{"id":22,"date":"2026-01-23T11:48:31","date_gmt":"2026-01-23T16:48:31","guid":{"rendered":"https:\/\/pressbooks.library.torontomu.ca\/foodpolicy\/chapter\/__unknown__\/"},"modified":"2026-09-25T11:03:45","modified_gmt":"2026-09-25T15:03:45","slug":"__unknown__","status":"publish","type":"chapter","link":"https:\/\/pressbooks.library.torontomu.ca\/foodpolicy\/chapter\/__unknown__\/","title":{"raw":"6. How Brazil\u2019s National School Food Programme Aligns with the Six Principles Announced in Canada\u2019s first National School Food Policy","rendered":"6. How Brazil\u2019s National School Food Programme Aligns with the Six Principles Announced in Canada\u2019s first National School Food Policy"},"content":{"raw":"

Abstract<\/h2>\r\nCanada's first National School Food Policy, released in 2024, establishes six guiding principles for school food programmes: accessibility, health promotion, inclusivity, flexibility, sustainability, and accountability. Many of the organizations and advocates who championed the Canadian policy drew inspiration from Brazil's National School Food Programme (Programa Nacional de Alimenta\u00e7\u00e3o Escolar\u2014PNAE), one of the world's oldest and largest school food programmes. This chapter examines how PNAE aligns with these six principles and explores the challenges of implementing a universal school food programme across a large, regionally diverse country. Drawing on PNAE legislation, official policy documents, and implementation guidelines, we assess both the programme's institutional design and its operation in practice. We show that PNAE reflects Canada's policy principles through its rights-based, universal approach; integration of food and nutrition education; provision of culturally appropriate meals; procurement policies that support family farmers and traditional communities; and extensive governance and accountability mechanisms involving government agencies, nutrition professionals, and civil society. We also identify four persistent implementation challenges: regional inequalities in institutional capacity and resources, fiscal constraints and shifting political priorities, bureaucratic procurement systems, and conflicts with powerful commercial interests. Despite these challenges, PNAE has demonstrated remarkable resilience over its 70-year history, supported by strong legislation, multi-level governance, and sustained public engagement. We conclude that PNAE advances the five dimensions of food security\u2014availability, accessibility, adequacy, acceptability, and agency\u2014while illustrating how school food programmes can simultaneously improve child nutrition, strengthen local food systems, support family farming, and advance broader social, environmental, and economic policy goals. Brazil's experience offers valuable lessons for implementing Canada's emerging national school food programme\r\n

I - Introduction<\/strong><\/h2>\r\nCanada released its first National School Food Policy in June 2024. This followed years of campaigning and lobbying by civil society organizations and actors from the food security movement and the academy. The Canadian policy aims to increase consumption of nutritious foods, promote health equity, help establish lifelong healthy eating behaviours, and strengthen connections between local food systems, culture and the environment. It establishes six principles to guide the implementation of school food programmes nationwide. As described in the policy (Canada, 2024, p. 14), the programmes must be accessible, health-promoting, inclusive, flexible, sustainable, and accountable (see Table 1).\r\n\r\nMany of the organizations and actors who championed a National School Food Policy in Canada drew inspiration from programmes around the globe, including the National School Food Programme (Programa Nacional de Alimenta\u00e7\u00e3o Escolar - PNAE) in Brazil. Established in 1955, PNAE is not only one of the oldest but also one of the largest school food programmes in the world, covering around 40 million students enrolled in all stages of public schooling, from daycare centres to the end of high school (FNDE, 2025). Over the years, this programme has become an important tool for combating child malnutrition and promoting local food production and small-scale farming.\r\n\r\nTable 1: Principles in Canada\u2019s National School Food Policy<\/strong>\r\n
\r\n
\r\n\r\n\r\n\r\n\r\n\r\n\r\n\r\n\r\n\r\n
PRINCIPLES<\/strong><\/th>\r\nDESCRIPTION<\/strong><\/th>\r\n<\/tr>\r\n
Accessible<\/em><\/td>\r\nChildren and youth can participate in school food programmes without stigma or barriers.<\/td>\r\n<\/tr>\r\n
Health promoting<\/em><\/td>\r\nFood served is consistent with healthy eating recommendations in Canada\u2019s Food Guide, and children and youth are supported in developing healthful food-related behaviours and attitudes, as well as food and nutrition knowledge and skills.<\/td>\r\n<\/tr>\r\n
Inclusive<\/em><\/td>\r\nChildren and youth have access to culturally appropriate, relevant and inclusive school food programmes that engage students and the broader community.<\/td>\r\n<\/tr>\r\n
Flexible<\/em><\/td>\r\nFood is locally sourced where possible and reflective of local and regional circumstances.<\/td>\r\n<\/tr>\r\n
Sustainable<\/em><\/td>\r\nProgrammes are designed to be environmentally sustainable and adequately resourced<\/td>\r\n<\/tr>\r\n
Accountable<\/em><\/td>\r\nConsistent and transparent monitoring and evaluation to ensure that programmes are achieving policy objectives<\/td>\r\n<\/tr>\r\n<\/tbody>\r\n<\/table>\r\n<\/div>\r\n<\/div>\r\n
In this chapter, we examine how PNAE aligns with the six principles outlined in the Canadian policy. We examine both how the programme is supposed to work (according to the vision and legislation governing PNAE) and how it operates in practice, highlighting key difficulties encountered in the day-to-day implementation of the school food programme across municipalities in Brazil. In our conclusion, we reflect on how PNAE addresses the 5 As of Food Security (availability, accessibility, adequacy, acceptability, and agency), as proposed in the definition pioneered by the Centre for Studies in Food Security at Toronto Metropolitan University. We also reflect on the programme's resilience as it completes 70 years of implementation. Understanding PNAE in Brazil may inspire those dedicated to successfully implementing the School Food Programme in Canada and elsewhere.<\/div>\r\n

