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Universal Primary Free School Meals in London: Interim Report. Evaluation Report

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Bibliographic Details
Title: Universal Primary Free School Meals in London: Interim Report. Evaluation Report
Language: English
Authors: Mark Hardman, Sam Sims, Jake Anders, Claire Crawford, Francesca McCarthy, Kusha Anand, Claire Pillinger, Sally Riordan, Stefanie Meliss, Education Endowment Foundation (EEF) (United Kingdom), University College London (UCL) (United Kingdom)
Source: Education Endowment Foundation. 2025.
Availability: Education Endowment Foundation. 9th Floor Millbank Tower, Millbank, London, SW1P 4QP, UK. Tel: +44-207-802-1676; e-mail: info@eefoundation.org.uk; Web site: https://educationendowmentfoundation.org.uk/
Peer Reviewed: Y
Page Count: 89
Publication Date: 2025
Document Type: Reports - Research
Education Level: Elementary Education
Descriptors: Foreign Countries, Elementary Schools, Elementary School Students, Eligibility, Educational Policy, Lunch Programs, Breakfast Programs, Program Effectiveness, Achievement Gains, Family Attitudes, Program Implementation, Fidelity, Student Needs, Student Attitudes, Attendance, Student Behavior, Well Being, Financial Problems, Expenditures, Barriers
Geographic Terms: United Kingdom (London)
Abstract: In February 2023, the Mayor of London, Sir Sadiq Khan, announced that the Greater London Authority (GLA) would fund free school meals (FSM) for all Key Stage 2 pupils in state primary schools, extending provision to those previously ineligible under the means test and achieving universal primary free school meals (UPFSM) in London (UPFSML). Initially limited to 2023/2024, the policy has since been extended for four more academic years. The introduction of this policy offered an opportunity to research the impact of FSM provision on different aspects of children's, families', and education providers' experiences, education and health outcomes, and well-being. In England, FSM were previously provided for all state school pupils aged between Reception and Year 2, and for older children living in households that receive Universal Credit with an annual income of below £7,400, among other low-income eligibility criteria. Concerns have been raised that this threshold for means-tested FSM may disqualify some children who are also living in financially struggling families. The UPFSML policy was primarily introduced to support families during a time of high cost of living and improve children's 'readiness to learn', though its Theory of Change (outlined below) suggests broader benefits for educational outcomes, family well-being, local economies, and the environment. The GLA provided around £2.65 per meal in 2023/2024, distributed to schools via local authorities. Schools then procured and provided lunches in line with nutritional standards. The policy was expected to benefit around 270,000 pupils across 1,800 schools, saving parents around £440 per child in 2023/2024. Pupils were not required to take up the meals and may bring packed lunches instead. Additional funding was provided by the GLA for Special Educational Needs and Disabilities (SEND) schools, Jewish schools, and schools where uptake was greater than 90%. This interim report provides the findings from a quasi-experimental intention-to-treat (ITT) evaluation of the effects of the policy on educational achievement and school attendance in the academic year of 2023/2024. The trial uses a difference-in-difference evaluation design to exploit comparisons over time between 27 London boroughs that started to offer UPFSM in September 2023 with local authorities outside of London that do not offer UPFSM. A further triple-difference design explores an additional comparison over time with two London boroughs (Southwark and Tower Hamlets) that already had UPFSM prior to the 2023 London-wide introduction of the policy. The report also includes an extensive implementation and process evaluation (IPE) making use of case studies, parent and head-teacher surveys, interviews, child focus groups, and lunchtime observations. Although the policy was introduced primarily as a cost-of-living measure, it also created an opportunity to understand how universal FSM provision might affect other outcomes such as attainment and well-being. The Education Endowment Foundation (EEF) commissioned this evaluation to help build that evidence base.
Abstractor: ERIC
Entry Date: 2026
Accession Number: ED680944
Database: ERIC
Description
Abstract:In February 2023, the Mayor of London, Sir Sadiq Khan, announced that the Greater London Authority (GLA) would fund free school meals (FSM) for all Key Stage 2 pupils in state primary schools, extending provision to those previously ineligible under the means test and achieving universal primary free school meals (UPFSM) in London (UPFSML). Initially limited to 2023/2024, the policy has since been extended for four more academic years. The introduction of this policy offered an opportunity to research the impact of FSM provision on different aspects of children's, families', and education providers' experiences, education and health outcomes, and well-being. In England, FSM were previously provided for all state school pupils aged between Reception and Year 2, and for older children living in households that receive Universal Credit with an annual income of below £7,400, among other low-income eligibility criteria. Concerns have been raised that this threshold for means-tested FSM may disqualify some children who are also living in financially struggling families. The UPFSML policy was primarily introduced to support families during a time of high cost of living and improve children's 'readiness to learn', though its Theory of Change (outlined below) suggests broader benefits for educational outcomes, family well-being, local economies, and the environment. The GLA provided around £2.65 per meal in 2023/2024, distributed to schools via local authorities. Schools then procured and provided lunches in line with nutritional standards. The policy was expected to benefit around 270,000 pupils across 1,800 schools, saving parents around £440 per child in 2023/2024. Pupils were not required to take up the meals and may bring packed lunches instead. Additional funding was provided by the GLA for Special Educational Needs and Disabilities (SEND) schools, Jewish schools, and schools where uptake was greater than 90%. This interim report provides the findings from a quasi-experimental intention-to-treat (ITT) evaluation of the effects of the policy on educational achievement and school attendance in the academic year of 2023/2024. The trial uses a difference-in-difference evaluation design to exploit comparisons over time between 27 London boroughs that started to offer UPFSM in September 2023 with local authorities outside of London that do not offer UPFSM. A further triple-difference design explores an additional comparison over time with two London boroughs (Southwark and Tower Hamlets) that already had UPFSM prior to the 2023 London-wide introduction of the policy. The report also includes an extensive implementation and process evaluation (IPE) making use of case studies, parent and head-teacher surveys, interviews, child focus groups, and lunchtime observations. Although the policy was introduced primarily as a cost-of-living measure, it also created an opportunity to understand how universal FSM provision might affect other outcomes such as attainment and well-being. The Education Endowment Foundation (EEF) commissioned this evaluation to help build that evidence base.