The Emergency Food Assistance Program (TEFAP): Background and Funding

Changes from July 21, 2021 to June 15, 2022

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The Emergency Food Assistance Program
~~July 21, 2021~~June 15, 2022
(TEFAP): Background and Funding
Kara Clifford Billings
The Emergency Food Assistance Program (TEFAP) is a federal food distribution The Emergency Food Assistance Program (TEFAP) is a federal food distribution
program that Analyst in Social Policy Analyst in Social Policy
~~program that~~ supports food banks, food pantries, soup kitchens, and other emergency supports food banks, food pantries, soup kitchens, and other emergency

feeding organizations feeding organizations serving low-income Americans. Federal assistance takes the form serving low-income Americans. Federal assistance takes the form
~~of federal y~~of federally purchased commodities—including fruits, vegetables, meats, and grains— purchased commodities—including fruits, vegetables, meats, and grains—

and funding for administrative and funding for administrative costs. Food aid and funds are distributed to states using a costs. Food aid and funds are distributed to states using a
statutory formula that takes into account poverty and unemployment rates. TEFAP is administered by the U.S. statutory formula that takes into account poverty and unemployment rates. TEFAP is administered by the U.S.
Department of Agriculture’s (USDA’s) Food and Nutrition Service (FNS). Department of Agriculture’s (USDA’s) Food and Nutrition Service (FNS).
TEFAP was established as the Temporary Emergency Food Assistance Program by the Emergency Food TEFAP was established as the Temporary Emergency Food Assistance Program by the Emergency Food
Assistance Act of 1983. The Emergency Food Assistance Act continues to govern program operations, while the Assistance Act of 1983. The Emergency Food Assistance Act continues to govern program operations, while the
Food and Nutrition Act authorizes funding for TEFAP’s Food and Nutrition Act authorizes funding for TEFAP’s ~~entitlement~~entitlement commodities. TEFAP also incorporates commodities. TEFAP also incorporates ~~bonus~~
bonus commodities, which are distributed at USDA’s discretion throughout the year to support different crops using commodities, which are distributed at USDA’s discretion throughout the year to support different crops using
separate budget authority. A separate budget authority. A ~~smal er~~ smaller amount of discretionary funding is appropriated amount of discretionary funding is appropriated ~~annual y~~annually to cover to cover
administrative and distribution costs under Emergency Food Assistance Act authority. In addition to normal aid, administrative and distribution costs under Emergency Food Assistance Act authority. In addition to normal aid,
additional commodities and administrative funds have been distributed through TEFAP in recent years as a result additional commodities and administrative funds have been distributed through TEFAP in recent years as a result
of USDA’s Trade Mitigation Food Purchase and Distribution Program and supplemental appropriations from of USDA’s Trade Mitigation Food Purchase and Distribution Program and supplemental appropriations from
COVID-19 pandemic response laws. In COVID-19 pandemic response laws. In ~~FY2020~~FY2021, federal spending on TEFAP was nearly $, federal spending on TEFAP was nearly $~~2.8 bil ion~~1.6 billion. .
FNS coordinates the purchasing of commodities and the FNS coordinates the purchasing of commodities and the ~~al ocation~~allocation of commodities and administrative funds to of commodities and administrative funds to
states, and provides general program oversight. State agencies—often state departments of health and human states, and provides general program oversight. State agencies—often state departments of health and human
services, agriculture, or education—determine program eligibility rules and services, agriculture, or education—determine program eligibility rules and ~~al ocations~~allocations of aid to feeding of aid to feeding
organizations (organizations (~~cal ed~~called recipient agencies). States often task food banks, which operate regional warehouses, with ). States often task food banks, which operate regional warehouses, with
distributing foods to other recipient agencies. TEFAP aid makes up a modest proportion of the food and funds distributing foods to other recipient agencies. TEFAP aid makes up a modest proportion of the food and funds
~~available~~ available to emergency feeding organizations, which are reliant on private donations as to emergency feeding organizations, which are reliant on private donations as ~~wel .~~
well. TEFAP is the primary federal program supporting emergency feeding organizations. Other related food TEFAP is the primary federal program supporting emergency feeding organizations. Other related food
distribution programs focus on specific subpopulations; for example, the Federal Emergency Management distribution programs focus on specific subpopulations; for example, the Federal Emergency Management
Agency’s (FEMA’s) Emergency Food and Shelter Program distributes food to Agency’s (FEMA’s) Emergency Food and Shelter Program distributes food to organizations serving homeless individuals and USDA’s homeless individuals and USDA’s
Commodity Supplemental Food Program distributes food to Commodity Supplemental Food Program distributes food to organizations serving older individuals with older individuals with ~~lower~~low incomes. incomes.
TEFAP is TEFAP is ~~typical y~~typically amended and reauthorized through farm amended and reauthorized through farm ~~bil s~~bills. Most recently, the 2018 farm . Most recently, the 2018 farm ~~bil~~ bill (P.L. 115-334) (P.L. 115-334)
extended funding for TEFAP’s entitlement commodities through FY2023. The law also funded new projects extended funding for TEFAP’s entitlement commodities through FY2023. The law also funded new projects
~~aimed at incorporating non-federal y donated foods into the program and reducing food waste.~~ aimed at facilitating donations from farmers and other agricultural producers, processors, and distributors to emergency feeding organizations. Recent program Recent program
developments include developments include ~~TEFAP~~the program’s use in response to the COVID-19 pandemic’s use in response to the COVID-19 pandemic ~~and~~, grants aimed at expanding TEFAP’s reach into underserved areas, and TEFAP’s receipt of trade mitigation receipt of trade mitigation
commodities. commodities.
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~~Contacts~~
~~Author Information~~ ...... 24 Contacts Author Information ............................................................................................................... 25......... 26

