Hospitality Review
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Contracted School Food Service: Advantages,
Disadvantages, and Political Concerns
Stephen M. LeBruto
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Behshid Farsad
University of Central Florida
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Contracted School Food Service: Advantages, Disadvantages, and Political
Concerns
Abstract
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Keywords
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Contracted School Food Service:
Advantages, Disadvantages,
and
Polimtical Concerns
by
Stephen
M.
LeBruto
and
Behshid
Farsad
Schools have evolved to be providers of education as well as suppli-
ers of ancillary services to the population that they serve. This article
examines one of these ancillary services, food service, in order to
provide some awareness of the political aspects of the decision-mak-
ing process in choosing whether or not to contract this service, as well
as the pros and cons of the situation.
One of the broadest principles of American education is that all
members of society are entitled to equal opportunity in education. In
reaching out to the culturally diverse population of this country and
its children with a myriad of socio-economic backgrounds, and to
carry out the charge of providing a universal education for all,
schools have been required to assume more responsibilities than only
providing the legislated product, education.
Public schools have entered the business of providing ancillary
services, in most cases as a requirement of accepting federal funding
for particular purposes. Providing education is a responsibility of the
individual states. The United States Constitution declares, "It is the
paramount duty of the state to make ample provision for the educa-
tion of all children residing within its borders
..."
As an example of
compliance with the
U.S.
Constitution, the constitutions of
California, Iowa, Nevada, Michigan, and North Carolina provide
that education shall be encouraged. The Illinois, Louisiana, and
Montana constitutional provisions describe the goal of education; in
Massachusetts, New Hampshire, and Tennessee, the constitutions
state that education should be cherished. Rhode Island assigns
a
responsibility to the General Assembly to promote education as that
body sees fit. Maine's constitution authorizes the legislature to
require towns to make suitable provisions.
The federal government can become involved in the provision of
education through application of the "good and welfare" clause in the
Constitution, which allows for the federal government to provide
funding for programs deemed to be for the benefit of the population as
a whole. In many instances this clause has been enacted to provide
federal funding for education, including the national school lunch pro-
gram. However, this funding comes with attachments to the individ-
ual states, requiring educators to use the funds in a manner
prescribed by the federal government. Most schools are willing to
abide by the parameters established by the federal government in
order to continue to receive funding for the programs. There is no
requirement for schools to accept federal dollars for programs such as
the national school lunch program; however, if they accept them, then
they are bound by the requirements for their use.
An
underlying philosophy supporting the provision of these ser-
vices is that if schools provide the social safety net for students who
are lacking individual means, disadvantaged students will be able to
exercise the right to universal education that is equal to any other stu-
dent.
As
far as food service is concerned, students who are well nour-
ished should perform better in the classroom than those who are not.
Food service is a product that can be delivered by an independent
business or by the school district itself. Either way, schools provide
food service as a non-instructional benefit, undertaken to help
accomplish the mission of public education. It also must be delivered
and managed in a manner consistent with the guidelines established
by the federal government if it wishes to continue to receive federal
financial support.
Management Companies Have Grown
Food service management companies have become a significant
provider of public school food services in recent years. Twenty years
ago
Hockenbery1 reported that food service contracts in schools were
on the rise and eventually would equal contracted services for bus
transportation, cleaning services, and production services. These
contacts, properly written and executed, allowed educators to get
back to the task of educating students.
Schumacher2 reported that about one half of the states employ
the services of food service management companies in various
degrees, and that percentage has continued to grow. At the school
level where a management company is contracted, Schumacher
found that the overwhelming majority of the institutions were satis-
fied
(89
out of
91),
and about
70
percent opted for a professional
management company because they were operating at a loss.
The management food service companies have also become profi-
cient in the processing and filing of reports and forms that are neces-
sary for the school district to continue to receive federal funding from
the school lunch program. This has expanded the role further of
these private enterprises.
Contract Companies Offer Advantages
The advantages of using a food service management company are
realistic salary levels for managers, tighter control of costs, fewer
costly benefit packages, application of professional management
techniques, and assistance in report preparation. The school district
is in the business of providing education and has salary scales, job
descriptions, and job duty lists for individuals performing functions
related to educating students, and for the support personnel that
they employ. The school district is forced to structure the manage-
ment salary compensation packages around those that exist for other
management and professional positions within the school district.
The salary structure therefore cannot be equivalent. If the salary is
too low, then the best food service managers would not be attracted
to the school district. If it is too high, the local school board is spend-
ing excessive funds for this function.
