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REFERENCE NOTE . No. 20 / RN/ Ref./ August/ 2013

For the use of Members of Parliament Not for Publication

Mid-Day Meal Scheme

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Mid-Day Meal Scheme

1. Introduction

The concept of mid-day meal scheme is not new in India as its roots can be

traced back to pre independence era when British administration initiated a Mid Day

Meal Programme for disadvantage children in Madras Municipal Corporation in 1925.

Like this many such programmes were initiated in different states. In 1953,

Government of Uttar Pradesh started another such scheme. Tamil Nadu became the

first state in India to introduce a noon meal programme in primary schools. In 1984 this

scheme was introduced in Gujarat. From time to time the meal scheme was taken up

by different states and later on it was taken up as a national scheme1.

Government of India launched National Programme of Nutritional Support to

Primary Education (Commonly known as Mid-Day Meal Scheme) on August 15,

1995 to provide mid-day meal to the children studying at primary stage2. In 2002, the

Supreme Court directed the Government to provide cooked Mid-Day Meals (as

apposed to providing dry rations) in all Government and Government aided primary

schools3. It was revised in September 2004 and in September 20064.

2. Objectives of Mid-Day Meal Scheme The objectives of the Mid-Day Meal Scheme is to address two of the pressing

problems for majority of children in India, viz. hunger and education by:

(i) Improving the nutritional status of children in classes I VIII in Government, Local Body and Government aided schools, and Education Guarantee Scheme (EGS) and Alternative and Innovative Education (AIE) centers, National Child Labour Project (NCLP) Schools and Madarasa and Maqtabs supported under Sarva Shiksha Abhiyan (SSA).

1 www.mapsofindia.com 2 India. Rajya Sabha, Department Related Parliament Standing Committee on Human Resources

Development, 191st Report on Implementation of Sarva Shiksha Abhiyan, and Mid-Day Meal. Rajya Sabha Secretariat, 2007, p. iii 3 www.prsindia.org 4 op.cit, Department Related Parliament Standing Committee on HRD 191st Report, p. iii

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(ii) Encouraging poor children, belonging to disadvantaged sections, to attend school more regularly and help them concentrate on classroom activities.

(iii) Providing nutritional support to children of elementary stage in drought-affected

areas during summer vacation.5

3. Coverage in Mid-Day Meal Scheme MDMS covered 7.18 crore primary school children and 3.36 crore upper

primary school children in 201011. The coverage of children in the States of Bihar (43

per cent), UP (57 per cent) and Jharkhand (58 per cent) is below the national average

of 72 per cent, whereas it is well above the national average in Chhattisgarh (83 per

cent) and Odisha (82 per cent). Based on the Annual Work Plan and Budget of the

States/UTs for the year 201213, the district-wise performance of the MDMS in all the

States/UTs has been analysed and the poor performing districts (144) have been

identified for focused attention. Of the poor performing districts, 17 are in areas

affected by the Left Wing Extremism (LWE); 11 in the North Eastern States (Tripura

3, Meghalaya4, Assam4); 17 in tribal districts, and 13 in the hilly areas

(Uttarakhand4, J&K9).6

MDMS is the worlds largest school meal programme and reaches an estimated 11 crore children across 12 lakh schools in India. (www.mdms.nic.in) 4. Prescribed Nutritional Content for Mid-Day Meal

To achieve the objectives of the Scheme, the guidelines prescribe the following

nutritional content in the mid day meal:

Table 1: Prescribed nutritional content for Mid-Day Meals

Item Primary (grade 1-5) Upper Primary (grade 6-8)

Calories 450 700

Protein (in grams) 12 20

5 India. Ministry of Human Resources & Development, Deptt. of Higher Education & Literacy, Annual

Report 2011-12, pp. 37-38 6 India, Planning Commission Draft Twelfth Five-Year Plan 2012-17, p.66

3

The above nutritional content is ensured through a package consisting of the

following ingredients per child per school day7.

S. No. Item Primary Upper Primary

1 Rice / Wheat 100 gms 150 gms

2 Pulses 20 gms 30 gms

3 Vegetables 50 gms 75 gms

4 Oil 5 gms 7.5 gms

5 Micro-nutrients Adequate quantities of micro-nutrients like Iron, Folic Acid, Vitamin-A etc. in convergence with NRHM

5. Financial Components of the Mid-Day Meal Scheme

Presently, Mid-Day Meal Scheme provides the following assistance to State

Government / UT Administrations:

(i) Supply of free food grains (wheat/rice) @100 grams per child per school day for

primary & @150 gram per child per school day for upper primary and NCLP

children from the nearest FCI go-down.