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Introduction
The Emergency Food Assistance Program (TEFAP; previously the Temporary Emergency Food The Emergency Food Assistance Program (TEFAP; previously the Temporary Emergency Food
Assistance Program) provides Assistance Program) provides ~~federal y~~federally purchased commodities and a purchased commodities and a ~~smal er~~smaller amount of cash amount of cash
support to food banks, food pantries, soup kitchens, shelters, and other types of emergency support to food banks, food pantries, soup kitchens, shelters, and other types of emergency
feeding organizations serving low-income households and individuals.1 Commodities include feeding organizations serving low-income households and individuals.1 Commodities include
fruits, vegetables, meats, and grains, among other foods.2 In addition to serving individuals, fruits, vegetables, meats, and grains, among other foods.2 In addition to serving individuals,
TEFAP’s domestic commodity purchases support the agricultural economy by reducing supply on TEFAP’s domestic commodity purchases support the agricultural economy by reducing supply on
the market, thereby increasing food prices. TEFAP is administered by the U.S. Department of the market, thereby increasing food prices. TEFAP is administered by the U.S. Department of
Agriculture’s (USDA’s) Food and Nutrition Service (FNS). Agriculture’s (USDA’s) Food and Nutrition Service (FNS).
TEFAP was established under the Emergency Food Assistance Act of 1983 in an effort to dispose TEFAP was established under the Emergency Food Assistance Act of 1983 in an effort to dispose
of government-held agricultural surpluses and of government-held agricultural surpluses and ~~al eviate~~alleviate hunger in the wake of a recession and hunger in the wake of a recession and
declining food stamp benefits.3 Since then, TEFAP has evolved into a permanent program that declining food stamp benefits.3 Since then, TEFAP has evolved into a permanent program that
~~includes mandatory, annual y appropriated funding that operates in al~~ operates in all 50 states, the District of 50 states, the District of
Columbia, and four U.S. territories.4 The program was most recently reauthorized by the 2018 Columbia, and four U.S. territories.4 The program was most recently reauthorized by the 2018
~~farm bil~~ farm bill (P.L. 115-334). (P.L. 115-334).
At the federal level, TEFAP is administered by FNS in collaboration with USDA’s purchasing At the federal level, TEFAP is administered by FNS in collaboration with USDA’s purchasing
agency, the Agricultural Marketing Service (AMS). At the state level, TEFAP is administered by a agency, the Agricultural Marketing Service (AMS). At the state level, TEFAP is administered by a
state distributing agency designated by the governor or state legislature; designated by the governor or state legislature; ~~general y~~generally, they are state , they are state
departments of health and human services, agriculture, or education. Federal commodities and departments of health and human services, agriculture, or education. Federal commodities and
funds may flow through the state or directly to feeding organizations (funds may flow through the state or directly to feeding organizations (~~cal ed~~called recipient agencies) )
based on how the state structures the program.5 States based on how the state structures the program.5 States ~~wil~~ will often task food banks with processing often task food banks with processing
and distributing food to local feeding organizations. Food banks and distributing food to local feeding organizations. Food banks ~~typical y~~typically operate regional operate regional
warehouses and distribute food to other organizations rather than to households directly.warehouses and distribute food to other organizations rather than to households directly.66 Figure
1 depicts the flow of commodities and funds through TEFAP. depicts the flow of commodities and funds through TEFAP.

