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No. 20 / RN/ Ref./ August/ 2013
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Mid-Day Meal Scheme

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Mid-Day Meal Scheme

1.

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

traced back to pre independence era when British administration initiated a Mid Day
Meal Programme for disadvantage children in Madras Municipal Corporation in 1925.
Like this many such programmes were initiated in different states. In 1953,
Government of Uttar Pradesh started another such scheme. Tamil Nadu became the
first state in India to introduce a noon meal programme in primary schools. In 1984 this
scheme was introduced in Gujarat. From time to time the meal scheme was taken up
by different states and later on it was taken up as a national scheme1.
Government of India launched National Programme of Nutritional Support to
Primary Education (Commonly known as Mid-Day Meal Scheme) on August 15,
1995 to provide mid-day meal to the children studying at primary stage2. In 2002, the
Supreme Court directed the Government to provide cooked Mid-Day Meals (as
apposed to providing dry rations) in all Government and Government aided primary
schools3. It was revised in September 2004 and in September 20064.

2.

Objectives of Mid-Day Meal Scheme

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

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

www.mapsofindia.com
India. Rajya Sabha, Department Related Parliament Standing Committee on Human
Resources
Development, 191st Report on Implementation of Sarva Shiksha Abhiyan, and Mid-Day Meal. Rajya
Sabha Secretariat, 2007, p. iii
2

3
4

www.prsindia.org

op.cit, Department Related Parliament Standing Committee on HRD 191st Report, p. iii

2
(ii) Encouraging poor children, belonging to disadvantaged sections, to attend
school more regularly and help them concentrate on classroom activities.
(iii) Providing nutritional support to children of elementary stage in drought-affected
areas during summer vacation.5
3.

Coverage in Mid-Day Meal Scheme

MDMS covered 7.18 crore primary school children and 3.36 crore upper

primary school children in 201011. The coverage of children in the States of Bihar (43
per cent), UP (57 per cent) and Jharkhand (58 per cent) is below the national average
of 72 per cent, whereas it is well above the national average in Chhattisgarh (83 per
cent) and Odisha (82 per cent). Based on the Annual Work Plan and Budget of the
States/UTs for the year 201213, the district-wise performance of the MDMS in all the
States/UTs has been analysed and the poor performing districts (144) have been
identified for focused attention. Of the poor performing districts, 17 are in areas
affected by the Left Wing Extremism (LWE); 11 in the North Eastern States (Tripura
3, Meghalaya4, Assam4); 17 in tribal districts, and 13 in the hilly areas
(Uttarakhand4, J&K9).6
MDMS is the worlds largest school meal programme and reaches an estimated
11 crore children across 12 lakh schools in India. (www.mdms.nic.in)

4.

Prescribed Nutritional Content for Mid-Day Meal

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

nutritional content in the mid day meal:

Table 1: Prescribed nutritional content for Mid-Day Meals
Item

Primary (grade 1-5)

Upper Primary (grade 6-8)

Calories

450

700

Protein (in grams)

12

20

India. Ministry of Human Resources & Development, Deptt. of Higher Education & Literacy, Annual
Report 2011-12, pp. 37-38
6
India, Planning Commission Draft Twelfth Five-Year Plan 2012-17, p.66

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

following ingredients per child per school day7.

5.

