EATONVILLE, Fla. — Food deserts are still just as barren of supermarkets as before First Lady Michelle Obama’s push for healthy foods in at-risk areas, the Associated Press reports. In 2011, major food retailers agreed to build or enlarge 1,500 supermarkets or convenience stores in or near localities with no grocery stores by 2016.

A close look at data from the federal food stamp program data by The Associated Press found few grocery stores have been built by the country’s biggest supermarket chains in food deserts. The wire service’s analysis discovered that the top 75 U.S. food chains launched nearly 10,300 new locations from 2011 to first quarter 2015. Of those stores, just over 250 reside in neighborhoods without another retailer selling fresh fruit, vegetables and meat.

Dollar stores have filled the void left by large grocers, with three chains having two-thirds of the new retailers in food deserts. Not counting convenience or dollar stores, only 1.4 million of the more than 18 million Americans who live in food deserts now have access to a new grocery store.

U.S. Department of Agriculture Secretary Tom Vilsack said that grocery stores in food deserts must know the surrounding communities to have success. “You have to cater to the people who live there. You have to know who they are,” he said.

Often, big supermarket chains fall short in that area because of their formulaic layout and merchandise, said Jeff Brown, CEO of Brown’s Super Stores, which has seven locations in at-risk areas. “They’re not selling what they should be selling because they don’t understand,” he said.