The development of internal controls and the application of cur-
rent technology in food service management is not generally created
at the operational level, but rather evolves through management
interaction, task forces, investigations, and the application of modern
management techniques.
A
self-operated food service establishment
relies on the food service professional in its employ for the develop-
ment of these methods and procedures. Unfortunately, this individ-
ual does not have the support of a corporate staff that works to
develop policies and procedures that help the food service operation
control its costs.
A
costly component of wages and salaries is employee benefits.
The contract food service business is extremely competitive, and
most client decisions on choosing a contractor are driven by the cost
of operation. Contract food service companies generally use a signifi-
cant amount of part-time labor, not eligible for benefits, and benefit
packages are generally less than those offered by businesses outside
the contract food service business.
Food service management companies offer their employees corpo-
rate training programs and continuing education opportunities. At
these sessions, managers share ideas with their peers; are intro-
duced to new management techniques, methods, and procedures to
improve their jobs; and become acquainted with the various corpo-
rate services that the company offers and with methods to obtain
these services. For example, many food service companies employ
corporate chefs who are available to travel to individual locations for
the purpose of working with the operation's food production staff.
These opportunities for advanced management do not exist in a
school setting.
The food service management companies recognize that in
order to be a successful partner with the school district, they must
learn the various required federal and state forms and reporting
procedures. Without offering this assistance, the school district
never really gets out of the food service business. Although the
responsibility still rests with the school district for the accuracy
and timeliness of these reports, with the assistance of the food ser-
vice management companies, this is a considerable lightening of
the burden.
Some Disadvantages Do Exist
The disadvantages of using outside vendors to provide this ser-
vice are a loss in personal relationships between the students, staff,
and food service employees; elimination of the use of the program as
an educational service; and loss of operational control, which can
result in low sanitation standards, improper equipment mainte-
nance, and a deterioration of community goodwill.
The private food service management company is a for-profit
independent business and, as such, is operated in a manner that will
achieve its financial goals. This may involve the frequent transfer of
employees which prevents personal relationships to develop between
the management company and the client or the client's employees
and students. The management company also operates to provide a
service and, as such, is not a part of the school district's "family."
Management companies are given exclusive control over the food
service facilities. Good management practice dictates that only
authorized individuals are allowed in food production areas, and san-
itation codes provide additional restrictions on who may enter these
areas. Food service management companies generally discourage
persons not associated with the food service operation from entering
the area, which might be a different policy than that in effect in cer-
tain self-operated food service facilities. This ultimately will limit
access of students and faculty, a factor which may have been used in
the past as an educational enhancement.
The loss of operational control by the school board over food ser-
vice facilities can result in equipment not being maintained and san-
itation levels decreasing. These conditions are generally the result of
an operation that has excessively reduced its labor for the purpose of
achieving its financial goals. Part of the liaison's job description must
include monitoring these aspects of the operation and meeting with
parent groups and others in the community who may have concerns
over the operation of the food service facility.
Local School Board Political Issues Also Surface
Szabo3 recognized that in times of tight budget constraints,
school districts face a political issue of convincing their constituents
that bringing in a professional management company will not
increase costs, but will rather reduce expenses. This reduction can be
accomplished through the use of the company's modern operational
techniques and its corporate services, including purchasing, distribu-
tion systems, recipe and production methods, and pricing methodolo-
gies. Unfortunately, in the process of getting the message out to the
community, administrators are often forced to justify the manage-
ment fee that is embedded in the contract, and are not able to
demonstrate the savings that will be generated.
Management companies are eager to provide, at no cost to the
district, a feasibility study of the operation, which includes an evalu-
ation of personnel, management systems, forecasts and budgets,
financial systems, inventory controls, participation, and costs. In
evaluating the proposal, the district should be certain that the pro-
gram is consistent with the goals of the district and is at an accept-
able price. It is imperative in the request for proposal that the
district is clear in the statement of its goals and objectives. These
organizations also are available to perform an array of associated
services in addition to food management, including facilities plan-
ning, architectural planning and fixed asset replacement. Often
these services are provided at no additional cost.
Crimmins4 suggested that finding the right food service contrac-
tor for the district is a three-step process. The first is to send an invi-
tation to bid only to reputable, experienced companies. Second, the
request for proposal must be developed by the district and include
clear and precise specifications. Finally, the returned proposals need
a thorough and careful analysis. Often the best approach is to retain
a professional independent consultant to assist the district in the
evaluation process.
