Food & Nutrition [Volume 10, Number 1]

              Volume 10 Number1
PROPERTY OF TH
LJBRARY
.University of North Carot1, &
~ Greensho;o
Food Stam.p Changes
Help the Rural Poor
Historically, participation in the
Food Stamp Program has been
very low in rural parts of our country.
In 1978, less than half of all eligible
rural households participated in . the
program.
However, a study released by the
Food and Nutrition Service in October
shows this is changing dramatically.
The study, which evaluated the im­pact
of the food stamp reforms that
took effect in 1979, reveals that the
main beneficiaries have been the
rural poor and the elderly. Of the 2.9
million people who have joined the
program since the changes were
made, nearly half are the rural poor.
The impact
of "EPR"
The Food and Nutrition Service
study examines the impact of one of
the most far-reaching of the food
stamp reforms-the elimination of
the purchase requirement. Pre­viously,
participants were required to
make a cash payment .for their food
stamps. In exchange, they received
an equal amount of food stamps, plus
additional "bonus" stamps. Now,
participants receive only the "bonus"
amount of stamps, and they pay
nothing.
2
Several earlier studies had found
the purchase requirement to be a
major reason why only half of the
poor who were eligible for food
stamps were actually using them.
Looking at
rural gains
The increase in rural participation
was one of the most significant find­ings
of last fall's study. In the most
sparsely populated rural areas, the
rate of increase was five times that of
the increase in big cities. In the first 6
months after the reforms began in
December 1978, participation in the
smallest, most rural project areas in­creased
almost 42 percent. Participa­tion
in the largest, most urban areas
increased nearly 8 percent.
In absolute numbers, too, rural
areas outstripped urban areas. Of all
new participants entering the pro­gram
between November 1978 and
May 1979, nearly half entered in the
most rural areas. Only about one-fifth
entered in the most urban areas.
Rural increases are also reflected
in data collected by region and by
State. The regions with the greatest
overall increases in participation were
the Southeast (over 32 percent),
Mountain Plains (nearly 32 percent),
and the Southwest (almost 31 per­cent).
These regions contain pre­dominantly
rural States. The smallest
participation increase occurred in
New England (7 percent).
Within regions, the greatest gains
in participation were in the most rural
States. The State with the largest
participation increase was Alaska
(almost 75 percent), followed by
Wyoming (nearly 73 percent). Most of
the States in the Southeast, Mountain
Plains, and Southwest Regions
showed sizable participation in­creases.
Five of the 8 states in the
Southeast registered gains of over 30
percent in the 6-month period, as did
8 of the 10 States in Mountain Plains,
and 3 of the 5 in the Southwest.
Participation
among Indians
Participation among Indians in­creased
substantially. In fact, this in­crease
was even greater than that
among other rural residents. Between
December 1978 and May 1979, there
was a 75 percent increase in partici­pation
in predominantly'lndian areas.
Some Indian project areas showed
particularly dramatic gains. Ziebach
County, South Dakota, went from 59
participants in December to 188 in
May an increase of almost 219 per­cent.
The increases were not con­fined
to very small project areas­participation
in Navajo County,
Arizona, increased from 1 ,860 in De­cember
to 4,096 in May, a 120 per-cent
increase. 0
Doing away with the purchase
requirement has made it easier for
States to issue food stamps by
mail. In the following article, New
Hampshire food stamp officials tell
why and how they began mail is­suance.
They've found the new ar­rangement
especially helps the el­derly
and the rural poor. More than
half the State's population lives in
rural areas.
New Hampshire is one of 39
States issuing food stamps by
mail, either statewide or in specific
jurisdictions.
Food and Nutrition
' ' A trip to buy food stamps
could be some 20 miles one
way for people living in the
White Mountains up north or
in the lakes region. This was
February 1980
costly, as well as time-con­suming,
and many people
had to ask for rides from
friends or relatives. ' '
Many
people
are getting
food
stamps
by mail
Phil Davis began thinking about is­suing
food stamps by mail soon after
he became food stamp director for
New Hampshire in 1975. "It was al­ways
an option in the regulations," he
says, and there were reasons to look
for alternatives to issuing stamps
through banks.
For one thing, bankers were reluc­tant
to join the program. "Most bank­ers
came in kicking and screaming,
but were persuaded it was their moral
duty," Davis recalls.
Problems began to set in almost
immediately. "At the start we paid
banks 75 cents for every food stamp
transaction. By 1978 that wasn't
enough. Banks wanted to expand
other services for customers and
needed the space and personnel.
And security was a problem for many
town clerks. Bankers were giving
notice, and we were at the point
where service to entire counties
would be wiped out."
At the same time, Greg Lebel, New
Hampshire food stamp outreach
coordinator, was convinced that mail
issuance would be helpful in rural
areas, where almost half the State's
population lived. He knew the special
difficulties rural people faced in par­ticipating
in the program.
In 1977, Phil Davis discussed mail
issuance with other State food stamp
officials at a national welfare meeting.
Kansas was mailing food stamp
coupons directly to welfare clients,
withholding from public assistance
checks the amounts they were then
Getting food stamps
by mail has made a
big difference for
many rural people.
particularly elderly
people.
3
required to pay for their stamps.
Davis studied that system but de­cided
to wait until the Food Stamp Act
of 1977 went into effect, bringing
changes which would make mail is­suance
even simpler.
Two key provisions of the new law
made mail issuance particularly
attractive-elimination of the pur­chase
requirement (EPA) and the re­quirement
for expedited service to
especially needy people.
With no purchase requirement,
there would be fewer food stamps to
mail, so smaller envelopes could be
used and mailing costs would be
lower. Expedited service meant either
mailing food stamps promptly from a
central office or maintaining inven­tories
at a number of welfare offices.
Davis preferred the former.
A special task force spent 6 months
developing the present system. It
went into operation March 1, 1979,
when New New Hampshire im­plemented
the 1977 law.
System is
efficient
The mail system used by the New
Hampshire Department of Health and
Welfare is efficient. Sixty-five people
spend 1 work day a month putting
food stamps for 15,000 households in
envelopes and into the mail. The time
involved seems minimal compared to
15,000 individual trips participants
would have to make to 75 banks and
21 welfare offices throughout the
State.
