A recent report by the Eos Foundation highlights significant challenges in Massachusetts regarding school breakfast programs. The study indicates that, despite a law signed by then-governor Charlie Baker in August 2020 mandating breakfast for students in schools with over 60 percent eligibility for free or reduced-price lunches, only 48 percent of students in the state’s 953 high-poverty schools participated in breakfast programs as of March 2025.
The legislation aimed to enhance student health and behavior but has struggled to achieve its intended goals. The implementation has faced setbacks, notably influenced by the COVID-19 pandemic. The Massachusetts Department of Elementary and Secondary Education reported that approximately 180 high-poverty schools were not complying with the law as of 2024. Additionally, over 100 schools at various income levels did not offer breakfast at all. In light of these compliance issues, the department is actively working with districts to improve adherence, although an updated list of noncompliant schools has not been published this year.
Ensuring that students have access to breakfast is critical, particularly in communities where food insecurity is prevalent. A review of literature conducted in 2023 underscored the positive impact of breakfast on diet quality and classroom behavior, especially for students from racial and ethnic minority backgrounds and those from low-income families. While the correlation between school breakfast and academic performance remains mixed, some studies suggest that participation can enhance attendance and test scores, particularly among students facing academic challenges.
Stephanie Ettinger de Cuba, executive director of Children’s HealthWatch, emphasized that breakfast access can improve food security, which in turn influences student behavior. “Children who skip breakfast are more likely to experience health issues and difficulties concentrating,” she noted. “In lower-income communities, where many children face food insecurity, the classroom can become a disruptive environment.”
Financial constraints should not hinder breakfast offerings in schools. The federal government provides funding for breakfast and lunch for low-income students, and Governor Maura Healey signed legislation in 2023 to extend universal free school meals to all remaining students. Additionally, grants from private organizations are available to assist with implementation costs.
The more students that participate in breakfast programs, the greater the reimbursement for schools. Therefore, schools that can serve more meals may benefit financially as the marginal cost of additional meals is often lower than the revenue generated from state and federal programs.
Challenges to effective breakfast programming often stem from administrative difficulties, such as scheduling meals without disrupting instructional time. Various models have been implemented, including serving breakfast in classrooms, offering “grab and go” carts, or scheduling breakfast during mid-morning breaks.
Erin McAleer, president and CEO of Project Bread, indicated that while more schools are providing breakfast since the legislation made meals free, many districts still face competing priorities in the aftermath of the pandemic. She noted that breakfast served in classrooms at the start of the school day tends to yield the highest participation rates, but high schools may benefit from mid-morning offerings to accommodate older students’ schedules.
One successful example of a breakfast initiative can be found at Prospect Hill Academy Charter School, serving approximately 850 students in Cambridge and Somerville, where around 65 percent qualify for free or reduced-price lunch. Nutrition director Michelle Doyle reported that the school has experimented with various programs since the breakfast law was enacted. The most effective model involves a dedicated time for a hot breakfast in the cafeteria after the bell, with participation rates reaching approximately 90 percent.
“The students are calmer and more focused because they have eaten,” Doyle explained. “They are less likely to visit the nurse due to hunger-related issues.” The school has also increased participation at the middle and high school levels by obtaining a grant to prepare hot breakfasts in-house, raising participation from about 15 percent to between 25 and 30 percent.
The Eos Foundation report identified disparities among high-poverty districts. For instance, Springfield boasts an impressive 83.1 percent participation rate in its breakfast program, a significant increase from 44 percent in the 2015-2016 school year after implementing breakfast in classrooms. Conversely, Boston serves breakfast to only 46 percent of its students. A spokesperson for Boston Public Schools stated that the district is prioritizing meal quality and accessibility while acknowledging that student routines and schedules affect participation.
Other urban districts face similar challenges; Lynn and Worcester report breakfast participation rates of only 41 percent and 38 percent, respectively. As the need for proper nutrition in schools remains critical, the focus now shifts to effective implementation of existing legislation. The goal is clear: no child should begin their school day hungry.