(ii) Transportation assistance (TA) effective from 01.04.2010 in the 11 Special

Category States (viz. Assam, Arunachal Pradesh, Himachal Pradesh, Jammu &

Kashmir, Manipur, Meghalaya, Mizoram, Nagaland, Sikkim, Uttarakhand and

Tripura) at par with the PDS rates prevalent in these States. In case of all other

States/UTs, the TA is reimbursed on the basis of the actual cost incurred in

transportation of food grains from nearest FCI godown to the school subject to

the ceiling of Rs. 75/- per quintal.

(iii) Cooking cost has been revised from 01.12.2009 (excluding the labour and

administrative charges) to Rs. 2.50 for primary and Rs. 3.75 for upper primary

children and further enhanced by 7.5% on 01.04.2010 i.e. Rs. 2.69 for primary

and Rs. 4.03 for upper primary and again revised on 01.04.2011 @7.5%. The

7 op.cit, Annual Report 2011-12, pp. 38-39

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cooking cost is being shared between the Centre and the NER States on 90:10

basis and with other States/UTs on 75:25 basis. Accordingly, the share of the

Centre and the minimum share of the State/UTs is currently as under:

Stage Total Cost per meal

Centre-State Sharing

Non-NER States (75:25)

NER States (90:10)

Centre State Centre State

Primary Rs. 2.89 Rs. 2.17 Rs. 0.72 Rs 2.60 Rs. 0.29

Upper Primary

Rs. 4.33 Rs. 3.25 Rs. 1.08 Rs. 3.90 Rs. 0.43

Cooking Cost proposed for the year 2012-13

Stage Total Cost per meal

Centre-State Sharing

Non-NER States (75:25)

NER States (90:10)

Centre State Centre State

Primary Rs. 3.11 Rs. 2.33 Rs. 0.78 Rs 2.80 Rs. 0.31

Upper Primary

Rs. 4.65 Rs. 3.49 Rs. 1.16 Rs. 4.19 Rs. 0.46

Cooking cost includes costs of pulses, vegetables, cooking oil and condiments,

fuel etc.

(iv) Instead of a flat rate of Rs. 60,000 for construction of kitchen-cum-store per

school across the country, effective from 01.12.2009, the construction cost is to

be determined on the basis of plinth area norms and State Schedule of Rates

prevalent in the State/UT. The cost of construction of Kitchen-cum-Stores is to

be shared between the Centre and the NER States on 90:10 basis and with

other States/UT on 75:25 basis.

(v) Honorarium of Rs. 1,000 per month from 01.12.2009 to cook-cum-helper and

engagement of one cook-cum-helper for schools upto 25 students, two cooks-

cum-helpers for schools with 26 to 100 students and one additional cook-cum-

helper for every addition of upto 100 students. The expenditure towards the

honorarium of cook-cum-helper is to be shared between the Centre and the

NER States on 90:10 basis and with other States/UTs on 75:25 basis.

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(vi) Assistance for management, Monitoring & Evaluation (MME) of the Scheme at

the rate of 1.8% of the total assistance for (a) cost of food grains, (b)

transportation cost, (c) cooking cost and (d) honorarium to cook-cum-helpers. 8

6. Monitoring and Evaluation

The Department of School Education and Literacy, Ministry of Human Resource

Development has prescribed a comprehensive and elaborate mechanism for

monitoring and supervision of the Mid Day Meal Scheme. The monitoring mechanism

includes the following:

(a) Arrangements for local level monitoring Representatives of Gram

Panchayats / Gram Sabhas, members of South Delhi Municipal Corporations

(SDMCs) as well as Mothers Committees are required to monitor the: (i)

regularity and wholesomeness of the mid day meal served to children, (ii)

cleanliness in cooking and serving of the mid day meal, (iii) timeliness in

procurement of good quality ingredients, fuel, etc. (iv) implementation of

varied menu and (v) social and gender equity. This is required to be done on

a daily basis.

(b) Display of Information under Right to Information Act in order to ensure

that there is transparency and accountability, all schools and centres where

the programme is being implemented are required to display information

suo-moto.

(c) Inspections by State Government Officers is required to inspect schools

and centres where the programme is being implemented.