~~1 T he~~ 1 The 1990 farm bill (P.L. 101-624) removed “ 1990 farm bill (P.L. 101-624) removed “~~T emporary~~Temporary” from the program title. ” from the program title.
2 USDA,2 USDA, FNS,FNS, USDA Foods Available List for The Emergency Food Assistance Program (TEFAP) ~~2021~~ ~~, March 15~~2022, August 30, ,
2021, https://www.fns.usda.gov/tefap/usda-foods-available-list-tefap. 2021, https://www.fns.usda.gov/tefap/usda-foods-available-list-tefap.
3 Se 3 See Appendix C for further legislative history. for further legislative history.
4 Puerto Rico, the U.S. Virgin4 Puerto Rico, the U.S. Virgin Islands,Islands, the Commonwealth of the Northern Mariana Islands, and Guam.the Commonwealth of the Northern Mariana Islands, and Guam. ~~T hroughout~~ Throughout
this report, the term this report, the term states includes these other jurisdictions. For an explanation of appropriated mandatory funding, see includes these other jurisdictions. For an explanation of appropriated mandatory funding, see
CRSCRS Report RS20129, Report RS20129, ~~Entitlem ents~~Entitlements and Appropriated ~~Entitlem ents~~Entitlements in the Federal Budget Process. .
5 Consistent with statute and regulations, this report uses the term 5 Consistent with statute and regulations, this report uses the term recipient agency to describe organizations receiving to describe organizations receiving
~~T EFAP support , with the understanding that emergency~~TEFAP support. Emergency feeding organizations are the most common type of recipient feeding organizations are the most common type of recipient
agency. agency.
6 See 6 See “Program Administration”” for further discussion of federal, state, and local roles. C. Cabili, for further discussion of federal, state, and local roles. C. Cabili, E. Eslami, and R. E. Eslami, and R.
Briefel, Briefel, White Paper on the ~~Em ergency~~Emergency Food Assistance Program (TEFAP) , prepared by Mathematica for the Office of , prepared by Mathematica for the Office of
Policy Support, Food and Nutrition Service, U.S.Policy Support, Food and Nutrition Service, U.S. Department of Agriculture, AugustDepartment of Agriculture, August 2013, https://www.fns.usda.gov/white-paper-emergency-food-assistance-program-tefap~~2013, https://fns-~~
~~prod.azureedge.net/sites/default/files/T EFAPWhitePaper.pdf~~. .
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The Emergency Food Assistance Program (TEFAP): Background and Funding