Food stamps are usually mailed on
the next-to-the-last working day of the
month for first-of-the-month delivery
to coincide with the arrival of Social
Security and other benefit checks. In
4
' ' People who always needed
food stamps are getting them
because it's easier.''
larger States, issuance is often
staggered throughout the month, but
New Hampshire is small enough to
permit one major mailing.
The State also mails "expedited"
food stamps every work day of the
month. "Mail provides the quickest
service in emergencies," says Davis.
"The applications are shipped in at
night, processed, and shipped out the
next night." One thousand such
cases are processed each month.
Errors are almost nonexistent. Mail
losses are fewer than 100 a month,
and approximately the same number
are returned as undeliverable be­cause
the intended recipients moved
and left no forwarding addresses.
It's made
a difference
Davis and others in the State are
convinced that the change to mail is­suance
has helped bring more rural
people into the Food Stamp Program.
Participation throughout the State is
up 18 percent, but in the rural districts
it's up 25 to 40 percent.
Older folks find that the mail sys­tem
helps them maintain a greater
degree of independence. Those who
don't drive may still need a ride to the
grocery store, but an additional trip to
the bank is one less request to make
of friends or children. When you've
been taking care of yourself for half a
century or more, asking for help isn't
easy. Often, too, the grocery store
hours are more convenient than
those of issuance offices.
"My daughter drives me to the
grocery store," says Alice King, who
lives in a trailer park in the Lake
country 3 miles from Laconia. "My
food stamps come in the mail, and
that's all I need. When my Social Se­curity
check comes, I cash it at the
same store." The 83-year-old widow
plans her shopping around her
daughter's schedule of work at a
nearby electronics factory.
Snowy roads and icy conditions
underfoot keep many elderly people
housebound during long New England
winters. Majorie Sanborn, 76, of
Laconia, uses a cane because of ar­thritis
and has also worn a cast re­cently.
She finds getting food stamps
by mail a great help when she's able
to do her own marketing, and even
more of a convenience when the
weather is bad and she has to ask
friends to pick up her groceries.
lona Little, 84, lives with a handi­capped
niece and her dog in a coun­try
place out from Laconia. She likes
getting her stamps by mail and re­jects
the idea that people have
stayed away from food stamps be­cause
of embarrassment. As she
sees it, the biggest factor was the in­convenience
formerly caused by
Food and Nutrition
having to go to the bank and buy
stamps.
"I don't know what there is to be
ashamed of," she says," ... but it can
be a lot of trouble-a trip to the bank
and a wait might not seem worth it."
Using stamps
is easier
Many of the elderly who live in and
around Laconia receive food stamps
because Rev. Mark Schipul and
members of South Baptist Church
assist them. "They can't get around
so we transport them and help with
paperwork. We resent extra trips im­posed
by regulations and encourage
these new attempts to simplify," says
Schipul.
February 1980
Rev. Schipul believes the elimina­tion
of the purchase requirement
and mail issuance have "raised the
dignity of people by eliminating red
tape which confuses them and forces
them to rely on others for help ... "
Doris Makely, who runs the Senior
Drop-In Center for the Belnap Mer­rimac
Community Action Program in
Laconia, sums it up when she says,
"People who always needed food
stamps are getting them and using
them because its easier. ·
by Catherine Tim Jensen
For more information, write:
Phil Davis
Food Stamp Director
State Department of Health
and Welfare
8 Loudon Rd.
Concord, New Hampshire 03301
5
Sum.mer Meals for
Rural Children
Summer. For many children, the
mere mention of the word evokes
thoughts of sun, swimming, baseball,
popsicles, and school vacation.
But for other children-particularly
needy children in rural areas or those
from needy households-summer
can mean hunger. These are the
children who may have to go without
breakfast or lunch, either because
they have working parents who can­not
stay at home to cook meals, or
because the money simply isn't
available to provide the food.
The Summer Food Service Pro­gram
for Children was designed to
help meet the needs of children who
have no other means of receiving nu­tritious
meals during summer months.
The program operates out of schools,
churches, playgrounds, parks­facilities
which can demonstrate that
they have the capability to serve
wholesome meals and snacks to chil­dren
in needy areas.
Sponsors
serve meals
Any public or private nonprofit,
nonresidential institution or residen­tial
summer camp may apply to spon­sor
a summer food program. Schools,
churches, social service organiza­tions,
and city government agencies
have served as sponsors in many
areas.
By and large, however, schools
that operate school lunch or breakfast
programs are the prime candidates
for sponsoring summer programs. For
school food service personnel al­ready
experienced in operating a
feeding program, converting to sum­mer
feeding is relatively easy.
There are certain basic require­ments
for summer sponsors. For
example, they must:
• operate the program in areas where
at least one-third of the children
would qualify for free or reduced price
meals under the school lunch or
school breakfast programs, (this re­quirement
applies to all sponsors ex­cept
for summer camps);
6
• serve meals that meet minimum
nutrition standards;
• be responsible for all records and
finances;
• and adhere to all contractual
agreements.
A sponsor meeting program re­quirements
will be reimbursed for
meals and snacks served to children.
In addition, sponsors that prepare
their own meals or that have meals
prepared in a school will also qualify
for USDA-donated foods.
Other costs
covered, too
In addition to meal reimburse­ments,
sponsors get a certain amount
to cover operating and administrative
costs. Rural sponsors and those who
prepare their own meals often have
more costly programs to administer
than sponsors who contract for the
meals they serve. Therefore, rural
sponsors and those preparing their
own meals earn a higher rate of
reimbursement for administrative
costs than sponsors who contract
with food service management com­panies.
Since rural sponsors often experi­ence
problems getting children to
feeding locations, rural sponsors may
claim certain transportation costs as
operating costs.
A summer
sponsor in
Georgia
offers some
advice
"Transportation-of children and
food-is the biggest problem," said
Ellen Tiner, describing some of the
difficulties encountered by rural
sponsors of the Summer Food Serv­ice
Program for Children.
Tiner, social service coordinator for
the Slash Pine Community Action
Agency, is well acquainted with these
problems. Her agency serves eight
southeast Georgia counties, and last
summer sponsored the feeding pro­gram
for 9 weeks at 23 widely scat­tered
sites.
The area the agency serves covers
4,520 square miles, and averages
only about 22 people per square mile.
It includes part of the region's vast
Okefenokee Swamp, with its cypress,
Spanish moss, and slash pines.
Chose sites
carefully
Tiner said her agency approached
its transportation problems several
ways. First, to cut down on the
number of children that needed
transportation, the agency located the
Food and Nutrition
sites in or near the low-income areas
where eligible children live.