(d) Responsibility of Food Corporation of India (FCI) is responsible for the

continuous availability of adequate food grains in its Depots. It is mandated

to issue food grains of best available quality.9

8 ibid, pp. 39-40. 9 India 2013, a reference annual, p. 236-37

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7. Task of Cooking

The Guidelines provide that, as far as possible, the responsibility of

cooking/supply of cooked mid day meal should be assigned to local womens /

mothers Self-Help Group or local Youth Club affiliated to the Nehru Yuva Kendras or

an voluntary organisation or by personnel engaged directly by the SMDC/Gram

Panchayat/Municipality-Involvement of Self Help Groups under the scheme is

increasing gradually.10 Number of Cooks-cum-Helpers approved, engaged and

honorarium paid is given at Annexure VII.

24 lakh cook-cum-helper from SC/ST/OBC community are engaged in the task of

cooking. (www.mdms.nic.in)

8. Quality of Mid Day Meal

Quality of MDM largely depends on the quality of food grains. FCI is held

responsible for issue of food grains of best available quality, which will in any case be

at least of Fair Average Quality (FAQ). FCI appoints a Nodal Officer for each State to

take care of various problems in supply of food grains under the MDM Programme.

The District Collector / Chief Executive Officer (CEO) of Zila Panchayat ensures that

food grains of at least FAQ are lifted after joint inspection by a team consisting of FCI

and the nominee o the Collector and / or Chief Executive Officer, District Panchayat,

and confirmation by them that the grain conforms to at least FAQ norms.

Quality, safety and hygiene specifications have been prescribed in the

Guidelines. It is also provided that 2-3 adults members, of them atleast one being

teacher, must taste the food before it is served to the children. Although the guidelines

provide for inspection of 25% schools / EGS / AIE centres every quarter by the

supervisory officer but due to shortage of officers / staff and resources, intense and

frequent inspection of the programme is not happening in the expected manner. The

guidelines also provide for active community participation for the supervision and

10 op.cit, Annual Report, p. 42

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monitoring of the programme. For a programme of this magnitude, the key of success

lies in the active and meaningful involvement of the community.11

9. Achievement of MDMS

Achievement of MDMS during the period 2005-06 to 2011-12 are given below:

Components 2005-06 2006-07 2007-08* 2008-09* 2009-10* 2010-11* 2011-12*

Children

covered (in

Crore)

11.94 10.68 11.37 11.19 11.36 10.46 10.35

up to

30.09.11

Food grain

allocated (in

lakh MTs)

22.51 21.60 24.79 29.30 27.71 29.40 29.09

Budget

allocation

(in Crore)

3345.26 5348.00 6678.00 8000.00 7359.15 9440.00 10380.00

Total Exp.

(in Crore)

3186.33 5233.47 5835.44 6688.02 6937.79 9128.44 7697.24

up to

29.12.11

*Primary and Upper Primary combined

Source: Annual Report,2011-12, Department of School Education & Literacy Department of Higher Education,

Ministry of Human Resource Development, Govt. of India, p.42

State wise details of achievements are given at Annexurex I, II, III and IV.

10. Infrastructure Development

(i) Construction of Kitchen Sheds In the year 2006-07, Central Assistance towards construction of Kitchen-cum-

Stores @Rs. 60,000 per unit to the States / UTs was introduced under MDM Scheme

in the year 2006-07. The cost of construction of Kitchen-cum-Store on the basis of

plinth area norms (24 sq. meter per 100 child and 4 sq. meter additional space for

each additional 100 children) and State Schedule of Rates has been provided to

States during the year 2009-10. It was decided to fill the infrastructure gap in a phased

manner over a period of time.

11 op.cit, Annual Report 2011-12, p.42

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The Central assistance of Rs. 5962.17 Crores has already been released to

States / UTs for construction of 8,73,748 Kitchen Sheds as per details given below:

Sl. No. Year Units Amount (Crore)

a) 2006-07 2,21,039 Rs. 1,326.00

b) 2007-08 2,22,849 Rs. 1,337.00

c) 2008-09 2,95,346 Rs. 1,771.64

d) 2009-10 1,03,555 Rs. 1,044.29

e) 2010-11 28,897 Rs. 437.714

f) 2011-12 2,062 Rs. 45.20

TOTAL 8,73,748 Rs. 5962.17

Out of 8,73,748 sanctioned Kitchen sheds, 6,30,923 Kitchen sheds have been

constructed till 30.09.2011. 9800 Kitchen sheds have been approved by Programme

Approved Board (PAB)-MDM for the year 2011-12.12 State wise physical process

towards the construction of Kitchen-cum-store is given at Annexure V.

