This General Accounting Office (GAO) report examines the problems encountered by school food service programs in their efforts to meet the Department of Agriculture's nutrient requirements for school lunches while increasing student participation and reducing food waste and program costs. The report is based on an evaluation of two senior high school lunch programs in each of seven school districts representing a broad range of approaches to food services. Appendices include discussion of the results of nutrient analysis testing, sources of various nutrients, differences in nutritional content of lunches according to lunch format or location, and an overview of the menu planning and development, and the organization and management of food service divisions for the school districts reviewed. (JCD)