Access to free period products in educational settings during the 2018-19 academic year: monitoring and evaluation report

2. Background and Context

Access to period products has received growing attention over the past few years. A number of campaigns and news reports have highlighted the difficulties faced by menstruating people in affording and accessing period products.^[1,2] Focus has been on two key issues: 'period poverty' – reflecting that some people living on a low income cannot afford period products – and 'period dignity'- promoting gender equality and the normalisation of menstruation.

People may struggle to access the period products they need for a variety of reasons, including: poverty; homelessness; coercive and violent relationships; health conditions that result in painful and heavy periods; not being able to physically obtain products whilst at work or in education; and stigma and embarrassment around menstruation. It has been suggested that lack of access to period products could lead to health issues, such as toxic shock syndrome and infections, alongside having the potential to impact on wellbeing and educational and workplace attendance.

It is estimated that there are around 1.5 million menstruating people in Scotland.^[3] There is currently no nationally representative measurement of the prevalence of difficulties accessing period products among this population. However, poverty levels among people of menstruating age may provide an indication of the number who may experience difficulty affording period products. Analysis published by the Scottish Government shows that, in 2015-18, there were around 320,000 women and girls aged 12-54 years in relative poverty after housing costs in Scotland.^[4]

In addition to difficulties affording period products, specific barriers to accessing period products may be faced by young people in educational settings. The next section summarises the available evidence on access to period products among, predominantly younger people in education during academic year 2018-19.

Access to Period Products Among People in Education

During 2018/19 it was estimated that there were around 450,000 menstruating pupils and students attending schools, colleges and universities in Scotland.^[5] These pupils and students may face a range of barriers to accessing period products in educational settings, exacerbated by stigma and embarrassment around menstruation particularly experienced among younger pupils. There is some evidence to suggest that not having access to period products could contribute to reduced educational attendance and use of inappropriate alternatives, such as toilet paper, in place of period products.

A survey of more than 2,000 young people in Scotland conducted by Young Scot in March 2018, on behalf of the Scottish Government, found that^[6]:

• Nearly three quarters of young people in education (74%) said that they felt comfortable discussing period products and over half (57%) said that they felt comfortable buying period products.
• Just over a quarter of young people in education (26%) said that they struggled to access period products in the previous year.
• Of those who had experienced difficulty accessing period products, 60% said that this was 'because they didn't have the products they needed' and 45% said that they 'couldn't afford to buy sanitary products'.
• The most common way respondents who had experienced difficulty accessing period products coped was 'having to ask someone else for a tampon/towel' (71%) or 'to use an alternative, e.g. toilet paper' (70%).
• For those in secondary school, college or university, the most popular option for accessing free products in the future was having 'free products available in the school, college or university toilets'. Just over half (53%) of respondents rated this as the number one option out of five suggestions.
• The least popular option for accessing free products in the future among those at secondary school, college or university was having 'free products available from a member of the school, college or university staff' (59% rated this option as their least favourite).

Some additional smaller-scale studies have also been conducted by stakeholder organisations to explore the issues faced by younger people in accessing period products. These include:

• A UK-wide survey of 1,000 14-21 year olds carried out by Plan International in 2017.^[7] The study found that 15% had been unable to afford 'sanitary wear', with 12% reporting that they had improvised on 'sanitary wear' due to affordability issues and 19% reporting that they had changed to a less suitable period product due to cost.
• A UK-wide survey of 1,000 girls aged 13-18 years was carried out in May 2019 by the PHS Group.^[8] This showed that more than 52% of respondents reported missing school or college because of their period, with 3% reporting that they missed more than 10 days per term. The majority of absences were due to period cramps (85%), but 7% reported that this was because they could not afford or access period products. In addition, 12% of respondents reported that someone they know had been unable, or found it difficult, to afford period products; 8% said that they have had to spend their lunch or travel money on period products; and 3% reported going without period products.