5.77 lakh Kitchen-cum-Store have been built to ensure the safety of food grains.

(www.mdms.nic.in)

(ii) Procurement of Kitchen Devices

The Central assistance towards procurement of Kitchen Devices @Rs. 5,000

per school was introduced in the year 2006-07. So far, Central assistance of Rs.

574.44 Crores has already been released to States / UTs for procurement of Kitchen

Devices in 11.49 lakhs schools, the details of which are as under13:

Sl. No. Year Units Amount (Crore)

a) 2006-07 5,20,944 Rs. 260.47

b) 2007-08 2,13,521 Rs. 106.78

c) 2008-09 1,21,212 Rs. 60.61

12 op.cit, Annual Report 2011-12, p. 43. 13 ibid., p. 43

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d) 2009-10 2,70,096 Rs. 135.05

e) 2010-11 5,795 Rs. 2.90

f) 2011-12 17,259 Rs. 8.63

TOTAL 11,48,827 Rs. 574.44

State wise physical progress towards procurement of Kitchen devices is given at Annexure VI.

11. MDMS in Twelfth Five-Year Plan (2012-17)

During the Twelfth Plan, MDMS will be expanded to cover pre-primary schooling

in a progressive manner, private unaided schools, particularly in the SC/ST and

minority-concentrated areas, and poor children admitted in neighbourhood private

schools against the 25 per cent earmarked seats as per provisions of the RTE Act.

Partnerships with panchayats and municipalities, as well as with other NGOs and

government agencies may be developed to ensure good-quality, nutritious and regular

supply of food to all children. Over a period of time, this will provide good longitudinal

data on the impact of MDMS.14

Recent Development

Recently 22 children in Bihar died due to the presence of pesticides in the food

served under the Mid-Day Meal Scheme and 79 students of a government school in

Bhilwara district of Rajasthan were admitted to hospital as they fell ill after consuming

mid-day meal. This happened because of the food poisoning caused by the dead lizard

found in the food. There are more to this, such as, in 2011, 126 students at a

Sarvodaya Vidyalaya fell ill after having a mid-day meal, insects were found in the mid-

day meals served in Assam, 42 students fell ill after consuming a mid-day meal at

Haryana.15

In the wake of Mid-Day Meal Tragedy, the Center has decided to constitute a

monitoring committee to look into the quality of food supplied and ensure effectiveness

14 op.cit, Twelfth Five-Year Plan, p. 66 15 An Article dated 03.08.2013 by Ramandeep Kaur at www.mapsofindia.com .

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of the supply chain and proper hygiene. The Committee is expected to supplement the

efforts of the existing Mid-Day Meal monitoring committee which meets twice a year

and warns the status if there are any short comings16.

The Human Resources Development Ministry has asked all states to set up

decentralised monitoring units, increase public awareness about the mid day meal so

that parents can keep a watch, and to set up monthly monitoring by community

committee headed by the local Member of Parliament.

The Ministry has issued guidelines to all states to ensure quality, safety and

hygiene under the Mid-Day Meal Scheme. Aside from making it mandatory for a

teacher to taste the food before serving it to the school children, the Ministry has asked

that a member of the school management committee should also be present and taste

the meal. A rotation system will need to be worked out for this. The school

management committee includes village functionaries, school administration, parents.

Stressing on the need for safety and hygiene, the Ministry has asked all states

to use the kitchen-cum store designs that had been circulated earlier. It has asked

states to work with the Home Science Departments in universities and colleges to

upgrade and train cooks and their helpers so that proper hygiene and food safety is

maintained. Additionally, proper labeling, use of separate bins have also been

suggested. Many schools have no proper systems of storage. The order takes note of

the prevalent practice of storing food items in the principal or headmaster's home. The

Ministry makes clear that such a system will not be acceptable.

Another intervention that has been suggested is putting in place an emergency

medical plan. The absence of a proper plan resulted in higher fatalities in Bihar. The

Ministry has suggested periodic testing of food at reputed or certified laboratories.

It has stressed on the need for regular monitoring at the state and district level

as well. It has asked that the district monitoring committee headed by the district

16 PTI, New Delhi, 18.07.2013

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magistrate, must include the local member of Parliament. These meetings must be

held every quarter.

As a form of external check, the Ministry has asked that schools display the

entitlements under the programme in a prominent manner, preferably painted on a

school wall, to ensure that parents are aware of what their children should get as part

of the mid day meal17.

17 The Economic Times, 03.08.2013, Article by Urmi Goswami.