II - How Brazil\u2019s PNAE Aligns with Canada\u2019s School Food Policy Principles\u00a0<\/span><\/h2>\r\n
\r\n\r\nOur analysis is based on the law governing PNAE since 2009 (Brazil, 2009), as well as the many official resolutions and technical notes issued alongside it. The 2009 legislation declared school food a \u201cright of students in the public school system\u201d (FNDE, 2025). [footnote] Much of the information provided in this section is from the official website of the National Fund for the Development of Education (Fundo Nacional de Desenvolvimento da Educa\u00e7\u00e3o - FNDE), an autarky responsible for managing educational policies under Brazil\u2019s Ministry of Education [\/footnote]. It establishes six guidelines for the programme's implementation. We note that PNAE guidelines reflect many of the principles stated in Canada\u2019s 2024 policy (in brackets<\/em>):\r\n\r\nI - the use of healthy and adequate nutrition, including the use of varied, safe foods that respect culture, traditions and healthy eating habits, contributing to the growth and development of students and improving school performance, according to age group and health status, including those who require specific attention (health promoting and inclusive<\/em>);\r\n\r\nII - the inclusion of food and nutritional education in the teaching and learning process, which permeates the school curriculum, addressing the topic of food and nutrition and the development of healthy living practices, from the perspective of food and nutrition security (health promoting<\/em>);\r\n\r\nIII - the universality of assistance to students enrolled in the public basic education network (accessible)<\/em>;\r\n\r\nIV - community participation in social control, in monitoring the actions carried out by the States, the Federal District and the Municipalities to guarantee the provision of healthy and adequate school meals (accountable<\/em>);\r\n\r\nV - support for sustainable development, with incentives for the acquisition of diversified foodstuffs, produced locally and preferably by family farming and rural family entrepreneurs, prioritizing traditional indigenous communities and remnants of quilombos (African-descent communities) (flexible and sustainable<\/em>);\r\n\r\nVI - the right to school meals, aiming to guarantee food and nutritional security for students, with equal access, respecting the biological differences between the ages and health conditions of students who require specific attention and those who are socially vulnerable (inclusive<\/em>).\r\n\r\nPNAE is part of the National Food and Nutrition Security System (SISAN), an institutional framework that promotes participatory governance and policy integration at all levels of government (federal, state, and municipal). SISAN is guided by the principle of the Human Right to Food and the concept of Food and Nutrition Security (FNS), defined as the realization of the right of all to regular and permanent access to sufficient amounts of quality food, without compromising access to other essential needs. This access must promote healthy food practices and respect cultural diversity and environmental, cultural, economic, and social sustainability (Burlandy et al., 2023).\r\n\r\nSince 1994, the federal government has transferred funds to municipalities and states to help cover the cost of student food in public schools. Municipalities and states complement federal funds to implement their own school food programmes, in accordance with the legislation's guidelines.\r\n\r\nAs we consider funding for school meals, we must note that, despite plans to increase student enrollment in full-time schooling (a minimum stay of 7 hours at school sites), to date, most students in the Brazilian public system remain in school for just 4 hours\/day. The values of federal transfers per student\/per day in 2023 were as indicated in Table 2[footnote]1.00 CAD = 3.64 BRL on April 17, 2026[\/footnote].\r\n\r\nTable 2: Federal Transfers for School Food Programmes (2026) <\/strong>*(R$ student\/day)\r\n
\r\n\r\n\r\n\r\n\r\n\r\n\r\n\r\n\r\n\r\n
TYPE OF SCHOOLS<\/strong><\/th>\r\nVALUES <\/strong><\/th>\r\n<\/tr>\r\n
Youth and Adult Education<\/td>\r\n$0.57<\/td>\r\n<\/tr>\r\n
Primary and Secondary Education (general \u2013 half days)<\/td>\r\n$0.57<\/td>\r\n<\/tr>\r\n
Primary and Secondary Education (general \u2013 full days)<\/td>\r\n$1.57<\/td>\r\n<\/tr>\r\n
Primary and Secondary Education (Indigenous and Quilombolas)<\/td>\r\n$0.98<\/td>\r\n<\/tr>\r\n
Pre-School Education (general)<\/td>\r\n$0.82<\/td>\r\n<\/tr>\r\n
Pre-School Education (Indigenous and Quilombolas)<\/td>\r\n$1.57<\/td>\r\n<\/tr>\r\n<\/tbody>\r\n<\/table>\r\n<\/div>\r\n<\/div>\r\n
Here, we have organized our analysis to address how PNAE meets each of the principles established in Canada\u2019s policy.\u00a0<\/span><\/div>\r\n
\r\n\r\nIs PNAE accessible? Can children and youth participate in school food programmes without stigma or barriers?<\/strong><\/em>\r\n\r\n<\/div>\r\n
\r\n\r\nPNAE is a universal programme, available to all students (just over 40 million in 2024) from pre-school to high school graduation, in the public system throughout Brazil. Because all students can access the programme during regular school hours, children and youth face no stigma for participating.\r\n\r\nConcerns with accessibility to the programme have been associated with low school attendance of children living in poverty or with high dropout rates among youth from low-income families. Two other programmes in Brazil have attempted to reduce these problems. Created in 2003, the Bolsa Familia (Family Grant) is a conditional cash transfer programme targeted at families in extreme poverty (Rocha, 2016). One condition of the Bolsa Familia programme is consistent school attendance. Another programme encourages youth to remain in and graduate from high school. The P\u00e9-de-Meia programme, launched in November 2023, provides a financial incentive through a savings account to youth who complete each year of education and graduate from high school (Brazil, 2023a). Both Bolsa Fam\u00edlia and P\u00e9-de-Meia support school attendance and, consequently, access to adequate and healthy food offered through PNAE.\r\n\r\nIs PNAE health-promoting? Is the food served consistent with healthy eating recommendations, and do children and youth have support in developing healthful food-related behaviours and attitudes, as well as food and nutrition knowledge and skills?<\/em><\/strong>\r\n\r\nUnder PNAE, school menus must respect students' nutritional needs, local eating habits, and food cultures, and must always comply with the Ministry of Health's guidelines on promoting health through nutrition.\r\n\r\nSince 2020, school meal preparation has followed the most recent Ministry of Health Food Guide for the Brazilian Population (Brazil, 2014) and the Brazilian Food Guide for children under two years old (Brazil, 2019). In the first document, the concept of adequate and healthy eating is described as:\r\n
A basic human right that involves the guarantee of permanent, regular, and socially fair access to adequate eating in terms of the individual\u00b4s biological and social characteristics that should be consistent with special food needs. It should be referenced on the respective food culture and gender, race, and ethnic dimensions; accessible and affordable; consistent in quantity and quality, meeting the principles of variety, balance, moderation, and pleasure, and based on adequate and sustainable farming practices (Brazil, 2014, p. 8).<\/blockquote>\r\nConsistent with the Brazilian Food Guide, PNAE limits ultra-processed foods in school meals. In February 2025, the government announced a reduction from 20 percent to 15 percent of the foods offered in the programme. The limit on ultra-processed foods in school meals is further reduced to 10 percent in 2026 (Brazil, 2025a). PNAE has also promoted breastfeeding in schools to ensure the right to continued breastfeeding and reduce barriers to accessing daycare and childcare for working mothers (Brazil, 2022).\r\n\r\nPNAE also provides incentives for public schools to develop and implement food and nutrition education activities. One example is an annual contest (Jornada de Educa\u00e7\u00e3o Alimentar e Nutricional nas Escolas) that showcases some of the best food and nutrition education initiatives undertaken by schools across the country. In addition to giving local projects visibility, the contest recognizes the work of school principals and nutritionists who implement them. Recent themes in this contest included: \u201cEating in company, with pleasure and attention\u201d; \u201cHow climate change affects our eating and what can we do\u201d; \u201cTraditional peoples and communities: valuing knowledge and connections with school food\u201d; and \u201cBeyond the kitchen: the role of school cooks as educators\u201d (FNDE, 2025).\r\n\r\nIs PNAE inclusive? Do children and youth have access to culturally appropriate, relevant and inclusive school food programs that engage students and the broader community?<\/strong><\/em>\r\n\r\nIs PNAE flexible? Is food locally sourced where possible and reflective of local and regional circumstances?<\/strong><\/em>\r\n\r\nIs PNAE sustainable? Are programs designed to be environmentally sustainable and adequately resourced?<\/strong><\/em>\r\n\r\nWe find that three principles in the Canadian policy (inclusive, flexible, and sustainable) are highly intertwined in the Brazilian PNAE through its emphasis on privileging local food production and sourcing, and thus, we have chosen to analyze them together. The 2009 PNAE legislation required that at least 30 percent of federal funding transferred to municipalities and states be spent on the direct purchase of family-farming products, a measure that stimulates the economic and sustainable development of local communities. That share grew to 45 percent in 2026. The same provision also establishes priority for agrarian reform settlements, traditional Indigenous communities, quilombola communities, and formal and informal groups of women and youth as food suppliers in the programme. In 2023, an amendment to the legislation stipulated that the acquisition of foodstuffs from an individual rural family must be made in the woman's name for at least 50 percent of the purchase price (Brazil, 2023b). Flexibility in public procurement processes is essential to ensuring that small family farmers, Indigenous and quilombola communities, and women\u2019s and youth groups can supply the programme (Burlandy et al., 2023). Thus, for example, under certain conditions, municipalities can choose to purchase food from producer cooperatives rather than from individual family farmers to facilitate the participation (and organization) of smaller and more marginalized producers.\r\n\r\nIn terms of inclusiveness, PNAE\u00b4s legislation also guarantees differentiated care for students with special dietary needs (as confirmed by a medical certificate), such as celiac disease, diabetes, hypertension, anemia, allergies, and food intolerances. In this case, the technical team of nutritionists develops an identification strategy, creates adapted menus, and organizes the offer in schools (e.g., using photos to identify children or bracelets), supported by training for food servers. The programme also includes legal provisions that guarantee access by traditional peoples and communities, such as Indigenous peoples and quilombolas, to foods that meet their cultural specificities (Brazil, 2020).\r\n\r\nIn Canadian policy, \u201csustainability\u201d has two meanings: financial sustainability and environmental sustainability.\r\n\r\nIn terms of financial sustainability, PNAE is governed by legislation that establishes the federal resources to be transferred to municipalities and states across the country (see Table 2 for 2023 values). While this can bring its own difficulties (see Difficulties in implementation), it does provide a degree of financial assurance and sustainability.\r\n\r\nIn terms of environmental sustainability, this principle in PNAE is closely intertwined with the flexibility principle (discussed above), which favours purchasing locally produced foods from small family farms. The programme also includes rules to increase the supply of fresh foods and prioritizes organic and agro-ecological food production. It also includes guidelines on storing and preparing food, with recommendations to reduce food waste in the school environment.\r\n\r\n<\/div>\r\nIs PNAE accountable? Are there instruments for consistent and transparent monitoring and evaluation to ensure that programmes are achieving policy objectives?<\/strong><\/em>\r\n\r\nGovernment agencies monitor and supervise PNAE, and society in general (more directly) through the School Food Councils (CAEs), which are responsible for the programme's social control. CAEs monitor product acquisition, the quality of the food offered to students, the hygienic\/sanitary conditions under which the food is stored, prepared, and served, and the proper financial execution of the program at the local level. Each CAE includes one government representative (municipal or state), two education workers (teachers and kitchen staff), two parent representatives, and two civil society representatives. In Indigenous or quilombola areas, it is recommended that at least one representative come from those communities. Each representative has a four-year, volunteer mandate, which can be renewed (FNDE, 2023). Federal transfers of funds to municipal and state schools can occur only once their CAEs are operational and have submitted reports on the programme's local implementation.\r\n\r\nAnother institution that oversees the programme is the Public Prosecutor\u2019s Office, which has a dedicated unit for monitoring the implementation of public programmes, including PNAE. The Federal Court of Auditors monitors the use of programme resources, and Regional Councils of Nutrition supervise professional practice and the number of nutritionists in the programme, in accordance with PNAE\u2019s legislation. Furthermore, a partnership between the Ministry of Education and public universities, through the School Feeding Collaborating Centres (CECANEs), develops actions to support and monitor the programme's implementation nationwide. CECANEs, for example, promote continuous training of CAE members (Barbosa et al., 2024).\r\n\r\nIn terms of accountability across its many aspects, it is important to highlight the role of the Technical Responsible Nutritionist under PNAE. Each municipality and state must hire at least one full-time (minimum 30 hours\/week), credentialed nutritionist who is responsible for the implementation of the programme in each school, taking into account the size of the municipality, the number of students, the number of rural, quilombola, Indigenous and urban schools (CFN, 2024a). For example, a small municipality (20,000 to 50,000 inhabitants) in the southeast region with up to 1,000 students must have two nutritionists and one technical manager. In the north, this parameter changes to three nutritionists. Under legislation, the Federal Council of Nutrition determines the attributions of the Technical Responsible Nutritionist through a legally binding Resolution, updated most recently in September 2024 (CFN, 2024b). The Resolution spells out the obligations of the Nutritionist in PNAE:\r\n
    \r\n \t
  1. Coordinate actions for assessing the nutritional condition of students through anthropometric tests;<\/li>\r\n \t
  2. Develop an Annual Working Plan;<\/li>\r\n \t
  3. Plan, monitor and keep records of activities in food and nutrition education in the schools;<\/li>\r\n \t
  4. Plan, develop, monitor the execution, and evaluate the menus offered in the schools, including differentiated meals to attend to students with special dietary needs;<\/li>\r\n \t
  5. Develop and follow technical records of the foods composing the meals in schools;<\/li>\r\n \t
  6. Promote the identification of students with special dietary needs;<\/li>\r\n \t
  7. Support the technical supervision of the quantity and quality of food supplied to the schools; and<\/li>\r\n \t
  8. Liaise with family farmers and other local food suppliers to include their products in school meals.<\/li>\r\n<\/ol>\r\nOther complementary activities of the Technical Responsible Nutritionist include:\r\n
      \r\n \t
    1. Collaborate in the recruitment and hiring of school personnel directly involved with PNAE (e.g., cooks);<\/li>\r\n \t
    2. Participate in the planning and supervision of the implementation or adaptation of physical facilities, equipment and utensils in the areas of reception, storage, processing, distribution and consumption of school food;<\/li>\r\n \t
    3. Work in multidisciplinary teams to plan, implement, monitor and execute policies, programmes, courses, research and events (technical meetings, congresses, technical workshops, seminars, among others) related to school meals;<\/li>\r\n \t
    4. Contribute to the development and updating of regulatory standards and protocols related to school meals;<\/li>\r\n \t
    5. Collaborate in the training of professionals in the area of \u200b\u200bfood and nutrition; and<\/li>\r\n \t
    6. Supervise internships and participate in improvement, qualification and training programmes.<\/li>\r\n<\/ol>\r\n