2.1. The Policy Context

Scotland is a world-leader in its actions to provide access to free period products. Since 2017, the Scottish Government has worked with Local Government and the SFC to deliver policies to provide access to free period products in a range of settings. This includes the provision of free period products in educational settings – schools, college and universities - from August 2018 and in community settings – such as libraries and community centres – from December 2019. Funding has also been provided to the charity FareShare to support targeted provision of free period products to lower income groups.

While this report focuses on the first year of the delivery, since then there has been some policy developments. On 18 June 2020, the Scottish Government introduced the Period Products in Schools (Scotland) Regulations 2020, which places a legal duty on local authorities and grant-aided schools to provide free period products for pupils.^[9] The Regulations came into force on 19 October 2020.

In December 2020, Scotland became the first country in the world to introduce a law making free period products widely available for all who need them. The Period Products (Free Provision) (Scotland) Bill gained Royal Assent on 12 January 2021 to become the Period Products (Free Provision) (Scotland) Act 2021.^[10] The main duties on local authorities and education providers will come into force within two years of that date, but voluntary provision will continue in the meantime.

This report covers the academic year 2018-19. Therefore, data collected precedes the Period Products (Free Provision) (Scotland) Act 2021, which came into force on 15 August 2022.

Aberdeen pilot

The Scottish Government funded a six month pilot between September 2017 and February 2018 to explore options for providing access to period products in ways that provide choice and dignity, and to better understand the barriers to accessing period products.

The pilot was initially rolled out in a number of third sector organisations and regeneration areas, and was later extended to educational settings.^[11] Just over 1,000 participants received free period products through the pilot. A range of monitoring data was collected about the distribution of products in community and educational settings, alongside survey and interview data collected from a small number of period product recipients and representatives from partnership organisations.

The key findings from the pilot delivered in educational settings is below. A full account of the findings, including delivery in community settings, can be found in the main evaluation report of the Aberdeen pilot.

• The pilot showed that access to period products was an issue for some students. Around a third of student participants reported difficulties in the past accessing period products, while slightly under a quarter had been unable to purchase products at some point in the past.
• A small number of students reported that a lack of access to period products had had an impact on their attendance at school, college or university. The pilot was not, however, able to shed light on whether lack of access to period products has a significant impact on attendance at school, college or university.
• In providing access to period products in educational settings, embarrassment about periods and having to ask someone else for products were considered challenging, especially among younger pupils. However, schools who participated in the pilot were reluctant to trial making products available in school toilets because of concerns about misuse and, where this was tested, some problems were indeed encountered. School staff noted a need of education around menstruation and period products to reduce stigma and normalise discussion of menstruation. Having free period products available in toilets was a popular option for college and university students as it was viewed as a good option if you are 'caught short'.
• Receiving a card and ordering online were also popular options. The least popular option, by far, for college and university students was to get free products from a member of college or university staff – having to ask someone for products was generally seen as a barrier.

Non-statutory access to free period products in educational settings

The Programme for Government 2017-18 made a commitment to provide access to free period products in schools, colleges and universities in Scotland. In October 2017, the First Minister announced that delivery of the commitment would commence from the beginning of the 2018-19 academic year.

To support the development, implementation and delivery of the policy in educational settings, the Scottish Government established an 'Access to Sanitary Products Working Group' with membership drawn from a number of Scottish Government teams^[12] and external stakeholder organisations.^[13] The working group was instrumental in developing the policy's Guiding Principles, which all partners should consider when developing their delivery models. The Guiding Principles are:

• Protecting students' dignity, avoiding anxiety, embarrassment and stigma.
• Making a range of products and different qualities available, giving students choice about the products they want to use.
• A response that is reflective of students' views and experiences.
• An efficient and dignified approach which demonstrates value for money.
• An offer for all eligible students throughout the year regardless of whether it is term time or holidays.
• Ensuring period products are easily accessible to meet individual needs;
• Individuals being able to get sufficient products to meet their needs.
• Gender equality, ensuring anyone who menstruates can access products, including transgender men/non-binary individuals, and that language is gender neutral. The roll out of gender neutral toilets should also be taken account of.
• Awareness raising and education to both promote the 'offer' and change cultural norms.