Figure 1. Flow of Foods and Funds through TEFAP

Source: Adapted from USDA,Adapted from USDA, FNS, FNS, White Paper on the Emergency Food Assistance Program,, 2013. 2013.
a. States may distribute food to recipient agencies directly or task recipient agencies with food distribution to a. States may distribute food to recipient agencies directly or task recipient agencies with food distribution to
other recipient agencies. States often delegate this responsibilityother recipient agencies. States often delegate this responsibility to food banks. to food banks.
TEFAP is part of a larger web of food assistance programs.7 Some of these programs provide cash TEFAP is part of a larger web of food assistance programs.7 Some of these programs provide cash
assistance while others primarily distribute food. TEFAP foods may reach individuals who do not assistance while others primarily distribute food. TEFAP foods may reach individuals who do not
qualify for other food assistance programs or supplement the assistance that individuals receive qualify for other food assistance programs or supplement the assistance that individuals receive
through other programs. Related federal programs include the Federal Emergency Management through other programs. Related federal programs include the Federal Emergency Management
Agency’s (FEMA’s) Emergency Food and Shelter Program, which, among its other services for Agency’s (FEMA’s) Emergency Food and Shelter Program, which, among its other services for
homeless individuals, provides food through shelters, food banks, and food pantries.8 In addition, homeless individuals, provides food through shelters, food banks, and food pantries.8 In addition,
USDA’s Commodity Supplemental Food Program distributes monthly food packages to low-USDA’s Commodity Supplemental Food Program distributes monthly food packages to low-
income elderly individuals through local organizations, which can include food banks and income elderly individuals through local organizations, which can include food banks and
pantries.9 The Farmers to Families Food Box Program, which USDA operated from May 2020 to pantries.9 The Farmers to Families Food Box Program, which USDA operated from May 2020 to
~~June~~May 2021, provided 2021, provided ~~food boxes~~funds to suppliers to prepare food boxes for distribution to food banks and other nonprofit organizations to food banks and other nonprofit organizations ~~for distribution~~
toserving households in need during the COVID-19 pandemic.10 households in need during the COVID-19 pandemic.10
This report begins by describing the population using emergency food assistance. It goes on to This report begins by describing the population using emergency food assistance. It goes on to
discuss the TEFAP program, including its administration at the federal, state, and local levels, discuss the TEFAP program, including its administration at the federal, state, and local levels,
eligibilityeligibility rules, and funding structure. The report concludes by summarizing TEFAP’s role in rules, and funding structure. The report concludes by summarizing TEFAP’s role in
disaster response and recent disaster response and recent ~~reauthorization efforts~~.reauthorizations. Appendix A lists lists total TEFAP funding ~~TEFAP expenditures~~ from from
the program’s inception in 1983 to presentthe program’s inception in 1983 to present; Appendix B lists TEFAP funding by state; and lists TEFAP funding by state; and
Appendix C provides a brief legislativeprovides a brief legislative history of TEFAP. history of TEFAP.
Definitions
Emergency feeding organizations (EFOs): “The term: “The term ‘emergency‘emergency feeding organization’ means a public or feeding organization’ means a public or
nonprofit organization that administersnonprofit organization that administers activities and projects (including the activitiesactivities and projects (including the activities and projects of a charitable and projects of a charitable
institution, a food bank, a food pantry, a hunger reliefinstitution, a food bank, a food pantry, a hunger relief center, a soup kitchen, or a similarcenter, a soup kitchen, or a similar public or private public or private
nonprofit eligiblenonprofit eligible recipient agency) providing nutrition assistance to relieverecipient agency) providing nutrition assistance to relieve situations of emergencysituations of emergency and distress and distress
through the provisionthrough the provision of food to needy persons,of food to needy persons, including low-incomeincluding low-income and unemployed persons.”and unemployed persons.”
Common types of EFOs:
 