Since Slash Pine provided food for
ongoing programs of other agencies
as well as its own, the agency served
a variety of sites, including: a com­munity
center, a church, a child de­velopment
center, schools, outdoor
park areas, county and city recreation
centers, and training centers for the
mentally retarded. The smallest site
had about 25 children; the largest, lo­cated
near a food preparation center,
had about 225. Waycross, the
largest town in this area, adminis­tered
its own summer program.
The agency actually provided
transportation for about 30 to 40 per­cent
of the youngsters. "We trans­ported
children in agency vans,"
Tiner said, "and volunteers brought
carloads of children ."
Served 23
sites daily
Although Slash Pine served about
2,000 lunches a day at 23 sites,
transportation of food went smoothly,
Tiner said, thanks to some borrowed
vehicles and a well-organized prep­aration
and delivery system.
Every day, between 2 and 3
o'clock, site supervisors called the
central office to order lunches for the
next day. The area supervisor then
consolidated the information, and
called the food preparation centers,
to tell them how many lunches would
be needed.
Food was prepared at two central
kitchens-one at a Head Start center
and the other at a high school. Each
purchased its own food and had its
own 11-day cycle of menus.
The agency's Head Start center, in
Coffee County, provided lunches for
sites in three counties. Hot and cold
meals were prepared on alternate
days and delivered to sites in
styrofoam chests about a half hour
before serving. Three vans-one
owned by Slash Pine and two on loan
from county training centers, handled
the deliveries.
February 1980
Slash Pine contracted with the
Clinch County school system for
lunches for the other five counties.
Cold bag lunches were prepared at a
local high school and delivered in a
borrowed refrigerated truck. Lunches
were kept cold at the sites until meal­time
in refrigerators or styrofoam
containers with dry ice.
Some advice
for others
Since Slash Pine has sponsored
the summer feeding program for 6
years, the staff is experienced. So
are a lot of the volunteers. As Pat
Lowery, executive director for the
agency, said: "We've learned from
past mistakes. We've had the oppor­tunity
to experiment and learn what
works best for us, and that's what
we use."
He offered this advice to potential
sponsors of rural summer programs:
Plan ahead. Start your planning no
later than February.
Select your sites carefully. Be
sure your sites have holding facilities
for food, and shelter in case of bad
weather. Select sites in needy areas,
so you can eliminate some transpor­tation
problems. And choose areas
where there can be recreational ac­tivities.
Having recreational activities
helps keep children on the site at
mealtime.
Identify ongoing recreation pro­grams,
and let them be involved in
your planning. They can provide
staffing for the sites.
Select your own staff carefully,
because they will supervise the chil­dren.
Remember that in a rural area,
it's important to involve local people.
You can use volunteers too, and
share GET A workers with other
agencies.
Have alternate plans. Have alter­nate
sites, in case you need addi­tional
space. And have access to ad­ditional
staff or volunteers, in case
you need more help.
by Linda Klein
For more information. write:
Slash Pine Community Action
Agency
P.O. Box 1965
201 State Street
Waycross, Georgia 31501
Telephone: 912-285-6083
7
Reaching Mothers
and Young Children
Six years ago, a young woman
named Debbie walked into a health
clinic in Pineville, Kentucky, holding
her 1-year-old son. She wast months
pregnant, with little money to buy the
food she and her baby needed.
On that cold January day in 1974,
Debbie and her son became two of
the first participants in the Special
Supplemental Food Program for
Women, Infants, and Children, known
as WIG. Pineville was one of 216
project areas selected by the Food
and Nutrition Service to begin the
program in 1974.
Today WIG is supplementing the
diets of over 1.5 million women and
children in the United States,
Puerto Rico, and the Virgin
Islands. ParticipantS include
women who are preg-
8
nant or have recently given birth,
breastfeeding mothers, infants, and
children up to age 5, all of whom are
individually certified to have low in­comes
and to be in nutritional need.
Along with specifically prescribed
monthly food packages, participants
receive nutrition education. This fall
the Food and Nutrition Service
awarded $792,981 in grants for 10
projects to evaluate and improve the
WIG program. Three of the projects
will be evaluating WIG services in
rural areas:
The Michigan Department of Public
Health will evaluate the effect of the
WIG program on the utilization of
health services in rural areas and
among migrant farmworkers.
The Hunterdon Medical Center, a
rural WIG agency in west-central New
Jersey, will develop a model nutrition
education program stressing innova­tive
instructional techniques.
The National Child Nutrition Project
in New Jersey will identify the most
successful methods of bringing mi­grant
farmworkers into the program.
In rural areas, lack of transportation
can make it difficult for many women
and children to get the supplemental
food help they need. The following
article takes a look at how the WIG
staff in one area is working to al­leviate
this problem.
Food and Nutrition
A mobile
WIC clinic
helps in
Kentucky
In Kentucky's Gateway Health
District-which serves 1600 WIG
mothers and children in the rural
counties of Bath, Menifee, Morgan,
Montgomery and Rowan-the WIG
staff is using some unusual ap­proaches
to reach people living in
remote areas.
For example, to serve participants
who can't get to the district's five reg­ular
clinics, the staff members load a
car with files, scales and other
equipment and drive.to the small
town of Jeffersonville in Montgomery
County. There, in the town's commu­nity
building, a nurse, nutritionist,
February 1980
clerk, and community health worker
set up a temporary clinic for people in
the surrounding area.
They use simple, portable equip­ment:
a bathroom scale to weigh
older children and pregnant women;
tape measures, attached to walls and
tables, to measure height. But the
system works, and makes the pro­gram
more accessible to people in
this part of the district.
At all of the district's clinics, the
staff tries to be flexible in scheduling,
particularly when bad weather makes
transportation especially difficult. As
nutritionist Georgia Walter, Gateway
District's WIG coordinator explained,
"During the winter, we have a big
problem with snow and ice-covered
roads. A lot of our patients live up in
hollows, in remote areas. They can't
get out, and we can't get in. Last
January, schools were closed most of
the month, and nothing moved.
"The main thing we can do," she
said, "is to be flexible in our
scheduling. We encourage our pa­tients
to call in and reschedule their
appointments for a time when they
can make it to the clinics. Then we ar­range
for our staff to be there."
Referrals
are important
In the Gateway District, outreach is
accomplished in a variety of ways. As
might be expected, word-of-mouth is
an important means of communica­tion.