S. No.

Item

Primary

Upper Primary

Rice / Wheat

100 gms

150 gms

Pulses

20 gms

30 gms

Vegetables

50 gms

75 gms

Oil

5 gms

7.5 gms

Micro-nutrients

Adequate quantities of micro-nutrients like Iron,

Folic Acid, Vitamin-A etc. in convergence with
NRHM

Financial Components of the Mid-Day Meal Scheme

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

Government / UT Administrations:
(i) Supply of free food grains (wheat/rice) @100 grams per child per school day for
primary & @150 gram per child per school day for upper primary and NCLP
children from the nearest FCI go-down.
(ii) Transportation assistance (TA) effective from 01.04.2010 in the 11 Special
Category States (viz. Assam, Arunachal Pradesh, Himachal Pradesh, Jammu &
Kashmir, Manipur, Meghalaya, Mizoram, Nagaland, Sikkim, Uttarakhand and
Tripura) at par with the PDS rates prevalent in these States. In case of all other
States/UTs, the TA is reimbursed on the basis of the actual cost incurred in
transportation of food grains from nearest FCI godown to the school subject to
the ceiling of Rs. 75/- per quintal.
(iii) Cooking cost has been revised from 01.12.2009 (excluding the labour and
administrative charges) to Rs. 2.50 for primary and Rs. 3.75 for upper primary
children and further enhanced by 7.5% on 01.04.2010 i.e. Rs. 2.69 for primary
and Rs. 4.03 for upper primary and again revised on 01.04.2011 @7.5%. The
7

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

4
cooking cost is being shared between the Centre and the NER States on 90:10
basis and with other States/UTs on 75:25 basis. Accordingly, the share of the
Centre and the minimum share of the State/UTs is currently as under:
Stage

Primary
Upper
Primary

Total Cost
per meal

Rs. 2.89
Rs. 4.33

Centre-State Sharing
Non-NER States
NER States (90:10)
(75:25)
Centre
State
Centre
State
Rs. 2.17
Rs. 0.72
Rs 2.60
Rs. 0.29
Rs. 3.25
Rs. 1.08
Rs. 3.90
Rs. 0.43

Cooking Cost proposed for the year 2012-13

Stage

Primary
Upper
Primary

Total Cost
per meal

Rs. 3.11
Rs. 4.65

Centre-State Sharing
Non-NER States
NER States (90:10)
(75:25)
Centre
State
Centre
State
Rs. 2.33
Rs. 0.78
Rs 2.80
Rs. 0.31
Rs. 3.49
Rs. 1.16
Rs. 4.19
Rs. 0.46

Cooking cost includes costs of pulses, vegetables, cooking oil and condiments,
fuel etc.
(iv) Instead of a flat rate of Rs. 60,000 for construction of kitchen-cum-store per
school across the country, effective from 01.12.2009, the construction cost is to
be determined on the basis of plinth area norms and State Schedule of Rates
prevalent in the State/UT. The cost of construction of Kitchen-cum-Stores is to
be shared between the Centre and the NER States on 90:10 basis and with
other States/UT on 75:25 basis.
(v) Honorarium of Rs. 1,000 per month from 01.12.2009 to cook-cum-helper and
engagement of one cook-cum-helper for schools upto 25 students, two cookscum-helpers for schools with 26 to 100 students and one additional cook-cumhelper for every addition of upto 100 students. The expenditure towards the
honorarium of cook-cum-helper is to be shared between the Centre and the
NER States on 90:10 basis and with other States/UTs on 75:25 basis.

5
(vi) Assistance for management, Monitoring & Evaluation (MME) of the Scheme at
the rate of 1.8% of the total assistance for (a) cost of food grains, (b)
transportation cost, (c) cooking cost and (d) honorarium to cook-cum-helpers. 8

6.

Monitoring and Evaluation

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

Development has prescribed a comprehensive and elaborate mechanism for

monitoring and supervision of the Mid Day Meal Scheme. The monitoring mechanism
includes the following:
(a)

Arrangements for local level monitoring Representatives of Gram

Panchayats / Gram Sabhas, members of South Delhi Municipal Corporations
(SDMCs) as well as Mothers Committees are required to monitor the: (i)
regularity and wholesomeness of the mid day meal served to children, (ii)
cleanliness in cooking and serving of the mid day meal, (iii) timeliness in
procurement of good quality ingredients, fuel, etc. (iv) implementation of
varied menu and (v) social and gender equity. This is required to be done on
a daily basis.

(b)

Display of Information under Right to Information Act in order to ensure

that there is transparency and accountability, all schools and centres where
the programme is being implemented are required to display information
suo-moto.

(c)

Inspections by State Government Officers is required to inspect schools

and centres where the programme is being implemented.

(d)

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

continuous availability of adequate food grains in its Depots. It is mandated
to issue food grains of best available quality.9

8
9

ibid, pp. 39-40.