Food banks: “The term ‘food bank’ means a public or charitable institution that maintains an established “The term ‘food bank’ means a public or charitable institution that maintains an established
operation involving the provisionoperation involving the provision of food or edible commodities,of food or edible commodities, or the products of food or edible or the products of food or edible

~~7 See CRS~~ 7 See CRS Report R42353, Report R42353, Domestic Food Assistance: Summary of Programs. .
8 For more information, see CRS8 For more information, see CRS Report R42766, Report R42766, The Emergency Food and Shelter National Board Program and
~~Hom eless~~Homeless Assistance. .
9 For more information, see CRS 9 For more information, see CRS Report R42353, Report R42353, Domestic Food Assistance: Summary of Programs. .
10 For more information, see CRS10 For more information, see CRS Report R46681, Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19
~~Pandem ic~~Pandemic. .
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commodities, commodities, to food pantries, soup kitchens, hunger reliefto food pantries, soup kitchens, hunger relief centers,centers, or other food or feeding centers that, as or other food or feeding centers that, as
an integral part of their normal activities,an integral part of their normal activities, provide mealsprovide meals or food to feed needy persons on a regular basis.” or food to feed needy persons on a regular basis.”
 
Food pantries: “The term ‘food pantry’ means a public or private nonprofit organization that distributes “The term ‘food pantry’ means a public or private nonprofit organization that distributes
food to low-incomefood to low-income and unemployed households, including food from sourcesand unemployed households, including food from sources other than the Department of other than the Department of
Agriculture,Agriculture, to relieveto relieve situations of emergencysituations of emergency and distress.” and distress.”
 
Soup kitchens: “The term“The term ‘soup kitchen’ means a public or charitable institution that, as an integral part of ‘soup kitchen’ means a public or charitable institution that, as an integral part of
the normal activitiesthe normal activities of the institution, maintains an established feeding operation to provide food to needy of the institution, maintains an established feeding operation to provide food to needy
homelesshomeless persons on a regular basis.” persons on a regular basis.”
Source: Section 201A of the Emergency Food Assistance Act (codified at 7 U.S.C. §7501) Section 201A of the Emergency Food Assistance Act (codified at 7 U.S.C. §7501)
The Demand for Emergency Food Assistance
According to an analysis of Current Population Survey (CPS) data by USDA’s Economic According to an analysis of Current Population Survey (CPS) data by USDA’s Economic
Research Service (ERS), an estimatedResearch Service (ERS), an estimated 8.7 million households (6.7%) obtained emergency food from a food bank, food pantry, or church in 2020, up from 5.7 million ~~5.7 mil ion~~ households (4.4%) households (4.4%) ~~utilized food pantries (see~~
Figure 2) ~~and at least 129,200~~in 2019 (see Figure 2). Soup kitchens were utilized at a lower rate: by approximately 451,000 households (0. households (0.~~5%) utilized soup kitchens at least once in 2019.11~~
~~However, this is likely an underestimate of~~ 4%) in 2020 and 693,000 households (0.5%) in 2019.11 It is likely these are underestimates of the population using emergency food assistance the population using emergency food assistance
because the sample excluded households with incomes over 185% of the poverty guidelines that because the sample excluded households with incomes over 185% of the poverty guidelines that
did not report any indications of food insecurity on did not report any indications of food insecurity on ~~screener~~screening questions, and the CPS does not fully questions, and the CPS does not fully
capture households who are homeless or in tenuous housing arrangements. For comparison, a capture households who are homeless or in tenuous housing arrangements. For comparison, a
survey by Feeding America, a nonprofit membership and advocacy organization, estimated that survey by Feeding America, a nonprofit membership and advocacy organization, estimated that
approximately 15.5 approximately 15.5 ~~mil ion~~ million households accessed its network of feeding organizations in 2013 (the households accessed its network of feeding organizations in 2013 (the
same year, ERS estimated same year, ERS estimated that 6.9 million households obtained emergency food~~that 6.9 mil ion households used food pantries and soup kitchens). The~~
). The Feeding America network represents a large segment of emergency feeding organizations Feeding America network represents a large segment of emergency feeding organizations
nationwide.12nationwide.12
~~More recent analyses indicate that~~ The ERS findings for 2019 and 2020 track with other data indicating increased use of emergency feeding organizations use of emergency feeding organizations ~~rose~~ during the during the
COVID-19 pandemic. An analysis by the Urban InstituteCOVID-19 pandemic. An analysis by the Urban Institute, a (a nonprofit research organizationnonprofit research organization)
, found that 19.7% of nonelderly adults found that 19.7% of nonelderly adults ~~utilized~~ received free food from food banks, food pantries, food banks, food pantries, ~~soup kitchens~~churches, shelters, and ~~, and~~
similar organizations in December 2020, up similar organizations in December 2020, up from 13.2% in December 2019.13 11 Households utilizing food pantries in 2020 included 24.8 million individuals, and households utilizing soup kitchens included 867,000 individuals. Food pantry use was defined as “receiving emergency food from a church, food pantry, or food bank.” A. Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, Statistical Supplement to Household Food Security in the United States in 2020, AP-091, U.S. Department of Agriculture, Economic Research Service, September 2021, pp. 22-23, https://www.ers.usda.gov/webdocs/publications/102072/ap-091.pdf?v=2176.1; and A. Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, ~~from 13.2% in December 2019.13~~
~~Data on the number of TEFAP food recipients are not available, in part because TEFAP~~
~~commodities are mixed in with other commodities provided by emergency feeding organizations~~
~~and because of “the transient nature of participation.”14~~