WIG participants bring in family
and friends who are also eligible for
the program.
Much of the outreach effort, how­ever,
depends on coordination and
cooperation within the health depart­ment
itself and with other agencies
and individuals in the district.
9
For instance, when birth certificates
are received at county health centers,
clerks identify babies with low birth
weights and send their parents a let­ter
which begins: "Congratulations on
the birth of your new baby! We want
to tell you about a program we have
at the Montgomery county health
center. It is called the WIC program."
The letter tells parents that be­cause
their baby weighed less than
S1f2 pounds at birth, the child may
qualify for the special supplemental
food help WIC provides. It urges them
to call the health center and make an
appointment soon.
The WIC program also gets pa­tients
referred from other health de­partment
programs, such as Family
Planning and Early Periodic Screen­ing,
Diagnosis and Treatment (known
as EPSDT).
When the health department first
started operating WIC, the staff pub­licized
the program through the
media and notified doctors and other
individuals working with various
agencies and institutions: schools,
local universities, Headstart, social
service and social insurance bureaus,
the comprehensive care and mental
health program, and Extension Serv­ice.
The Department's health edu­cator
stays in contact with people in
these organizations, which continue
to refer women and children to the
program.
Changing
food habits
Nutrition education is an important
part of the WIC program, and a chal­lenge,
whether the setting is rural or
urban. But it can be especially dif­ficult
in rural areas like this, where
extended families are common and
traditions are strong.
One of the common nutrition prob­lems
Georgia Walter sees is the
practice of leaving children on bottles
until they're 2 or 3 years old. This
often leads to anemia because chil­dren
tend to fill up on fluids and don't
consume enough other foods. It can
also cause dental caries, since chil-
10
dren's mouths are constantly ex­posed
to milk and other beverages,
many of which contain sugar.
"There's also a problem with some
mothers introducing baby foods at too
early an age," Walter said, "some­times
as young as 2 weeks. This can
lead to weight problems later on."
In general, she added, people in
this area tend to consume a lot of
carbonated beverages, fried foods,
biscuits and gravy, and they add fats
to vegetables. "This can lead to
weight problems, as well as other
diseases," she said. "I usually pick
out the worst problems and start
there. I start slowly, suggesting a
few changes at a time. Dietary habits
are very difficult to change."
Mothers get
counseling
Most of the nutrition education
takes place on a one-to-one basis,
but occasionally the nutritionists give
group lessons while the women are
waiting to be certified or to pick up
vouchers. They cover: ways to pre­pare
and use WIC foods, nutritional
needs, and shopping and general food
preparation tips. Posters, leaflets,
film strips and plastic food models are
used to illustrate the 1 0- to 20-minute
classes.
Other nutrition activities for WIC
participants have included talks given
by La Leche League to nursing
mothers and pregnant women in­terested
in nursing, and classes by
health department hygienists on nu­tritious
snacks and dental care.
"One of the really positive things
about the WIC program, I feel, is the
fact that we can provide nutrition
education," Walter said.
"We try to teach our patients why
the WIC foods are good for them, and
how these foods fit into their total
diet. But most important, we try to
straighten out some of the dietary
problems that have caused poor
health and made these people eli­gible
for the program in the first
place."
by Unda Klein
Food and Nutrition
.. ,. ·,· .. -; ..
February 1980
A Rural District
Builds a School
Breakfast Program
Schools in Mansfield, Ohio, have
been serving breakfast for 2
years. From the start the district's
breakfast program has had the full
support of the school superinten­dent
and the food service staff.
Like most schools starting
breakfast programs-in urban as
well as rural areas-Mansfield
schools already had lunch pro­grams,
so adding breakfast was
not difficult. In this article, school
administrators and food service
staff members talk about how they
got the program going, the adjust­ments
they made, and some of the
benefits they've seen.
Through the School Breakfast
Program, schools get Federal as­sistance
from USDA in the form of:
cash reimbursements for meals;
donated foods; funds for equip­ment
needed to store, prepare,
transport, or serve food; and tech­nical
guidance.
11
Breakfast
began in a
few schools
at first
"A rural district can successfully
operate a breakfast program," says
Mary Fraker, manager of food serv­ices
for Mansfield, Ohio, schools.
"Simplicity," she says, "is the key."
The Mansfield school district started
the program by serving simple
breakfasts in a few schools at first,
then expanded it to. other schools.
Mansfield, located in the midst of
rich rolling central Ohio farm land, is
a quiet rural community gradually
being invaded by industry as machin­ery
modernizes farming. Neverthe­less,
it is far from urban. Horse drawn
buggies from the neighboring Amish
settlements can be seen on the sec­ondary
roads. Family incomes range
from very low to moderately high.
All 17 schools In the district, in­cluding
the two high schools, now
serve breakfast. The menus are very
simple: a box of cereal, a carton of
milk and fruit juice. For variation,
sch~ols sometimes serve a fortified
bread product instead of cereal, and
fresh fruit-an apple, banana, or
orange-instead of fruit juice. .
"This breakfast meets USDA nutn-
12
tion requirements," said Fraker, "and
the only piece of equipment needed
is a refrigerator."
Fraker had the support of James
Fox, superintendent of schools, when
she implemented the program 2
years ago. Fox pushed for the school
breakfast program and won the sup­port
of the school board. He advised
the board that some of the district's
schools-those with high percent­ages
of children qualifying for free or
reduced-price meals-would soon be
required by State mandate to begin
breakfast programs. He went on to
explain the oeed in other schools as
well and urged the board to adopt the
program districtwide. Board mem­bers,
some with pessimism, went
along with his ideas and the program
was started.
At first, some school principals
were skeptical. "Although principals
didn't have any bad comments about
the program, some of them didn't
relish the idea," said Fraker. "They
thought there would be all kinds of
problems."
Made some
adjustments
The problems encountered were
not unique. Like any organization, ·in­dustry,
or agency adding a new func­tion,
schools had to make some ad­justments
in staffing, paperwork and
scheduling. But, said Fraker, the
changes were not major.
Fraker found she could meet the
need for extra labor by adding hours
to the schedules of certain employ­ees,
mostly cashiers. "In schools with
high participation, I have the cashier
work 5 hours instead of the usual 2,
so she can help make up time used
by the head cook on breakfast,"
Fraker explained.
