Evaluation of Universal Primary Free Schools Meals: second interim report (summary)

This report presents findings from a survey of parents and carers undertaken between October and December 2025, as part of ICF Consultancy Ltd.’s (ICF) evaluation of the Universal Primary Free School Meals (UPFSM) policy commissioned by the previous Welsh Government. It builds on the first Interim Report by providing insights into respondents’ experiences of the policy, perceptions of its impacts, factors influencing uptake and the extent to which anticipated benefits are emerging.

The policy was fully rolled out across Wales between September 2022 and September 2024, extending entitlement to a free school meal to all primary-aged learners attending maintained schools. UPFSM ensures that all primary-aged children attending a local authority (LA) maintained school in Wales have access to a free school meal. The policy emerged in response to growing concerns about food insecurity and the rising cost of living, both of which were exacerbated by the coronavirus (COVID-19) pandemic.

ICF’s online survey for parents and carers was open between October and December 2025. It received 1,517 completed responses from parents and carers of primary-aged learners across Wales. Schools were invited to distribute the survey link through their usual communication channels to parents and carers. Participation was voluntary. The questionnaire was informed by the evaluation’s Theory of Change and explored awareness of the policy, school meal uptake, parent and carer perceptions of the policy’s impacts on children’s health and wellbeing, experiences of school life, and effects on family finances and household circumstances. Quantitative responses were analysed using descriptive and comparative statistical techniques, while open-text responses were analysed thematically to identify recurring experiences and perspectives. The achieved survey sample was self-selected rather than representative of the population of parents and carers in Wales. Findings should therefore be interpreted as reflecting the views and experiences of respondents rather than all parents and carers in Wales.

Overall, awareness and support for the policy were exceptionally high among survey respondents. Nearly all respondents (98%) were aware of UPFSM and many expressed strong support for the principle of universal provision. Parents and carers responding to the survey commonly viewed the policy as fair, highlighting its role in ensuring equal access to meals, reducing stigma associated with income-related means-tested free school meals and providing financial support to families. While some respondents raised concerns about the policy’s value for money or argued that the policy should be targeted more closely towards families perceived to be in greatest need, these views represented a minority of responses.

Among survey respondents, school meal uptake is high. Nearly all respondents (92%) reported that their child eats at least one school meal each week, while 58% reported that their child eats a school meal every day.

Among respondents whose child was already in school when the policy was introduced, just under half said that their child now eats more school meals each week than before the introduction of UPFSM. However, uptake patterns were not uniform. Reported uptake was lower and in some cases declining among lower-income households, whose respondents were less likely to report increases in school meal uptake following the introduction of the policy. At the same time, reported uptake among younger learners from lower-income households was higher than that reported for older learners from the same income groups. One possible explanation is that children who have experienced universal provision from the beginning of primary school view school meals as a normal part of the school day, which could support higher participation rates as they get older. However, as the data provide only a snapshot in time, it is not possible to determine whether this reflects a lasting change in participation patterns or age-related differences in school meal use.

Cost and convenience were the most commonly selected reasons for choosing school meals among survey respondents. Parents and carers most frequently reported choosing school meals because they are free and because they are more convenient than preparing packed lunches. Conversely, the most frequently cited barriers were limited menu choice, children disliking the food and a preference for packed lunches. Respondents also raised concerns about portion sizes, food quality and the suitability of meals for children with allergies, dietary restrictions or sensory needs. These findings suggest that while making school meals free is an important driver of uptake, respondents also identified the appeal, variety and suitability of the school meal offer as important considerations when deciding to take up a school meal.

Respondents largely viewed UPFSM as having a positive effect on children health and wellbeing. Most considered school meals to be healthy and nutritious, while almost two-thirds felt that the policy had improved their child’s health and wellbeing. Reported benefits included perceived improvements in access to a hot and balanced meal during the school day, increased willingness among children to try new foods and perceived improvements in energy levels, concentration and readiness for afternoon learning. Respondents also highlighted wider social and emotional benefits, including greater inclusion at lunchtime and reduced stigma associated with receiving free school meals. Positive impacts were reported across all income groups, although respondents from some groups, particularly lower- and middle-income households, were more likely than those from higher-income households to report positive impacts.