Scottish Government funding

Since August 2018, the Scottish Government has provided over £12.5 million to local authorities, colleges and universities to support the provision of free period products in educational settings across Scotland. Relevant to the timeframe of this report, table 1 summarises the funding provided to local authorities, colleges and universities from 2018/19 to 2019/20.

Funding to local authorities, colleges and universities comprises an allocation to support the purchase of period products and an allocation to support the administration of the policy. Funding allocations are calculated based on:

• The size of the eligible menstruating population, defined as female school pupils aged 11 and above and all female college and university students.
• An assumed 'uptake rate', defined as the proportion of the menstruating pupil or student population^[14] taking their full annual product requirement.^[15]
• The assumed cost of a person's annual period product requirement.^[16]
• Administrative costs are at a price per head of £5.

In 2018/19, an additional one-off funding allocation was provided by the Scottish Government to support the set-up of provision in educational settings: £478,000 to local authorities and £783,000 to colleges and universities.

About the Evaluation

The Scottish Government carried out an evaluation, supported by COSLA and the Scottish Funding Council (SFC), of the implementation of the Scottish Government's policy to provide access to free period products in educational settings during the first full academic year of delivery, from 1 September 2019 (commencement of the policy and start of the 2018-19 academic year) to 31 August 2019 (end of the 2018/19 academic year). The evaluation considered the provision of free period products in educational settings across Scotland delivered by all:

• 32 local authorities delivering provision in state primary and secondary schools
• 26 publicly-funded colleges
• 19 universities

Note that the consideration of provision delivered by independent and grant-aided schools, and the provision of period products in community settings by local authorities, were outwith the scope of this evaluation.

Evaluation Aims and Objectives

The primary aims of the evaluation were to gain insight into:

• The different models of access being implemented by schools, colleges and universities, including what works well in providing access to free period products and any early lessons learned.
• The views and experiences of pupils and students, including what impact, if any, providing access to period products has had on them.

With respect to delivery in the 2018-19 academic year, the six overarching objectives of the evaluation were to understand:

1. The delivery models used to provide access to free period products in educational settings and the advantages and disadvantages of each delivery model.

2. How co-ordination and distribution of products/the means to purchase products was managed and what challenges were encountered.

3. The level of demand for free period products among pupils and students from their school, college or university.

4. The volume, types and cost of products provided in educational settings.

5. The administrative cost of delivering access to free period products in educational settings.

6. What impact the availability of free period products had on pupils, any barriers they faced in accessing period products and their views on how the provision could be further developed to meet their needs.

For a detailed overview of the research questions, see Annex A.

Evaluation Methodology

Data was collected to inform the evaluation aims and objectives between August 2018 and February 2020.^[20] A mixed methods approach was taken.

This report documents data gathered from the following four key sources:

1. Monitoring data collected from local authorities, colleges and universities at two time points during the 2018-19 academic year, covering 1 September 2018 to 1 February 2019 and 2 February 2019 to 31 August 2019. Monitoring data collected included (see Annex B for a full overview):

a) The spend on policy delivery, including product and administrative costs.

b) The number and types of period products purchased.

c) A range of qualitative data on delivery and purchasing approaches and the perceived advantages and disadvantages of these approaches; barriers faced; provision outwith term time; promotion and marketing; and plans for further development of policy delivery.

2. A workshop attended by representatives of seven local authorities to gather further in-depth qualitative data on 'what works' in delivery of access to period products in schools and factors influencing demand for period products.

3. Case studies of delivery approaches in local authorities, colleges and universities. Case studies were prepared by COSLA and the Scottish Funding Council for inclusion in this report.

4. A survey of young people attending schools, colleges and universities across Scotland, carried out by Young Scot on behalf of the Scottish Government between 19 June and 2 September 2019, to gather their views and experiences of accessing period products in educational settings and any impacts the policy has had on them.