With such a simple breakfast,
cleanup is easy, and the children
help. The janitor is paid for an extra
half hour. The one addition to the
food service staff was a breakfast
supervisor, added to Fraker's admin­istrative
staff.
At first, storage was a problem be­cause
the cereal was so bulky. "We
solved that problem by making a deal
with a wholesale house," said Jane
Snyder, breakfast supervisor. "The
cereal is ordered in large supplies
through the wholesaler, and then de-livered
to each school in small ship­ments
as the school needs it." By
purchasing in large quantities, the
district pays a lower price for the
cereal and saves storage costs.
Working on
scheduling
Because bus schedules in a rural
district are tight, Fraker said, "time is
of the utmost importance" in planning
and serving morning meals. With a
simple menu, it takes only minutes for
schools to prepare breakfast and only
15 minutes to serve it. In Mansfield,
breakfast runs from 7:30 to 8:45. The
first bus arrives at 7:45.
The district still has some schedul­ing
problems to work out-for exam­ple,
some principals allow children
extra time to eat if the buses are late,
and some do not. But school ad­ministrators
have found serving
breakfast has actually alleviated
some other problems associated with
busing.
"Before the program," says Murphy
Moultry, principal of the John Sher­man
Middle School, "the kids would
get off the bus, and, for lack of
I
something better to do, would get into
fights and scuffles on the playground.
Now they go directly to the cafeteria.
Those who do not eat sit with their
friends and chat. We are taking care
of the kids needs, and they enjoy
that."
Moultry said the program has im­proved
students' attitudes in class,
too. "Before they walked into class
half awake," he said.
Albert Paetsch, principal of the
Empire School said he didn't need to
be convinced of the need.for the
breakfast program. "Most of the stu­dents
who attend this school are from
low-income homes," he explained.
"Many times I found that behavior
problems were stemming from the
fact that the child had nothing to eat
since his school lunch the day be­fore,"
he added.
"Before the school breakfast
began," recalled Margaret Sweat,
Empire School's head cook, "Mr.
Paetsch would come into the
cafeteria in the morning with a child in
tow and say, "Fix this child something
to eat!"
"The children were sick or nearly
sick because of no food at home,"
said Paetsch.
Participation
averages 1 , 1 00
Districtwide breakfast participation
averages about 1,100 children daily.
Eighty-six percent of all breakfasts
are served to children qualifying for
free school meals, and about 5 per­cent
are served to children qualifying
for reduced-price meals. About 9 per­cent
of all breakfasts are served to
children paying full price. Reduced
price meals cost 10 cents; full price
meals cost 30 cents in the elementary
schools and 35 cents in the middle
and high schools.
From the beginning, the school
breakfast program has required little
or no district funds. Department of
Agriculture equipment assistance
monies paid for 75 percent of the cost
of the 16 milk cabinets and 2 freezers
schools needed, and the rest came
from State funds and funds already in­cluded
in the district's food service
budget. Meal reimbursements pro­vided
through the School Breakfast
Program cover food costs as well as
preparation and operating expenses.
Mary Fraker says careful planning
helps keep costs down. "I continually
watch prices, and make menu
changes accordingly," she said.
For other schools interested in the
breakfast program, Fraker has this
advice: "Start in one or two schools
at a time before you go all out. Work
with those schools for a month or
two-this will help iron out unex­pected
little problems. Then, gradu­ally
add schools until they're all in
operation."
For more information, write:
Mary Fraker
53 West Fourth St.
Mansfield, Ohio 44902
Telephone: (419)-522-0611
by Eunice Wilson Bowman
14
Schools Buy
Farm Fresh
Produce
Many schools are exploring
ways to buy and serve more
fresh fruits and vegetables. Here's
how two school districts arranged
to buy fresh produce directly from
local farmers. The districts, one in
California and one in New Hamp­shire,
have found that direct pur­chasing
not only benefits the
schools, but helps the local farm
economy as well.
f
/ /
Food and Nutrition
In
Sacramento,
California
The cafeteria managers in the San
Juan School District, near Sac­ramento,
California, knew that when
they ordered farm fresh fruits and
vegetables, farm fresh is just what
they'd get.
They knew because the man who
sold the produce was the same man
who grew, picked, and delivered it to
them at 6 a.m. each Monday. He is a
local farmer, involved last summer in
a test to help San Juan find out if pur­chasing
directly from the farmer is
feasible in a large-scale food service
operation.
During the summer, San Juan
kitchen staffs prepared nearly 1 ,000
meals daily, serving five schools as
well as two senior and child care
centers. Gwendy Post, the food ser­vice
staff member responsible for or­dering
the produce, suspended an
agreement with a wholesaler for the
summer months and contracted with a
local farmer. It was the farmer's job to
supply all the produce for school
meals either from his own farm, other
farms in the area, or when necessary
from the wholesale market.
And what
happened?
"We compared the prices of pro­duce
purchased directly from local
growers to the prices wholesalers
charged for the same items," said
Post. "We saved an average of 36
percent."
For the San Juan District this was
welcome news at a time when rising
food prices and restrained budgets
are forcing many schools to pass cost
increases on to students. Typically
when the cost of a balanced school
lunch increases by 10 cents, 14 per­cent
of those students who ordinarily
buy lunches drop out of the school's
lunch program, opting instead for
brown bags or heading for the
nearest fast food or snack outlet.
Although the produce prices
Februarv 1980
dropped, the quality didn't. "In fact
the quality of the fruits and vege­tables
got high marks from all of our
summer cafeteria managers," said
Post. The cafeteria managers filed
weekly reports indicating their own
and their customers' degree of satis­faction
with the direct-purchased
produce.
"It was interesting to note that the
elderly people eating at senior ·citi­zen's
centers were exceptionally
pleased with the produce. Probably
because it was more like the produce
they enjoyed as children," said Post.
The results of the test, which
showed that San Juan could maintain
quality and reduce costs at the same
time, have prompted other schools to
investigate direct purchasing.
Benefits
small farmers
Marc Lienwand, the farmer who
helped set up San Juan's direct pur­chasing
test, is quick to point out the
benefits to the farmer. "The small or
family-owned farm operation is of­fered
another market for its goods,"
he said, "and one that pays a bit
better than the usual wholesale
prices. Getting into the school food
service market could be a great help
for the 2 million or so family owned
farms in the U.S."