      III - Difficulties in implementation<\/h2>\r\nChallenges abound in implementing such an ambitious national programme. We highlight here four of the most prominent: 1) achieving equity, 2) fiscal priorities, 3) rigid bureaucracies, and 4) conflicts of interest.\r\n

      Achieving equity<\/h3>\r\nThe country's size and regional inequalities challenge local implementation of PNAE. Municipalities and states have distinct institutional, financial and management capabilities, which lead to differences in local resources to supplement the federal funds transferred.\r\n\r\nConcerns about equity have led to changes in the programme over the years, such as allocating greater federal financial resources to Indigenous and quilombola communities and designating 30 percent of federal funds for the purchase of food produced by small family farmers. Still, the reality of a deeply unequal country weighs on local-level results. In this sense, the calculation used to determine the amounts transferred from the federal government to the states and municipalities still lacks mechanisms for adjustment and criteria that account for local specificities to ensure greater equity in both access to and the quality of the meals provided throughout the country. Unequal conditions also show up in very different physical structures (appropriate spaces for food storage and preparation) and in the number and skills of local personnel (e.g., cooks) dedicated to implementing the programme.\r\n

      Fiscal priorities<\/h3>\r\nMunicipalities and states are led by governments with different priorities and ideologies, which may not give the same importance to social programmes. At the national level, although it is a well-established and popular programme, anchored in legislation and solid institutions, PNAE can still be challenged by political changes. From 2014 to 2022, for example, several food and nutrition programmes faced funding cuts as part of fiscal austerity policies implemented by governments during that period (Souza et al., 2019; Burlandy, 2023). The PAA (Programa de Aquisi\u00e7\u00e3o de Alimentos), the federal programme that supports the purchase of foodstuffs produced by small family farmers, suffered severe funding cuts. While PNAE itself did not face funding cuts, the federal government did not adjust transfers for inflation for over five years, until 2023.\r\n\r\nDifferent governments in Brazil pursue fiscal austerity to control inflation and create an environment favoured by international investors. How such fiscal austerity is expressed (that is, which programmes are impacted by funding cuts), however, depends on the government\u2019s political-ideological persuasion, with those more to the left in the political spectrum trying to preserve social programmes while pursuing fiscal balance, and governments more to the right having less concern with the continuance and improvements of such programmes.\r\n\r\nSISAN\u2019s National Council on Food and Nutrition Security (CONSEA) was abolished by presidential decree on the first day of President Jair Bolsonaro\u2019s term (2019-2022), clearly signalling the reduced support the new federal government would give to food and nutrition security programmes. Despite that, SISAN\u2019s institutional structures remained in many states and municipalities, and although weakened, programmes such as PNAE did not end. During that time, PNAE survived thanks to its well-established institutional structure, popular support, and civil society mobilization in its defence. This, in turn, allowed President Lula's new centre-left government (starting in 2023) to recover and further strengthen the programme.\r\n

      Rigid bureaucracies<\/h3>\r\nAnother major challenge for PNAE has been adapting public procurement mechanisms to the demands of the legislation governing them. Despite progress in remodelling these mechanisms to allow participation by various groups (small family farmers, producers from Indigenous and traditional communities, and women\u2019s groups) in the public purchase of food, this participation remains a challenge (Burlandy et al., 2023). For example, urban agriculture producers, who could greatly contribute to the local supply of fresh vegetables in large urban centres, sometimes face barriers to being recognized as \u201cfarmers\u201d under the public bidding legislation, since their gardens are not considered \u201crural properties\u201d, and hence can face difficulties participating as suppliers in the programme.\r\n