~~11 Households utilizing food pantries included 14.3 million individuals, and households utilizing soup kitchens included~~
~~323,200 individuals. Food pantry use was defined as “ receiving emergency food from a church, food pantry, or food~~
~~bank.” A. Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh,~~ Statistical Supplement to Household Food
Security in the United States in 2019, AP-084, U.S. Department of Agriculture, Economic Research Service, September , AP-084, U.S. Department of Agriculture, Economic Research Service, September
2020, pp. 2020, pp. ~~22-~~21-23, https://www.ers.usda.gov/webdocs/publications/99289/ap-084.pdf?v=23, https://www.ers.usda.gov/webdocs/publications/99289/ap-084.pdf?v=~~6449.~~
~~12 Feeding~~ 6449https://www.ers.usda.gov/publications/pub-details/?pubid=94869. 12 Feeding America’s network includesAmerica’s network includes 200 food banks and 60,000 food pantries, according to FeedingAmerica.org, 200 food banks and 60,000 food pantries, according to FeedingAmerica.org,
Our Network, http://www.feedingamerica.org/our-work/food-bank-network.html. In 2000, Feeding America’s network http://www.feedingamerica.org/our-work/food-bank-network.html. In 2000, Feeding America’s network
includedincluded 80% of emergency feeding80% of emergency feeding organizations according to J.C. Ohls et al.,organizations according to J.C. Ohls et al., ~~The Em ergency~~ The Emergency Food Assistance
System —Findings From the Provider Survey, prepared by Mathematica Policy Research, Inc. for the Food and Rural , prepared by Mathematica Policy Research, Inc. for the Food and Rural
Economics Division, Economic Research Service, USDA,Economics Division, Economic Research Service, USDA, October 2002, p. 2, https://www.ers.usda.gov/publications/October 2002, p. 2, https://www.ers.usda.gov/publications/
pub-details/?pubid=46507. pub-details/?pubid=46507.
13 Elaine Waxman, Poonam Gupta, and Dulce 13 Elaine Waxman, Poonam Gupta, and Dulce Gonzalez, “Gonzalez, “~~Ch aritable~~Charitable Food Use Increased Nearly 50 Percent from 2019 Food Use Increased Nearly 50 Percent from 2019
to 2020,” Urban Institute, March 2021, https://www.urban.org/sites/default/files/publication/103825/charitable-food-to 2020,” Urban Institute, March 2021, https://www.urban.org/sites/default/files/publication/103825/charitable-food-
use-increased-nearly-50-percentuse-increased-nearly-50-percent ~~-from-2019-to-2020_0.pdf.~~
~~14 USDA, FNS, Nutrient and MyPyramid Analysis of USDA Foods in Five of Its Food and Nutrition Programs,~~
~~prepared by Westat for the Office of Research and Analysis, January 2012, p. 3-84, https://fns-prod.azureedge.net/sites/~~
~~default/files/ops/NutrientMyPyramid.pdf.~~
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~~The Emergency Food Assistance Program (TEFAP): Background and Funding~~