India 2013, a reference annual, p. 236-37

6
7.

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

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

mothers Self-Help Group or local Youth Club affiliated to the Nehru Yuva Kendras or
an voluntary organisation or by personnel engaged directly by the SMDC/Gram
Panchayat/Municipality-Involvement of Self Help Groups under the scheme is
increasing gradually.10 Number of Cooks-cum-Helpers approved, engaged and
honorarium paid is given at Annexure VII.
24 lakh cook-cum-helper from SC/ST/OBC community are engaged in the task of
cooking. (www.mdms.nic.in)

8.

Quality of Mid Day Meal

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

responsible for issue of food grains of best available quality, which will in any case be
at least of Fair Average Quality (FAQ). FCI appoints a Nodal Officer for each State to
take care of various problems in supply of food grains under the MDM Programme.
The District Collector / Chief Executive Officer (CEO) of Zila Panchayat ensures that
food grains of at least FAQ are lifted after joint inspection by a team consisting of FCI
and the nominee o the Collector and / or Chief Executive Officer, District Panchayat,
and confirmation by them that the grain conforms to at least FAQ norms.
Quality, safety and hygiene specifications have been prescribed in the
Guidelines. It is also provided that 2-3 adults members, of them atleast one being
teacher, must taste the food before it is served to the children. Although the guidelines
provide for inspection of 25% schools / EGS / AIE centres every quarter by the
supervisory officer but due to shortage of officers / staff and resources, intense and
frequent inspection of the programme is not happening in the expected manner. The
guidelines also provide for active community participation for the supervision and

10

op.cit, Annual Report, p. 42

7
monitoring of the programme. For a programme of this magnitude, the key of success
lies in the active and meaningful involvement of the community.11
9.

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

2005-06

2006-07

2007-08*

2008-09*

2009-10*

2010-11*

2011-12*

11.94

10.68

11.37

11.19

11.36

10.46

10.35

covered (in

up to

Crore)
Food grain

30.09.11
22.51

21.60

24.79

29.30

27.71

29.40

29.09

3345.26

5348.00

6678.00

8000.00

7359.15

9440.00

10380.00

3186.33

5233.47

5835.44

6688.02

6937.79

9128.44

7697.24

allocated (in
lakh MTs)
Budget
allocation
(in Crore)
Total Exp.
(in Crore)

up to
29.12.11

*Primary and Upper Primary combined

Source: Annual Report,2011-12, Department of School Education & Literacy Department of Higher Education,
Ministry of Human Resource Development, Govt. of India, p.42

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

10.

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

Stores @Rs. 60,000 per unit to the States / UTs was introduced under MDM Scheme
in the year 2006-07. The cost of construction of Kitchen-cum-Store on the basis of
plinth area norms (24 sq. meter per 100 child and 4 sq. meter additional space for
each additional 100 children) and State Schedule of Rates has been provided to
States during the year 2009-10. It was decided to fill the infrastructure gap in a phased
manner over a period of time.
11

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

8
The Central assistance of Rs. 5962.17 Crores has already been released to
States / UTs for construction of 8,73,748 Kitchen Sheds as per details given below:

Sl. No.

Year

Units

Amount (Crore)

a)

2006-07

2,21,039

Rs. 1,326.00

b)

2007-08

2,22,849

Rs. 1,337.00

c)

2008-09

2,95,346

Rs. 1,771.64

d)

2009-10

1,03,555

Rs. 1,044.29

e)

2010-11

28,897

Rs. 437.714

f)

2011-12

2,062

Rs. 45.20

TOTAL

8,73,748

Rs. 5962.17

Out of 8,73,748 sanctioned Kitchen sheds, 6,30,923 Kitchen sheds have been
constructed till 30.09.2011. 9800 Kitchen sheds have been approved by Programme
Approved Board (PAB)-MDM for the year 2011-12.12 State wise physical process
towards the construction of Kitchen-cum-store is given at Annexure V.
5.77 lakh Kitchen-cum-Store have been built to ensure the safety of food grains.
(www.mdms.nic.in)
(ii) Procurement of Kitchen Devices
The Central assistance towards procurement of Kitchen Devices @Rs. 5,000
per school was introduced in the year 2006-07. So far, Central assistance of Rs.
574.44 Crores has already been released to States / UTs for procurement of Kitchen
Devices in 11.49 lakhs schools, the details of which are as under13:

12
13

Sl. No.