      Conflicts of interest<\/h3>\r\nGiven the programme's size and the government funding involved in its implementation (R$5.46 billion, or 0.12 percent of the federal budget in 2025) (Brazil, 2025b), it is not surprising that PNAE often sparks disputes among commercial and non-commercial interests. Many of its features, such as favouring small family farmers as suppliers and limiting ultra-processed foods, run counter to powerful commercial interests.\r\n\r\nThe food industry's efforts to undermine efforts to reduce ultra-processed food consumption in schools have raised concerns in recent years, leading to the prohibition of ultra-processed food advertising in schools. Further, in 2022, the Coordination of Food and Nutrition Security (COSAN) at the Ministry of Education prepared a Technical Note to guide the behaviour of actors involved in implementing PNAE (FNDE, 2022). The Technical Note discusses strategies for identifying and preventing conflicts of interest during programme implementation. It specifically identifies a number of instances for potential conflicts of interest to be avoided, such as pedagogical material offered by food industry companies; professional and educational talks sponsored by the industry; sponsored school visits to ultra-processed food manufacturing plants; sponsorship of sports, arts and other school events by the industry; and donations or free samples of ultra-processed foods. Everyone involved in implementing PNAE, including municipal and state departments of education, school directors, teachers, cooks, and nutritionists, is responsible for following these directives.\r\n

      IV - Conclusion<\/h2>\r\nThe principles established in Canada\u2019s National School Food Policy align with those followed in the Brazilian PNAE. PNAE is accessible because it is present throughout the country's public school system. PNAE is health-promoting, following the guidelines established in the most recent Brazilian Food Guide and supporting food and nutrition education initiatives. It is also inclusive, with provisions to meet individual health needs as well as cultural and local characteristics; flexible, with special conditions for benefiting local and small farmer suppliers; sustainable, both financially (secure federal funding) and environmentally (favouring local, organic, and agro-ecological production); and accountable, through the oversight by various government agencies and civil society through the School Food Councils.\r\n\r\nChallenges in implementing the Brazilian programme are many. These include the country's high regional and social inequalities, the need to adopt more flexible procurement rules, disputes with powerful commercial interests, and the commitment of local and federal governments to the programme, both financially and in terms of its principles. As Canada continues to implement its School Food policy, it can draw lessons from how Brazil addresses these challenges, which we believe are also present in the Canadian context.\r\n\r\nDespite its many and ongoing struggles, PNAE helps ensure Food and Nutrition Security by influencing the five dimensions of this process (the 5 As): availability, accessibility, adequacy, acceptability, and agency. PNAE was redesigned in the context of a national policy of Food Systems Transformation, as part of the participatory social process that contributed to SISAN\u00b4s consolidation, becoming a strategy to simultaneously support family farming, traditional and local communities, and agro-ecological production, and to promote adequate and healthy eating. The programme strengthens connections among the modes of food production, distribution and consumption, and enhances healthy, sustainable and equitable food systems.\r\n\r\nPNAE\u2019s resilience is undeniable. In its most recent format (since 2009), the programme withstood the most adverse period of funding cuts (2016-2022) and the COVID-19 pandemic, while also making progress by publishing new guidelines aligned with the latest Brazilian Food Guide. Much of this resilience stems from the programme's national capillarity (its presence throughout the public school system), shared management structure (with the participation of federal, state, and municipal entities), and the mobilization of social actors and organizations in its defence.\r\n

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      Brazil. (2022). Nota T\u00e9cnica n\u00ba 3049124\/2022\/COSAN\/CGPAE\/DIRAE. Aleitamento materno e alimenta\u00e7\u00e3o complementar no contexto do PNAE [PDF]<\/em><\/a>.<\/p>\r\n

      Brazil. (2023a). Medida Provis\u00f3ria n\u00ba 1.198, de 27 de novembro de 2023. Institui poupan\u00e7a de incentivo \u00e0 perman\u00eancia e conclus\u00e3o escolar para estudantes do ensino m\u00e9dio<\/a>.<\/p>\r\n

      Brazil. (2023b). Lei n\u00ba 14.660, de 23 de agosto de 2023. Altera o art. 14 da Lei n\u00ba 11.947, de 16 de junho de 2009, para incluir grupos formais e informais de mulheres da agricultura familiar entre aqueles com prioridade na aquisi\u00e7\u00e3o de g\u00eaneros aliment\u00edcios no \u00e2mbito do Programa Nacional de Alimenta\u00e7\u00e3o Escolar (PNAE) e para estabelecer que pelo menos 50 por cento da venda da fam\u00edlia ser\u00e1 feita no nome da mulher<\/a>.<\/p>\r\n

      Brazil. (2025a). Governo federal reduz para 15 por cento o limite de alimentos processados e ultraprocessados nas escolas p\u00fablicas<\/em>.<\/a><\/p>\r\n

      Brazil. (2025b). Portal da Transpar\u00eancia: Programa Nacional de Alimenta\u00e7\u00e3o Escolar<\/em><\/a>.<\/p>\r\n

      Burlandy, L. (2023). The Brazilian system for food and nutrition security: Tensions, conflicts and paradoxes<\/a>. In S. Fleury (Ed.), Social policy dismantling and de-democratization in Brazil<\/em> (pp. 159\u2013188). Springer.<\/p>\r\n

      Burlandy, L., Rocha, C., & Dias, P. C. (2023). Public procurement as a tool in urban food governance in Brazil<\/a>. In Routledge handbook of urban food governance<\/em> (pp. 239\u2013251). Routledge.<\/p>\r\n

      Canada. (2024). National School Food Policy<\/em>. https:\/\/www.canada.ca\/content\/dam\/esdc-edsc\/images\/programs\/school-food\/reports\/national-policy\/4624-National_School_Food_Policy-E.pdf [PDF].<\/a><\/p>\r\n

      Conselho Federal de Nutri\u00e7\u00e3o. (2024a). Resolu\u00e7\u00e3o CFN n\u00ba 790, de setembro de 2024: Disp\u00f5e sobre a responsabilidade t\u00e9cnica e forma\u00e7\u00e3o do quadro t\u00e9cnico, assim como estabelece as diretrizes sobre par\u00e2metros num\u00e9ricos para atua\u00e7\u00e3o em alimenta\u00e7\u00e3o e nutri\u00e7\u00e3o no ambiente escolar nas escolas federais e d\u00e1 outras provid\u00eancias<\/a>.<\/p>\r\n

      Conselho Federal de Nutri\u00e7\u00e3o. (2024b). Resolu\u00e7\u00e3o CFN n\u00ba 788, de 13 de setembro de 2024: Disp\u00f5e sobre as atribui\u00e7\u00f5es de nutricionista na atua\u00e7\u00e3o em alimenta\u00e7\u00e3o e nutri\u00e7\u00e3o no ambiente escolar e d\u00e1 outras provid\u00eancias<\/a>.<\/p>\r\n

      de Souza, L.E.P.F., Barros, R.D., Barreto, M.L., Katikireddi, S.V., Hone, T.V., Sousa, R.P., Leyland, A., Rasella, D., Millett, C.J. & Pescarini, J. (2019). The potential impact of austerity on the attainment of the Sustainable Development Goals in Brazil<\/a>. BMJ Global Health, 4<\/em>, e001661.<\/p>\r\n

      Fundo Nacional de Desenvolvimento da Educa\u00e7\u00e3o. (2022). Nota T\u00e9cnica n\u00ba 3228950\/2022\/COSAN\/CGPAE\/DIRAE: Identifica\u00e7\u00e3o e preven\u00e7\u00e3o de conflito de interesse na execu\u00e7\u00e3o do Programa Nacional de Alimenta\u00e7\u00e3o Escolar [PDF]<\/em><\/a>.<\/p>\r\n

      Fundo Nacional de Desenvolvimento da Educa\u00e7\u00e3o. (2023). Conselho de Alimenta\u00e7\u00e3o Escolar (CAE)<\/a>.<\/em><\/p>\r\n

      Fundo Nacional de Desenvolvimento da Educa\u00e7\u00e3o. (2025). Programa Nacional de Alimenta\u00e7\u00e3o Escolar (PNAE)<\/a>.<\/em><\/p>\r\n

      Rocha, C. (2016). Work in progress: Addressing food insecurity in Brazil<\/a>. In M. Caraher & J. Coveney (Eds.), Food poverty and insecurity: International food inequalities<\/em>. Springer.<\/p>","rendered":"