~~Figure 2. Number of Households Using Food Pantries, 2005-2019~~
~~And as a percentage of low-income households nationwide~~-from-2019-to-2020_0.pdf. Congressional Research Service 3 The Emergency Food Assistance Program (TEFAP): Background and Funding Data on the number of TEFAP food recipients are not available, in part because TEFAP commodities are mixed in with other commodities provided by emergency feeding organizations and because of “the transient nature of participation.”14 Figure 2. Households Using Emergency Feeding Organizations, 2007-2020

Source: CRS graphic based on data contained in statistical supplements to CRS graphic based on data contained in statistical supplements to Household Food Security in the United
States, USDA Economic Research Service,, USDA Economic Research Service, for 2005-for 2005-~~2019~~2020. .
Notes: ~~This represents the number~~Number and percentage of households who reported of households who reported that they receivedthat they received ~~emergency~~ emergency food from a food from a
food pantry, food bank, or church in the last 12 months. This may be an underestimatefood pantry, food bank, or church in the last 12 months. This may be an underestimate of the number of of the number of
households using food pantries due to the fact that the Census’shouseholds using food pantries due to the fact that the Census’s Current Population Survey (CPS) Food Security Current Population Survey (CPS) Food Security
Supplement focuses on households with incomesSupplement focuses on households with incomes under 185% of the poverty guidelines and excludes homeless under 185% of the poverty guidelines and excludes homeless
individuals and individuals and ~~underrepresents~~ underrepresents those in tenuous housing arrangements.those in tenuous housing arrangements.
Characteristics of Emergency Food Recipients
Food insecurity is common among households using emergency feeding organizations.15 Food insecurity is common among households using emergency feeding organizations.15
According to the ERS analysis, According to the ERS analysis, ~~65.7~~55.9% of households using % of households using ~~food pantries and soup kitchens were~~
emergency feeding organizations were food insecure in food insecure in ~~2019~~2020, meaning that they had difficulty providing enough food for , meaning that they had difficulty providing enough food for al all of their of their
members at times during the year due to a lack of resourcesmembers at times during the year due to a lack of resources (the comparable percentage was 65.7% in 2019).16 Roughly half of these households .16 Roughly half of these households
~~experienced very low food security, meaning that the food intake of some household members~~
~~was reduced and normal eating patterns were disrupted due to limited resources.~~
~~According to the ERS analysis, in 2019 households using food pantries were more likely to have~~
~~incomes below 185% of poverty compared to other respondents (66% vs. 20%) and to include~~
~~children (34% vs. 29%).17 Meanwhile, according to the 2014 Feeding America survey, individuals~~

