1. Introduction
To support adolescents to make healthier food choices, many national governments have formulated food policies to encourage a healthy offering of foods and drinks in schools and their canteens [
1]. To create healthier canteens, nudging strategies are used, by which the healthier option is made easier without restricting the freedom of choice [
2]. Such strategies focus on availability and accessibility by offering mainly healthier products, discouraging the consumption of unhealthy foods by making them less readily available, making the healthier option the default, and promoting healthier products [
3,
4,
5,
6]. Evaluations of such strategies show improvements in food and drinks offered in schools, which is likely to influence students’ consumption of healthier foods and drinks [
4,
5,
6,
7]. However, these results are only seen when the policy is implemented adequately [
8,
9], which can be increased with supportive implementation tools [
10,
11,
12]. The provision and type of such tools differ within and across countries, though training, modelling, continuous support such as helpdesks and incentives are commonly provided [
12].
In the Netherlands, most schools have no tradition of offering school meals, but do offer complementary foods and drinks in a cafeteria and/or vending machines. Most students bring their lunch from home, and buy additional food and drinks at school, or at shops around the school [
13]. The national Healthy School Canteen Programme of the Netherlands Nutrition Centre, financed by the Dutch Ministry of Health, Welfare and Sports, provides schools with free support to create healthier canteens (cafeteria and/or vending machine) [
14,
15,
16]. This includes, for example, a visit and advice from school canteen advisors (i.e., nutritionists), regular newsletters, and a website with information about and examples of healthier school canteens. The programme has been shown to lead to greater attention to nutrition in schools and a small increase in the offering of healthier food and drinks in the cafeterias, but not in vending machines [
15,
17,
18]. However, until then, the programme only included availability criteria.
Based on literature and in collaboration with future users and experts in the field of nutrition, the Netherlands Nutrition Centre developed the “Guidelines for Healthier Canteens” in 2014, and updated them in 2017 [
19]. These guidelines include criteria on both the availability and accessibility of healthier foods and drinks (including tap water) and an anchoring policy. The guidelines distinguish three incremental health levels: bronze, silver and gold [
19]. Only silver (≥60%) and gold (≥80%) are qualified for the label “healthier school canteen”. These guidelines define healthier products as food and drinks recommended in the Dutch Wheel of Five Guidelines, and products that are not included but contain a limited amount of calories, saturated fat and sodium [
20]. To increase dissemination of the guidelines, an implementation plan was developed, based on experience within the Healthy School Canteen Programme and in collaboration with involved stakeholders from policy, practice and science [
21]. This study investigated the effect of this implementation plan to support implementation of the Guidelines for Healthier Canteens in schools on both changes in the health level of the canteen and in purchase behaviour of students. Moreover, the relation between the health level of the canteen and purchase behaviour is determined.
4. Discussion
We investigated the effect of support in implementing the “Guidelines for Healthier Canteens” on changes in the school canteen (cafeteria and vending machine) and on food and drink purchases of students. Our results show that the support has led to actual changes in the availability and accessibility of healthier products in the canteen. We did not observe changes in students’ purchase behaviour. The large majority of the students (90%) reported that they usually bring food or drinks from home. Most (approximately 80%) students reported buying food or drinks in school only once a week or less.
Schools that received support showed a larger increase in the availability of healthier products in the cafeteria compared to control schools. The intervention schools also complied with more criteria for the accessibility of healthier products than the control schools. These results are in line with previous studies which also showed that implementation support is likely to increase the use of guidelines, especially if it consists of multiple components and is both practice and theory-based [
24,
37]. The support we offered was targeted at different stakeholder-identified impeding factors related to implementation of the guidelines, such as knowledge and motivation. The process evaluation already showed that our implementation plan favourably influenced these factors [
38].
With regard to vending machines, changes were smaller and present in fewer schools compared to changes in the cafeteria. This result may be explained by the fact that schools do not always own nor regulate the content of the vending machines themselves, but outsource them to external parties such as caterers or vending machine companies. Some schools were therefore unable to change the offering and position of products in the machine within the study period. Previous research showed that vending machines were healthier if appointments about the healthy offer were included in agreements with caterers or vending machine companies [
39]. Making agreements about the availability and accessibility of healthy products in the machines is therefore recommended.