      Abstract<\/h2>\n

      Canada’s first National School Food Policy, released in 2024, establishes six guiding principles for school food programmes: accessibility, health promotion, inclusivity, flexibility, sustainability, and accountability. Many of the organizations and advocates who championed the Canadian policy drew inspiration from Brazil’s National School Food Programme (Programa Nacional de Alimenta\u00e7\u00e3o Escolar\u2014PNAE), one of the world’s oldest and largest school food programmes. This chapter examines how PNAE aligns with these six principles and explores the challenges of implementing a universal school food programme across a large, regionally diverse country. Drawing on PNAE legislation, official policy documents, and implementation guidelines, we assess both the programme’s institutional design and its operation in practice. We show that PNAE reflects Canada’s policy principles through its rights-based, universal approach; integration of food and nutrition education; provision of culturally appropriate meals; procurement policies that support family farmers and traditional communities; and extensive governance and accountability mechanisms involving government agencies, nutrition professionals, and civil society. We also identify four persistent implementation challenges: regional inequalities in institutional capacity and resources, fiscal constraints and shifting political priorities, bureaucratic procurement systems, and conflicts with powerful commercial interests. Despite these challenges, PNAE has demonstrated remarkable resilience over its 70-year history, supported by strong legislation, multi-level governance, and sustained public engagement. We conclude that PNAE advances the five dimensions of food security\u2014availability, accessibility, adequacy, acceptability, and agency\u2014while illustrating how school food programmes can simultaneously improve child nutrition, strengthen local food systems, support family farming, and advance broader social, environmental, and economic policy goals. Brazil’s experience offers valuable lessons for implementing Canada’s emerging national school food programme<\/p>\n

      I – Introduction<\/strong><\/h2>\n

      Canada released its first National School Food Policy in June 2024. This followed years of campaigning and lobbying by civil society organizations and actors from the food security movement and the academy. The Canadian policy aims to increase consumption of nutritious foods, promote health equity, help establish lifelong healthy eating behaviours, and strengthen connections between local food systems, culture and the environment. It establishes six principles to guide the implementation of school food programmes nationwide. As described in the policy (Canada, 2024, p. 14), the programmes must be accessible, health-promoting, inclusive, flexible, sustainable, and accountable (see Table 1).<\/p>\n

      Many of the organizations and actors who championed a National School Food Policy in Canada drew inspiration from programmes around the globe, including the National School Food Programme (Programa Nacional de Alimenta\u00e7\u00e3o Escolar – PNAE) in Brazil. Established in 1955, PNAE is not only one of the oldest but also one of the largest school food programmes in the world, covering around 40 million students enrolled in all stages of public schooling, from daycare centres to the end of high school (FNDE, 2025). Over the years, this programme has become an important tool for combating child malnutrition and promoting local food production and small-scale farming.<\/p>\n

      Table 1: Principles in Canada\u2019s National School Food Policy<\/strong><\/p>\n

      \n
      \n\n\n\n\n\n\n\n\n\n
      PRINCIPLES<\/strong><\/th>\nDESCRIPTION<\/strong><\/th>\n<\/tr>\n
      Accessible<\/em><\/td>\nChildren and youth can participate in school food programmes without stigma or barriers.<\/td>\n<\/tr>\n
      Health promoting<\/em><\/td>\nFood served is consistent with healthy eating recommendations in Canada\u2019s Food Guide, and children and youth are supported in developing healthful food-related behaviours and attitudes, as well as food and nutrition knowledge and skills.<\/td>\n<\/tr>\n
      Inclusive<\/em><\/td>\nChildren and youth have access to culturally appropriate, relevant and inclusive school food programmes that engage students and the broader community.<\/td>\n<\/tr>\n
      Flexible<\/em><\/td>\nFood is locally sourced where possible and reflective of local and regional circumstances.<\/td>\n<\/tr>\n
      Sustainable<\/em><\/td>\nProgrammes are designed to be environmentally sustainable and adequately resourced<\/td>\n<\/tr>\n
      Accountable<\/em><\/td>\nConsistent and transparent monitoring and evaluation to ensure that programmes are achieving policy objectives<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<\/div>\n
      In this chapter, we examine how PNAE aligns with the six principles outlined in the Canadian policy. We examine both how the programme is supposed to work (according to the vision and legislation governing PNAE) and how it operates in practice, highlighting key difficulties encountered in the day-to-day implementation of the school food programme across municipalities in Brazil. In our conclusion, we reflect on how PNAE addresses the 5 As of Food Security (availability, accessibility, adequacy, acceptability, and agency), as proposed in the definition pioneered by the Centre for Studies in Food Security at Toronto Metropolitan University. We also reflect on the programme’s resilience as it completes 70 years of implementation. Understanding PNAE in Brazil may inspire those dedicated to successfully implementing the School Food Programme in Canada and elsewhere.<\/div>\n

      II – How Brazil\u2019s PNAE Aligns with Canada\u2019s School Food Policy Principles\u00a0<\/span><\/h2>\n
      \n

      Our analysis is based on the law governing PNAE since 2009 (Brazil, 2009), as well as the many official resolutions and technical notes issued alongside it. The 2009 legislation declared school food a \u201cright of students in the public school system\u201d (FNDE, 2025). [1]<\/sup><\/a>. It establishes six guidelines for the programme’s implementation. We note that PNAE guidelines reflect many of the principles stated in Canada\u2019s 2024 policy (in brackets<\/em>):<\/p>\n

      I – the use of healthy and adequate nutrition, including the use of varied, safe foods that respect culture, traditions and healthy eating habits, contributing to the growth and development of students and improving school performance, according to age group and health status, including those who require specific attention (health promoting and inclusive<\/em>);<\/p>\n

      II – the inclusion of food and nutritional education in the teaching and learning process, which permeates the school curriculum, addressing the topic of food and nutrition and the development of healthy living practices, from the perspective of food and nutrition security (health promoting<\/em>);<\/p>\n

      III – the universality of assistance to students enrolled in the public basic education network (accessible)<\/em>;<\/p>\n

      IV – community participation in social control, in monitoring the actions carried out by the States, the Federal District and the Municipalities to guarantee the provision of healthy and adequate school meals (accountable<\/em>);<\/p>\n

      V – support for sustainable development, with incentives for the acquisition of diversified foodstuffs, produced locally and preferably by family farming and rural family entrepreneurs, prioritizing traditional indigenous communities and remnants of quilombos (African-descent communities) (flexible and sustainable<\/em>);<\/p>\n

      VI – the right to school meals, aiming to guarantee food and nutritional security for students, with equal access, respecting the biological differences between the ages and health conditions of students who require specific attention and those who are socially vulnerable (inclusive<\/em>).<\/p>\n

      PNAE is part of the National Food and Nutrition Security System (SISAN), an institutional framework that promotes participatory governance and policy integration at all levels of government (federal, state, and municipal). SISAN is guided by the principle of the Human Right to Food and the concept of Food and Nutrition Security (FNS), defined as the realization of the right of all to regular and permanent access to sufficient amounts of quality food, without compromising access to other essential needs. This access must promote healthy food practices and respect cultural diversity and environmental, cultural, economic, and social sustainability (Burlandy et al., 2023).<\/p>\n

      Since 1994, the federal government has transferred funds to municipalities and states to help cover the cost of student food in public schools. Municipalities and states complement federal funds to implement their own school food programmes, in accordance with the legislation’s guidelines.<\/p>\n

      As we consider funding for school meals, we must note that, despite plans to increase student enrollment in full-time schooling (a minimum stay of 7 hours at school sites), to date, most students in the Brazilian public system remain in school for just 4 hours\/day. The values of federal transfers per student\/per day in 2023 were as indicated in Table 2[2]<\/sup><\/a>.<\/p>\n

      Table 2: Federal Transfers for School Food Programmes (2026) <\/strong>*(R$ student\/day)<\/p>\n

      \n\n\n\n\n\n\n\n\n\n
      TYPE OF SCHOOLS<\/strong><\/th>\nVALUES <\/strong><\/th>\n<\/tr>\n
      Youth and Adult Education<\/td>\n$0.57<\/td>\n<\/tr>\n
      Primary and Secondary Education (general \u2013 half days)<\/td>\n$0.57<\/td>\n<\/tr>\n
      Primary and Secondary Education (general \u2013 full days)<\/td>\n$1.57<\/td>\n<\/tr>\n
      Primary and Secondary Education (Indigenous and Quilombolas)<\/td>\n$0.98<\/td>\n<\/tr>\n
      Pre-School Education (general)<\/td>\n$0.82<\/td>\n<\/tr>\n
      Pre-School Education (Indigenous and Quilombolas)<\/td>\n$1.57<\/td>\n<\/tr>\n<\/tbody>\n<\/table>\n<\/div>\n<\/div>\n
      Here, we have organized our analysis to address how PNAE meets each of the principles established in Canada\u2019s policy.\u00a0<\/span><\/div>\n
      \n