Selection Involves Employees, Costs
The proposal and bid process must include interaction on the
part of the district with affected employees. Since the process nor-
mally takes a few months, political consideration must be given to
the potential coalition of food service workers in the district's employ-
ment. These workers, without receiving factual information from dis-
trict administration, could reach out to other organized groups such
as teachers, staff, parents, and students to solicit their support in the
effort to retain the food service program in its present state. Properly
mobilized, this coalition could prevent the district from making the
improvements that it planned.
Political concerns of operating food services by district employees
can cause additional unnecessary expenses. Hockenbery5 cited that
pay scales of district food service employees could become higher
than those of outside private food service establishments; this would
be a political problem in justifying district expenses to the general
public or taxpayer.
A
second political consideration of operating a dis-
trict's own food service is the issue of patronage positions awarded to
individuals who, on an level playing field, would probably not be
retained. Traditionally, the amount of incompetence tolerated in the
public sector is greater than in private enterprise. Local school
boards often have in place policies that require schools to purchase
products locally, which can cost the district additional money since it
negates the advantage of a national purchasing program in place by
most management companies.
Since it has been established that the main reason for moving to
a private food service company is cost, Hockenbery suggested that
the price that a school district would have to pay to eliminate the
operation of a food service program and to transfer its control to a
private business would be to trade a nutrition education program for
a profit situation. He determined that school districts that offered
food services in the spirit of the National School Lunch Program
were not as profitable (or, indeed, were unprofitable) as those dis-
tricts that offered students an array of food service products includ-
ing soft drinks and other high-profit items. However, many parent
and student groups feel that schools are not only responsible for edu-
cation, but also for providing a good nutrition program, even if it
causes a strain on the budget and decreases available funds for
instructional programs.
Stumph6 addressed the issue of whether or not food services should
be contracted at the higher education level. Although many of the
same issues apply to higher education, the situation is different in that
the institution most probably would be sacrificing the potential profits
that exist if the decision is made to go to a contracted situation.
The argument that the institution is solely in the business of pro-
viding an education and does not have professional retailers on the
staff does little to appease a community that is the recipient of high-
er tuition bills. The freedom from day-to-day problems and pitfalls
that a contractor can provide may be a high price to pay for the polit-
ical consequences of allowing profits to leave the school.
Choices Exist
As
to Type of Contract
There are four categories of food service contract~:~
one in which the management company assumes the total risk of
profit and loss
one in which the school assumes the risk and guarantees a fee
to
the management company
one where the caterer assumes the risk but agrees to limit profit
one where the caterer assumes the risk and guarantees a fee to
the school
-
either a dollar amount or a percentage of the revenue
Choosing the best type of contract for both the district and the
food service operator depends on the situation of the individual
school. From a political perspective, once the decision is made to "go
contract," if the contractor cannot be financially successful, or if the
contract creates
a
higher financial burden for the district than it had
when it operated the service itself, additional challenges will be cre-
ated. These problems are usually political in nature since the end
result of changing vendors allows critics the opportunity to question
the district's decision in hiring a professional management company.
In addition to the type of contract, the actual document will also
include responsibilities for the contractor and the school district.
Usually, vendor expenses include food, labor, payroll taxes, insur-
ance, supplies, telephone, and laundry. District expenses include
insurance, capital purchases, maintenance and repair, painting and
decorating, utilities, and cleaning and trash removal.
Although the agreement will cover many other issues and items,
the most important aspect of the negotiations is to create a win-win
situation. Even with the employ of a professional company, the dis-
trict has not alleviated itself of the responsibility for providing food
services, and the contractor's problems become the district's as well.
This is a partnership agreement, and both partners need to work
together to achieve their individual goals.
Laws Support Programs
A review of sample state laws relative to the legality of for-profit
private management food service companies operating school food
service programs indicates that there are no problems with these
arrangements. For example, Minnesota Statutes 1991 Supplement,
reads in
part:'
(c)
Revenues and expenditures
...
documented as attributable to
the food service program may be charged to the food service fund
provided that the school district does not employ or contract with
a food service director or other individual who manages the food
service program, or food service management company. ..if a dis-
trict contracts with
a
food service management company.
