the Union, the Public Prosecutor’s Office, and other control bodies.
- Preparing the Action Plan for PNAE monitoring. CAEs must be composed of:
- One representative appointed by the Executive Power.
- Two representatives from education workers’ and students’ organizations.
- Two representatives from parents of students.
- Two representatives from organized civil society organizations. The CAEs may have more members, following proportionality. Members serve four-year terms and can be re-elected. CAEs in states and municipalities with indigenous and quilombola schools must include at least one representative from these communities. For proper functioning, the government must ensure: a) financial and human resources, a suitable meeting space; b) computer equipment; c) transportation for monitoring; d) sending documents related to PNAE execution; e) training for council members.
7. Does Pnae work the same in all public schools in Brazil?
Although national guidelines exist, the program’s implementation varies between states and municipalities based on local management capacity, budgets, and the organization of School Feeding Councils (CAE). For example, while the guidelines for purchasing food and defining menus must be followed, they can be adapted locally, considering regional eating habits and the availability of family farming food. However, in municipalities with lower revenues or political disinterest, FNDE resources are often the primary funding source for school meals, which may lead to insufficient or poor-quality meals.
8. How does intersectorality function in Pnae?
Pnae’s integration with other public policies—such as health, social development, and the environment—is a key pillar for ensuring food security and nutrition. This integration is reflected in the program’s design, which links education, health, agriculture, and environmental actions. Pnae also has two institutional mechanisms for integration: the Interministerial Management Committee and the Advisory Committee, the latter including civil society representatives. Despite progress, further strengthening of intersectoral coordination is needed.
9. How does Pnae contribute to creating healthy school food environments beyond meals?
The federal government guarantees a broad approach to promoting healthy school food environments through the integration of various policies in education, health, and food security. Pnae’s guidelines align with the Brazilian Food Guides and national strategies for Food and Nutrition Education (EAN), regulating the types of foods allowed, limited, or prohibited in school meals. Additionally, the program limits the sale and advertising of foods in schools, reducing the influence of the food industry on students.
10. What are the main challenges in effectively implementing public purchases from family farming?
Despite Pnae’s encouragement of direct purchases from family farming, challenges remain, including the need for effective local management, bureaucratic hurdles, inadequate technical assistance, and logistical issues, especially in rural areas. Delays in government payments and lack of credit also discourage farmer participation.
11. How is the program funded?
Pnae’s funding comes from the federal government, states, and municipalities, with the federal budget for 2024 set at R$ 5.7 billion (US$ 937.5 million). While federal transfers cover food purchases, states and municipalities must contribute additional funds for adequate meals and operational costs.
12. What are the kitchen management models in Pnae?
Meals can be prepared in centralized kitchens (serving all students) or decentralized kitchens (prepared and distributed at the school). The preferred model is one where food is prepared on-site at schools, ensuring fresh and culturally appropriate meals. Proper infrastructure and trained staff are key to ensuring meal quality and student engagement in nutrition education.
Collection
Starting in May 2020, new national legislation (Resolution CD/FNDE No. 6, of May 8, 2020) established new guidelines for school meals, aligning the PNAE with the Brazilian Food-Based Dietary Guidelines, which had been published in 2015. The PNAE further reinforces the promotion of healthy and sustainable eating practices, in line with the recommendations of the Guidelines, which prioritize the consumption of fresh and minimally processed foods, while restricting ultra-processed foods in the school menu.
Year of publication: 2015
The document outlines the development and implementation of Brazil’s National School Feeding Program (PNAE). It highlights the legal and institutional frameworks supporting food and nutrition security (FNS), emphasizing key programs such as the Food Acquisition Programme (PAA) and Bolsa Família. Central to this approach is the requirement that 30% of school food purchases come from smallholder farmers, fostering local economies and promoting sustainable food systems.
Year of publication: 2018
The document addresses the National School Feeding Program (PNAE), highlighting the monitoring and social control mechanisms that ensure the program’s proper implementation. It discusses how resources are supervised, with emphasis on the role of School Feeding Councils (CAE), which oversee food quality, sanitary conditions, and the appropriate use of public funds. It also mentions digital tools like the ePnae app, which allows community involvement in monitoring, and outlines challenges in executing the program nationwide.
Year of publication: 2024
This is a document from the Brazil-FAO South-South Technical Cooperation Project on school feeding, aimed at strengthening and consolidating school feeding programs in the Latin America and Caribbean region. One of the methodologies used was the implementation of pilot programs called “Sustainable Schools (SS).” This material outlines each of the components and suggested steps for implementing SS in countries interested in enhancing their school feeding programs.
Year of publication: 2020
School feeding initiatives have existed in Brazil for over 60 years. However, it was only in 2009 that PNAE, in its current form, was officially regulated by a legal instrument, Law 11.947, which establishes guidelines for the program. It defines school feeding as a right for students in basic education and a responsibility of the State. The law also mandates that at least 30% of the food purchased for PNAE comes from family farming. Additionally, it highlights the role of nutritionists in menu planning and encourages community participation in social control and quality monitoring.
Year of publication: 2009
The document presents an evaluation of the implementation of the Sustainable Schools (SS) methodology in Latin America and the Caribbean, with a special focus on the role of South-South Cooperation facilitated by the Brazil-FAO International Cooperation Program. The report analyzes the progress and challenges of the School Feeding Programs (SFP), which aim to guarantee access to nutritious food for children in public schools, while also promoting educational practices in nutrition and agriculture. Technical cooperation between Brazil and the FAO, utilizing Brazil’s experience with school feeding, has served as a model for other countries and has been fundamental in the expansion of this methodology in the region, with an emphasis on horizontal collaboration and respect for the sovereignty of countries.
Year of publication: 2022
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