      Is PNAE accessible? Can children and youth participate in school food programmes without stigma or barriers?<\/strong><\/em><\/p>\n<\/div>\n

      \n

      PNAE is a universal programme, available to all students (just over 40 million in 2024) from pre-school to high school graduation, in the public system throughout Brazil. Because all students can access the programme during regular school hours, children and youth face no stigma for participating.<\/p>\n

      Concerns with accessibility to the programme have been associated with low school attendance of children living in poverty or with high dropout rates among youth from low-income families. Two other programmes in Brazil have attempted to reduce these problems. Created in 2003, the Bolsa Familia (Family Grant) is a conditional cash transfer programme targeted at families in extreme poverty (Rocha, 2016). One condition of the Bolsa Familia programme is consistent school attendance. Another programme encourages youth to remain in and graduate from high school. The P\u00e9-de-Meia programme, launched in November 2023, provides a financial incentive through a savings account to youth who complete each year of education and graduate from high school (Brazil, 2023a). Both Bolsa Fam\u00edlia and P\u00e9-de-Meia support school attendance and, consequently, access to adequate and healthy food offered through PNAE.<\/p>\n

      Is PNAE health-promoting? Is the food served consistent with healthy eating recommendations, and do children and youth have support in developing healthful food-related behaviours and attitudes, as well as food and nutrition knowledge and skills?<\/em><\/strong><\/p>\n

      Under PNAE, school menus must respect students’ nutritional needs, local eating habits, and food cultures, and must always comply with the Ministry of Health’s guidelines on promoting health through nutrition.<\/p>\n

      Since 2020, school meal preparation has followed the most recent Ministry of Health Food Guide for the Brazilian Population (Brazil, 2014) and the Brazilian Food Guide for children under two years old (Brazil, 2019). In the first document, the concept of adequate and healthy eating is described as:<\/p>\n

      A basic human right that involves the guarantee of permanent, regular, and socially fair access to adequate eating in terms of the individual\u00b4s biological and social characteristics that should be consistent with special food needs. It should be referenced on the respective food culture and gender, race, and ethnic dimensions; accessible and affordable; consistent in quantity and quality, meeting the principles of variety, balance, moderation, and pleasure, and based on adequate and sustainable farming practices (Brazil, 2014, p. 8).<\/p><\/blockquote>\n

      Consistent with the Brazilian Food Guide, PNAE limits ultra-processed foods in school meals. In February 2025, the government announced a reduction from 20 percent to 15 percent of the foods offered in the programme. The limit on ultra-processed foods in school meals is further reduced to 10 percent in 2026 (Brazil, 2025a). PNAE has also promoted breastfeeding in schools to ensure the right to continued breastfeeding and reduce barriers to accessing daycare and childcare for working mothers (Brazil, 2022).<\/p>\n

      PNAE also provides incentives for public schools to develop and implement food and nutrition education activities. One example is an annual contest (Jornada de Educa\u00e7\u00e3o Alimentar e Nutricional nas Escolas) that showcases some of the best food and nutrition education initiatives undertaken by schools across the country. In addition to giving local projects visibility, the contest recognizes the work of school principals and nutritionists who implement them. Recent themes in this contest included: \u201cEating in company, with pleasure and attention\u201d; \u201cHow climate change affects our eating and what can we do\u201d; \u201cTraditional peoples and communities: valuing knowledge and connections with school food\u201d; and \u201cBeyond the kitchen: the role of school cooks as educators\u201d (FNDE, 2025).<\/p>\n

      Is PNAE inclusive? Do children and youth have access to culturally appropriate, relevant and inclusive school food programs that engage students and the broader community?<\/strong><\/em><\/p>\n

      Is PNAE flexible? Is food locally sourced where possible and reflective of local and regional circumstances?<\/strong><\/em><\/p>\n

      Is PNAE sustainable? Are programs designed to be environmentally sustainable and adequately resourced?<\/strong><\/em><\/p>\n

      We find that three principles in the Canadian policy (inclusive, flexible, and sustainable) are highly intertwined in the Brazilian PNAE through its emphasis on privileging local food production and sourcing, and thus, we have chosen to analyze them together. The 2009 PNAE legislation required that at least 30 percent of federal funding transferred to municipalities and states be spent on the direct purchase of family-farming products, a measure that stimulates the economic and sustainable development of local communities. That share grew to 45 percent in 2026. The same provision also establishes priority for agrarian reform settlements, traditional Indigenous communities, quilombola communities, and formal and informal groups of women and youth as food suppliers in the programme. In 2023, an amendment to the legislation stipulated that the acquisition of foodstuffs from an individual rural family must be made in the woman’s name for at least 50 percent of the purchase price (Brazil, 2023b). Flexibility in public procurement processes is essential to ensuring that small family farmers, Indigenous and quilombola communities, and women\u2019s and youth groups can supply the programme (Burlandy et al., 2023). Thus, for example, under certain conditions, municipalities can choose to purchase food from producer cooperatives rather than from individual family farmers to facilitate the participation (and organization) of smaller and more marginalized producers.<\/p>\n

      In terms of inclusiveness, PNAE\u00b4s legislation also guarantees differentiated care for students with special dietary needs (as confirmed by a medical certificate), such as celiac disease, diabetes, hypertension, anemia, allergies, and food intolerances. In this case, the technical team of nutritionists develops an identification strategy, creates adapted menus, and organizes the offer in schools (e.g., using photos to identify children or bracelets), supported by training for food servers. The programme also includes legal provisions that guarantee access by traditional peoples and communities, such as Indigenous peoples and quilombolas, to foods that meet their cultural specificities (Brazil, 2020).<\/p>\n

      In Canadian policy, \u201csustainability\u201d has two meanings: financial sustainability and environmental sustainability.<\/p>\n

      In terms of financial sustainability, PNAE is governed by legislation that establishes the federal resources to be transferred to municipalities and states across the country (see Table 2 for 2023 values). While this can bring its own difficulties (see Difficulties in implementation), it does provide a degree of financial assurance and sustainability.<\/p>\n

      In terms of environmental sustainability, this principle in PNAE is closely intertwined with the flexibility principle (discussed above), which favours purchasing locally produced foods from small family farms. The programme also includes rules to increase the supply of fresh foods and prioritizes organic and agro-ecological food production. It also includes guidelines on storing and preparing food, with recommendations to reduce food waste in the school environment.<\/p>\n<\/div>\n

      Is PNAE accountable? Are there instruments for consistent and transparent monitoring and evaluation to ensure that programmes are achieving policy objectives?<\/strong><\/em><\/p>\n

      Government agencies monitor and supervise PNAE, and society in general (more directly) through the School Food Councils (CAEs), which are responsible for the programme’s social control. CAEs monitor product acquisition, the quality of the food offered to students, the hygienic\/sanitary conditions under which the food is stored, prepared, and served, and the proper financial execution of the program at the local level. Each CAE includes one government representative (municipal or state), two education workers (teachers and kitchen staff), two parent representatives, and two civil society representatives. In Indigenous or quilombola areas, it is recommended that at least one representative come from those communities. Each representative has a four-year, volunteer mandate, which can be renewed (FNDE, 2023). Federal transfers of funds to municipal and state schools can occur only once their CAEs are operational and have submitted reports on the programme’s local implementation.<\/p>\n

      Another institution that oversees the programme is the Public Prosecutor\u2019s Office, which has a dedicated unit for monitoring the implementation of public programmes, including PNAE. The Federal Court of Auditors monitors the use of programme resources, and Regional Councils of Nutrition supervise professional practice and the number of nutritionists in the programme, in accordance with PNAE\u2019s legislation. Furthermore, a partnership between the Ministry of Education and public universities, through the School Feeding Collaborating Centres (CECANEs), develops actions to support and monitor the programme’s implementation nationwide. CECANEs, for example, promote continuous training of CAE members (Barbosa et al., 2024).<\/p>\n