As further evidence of the legality of private companies entering
into agreements with local school boards to manage food service pro-
grams, Title
1,
of the New York Education Laws states in park9
All contracts
...
to provide, maintain and operate cafeteria or
restaurant service by a private food service management compa-
ny shall be subject to the approval of the commissioner, who may
disapprove a proposed contract if, in his opinion, the best inter-
ests of the district will be promoted thereby. All such contracts
involving an annual expenditure in excess of the amount speci-
fied for purchase contracts in the bidding requirements of the
general municipal law shall be awarded to the lowest responsible
bidder, which responsibility shall be determined by the board of
education or the trustee of a district, with power hereby vested in
the commissioner to reject any or all.
OAG 74-043. A food service management company may include
the cost of bodily injury and property damage liability insurance
as a cost of operation of the school food service program, if the
contract so provides. (See also OAG 87-069.)
OAG 74-043. The employees of a board of education may be
supervised by a food service management company with which
the board contracts for food service; however, ultimate superviso-
ry responsibility remains with the board. (See also OAG 87-069.)
OAG
70-084.
A
school board may contract with a caterer to pro-
vide food service to a school within the district.
Banks-Baldwin Law Publishing Company provides the following
additional subchapter general
provi~ions:'~
OAG
74-043. If agreed upon by the board of education and the
food service management company the company may pay for
supplies for the school food service program and seek reimburse-
ment from the school food service fund
...
a
food service manage-
ment company may not make purchases in the name of the board
of education with which it contracts
...
whether a food service man-
agement company may make purchases exclusively with
its
national director of purchasing and regional purchasing coordi-
nators depends upon the agreement between the company and
the school board of education.
OAG
74-043.
A
properly supported statement of expenditures of
purchases for a school food service program by a food service
management company would meet the requirements of the
national school lunch program agreement.
OAG
74-043. The contract price of the food service may be a per-
centage of gross sales, but the total price must have a maximum
limit for the contract to comply with RC 5705.41 and 5705.412;
moneys supplied to the food service fund from the general rev-
enue fund and from federal programs may be considered part of
"gross sales." (See also
OAG
87-069.)
OAG
74-043. Proceeds from the sales of meals by a food service
management company which contracts with a board of education
to provide food service must be deposited pursuant to RC 3313.81
within twenty-four hours of receipt.
These rules and statutes support the premise that a for-profit pri-
vate management company can operate
in
a public environment. They
also open the way for
hture such alliances, particularly since provi-
sions have been made for these private companies to supervise district
employees, which can occur when a school district evolves from self-
operated status to contract management, and through the authoriza-
tion for private companies to participate
in
federal programs.
A
typical contract between a food service management company
(contractor) and a public school district (client) has several provisions:"
Employment of contractor:
Client defines the scope of the
employment of the contractor, granting the contractor sole provider
status to provide management services in connection with the opera-
tion of the client's non-profit school food service operation in compli-
ance with the applicable provisions of the National School Lunch
Act, the Child Nutrition Act of 1966, and the United States
Department of Agriculture.
Authority of client:
The client retains control and signature
authority of its food service operation through periodic inspections
and observations and pricing structures.
Regulatory requirements:
The responsibility for maintenance
of records as needed to support claims for reimbursement under the
National School Lunch Program, the School Breakfast Program, and
the Summer Food Service Program rests with the contractor and are
to be furnished to the client in a timely manner, based on a periodic
schedule.
Food service:
This paragraph defines the work to be provided
by the contractor such as serving breakfasts and lunches which meet
the meal component requirements prescribed by USDA as well as
other food as agreed upon by the contractor and client.
Facilities and equipment:
The client provides food service facili-
ties completely equipped, together with utilities, and furnishes build-
ing maintenance services for the premises, including equipment
repairs and replacements. Also, the client provides an initial invento-
ry
of smallwares.
Cleaning responsibilities:
The contractor assumes mainte-
nance responsibilities as a direct cost of operation, usually with the
exception of trash removal.
Health certification:
The contractor is responsible to comply
with all federal, state, and local laws and regulations governing the
preparing, handling and serving of food, and obtains all licenses, per-
mits, food handlers' cards, and health certifications as required.
Personnel:
The contractor shall provide and pay a staff of its
employees as well as expert administrative, dietetic, purchasing, per-
sonnel advice, and supervision.
Equal employment opportunity:
The contractor agrees that it
shall comply with Executive Order
11246,
entitled "Equal
Employment Opportunity," and that it will not discriminate against
any employee or applicant for employment because of race, color, age,
sex, religion, handicap, or national origin and agrees that it will
abide by all federal and state laws, rules, and regulations applicable
to equal employment opportunity.