The survey suggests that many parents and carers perceived UPFSM to be having a positive effect on their child’s experiences of school, although perceived impacts on the wider school environment were more limited. Many respondents reported that their child enjoys lunchtime more since the introduction of the policy, and parents and carers also reported perceived improvements in their child’s enjoyment of school, energy levels for afternoon activities and concentration during lessons. Respondents whose child was eligible for income-related means-tested free school meals (eFSM) and those from lower-income households were often more likely to report these perceived positive outcomes. One possible interpretation is that respondents from these groups were more likely to perceive benefits where the policy represented a meaningful change to their child’s access to food during the school day.

Perceptions of the dining environment, lunch queues, staffing levels and noise were generally neutral. Most respondents either said that their child had not mentioned any changes since the introduction of UPFSM or selected “don’t know”.  Where respondents reported that their child had mentioned a change, positive and negative changes were reported in broadly similar proportions. Respondents whose child has additional learning needs (ALN) were somewhat less likely than those whose child does not have ALN to report that their child had mentioned positive changes to the lunchtime experience.

Survey responses strongly suggest that respondents perceived financial benefits from UPFSM. Most respondents reported cost savings associated with the policy, either from no longer paying for school meals, preparing fewer packed lunches, or a combination of the two. Respondents also commonly reported reduced financial worry and time savings from no longer needing to prepare packed lunches. These perceived benefits were reported across all demographic groups, although they were often reported more frequently from lower- and middle-income households.

Beyond direct financial impacts, respondents also reported a range of broader family-level benefits. Many said they were less concerned about whether their child was getting enough food during the school day, while others reported that their child was trying a wider variety of foods. However, there was little evidence from survey responses that these changes were associated with changes in household cooking practices or family food behaviours, suggesting that respondents were more likely to identify benefits relating to their child’s experiences during the school day than changes within the home environment.

The survey findings suggest that UPFSM is becoming an established and valued part of school life in Wales, with evidence of positive benefits for learners and families. However, the findings also suggest that the policy’s impact depends not only on universal access to the offer, but also on whether learners take up the offer. Respondents identified a range of factors associated with uptake, including menu choice, taste, food quality, portion size and the extent to which meals meet individual needs. These findings highlight the importance of maintaining an attractive and accessible school meal offer.

While positive impacts were reported across all groups, school meal uptake was reported to be lower and, in some cases, declining among lower-income households. This is notable given that respondents from these households often reported some of the strongest perceived financial and wellbeing benefits associated with the policy. This may suggest that increasing participation amongst groups with lower uptake could help more families experience the perceived benefits identified in the survey.

Higher reported uptake among younger learners from lower-income households, compared with older learners from the same income groups, may indicate the early stages of a change in participation patterns. One possible interpretation is that uptake may increase over time as cohorts who have experienced UPFSM for longer progress through primary school. However, the survey provides only a snapshot in time and it is not possible to determine whether this reflects a cohort effect, age-related differences in school meal use, or other factors. Understanding whether these patterns persist will require longer-term monitoring as cohorts move through the education system.

These findings were gathered before the introduction of the revised Healthy Eating Regulations and therefore provide a snapshot of respondents’ experiences and perceptions at a relatively early stage of policy implementation.

The final phase of the evaluation will build on the findings from this report and the first Interim Report to address outstanding evidence gaps and to assess the longer-term impacts of the UPFSM policy. As part of the final year of the evaluation, further research will explore why uptake remains lower among some lower-income households despite the universal offer and identify the factors that influence sustained participation over time. Particular attention will also be given to the experiences of learners with ALN, including how aspects of the lunchtime environment may affect participation in and access to school meals. Further research will also explore whether the policy has resulted in changes to local food procurement practices, and how these changes have evolved over time.

Report authors: Haysey, Nicola; Smiles, Beth; Cooper, Priya; Kettle, Ellie; Diaz, Dr Alice; Harding, Ryan; Charalambous, Steph

Views expressed in this report are those of the researchers and not necessarily those of the Welsh Government.

For further information please contact:

Schools Research Branch
Welsh Government
Cathays Park
Cardiff
CF10 3NQ

Email: schoolsresearch@gov.wales 

Social research number: 91/2026
Digital ISBN: 978-1-80853-338-9