      In terms of accountability across its many aspects, it is important to highlight the role of the Technical Responsible Nutritionist under PNAE. Each municipality and state must hire at least one full-time (minimum 30 hours\/week), credentialed nutritionist who is responsible for the implementation of the programme in each school, taking into account the size of the municipality, the number of students, the number of rural, quilombola, Indigenous and urban schools (CFN, 2024a). For example, a small municipality (20,000 to 50,000 inhabitants) in the southeast region with up to 1,000 students must have two nutritionists and one technical manager. In the north, this parameter changes to three nutritionists. Under legislation, the Federal Council of Nutrition determines the attributions of the Technical Responsible Nutritionist through a legally binding Resolution, updated most recently in September 2024 (CFN, 2024b). The Resolution spells out the obligations of the Nutritionist in PNAE:<\/p>\n

        \n
      1. Coordinate actions for assessing the nutritional condition of students through anthropometric tests;<\/li>\n
      2. Develop an Annual Working Plan;<\/li>\n
      3. Plan, monitor and keep records of activities in food and nutrition education in the schools;<\/li>\n
      4. Plan, develop, monitor the execution, and evaluate the menus offered in the schools, including differentiated meals to attend to students with special dietary needs;<\/li>\n
      5. Develop and follow technical records of the foods composing the meals in schools;<\/li>\n
      6. Promote the identification of students with special dietary needs;<\/li>\n
      7. Support the technical supervision of the quantity and quality of food supplied to the schools; and<\/li>\n
      8. Liaise with family farmers and other local food suppliers to include their products in school meals.<\/li>\n<\/ol>\n

        Other complementary activities of the Technical Responsible Nutritionist include:<\/p>\n

          \n
        1. Collaborate in the recruitment and hiring of school personnel directly involved with PNAE (e.g., cooks);<\/li>\n
        2. Participate in the planning and supervision of the implementation or adaptation of physical facilities, equipment and utensils in the areas of reception, storage, processing, distribution and consumption of school food;<\/li>\n
        3. Work in multidisciplinary teams to plan, implement, monitor and execute policies, programmes, courses, research and events (technical meetings, congresses, technical workshops, seminars, among others) related to school meals;<\/li>\n
        4. Contribute to the development and updating of regulatory standards and protocols related to school meals;<\/li>\n
        5. Collaborate in the training of professionals in the area of \u200b\u200bfood and nutrition; and<\/li>\n
        6. Supervise internships and participate in improvement, qualification and training programmes.<\/li>\n<\/ol>\n

          III – Difficulties in implementation<\/h2>\n

          Challenges abound in implementing such an ambitious national programme. We highlight here four of the most prominent: 1) achieving equity, 2) fiscal priorities, 3) rigid bureaucracies, and 4) conflicts of interest.<\/p>\n

          Achieving equity<\/h3>\n

          The country’s size and regional inequalities challenge local implementation of PNAE. Municipalities and states have distinct institutional, financial and management capabilities, which lead to differences in local resources to supplement the federal funds transferred.<\/p>\n

          Concerns about equity have led to changes in the programme over the years, such as allocating greater federal financial resources to Indigenous and quilombola communities and designating 30 percent of federal funds for the purchase of food produced by small family farmers. Still, the reality of a deeply unequal country weighs on local-level results. In this sense, the calculation used to determine the amounts transferred from the federal government to the states and municipalities still lacks mechanisms for adjustment and criteria that account for local specificities to ensure greater equity in both access to and the quality of the meals provided throughout the country. Unequal conditions also show up in very different physical structures (appropriate spaces for food storage and preparation) and in the number and skills of local personnel (e.g., cooks) dedicated to implementing the programme.<\/p>\n

          Fiscal priorities<\/h3>\n

          Municipalities and states are led by governments with different priorities and ideologies, which may not give the same importance to social programmes. At the national level, although it is a well-established and popular programme, anchored in legislation and solid institutions, PNAE can still be challenged by political changes. From 2014 to 2022, for example, several food and nutrition programmes faced funding cuts as part of fiscal austerity policies implemented by governments during that period (Souza et al., 2019; Burlandy, 2023). The PAA (Programa de Aquisi\u00e7\u00e3o de Alimentos), the federal programme that supports the purchase of foodstuffs produced by small family farmers, suffered severe funding cuts. While PNAE itself did not face funding cuts, the federal government did not adjust transfers for inflation for over five years, until 2023.<\/p>\n

          Different governments in Brazil pursue fiscal austerity to control inflation and create an environment favoured by international investors. How such fiscal austerity is expressed (that is, which programmes are impacted by funding cuts), however, depends on the government\u2019s political-ideological persuasion, with those more to the left in the political spectrum trying to preserve social programmes while pursuing fiscal balance, and governments more to the right having less concern with the continuance and improvements of such programmes.<\/p>\n

          SISAN\u2019s National Council on Food and Nutrition Security (CONSEA) was abolished by presidential decree on the first day of President Jair Bolsonaro\u2019s term (2019-2022), clearly signalling the reduced support the new federal government would give to food and nutrition security programmes. Despite that, SISAN\u2019s institutional structures remained in many states and municipalities, and although weakened, programmes such as PNAE did not end. During that time, PNAE survived thanks to its well-established institutional structure, popular support, and civil society mobilization in its defence. This, in turn, allowed President Lula’s new centre-left government (starting in 2023) to recover and further strengthen the programme.<\/p>\n

          Rigid bureaucracies<\/h3>\n

          Another major challenge for PNAE has been adapting public procurement mechanisms to the demands of the legislation governing them. Despite progress in remodelling these mechanisms to allow participation by various groups (small family farmers, producers from Indigenous and traditional communities, and women\u2019s groups) in the public purchase of food, this participation remains a challenge (Burlandy et al., 2023). For example, urban agriculture producers, who could greatly contribute to the local supply of fresh vegetables in large urban centres, sometimes face barriers to being recognized as \u201cfarmers\u201d under the public bidding legislation, since their gardens are not considered \u201crural properties\u201d, and hence can face difficulties participating as suppliers in the programme.<\/p>\n

          Conflicts of interest<\/h3>\n

          Given the programme’s size and the government funding involved in its implementation (R$5.46 billion, or 0.12 percent of the federal budget in 2025) (Brazil, 2025b), it is not surprising that PNAE often sparks disputes among commercial and non-commercial interests. Many of its features, such as favouring small family farmers as suppliers and limiting ultra-processed foods, run counter to powerful commercial interests.<\/p>\n

          The food industry’s efforts to undermine efforts to reduce ultra-processed food consumption in schools have raised concerns in recent years, leading to the prohibition of ultra-processed food advertising in schools. Further, in 2022, the Coordination of Food and Nutrition Security (COSAN) at the Ministry of Education prepared a Technical Note to guide the behaviour of actors involved in implementing PNAE (FNDE, 2022). The Technical Note discusses strategies for identifying and preventing conflicts of interest during programme implementation. It specifically identifies a number of instances for potential conflicts of interest to be avoided, such as pedagogical material offered by food industry companies; professional and educational talks sponsored by the industry; sponsored school visits to ultra-processed food manufacturing plants; sponsorship of sports, arts and other school events by the industry; and donations or free samples of ultra-processed foods. Everyone involved in implementing PNAE, including municipal and state departments of education, school directors, teachers, cooks, and nutritionists, is responsible for following these directives.<\/p>\n

          IV – Conclusion<\/h2>\n

          The principles established in Canada\u2019s National School Food Policy align with those followed in the Brazilian PNAE. PNAE is accessible because it is present throughout the country’s public school system. PNAE is health-promoting, following the guidelines established in the most recent Brazilian Food Guide and supporting food and nutrition education initiatives. It is also inclusive, with provisions to meet individual health needs as well as cultural and local characteristics; flexible, with special conditions for benefiting local and small farmer suppliers; sustainable, both financially (secure federal funding) and environmentally (favouring local, organic, and agro-ecological production); and accountable, through the oversight by various government agencies and civil society through the School Food Councils.<\/p>\n

          Challenges in implementing the Brazilian programme are many. These include the country’s high regional and social inequalities, the need to adopt more flexible procurement rules, disputes with powerful commercial interests, and the commitment of local and federal governments to the programme, both financially and in terms of its principles. As Canada continues to implement its School Food policy, it can draw lessons from how Brazil addresses these challenges, which we believe are also present in the Canadian context.<\/p>\n