For more information, write:
Bill Russi, Food Service Director
San Juan Unified School District
3738 Walnut Ave.
Carmichael, California 95608
by Rick Rice
And
Concord,
New Hampshire
Efforts to revitalize the local farm
economy and improve school meals
go hand in hand in New Hampshire,
too. As a result of a project begun in
January 1979, Concord schools are
now buying fresh fruits and vege­tables
directly from local farmers.
They're storing the produce in a
brand new root cellar, built with do­nations
from the community-and lo­cated
beneath the school superinten­dent's
office!
Now instead of having to rely solely
on vegetables shipped in from other
States during the winter months,
Concord schools can also serve
locally-grown vegetables, planted in
the spring, harvested in the fall, and
stored safely and economically for
several months.
Storage
is simple
Root cellaring is an old-fashioned
but effective method of storing foods.
It requires no expensive refrigeration
equipment, uses little energy, and
allows people to store huge amounts
with relatively little work. The Con­cord
root cellar is a 35- by 15-foot
area in what once was the leaky ce­ment
basement of the school district's
administrative offices.
Building the cellar involved putting
up 2- by 4-inch wooden boards, lining
the ceiling and walls with 4-inch thick
rigid polystyrene insulation and
plywood panels, and installing venti­lation
grills and thermometers to con­trol
temperature levels.
Now in full use, the cellar has sev­eral
5-foot tall wooden bins, spanning
about 6 feet each, located in the
center of the room. The bins hold root
15
crops, such as carrots, buried in
layers of sand and divided by boards.
As the bins are emptied, the boards
are removed to expose the next layer
of vegetables. Shelves lining the
walls hold apples and other produce
not stored in the bins.
Concord schools began filling the
root cellar last fall. By the end of the
school year, Bob Munson, the city's
school food service director, expects
to purchase 5,000 to 6,000 pounds of
carrots, cabbage, beets, potatoes,
rutabagas, parsnips, apples, and
other fruits and vegetables.
Has required
some changes
Munson has found that serving lo­cally
grown vegetables has required
some changes in the school district's
food service. For example, meal
' ' In New Hampshire, where
we have snow all winter long,
must we depend on crops
grown far away and shipped
with diesel fuel? Maybe we
can learn to grow the kinds of
foods that like to grow here,
that store well here.' '
16
preparation takes more time, since
the root crops need to be cleaned, cut
up, and cooked a bit longer than
canned vegetables. But, he says, the
extra time is worth it: "It means we
can serve crispy fresh carrots, which
are a treat for the kids. Much of the
old canned product was wasted."
The cost to purchase 'last year's
imported and processed vegetables
roughly equals the current cost to
purchase and prepare an equivalent
amount of locally grown fresh foods.
So monetary savings are not the
most significant result, Munson said,
referring to the expected $1,200 net
gain in local purchases this year.
"But," he said, "we're getting the
freshest possible product, keeping
the money within the State, and sav­ing
energy."
Currently, 85 percent of all the food
Below: Bob Munson,
Samuel Kaymen, and
school superinten­dent
Calvin Cleveland
(L. to R.) visit the
root cellar.
Right: Kaymen
spends an afternoon
with Concord stu­dents
in one of their
"winter storage
gardens."
consumed in New Hampshire is
shipped in from other States, and
until now the lunches and breakfasts
served in New Hampshire schools
have included almost no locally
grown foods.
Buy directly
from farmers
The Concord district now buys
most of its fresh produce directly from
local farmers who participate in a
marketing project sponsored by the
National Association of Organic
Farmers, in cooperation with Vista.
Fifteen farmers are currently par­ticipating
in the project, which has as
its goal reestablishing the once
strong ties between local agriculture
and the community. Project coor­dinators
began by organizing a local
farmers' market and then worked to
Food and Nutrition
involve the schools and build the root
cellar.
Samuel Kaymen, president of the
National Association of Organic
Farmers and agricultural coordinator
for the Northern New England Center
for Appropriate Technology, came up
with the root cellar idea and played a
key role in getting schools interested.
Kaymen presented the idea at a
January 1979 meeting of the State
School Service Association. He later
won the support of five different
groups and agencies, including a
bank and an insulation company that
together contributed more than
$3,000 in cash and building mate­rials
for the cellar.
The bank, which is depositor­owned,
was already supporting the
farmers' market by providing publicity
February 1980
and space-its parking lot in
downtown Concord is where the
farmers sell their produce every
Saturday during the growing season.
Lessons
for students
Kaymen is also working to heighten
teachers' and students' awareness of
food, nutrition, and agriculture. He's
developed 30 lesson plans and exer­cises
which encourage kids to think
not only about what they eat and how
it contributes to their health, but also
about how foods are grown and mar­keted.
The lessons convey what Kaymen
feels is an important message: "In
New Hampshire where we have snow
all winter long, must we depend on
crops grown far away and shipped
with diesel fuel? Maybe," he says,
"we can learn to grow the kinds of
foods that like to grow there, that
store well here."
"The Winter Storage Garden," one
of Kaymen's lesson plans, includes a
provision for small student gardens of
foods storable in a root cellar. Thanks
to the support of Edwina Czajkowski,
who directs school environmental
education for the district, more than a
dozen classrooms are now taking
part in the gardening project.
The first plots were planted on
community gardening land last June,
and by September students had a
bounty of squash, pumpkins, flint
corn, carrots, potatoes and sunflow­ers.
A portion of the harvest went into
the root cellar. But some was cooked
right away and served in the school
cafeteria, where table cards told stu­dent
customers which class had
grown the vegetable of the day.
Involving
other schools
With the root cellar and lesson
plans well underway in Concord,
Kaymen wants to get the materials,
ideas, and experience to all school
districts in the State. He feels that
public education, coupled with a
system of low energy food technology
and improved marketing, will encour­age
small scale farming and put more
locally grown food in school
cafeterias.
For more information, write:
Robert Munson
School Food Service Director
16 Rumford St.
Concord, New Hampshire
by Dennis Shimkoski
17
Family Day Care
Comes to Lewiston
When a mother of young. children
decides to look for work outside her
home, she faces an important and
often difficult decision: where to get
the best care for her children while
she's away from them. For low­income
women with infants and very
young children, it can be a great
challenge to find good and afford­able
care.
The article that follows tells how
a community service agency in
Maine-the Catholic Diocese of Maine
Human Relations Service-organized
a network of family day care homes
to help meet the need for good,
low-cost child care in a five-county
area. Through the network, the Dio­cese
channels aid from several
sources, including Federal reim­bursements
for meals provided by
the Child Care Food Program.