Health examinations:
The contractor will submit all of its
employees to periodic health examinations, as required by federal,
state,
andlor local law.
Purchasing:
The contractor purchases and pays for all food and
related supplies required for operation of the food service provided
for in this agreement. Title to such food and supplies shall remain
with the client at all times.
Inventory of food and supplies:
Title to the inventory of food
and supplies pertaining to the food service operation shall remain in
client.
Government donated foods and commodities:
Any federally-
donated foods received by the client and made available to the con-
tractor shall be utilized solely for the purpose of providing benefits
for the client's food service operation and be kept separate from the
purchased inventory of food and supplies.
Licenses, permits, and taxes:
The contractor will obtain and
pay for all licenses and permits required for the operation of the food
service, and will collect all sales, use, excise, and state and local
income taxes.
Insurance:
The contractor agrees to provide workers' compensa-
tion insurance as required by law. In addition, the contractor shall
carry comprehensive general liability insurance, including products,
contractual, and broad form vendors' coverage. The contractor will
furnish a certificate of insurance to the client.
Indemnification:
The contractor shall hold harmless, indemnify
and defend the client against any claim, action, loss, damage, injury,
liability, cost, or expense related to the performance of this contract.
Fiscal arrangement:
All reimbursements and cash receipts shall
be utilized solely for the operation of the client's food service. All cash
receipts shall be turned over to client for deposit in the client's food ser-
vice account. The contractor receives for its services reimbursement for
all direct costs of operation incurred by the contractor, including an
allowance for its general administrative costs plus a management fee
per meal served. If the client is not satisfied with the management ser-
vices provided by the contractor during an accounting period, the
client will not be required to pay to the contractor its management fee
for the period. If at the end of the school year there is a deficit in the
client's food service budget, the contractor shall return
to
the client an
amount equal to the amount of the management fee actually paid
to
the contractor by client for the school year or the amount of the deficit,
whichever is the lesser amount.
Accounting:
The accounting periods shall be on a calendar
month basis, and within seven days after the end of each week of
operation, the contractor will submit to client an invoice, payable
within
10
days, for its entitlement. Within
30
days after the end of
each accounting period, the contractor will submit to the client an
operating statement for the period.
Remedies:
Neither party shall be responsible
to
the other for any
losses resulting from the failure to perform any terms or provisions of
this agreement, except for payment of monies owed, if the party's fail-
ure to perform is attributable to war, riot, or other disorder; strike or
other work stoppage; fire; flood; or any other act not within the control
of the party whose performance is interfered with, and which, by rea-
sonable diligence, such party is unable to prevent.
Confidentiality:
All financial, statistical, operating, and person-
nel data such as recipes, menus, and meal plans used in the contrac-
tor's business are the property of contractor and shall be confidential.
Term and termination:
This agreement shall be in effect for the
school year, and may be renewed by mutual agreement of client and
contractor. Either party may terminate this agreement at any time
by giving
60
days written notice to other party of its intention to ter-
minate as of the date specified in the notice.
References
'G. Hockenbery,
Contracted Food Services,
(Washington: Food Service
Management Group, 1970).
2D. Schumacher, "Food service management company survey,"
School Business
Affairs,
(November 1978), pp. 16-18.
3K.
Szabo, "Food service management: Fact
or
fiction?"
School Business Affairs,
(November 1978), pp. 16-17.
4M. Crimmins, "Food service management: Selecting the right company,"
School
Business Affairs,
(November 1980), pp. 22-23.
'Hockenbery,
op.cit.
6W.J.
Stumph,
In-House us. Franchise College Food Services and Bookstores,
(Atlanta,
GA:
Association of School Business Officials, 1982).
7H.D. Scott,
Negotiation, Administration, and Measurement of Food Service
Contracts in Higher Education,
(ERIC Document Reproduction Service No. ED 112
754,19731,
p.
2
8Minnesota State Statutes 1991 Supplement, Section 124.646, Subdivision 4.
gNew York Education Laws, Title 1, Article 7, Paragraph 14a.
"Baldwin's Ohio Revised Code Annotated, Banks-Baldwin Law Publishing
Company, Title 33, Chapter 3313, Subchapter General Provisions ORC Ann.
@
3313.81.
"Contract between
ARASERVE,
Inc. and the Duval County School Board, Duval
County, Florida, May 29, 1990, was used as a guide.
Stephen
M.
LeBruto
and
Beshid Farsad
are both assistant pro-
fessors in the Department of Hospitality Management at the
University of Central Florida.