          Despite its many and ongoing struggles, PNAE helps ensure Food and Nutrition Security by influencing the five dimensions of this process (the 5 As): availability, accessibility, adequacy, acceptability, and agency. PNAE was redesigned in the context of a national policy of Food Systems Transformation, as part of the participatory social process that contributed to SISAN\u00b4s consolidation, becoming a strategy to simultaneously support family farming, traditional and local communities, and agro-ecological production, and to promote adequate and healthy eating. The programme strengthens connections among the modes of food production, distribution and consumption, and enhances healthy, sustainable and equitable food systems.<\/p>\n

          PNAE\u2019s resilience is undeniable. In its most recent format (since 2009), the programme withstood the most adverse period of funding cuts (2016-2022) and the COVID-19 pandemic, while also making progress by publishing new guidelines aligned with the latest Brazilian Food Guide. Much of this resilience stems from the programme’s national capillarity (its presence throughout the public school system), shared management structure (with the participation of federal, state, and municipal entities), and the mobilization of social actors and organizations in its defence.<\/p>\n

          References<\/h2>\n

          Barbosa, R. M. S., Santos, M. C. C., Ferreira, D. M., Soares, D. S. B., Henriques, P., Pereira, S., Burlandy, L., & Camacho, P. (2024). Perfil de atua\u00e7\u00e3o dos conselhos de alimenta\u00e7\u00e3o escolar dos munic\u00edpios do estado do Rio de Janeiro<\/a>. Revista Interfaces: Sa\u00fade, Humanas e Tecnologia, 12<\/em>(1), 3347\u20133357.\u00a0<\/span><\/p>\n

          Brazil. (2009). Lei n\u00ba 11.947, de 16 de junho de 2009. Disp\u00f5e sobre o atendimento da alimenta\u00e7\u00e3o escolar e do Programa Dinheiro Direto na Escola aos alunos da educa\u00e7\u00e3o b\u00e1sica e d\u00e1 outras provid\u00eancias<\/a>.<\/p>\n

          Brazil. (2014). Guia alimentar para a popula\u00e7\u00e3o brasileira [PDF]<\/em><\/a>. Minist\u00e9rio da Sa\u00fade.<\/p>\n

          Brazil. (2019). Guia alimentar para crian\u00e7as brasileiras menores de 2 anos [PDF]<\/em><\/a>. Minist\u00e9rio da Sa\u00fade.<\/p>\n

          Brazil. (2020). Resolu\u00e7\u00e3o\/CD\/FNDE n\u00ba 6, de 8 de maio de 2020. Disp\u00f5e sobre o atendimento \u00e0 alimenta\u00e7\u00e3o escolar aos alunos da educa\u00e7\u00e3o b\u00e1sica no \u00e2mbito do Programa Nacional de Alimenta\u00e7\u00e3o Escolar (PNAE) [PDF]<\/a>.<\/p>\n

          Brazil. (2022). Nota T\u00e9cnica n\u00ba 3049124\/2022\/COSAN\/CGPAE\/DIRAE. Aleitamento materno e alimenta\u00e7\u00e3o complementar no contexto do PNAE [PDF]<\/em><\/a>.<\/p>\n

          Brazil. (2023a). Medida Provis\u00f3ria n\u00ba 1.198, de 27 de novembro de 2023. Institui poupan\u00e7a de incentivo \u00e0 perman\u00eancia e conclus\u00e3o escolar para estudantes do ensino m\u00e9dio<\/a>.<\/p>\n

          Brazil. (2023b). Lei n\u00ba 14.660, de 23 de agosto de 2023. Altera o art. 14 da Lei n\u00ba 11.947, de 16 de junho de 2009, para incluir grupos formais e informais de mulheres da agricultura familiar entre aqueles com prioridade na aquisi\u00e7\u00e3o de g\u00eaneros aliment\u00edcios no \u00e2mbito do Programa Nacional de Alimenta\u00e7\u00e3o Escolar (PNAE) e para estabelecer que pelo menos 50 por cento da venda da fam\u00edlia ser\u00e1 feita no nome da mulher<\/a>.<\/p>\n

          Brazil. (2025a). Governo federal reduz para 15 por cento o limite de alimentos processados e ultraprocessados nas escolas p\u00fablicas<\/em>.<\/a><\/p>\n

          Brazil. (2025b). Portal da Transpar\u00eancia: Programa Nacional de Alimenta\u00e7\u00e3o Escolar<\/em><\/a>.<\/p>\n

          Burlandy, L. (2023). The Brazilian system for food and nutrition security: Tensions, conflicts and paradoxes<\/a>. In S. Fleury (Ed.), Social policy dismantling and de-democratization in Brazil<\/em> (pp. 159\u2013188). Springer.<\/p>\n

          Burlandy, L., Rocha, C., & Dias, P. C. (2023). Public procurement as a tool in urban food governance in Brazil<\/a>. In Routledge handbook of urban food governance<\/em> (pp. 239\u2013251). Routledge.<\/p>\n

          Canada. (2024). National School Food Policy<\/em>. https:\/\/www.canada.ca\/content\/dam\/esdc-edsc\/images\/programs\/school-food\/reports\/national-policy\/4624-National_School_Food_Policy-E.pdf [PDF].<\/a><\/p>\n

          Conselho Federal de Nutri\u00e7\u00e3o. (2024a). Resolu\u00e7\u00e3o CFN n\u00ba 790, de setembro de 2024: Disp\u00f5e sobre a responsabilidade t\u00e9cnica e forma\u00e7\u00e3o do quadro t\u00e9cnico, assim como estabelece as diretrizes sobre par\u00e2metros num\u00e9ricos para atua\u00e7\u00e3o em alimenta\u00e7\u00e3o e nutri\u00e7\u00e3o no ambiente escolar nas escolas federais e d\u00e1 outras provid\u00eancias<\/a>.<\/p>\n

          Conselho Federal de Nutri\u00e7\u00e3o. (2024b). Resolu\u00e7\u00e3o CFN n\u00ba 788, de 13 de setembro de 2024: Disp\u00f5e sobre as atribui\u00e7\u00f5es de nutricionista na atua\u00e7\u00e3o em alimenta\u00e7\u00e3o e nutri\u00e7\u00e3o no ambiente escolar e d\u00e1 outras provid\u00eancias<\/a>.<\/p>\n

          de Souza, L.E.P.F., Barros, R.D., Barreto, M.L., Katikireddi, S.V., Hone, T.V., Sousa, R.P., Leyland, A., Rasella, D., Millett, C.J. & Pescarini, J. (2019). The potential impact of austerity on the attainment of the Sustainable Development Goals in Brazil<\/a>. BMJ Global Health, 4<\/em>, e001661.<\/p>\n

          Fundo Nacional de Desenvolvimento da Educa\u00e7\u00e3o. (2022). Nota T\u00e9cnica n\u00ba 3228950\/2022\/COSAN\/CGPAE\/DIRAE: Identifica\u00e7\u00e3o e preven\u00e7\u00e3o de conflito de interesse na execu\u00e7\u00e3o do Programa Nacional de Alimenta\u00e7\u00e3o Escolar [PDF]<\/em><\/a>.<\/p>\n

          Fundo Nacional de Desenvolvimento da Educa\u00e7\u00e3o. (2023). Conselho de Alimenta\u00e7\u00e3o Escolar (CAE)<\/a>.<\/em><\/p>\n

          Fundo Nacional de Desenvolvimento da Educa\u00e7\u00e3o. (2025). Programa Nacional de Alimenta\u00e7\u00e3o Escolar (PNAE)<\/a>.<\/em><\/p>\n

          Rocha, C. (2016). Work in progress: Addressing food insecurity in Brazil<\/a>. In M. Caraher & J. Coveney (Eds.), Food poverty and insecurity: International food inequalities<\/em>. Springer.<\/p>\n

          1. Much of the information provided in this section is from the official website of the National Fund for the Development of Education (Fundo Nacional de Desenvolvimento da Educa\u00e7\u00e3o - FNDE), an autarky responsible for managing educational policies under Brazil\u2019s Ministry of Education ↵<\/a><\/li>
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