In contrast to the changes in the canteen, we did not observe relevant differences in change of healthier purchases between students in intervention and control schools, nor between students from schools with a healthier canteen compared to students from schools with a less healthy canteen. An explanation for these results might be that the duration of the intervention was between four to six months, which proved to be short for the schools to make changes, as we noticed that in most canteens changes were made just before the post-measurements. As a result, students did not have enough time to get used to the new situation and to adapt their purchases. The effects of a healthier canteen on students’ purchases remain therefore unknown. Our results are in contrast with many other studies that show that increasing the offering of healthier products and changes in placement and promotion in favour of healthier products are likely to lead to healthier food choices among customers [
4,
40,
41,
42,
43]. However, reviews identified that investigations yielded contradictory results [
44], and they emphasize the low quality of the studies [
43], making more research needed.
Changing dietary behaviour is complex and affected by multiple individual, social and environmental factors [
45,
46,
47]—for example, the palatability, price and convenience of foods offered in environments that youth visit regularly, including the school canteen and shops around schools [
13,
45,
48]. During adolescence, many factors that influence youth’s dietary choices are changing: they become more independent, parental influence decreases and influence of peers increases, living environments expand, and they have more money to spend [
49,
50]. These changes provide opportunities to develop healthy dietary habits which are likely to sustain over time [
51]. Even though our study did not show a relation between a healthier canteen and healthier purchase behaviour, we would recommend that healthier food choices should be facilitated in school canteens, including vending machines, a place that students visit regularly and where students can autonomously choose what they buy. This might influence student purchase behaviour directly at the school canteen or in shops around schools, and foresees in educating adolescents on healthy norms [
52]. This enables all youth to experience that healthy eating is important, tasty and very common, which they can use throughout their life.
A strength of our study is that the support consisted of multiple implementation tools which stakeholders could decide to use, as well as when and how. Moreover, our study included tailored advice. Previous research has shown that both a combination of components and tailored advice could increase the likelihood of an effective implementation plan [
37,
53]. Other strengths of our study are the measurement of outcomes both on the canteen and student level and the separate analyses for boys and girls. In general, boys are more likely to make impulsive, intuitive changes [
41]. In contrast, girls are more likely to overthink their choices, limiting the effect of an attractive food offering. In our study, subtle differences across gender were observed, with boys indicating buying food and drinks outside the school more often. However, this finding should be further explored in future studies.
There are also some study limitations that should be mentioned. First, the use of self-reported questionnaires to investigate purchase behaviour. These measurements are potentially subject to reporting bias and socially desirable answers, likely leading to smaller number of reported purchases overall and larger number of reported healthier products. Possibilities to measure the dietary behaviour of student more objectively and regularly include, for example, the use of meal observations, sales data or Ecological Momentary Assessment (EMA) [
54,
55]. We could not use these options due to feasibility constraints, e.g., making use of sales data was not possible as due to different registration systems. Another limitation is the study duration, which was four to six months. A study duration of at least one school year will align to the schools’ daily practice and will give schools the opportunity to create a team of involved people, to embed actions and to make changes.
The fact that the intervention was individualized to the contextual factors and needs of each school is both a strength and limitation. Alignment of the advices to a school’s situation might lead to a more useful support but can also make it more difficult to compare results between different intervention schools. Therefore, it is important to (1) describe the core intervention functions of each tool of the implementation plan to be able to support schools with the same support and (2) to measure if the tools has been delivered and used as planned [
12,
56,
57]. In our case, the core elements of the intervention have been described in the study design [
34]. In addition to the effect evaluation, we also evaluated the quality of implementation to assess whether schools received each implementation tool [
38].
A final limitation includes the fact that, due to the skewness of our purchase data and the non-linearity of some of the relations under study, we decided to dichotomize our data. This negatively influenced the power, and led to some loss of information.
Based on our results, we recommend that future studies investigate the sustainability of supportive implementation of food environment policy. In addition, we recommend longer-term studies that assess changes in students’ purchases inside, and in shops around, school, that appear after an adaptation period.
Our results confirm that adolescents in the Netherlands bring most food and drinks from home and additionally buy their food inside as well as outside school. Attention to the home environment and the environment around school is therefore needed. The complexity of the food environment at schools within this broader food environment makes the use of whole system-based approaches important [
13,
46]. Different relevant stakeholders such as parents, shopkeepers, and local policy makers should be actively involved in this approach. Moreover, a healthy school environment not only consists of a healthy canteen, including vending machines, but also includes food education, integration with other health promotion school policies [
58]. This is important, as schools contribute to the personal development of youth, wherein learning about making choices with regard to a healthy lifestyle in an obesogenic environment is an essential part.