The Child Care Food Program is a
nationwide program administered by
the Food and Nutrition Service in
cooperation with State and local
agencies. The program helps child
care centers, family and group day
care homes, and recreation facilities
18
operating outside school hours to
serve nourishing, well-balanced
meals to children.
Nonprofit, nonresidential child care
institutions may join the program on
their own, or they may join under the
auspices of a qualified sponsoring
organization. Family and group day
care homes, however, must have a
sponsoring organization. Organiza­tions
such as units of State or local
governments, community agencies,
and churches frequently become
sponsoring organizations.
A family day care home consists of
a single staff member licensed to
care for up to six children, including
no more than two of her own. A
group day care home may have no
more than 12 children under the
care of two or more staff members.
For more information on how the
Child Care Food Program can help
child care centers and day care
homes, contact your State Depart­ment
of Education or the nearest re
gional office of the Food and Nutri­tion
Service.
I t was a shock to see cows by the
side of the road as I drove to work,"
said Carolyn Davis, recalling days 5
years ago when she began working in
rural and small town Maine.
Since 1974, Davis has been work­ing
as family day care coordinator for
the Catholic Diocese of Maine Human
Relations Service in Lewiston. When
Davis took the job, the Diocese had
just received a grant from the State
Department of Health and Welfare to
set up a network of family day care
homes in a four-county area cover-ing
more than 4,000 square miles.
Working essentially alone, with the
help of one clerical assistant, Davis
had to: recruit and train family day
care mothers; locate and place chil­dren
needing care; and put together
the administrative structure needed to
channel State and Federal assist­ance,
including Child Care Food
Program assistance, to the homes.
Carolyn Davis is like many of the
new migrants to rural parts of Maine,
Vermont and New Hampshire. She
came, with her family, to find a sim­pler
style of life. She is well­educated,
with skills to offer the ne­glected
little towns whose populations
shrank or remained stable for half a
century as young people were drawn
to the cities. Before moving to Maine,
Davis had worked in the industrial city
of Manchester, New Hampshire,
where she had helped the Greater
Manchester Day Care Association set
up its first family day care network.
Similar in
some ways
In some ways, she said, the initial
tasks of building a network are the
same no matter where you are. For
example, in both urban and rural
areas, most people who apply for
family day care are not licensed, and
making sure they get licensed is a
first step. To qualify for Federal meal
reimbursements and other aid,
homes must be licensed or have ap­proval
from Federal, State, or local
governments.
Also, in both urban and rural areas,
people tend to be drawn to family day
care work for the independence it al­lows.
They're often hesitant to be­come
affiliated with an association,
fearing it will complicate their lives
with bureaucracy and red tape. Com­batting
this fear is another part of re­cruitment
in both areas.
There are significant differences,
however. "The biggest difference
Food and Nutrition
from Manchester was geography,"
Davis said. "There, if I had to, I could
visit every home in a day. It was fairly
easy to place a child because all the
homes were fairly close to one
another.
"In the city if a placement doesn't
work out, there may be another home
nearby. In the country you have no
options. You may have a child to
place ... and the only opening may
be 20 miles away. The logistics are
much harder.
"The other problem was visibility,"
Davis added. "In Manchester, there
was a child care center, run by our
association in a red brick building-a
former schoolhouse-which people
knew. People could identify our serv­ice.
In Maine, it was painful because
we were so invisible.
"When I started there was virtually
no licensed day care and nothing be­sides
informal day care or private
babysitting arrangements. There
were no centers. Nothing was or­ganized."
Recruiting
and licensing
Davis set out to recruit children and
providers by talking to people with
extensive community contacts­extension
service agents, public
health nurses, welfare workers, town
clerks. She hung posters, containing
pockets stuffed with brochures, in
post offices, town offices, wherever it
was permitted.
Carolyn Davis gives
5-year-old Alyssia a
hug. Alyssia is one of
the 187 children
served by the net­work's
37 homes.
February 1980
She recruited for homes through
newspaper advertisements. "Wanted:
Warm, caring, individual to care for
children, infancy to 13, at home.tor
Federally funded day care program.
Must be licensed."
Licensing presented special dif­ficulties.
"It took from 6 to 12
months," said Davis, "so you had to
recruit someone willing to wait and
also willing to put up the licensing fee
of $10, plus the cost of any necessary
changes."
Fire and water inspections required
for a license were time-consuming.
The water inspection is required of
homes using well water, something
not necessary for homes in towns
and cities. Fire inspection often took
months because it was done by a
separate State agency which also
handled all fire investigations and li­censing
of restaurants and other pub­lic
places.
"It was impossible to get a fire in­spection
during the holidays because
all the bars wanted to be ready for
New Year's Eve," Davis recalled. The
unit licensing child care providers
now has two fire inspectors on its
staff, so the processing moves more
quickly.
Fire inspectors look carefully at
wood stoves, a popular source of
economical heating in Maine. Re­quirements
for wood stoves in a resi­dence
differ from those for child care
homes. Often a visit from an inspec­tor
will mean changes or additional
expenses before a home can be
licensed to accept children.
Distance is also a factor in licens­ing
time. "If you have 10 homes
waiting in a city such as Lewiston and
only one in small country places, all
far from one another, you can be sure
that Lewiston will be taken first be­cause
more can be done in less
time."
Need was
apparent
The need for family day care was
apparent from her first days on the
job, according to Davis.
"I remember visiting a mother way
up in the far reaches. The mother
was only 23 years oJd and had six
children for whom she needed care.
We were able to place the children,
and she went to work in a small fac­tory
making wood items."
Davis believes the need for child
care becomes greater all the time.
"Nationally 30 percent of mothers
Linda Rogers, who cares for
Carolyn Davis' two young children,
learned about day care from
neighbors. Until a year ago she
worked in a yarn mill as a "twis·
ter," running a machine with 80
bobbins 8 hours a day. When Linda
heard that a family day care pro­vider
in her home town of Lisbon
Falls was moving, she applied. At
that time her son David, age 2, was
cared for by a licensed day care
provider associated with Davis'
program.
Linda Rogers' workday is typical
of most family day care mothers,
beginning at 7:30 a.m. and ending
at 5:30p.m. She receives $27 a
week for care of a full-time child,
plus meal reimbursements. She
gets extra money for caring for in­fants,
and less for part-time care.