Year

Units

Amount (Crore)

a)

2006-07

5,20,944

Rs. 260.47

b)

2007-08

2,13,521

Rs. 106.78

c)

2008-09

1,21,212

Rs. 60.61

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

ibid., p. 43

9
d)

2009-10

2,70,096

Rs. 135.05

e)

2010-11

5,795

Rs. 2.90

f)

2011-12

17,259

Rs. 8.63

TOTAL

11,48,827

Rs. 574.44

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

Annexure VI.

11.

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

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

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

minority-concentrated areas, and poor children admitted in neighbourhood private
schools against the 25 per cent earmarked seats as per provisions of the RTE Act.
Partnerships with panchayats and municipalities, as well as with other NGOs and
government agencies may be developed to ensure good-quality, nutritious and regular
supply of food to all children. Over a period of time, this will provide good longitudinal
data on the impact of MDMS.14
Recent Development
Recently 22 children in Bihar died due to the presence of pesticides in the food
served under the Mid-Day Meal Scheme and 79 students of a government school in
Bhilwara district of Rajasthan were admitted to hospital as they fell ill after consuming
mid-day meal. This happened because of the food poisoning caused by the dead lizard
found in the food. There are more to this, such as, in 2011, 126 students at a
Sarvodaya Vidyalaya fell ill after having a mid-day meal, insects were found in the midday meals served in Assam, 42 students fell ill after consuming a mid-day meal at
Haryana.15
In the wake of Mid-Day Meal Tragedy, the Center has decided to constitute a
monitoring committee to look into the quality of food supplied and ensure effectiveness
14
15

op.cit, Twelfth Five-Year Plan, p. 66

An Article dated 03.08.2013 by Ramandeep Kaur at www.mapsofindia.com .

10
of the supply chain and proper hygiene. The Committee is expected to supplement the
efforts of the existing Mid-Day Meal monitoring committee which meets twice a year
and warns the status if there are any short comings16.
The Human Resources Development Ministry has asked all states to set up
decentralised monitoring units, increase public awareness about the mid day meal so
that parents can keep a watch, and to set up monthly monitoring by community
committee headed by the local Member of Parliament.
The Ministry has issued guidelines to all states to ensure quality, safety and
hygiene under the Mid-Day Meal Scheme. Aside from making it mandatory for a
teacher to taste the food before serving it to the school children, the Ministry has asked
that a member of the school management committee should also be present and taste
the meal. A rotation system will need to be worked out for this. The school
management committee includes village functionaries, school administration, parents.
Stressing on the need for safety and hygiene, the Ministry has asked all states
to use the kitchen-cum store designs that had been circulated earlier. It has asked
states to work with the Home Science Departments in universities and colleges to
upgrade and train cooks and their helpers so that proper hygiene and food safety is
maintained. Additionally, proper labeling, use of separate bins have also been
suggested. Many schools have no proper systems of storage. The order takes note of
the prevalent practice of storing food items in the principal or headmaster's home. The
Ministry makes clear that such a system will not be acceptable.
Another intervention that has been suggested is putting in place an emergency
medical plan. The absence of a proper plan resulted in higher fatalities in Bihar. The
Ministry has suggested periodic testing of food at reputed or certified laboratories.
It has stressed on the need for regular monitoring at the state and district level
as well. It has asked that the district monitoring committee headed by the district

16

PTI, New Delhi, 18.07.2013

11
magistrate, must include the local member of Parliament. These meetings must be
held every quarter.

As a form of external check, the Ministry has asked that schools display the
entitlements under the programme in a prominent manner, preferably painted on a
school wall, to ensure that parents are aware of what their children should get as part
of the mid day meal17.

17

The Economic Times, 03.08.2013, Article by Urmi Goswami.