Carolyn Davis is pleased that her
own children are together after
school. She believes the familiar
setting of a home with a single
caretaker is important to a small
child's adjustment and perception
of life.
19
with children under the age of 1 are in
the work force. Inflation is pushing
them out to work. In Maine, which has
a very high cost of living, this is par­ticularly
true," she said.
There are now 37 homes par­ticipating
in the network Carolyn
Davis organized. Together the homes
serve 187 children, including Davis'
son lan, age 6, and her daughter
Laura, age 2.
The Diocese pays the homes a flat
rate of $27 per child per week for gen­eral
care. As a Child Care Food Pro­gram
sponsor, the agency also pro­vides
reimbursements for every
breakfast, lunch, supper, or snack the
homes serve. Parents of the children
pay the Diocese directly for care and
meals. The amounts vary according
to the family's income.
"Nobody's rich," said Davis, de­scribing
both the children in care­two-
thirds of whom qualify for USDA
free or reduced price meal rates­and
the day care providers, whose
incomes are varied.
Help with
meal planning
To get Federal assistance through
the Child Care Food Program, homes
must be affiliated with an authorized
sponsoring agency, they must serve
meals that meet minimum nutrition
requirements, and they must keep
records. Sponsors, such as Davis'
agency, handle the administrative
chores and paperwork necessary to
obtain reimbursement.
To simplify day care providers'
bookkeeping chores, Davis devised a
menu list with numbers. Using USDA
meal patterns as a guide, she listed
40 possible lunches or suppers, 19
breakfasts, and 20 snacks. The pro­viders
simply put the numbers on a
form which covers a week. Under
each number there is a line for sub­stitutions
and a line for additions.
For instance, snack 5 is a banana
and English muffin. If a provider
serves cantaloupe instead of a
banana, she simply jots down the
substitution. In addition to reducing
recordkeeping chores, the lists give
providers an easy-to-understand
framework for planning a variety of
well-balanced meals.
Work closely
with homes
As the network has grown, so has
the administrative workload. There
are now two offices-in Lewiston and
20
in Waterville. The staff includes a
program specialist, a secretary, and
three field workers, who travel 4 days
a week.
The field workers are the day care
providers' lifeline to the agency. They
assist in recruiting, visit the homes,
and provide guidance .and support. It
is the field workers who review the
menus and talk over any food service
problems. Together with Carolyn
Davis and program specialist Cammy
Collins, the field workers also plan
monthly training workshops, which
include nutrition and menu planning
as topics.
The training workshops are not
held in the heavy snow months­January,
February, and March-and
a schedule of smaller meetings may
soon be arranged to cut down on
travel and gas consumption. Not all
roads are paved and "every trip
seems to be at least 50 miles," says
Betsey Reynolds, who is proud she
hasn't been stuck in the snow in 3
years on the job. Her sturdy station
wagon transports high chairs, walk­ers,
playpens, gates and large toys,
all provided by the agency. Many of
the smaller toys and furniture belong
to the families themselves.
In Maine, as in Manchester, Caro­lyn
Davis said, the "fathers" in family
day care homes often provide valu­able
support. One, for example, took
time off from work to scrape the lead
paint off the woodwork in the family's
1861 farmhouse, in order to meet a
government requirement. Another
worked out an insurance policy cov­ering
all the homes in the network.
The policy is comparable to that
available for schools but rare in day
care. In some homes, fathers help
with grocery shopping-a big job for
day care providers-and meal prep­aration.
Family day care, Davis said, is
'practical and individualistic, qualities
as natural to the Maine landscape as
pine trees. Davis' concepts and skills,
developed in urban areas, have
helped family day care take root and
grow in the open country of the North.
by Catherine Tim Jensen
For more information, write:
Carolyn Davis
Diocesan Human Relations Service
382 Sabattus St.
Lewiston, Maine 04240
Food and Nutrition
Anything from asparagus to zuc­chini
may appear on the menu at
Irene Woodward's family day care
home. The family's 88-acre farm is
the test site for vegetables for the
Maine Cooperative Extension
Service. Irene's husband, Charles,
plants as many as 10 seed var­ieties
to find those most success­ful
In the Maine climate and soil.
The Woodwards were early mi­grants
from urban life to Northern
New England. Twenty years ago
Charles sold his share of a printing
business in the Boston area, and
they moved to Maine. He wanted to
learn to grow vegetables, and, by
luck, found a job with the Univer­sity
of Maine at the experimental
station.
Later, when he was able to buy
the farm near Leeds, summer
growing was established there.
The result was a saving to the
State and a convenience to
Charles. Now, during the winter
months, he specializes in growing
apples for the university at High­more
Farm in nearby Monmouth.
The three Woodward daughters
are almost grown-one In college,
one in high school and one in
eighth grade, so the day care chil­dren,
Alyssia, 5, and Emily, 2, fill a
void. They play in the barn and
field, or In the kitchen overlooking
the Androscoggin River, while
their own mother works at a health
center nearby as a lab technician.
February 1980 21
At Judy Chateauvert's home in
the country near Greene, Maine,
Michael, age 5, and Andrea, age 3,
have been watching their new baby
brother grow and change. He
started coming with them to day
care when he was 8 weeks old.
Judy also cares for Matthew, age
5, whose father died recently in an
accident. Judy watchfully eased
him through the shock, the mo­ments
of shyness and sudden
tears. Now, Matthew and Michael
play at being woodsmen, working
as they've seen their fathers work,
22
tossing hooks into trees, sawing
wood and piling logs. Michael's
sister, Amy, age 7, joins the other
children after school.
At the Chateauvert's, the chil­dren
play in a field marked by typi­cal
New England stone fences.
Years ago Judy's father-in-law
used it as a hayfield. Later, Judy
and her husband built their home
by the field and put up swings and
a picnic table for their children,
who are now almost grown.
The field has a slope for sledding
in winter and tumbling barefoot in
the summer. In the next field Judy
grows blueberries which the chil­dren
sometimes pick and eat as
they play. Each year, Judy freezes
a winter supply.
Blueberries and raspberries
grow in the Chateauvert field, too.
During the growing season, a large
garden provides tomatoes, squash
and many other vegetables for the
children's meals and snacks. Judy
also buys foods not native to
Maine, such as cantaloupe, be­cause
she wants to introduce the
children a variety foods.
Food and Nutrition
February 1980 23
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