~~15 A. Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh,~~ ~~Statistical Supplement to Household Food Security~~
~~in the United States in 2019, AP-084, U.S. Department of Agriculture, Economic Research Service, September 20 20,~~
~~pp. 21-23, https://www.ers.usda.gov/webdocs/publications/99289/ap-084.pdf?v=~~
~~6449https://www.ers.usda.gov/publications/pub-deta ils/?pubid=94869.~~
~~16 Ibid. “Food security” focuses on economic and access-related factors associat ed with an individual’s ability to~~
~~purchase food or otherwise obtain enough to eat, as opposed to hunger, which is considered a physiological condit ion.~~
~~For more information on the differences between food insecurity and hunger, see CRS Report R42353,~~ ~~Dom estic Food~~
~~Assistance: Sum m ary of Program s~~.
17experienced very low food security, meaning 14 USDA, FNS, Nutrient and MyPyramid Analysis of USDA Foods in Five of Its Food and Nutrition Programs, prepared by Westat for the Office of Research and Analysis, January 2012, p. 3-84, https://fns-prod.azureedge.net/sites/default/files/ops/NutrientMyPyramid.pdf. 15 Food security focuses on economic and access-related factors associated with an individual’s ability to purchase food or otherwise obtain enough to eat, as opposed to hunger, which is considered a physiological condition. For more information on the differences between food insecurity and hunger, see CRS Report R42353, Domestic Food Assistance: Summary of Programs. 16 A. Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, Statistical Supplement to Household Food Security in the United States in 2020, AP-091, U.S. Department of Agriculture, Economic Research Service, September 2021, pp. 22-23, https://www.ers.usda.gov/webdocs/publications/102072/ap-091.pdf?v=2176.1; A. Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, A. Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, Statistical Supplement to Household Food Security
in the United States in 2019, AP-084, U.S. Department of Agriculture, Economic Research Service,, AP-084, U.S. Department of Agriculture, Economic Research Service, September September ~~20 20,~~
2020, pp. 21-23, https://www.ers.usda.gov/webdocs/publications/99289/ap-084.pdf?v=6449https://www.ers.usda.gov/publications/pub- Congressional Research Service Congressional Research Service

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that the food intake of some household members was reduced and normal eating patterns were disrupted due to limited resources. According to the ERS analysis, in 2020 households obtaining emergency food from a food bank, pantry, or church were more likely to have incomes below 185% of poverty compared to other respondents (63% vs. 20%) and to include children (41% vs. 29%).17 Meanwhile, according to the 2014 Feeding America survey, individuals using meal programs (e.g., soup kitchens and shelters) using meal programs (e.g., soup kitchens and shelters) were generally~~were general y~~ single-person households single-person households
and were more likely to be homeless. In 2013, just over 70% of households using the Feeding and were more likely to be homeless. In 2013, just over 70% of households using the Feeding
America network of meal programs had a single member and nearly 34% were homeless or living America network of meal programs had a single member and nearly 34% were homeless or living
in temporary housing.18in temporary housing.18
In addition, emergency feeding organizations may act as a safety net for food insecure households In addition, emergency feeding organizations may act as a safety net for food insecure households
who are ineligiblewho are ineligible for or do not participate in other federal food assistance programs. For for or do not participate in other federal food assistance programs. For
example, in the case of the Supplemental Nutrition Assistance Program (SNAP), households may example, in the case of the Supplemental Nutrition Assistance Program (SNAP), households may
have an income too high to qualify for assistance but have an income too high to qualify for assistance but ~~stil~~ still experience difficulty purchasing food, experience difficulty purchasing food,
or they may fail to meet other program eligibilityor they may fail to meet other program eligibility rules.19 Among households using feeding rules.19 Among households using feeding
organizations affiliated with Feeding America’s network, a little more than half (55%) reported organizations affiliated with Feeding America’s network, a little more than half (55%) reported
receiving SNAP benefits in 2013.20receiving SNAP benefits in 2013.20
Program Administration
Federal Role
FNS is responsible for FNS is responsible for ~~al ocating~~allocating TEFAP aid to states (see aid to states (see “State ~~Al ocation~~Allocation Formula”) and coordinating and coordinating
the ordering, processing, and distribution of commodities. the ordering, processing, and distribution of commodities. ~~Specifical y, FNS al ocates entitlement~~
~~aid and administrative funds to states and~~ Specifically, FNS decides which foods decides which foods ~~wil~~ will be availablebe available in the USDA in the USDA
~~Foods catalog~~Foods catalog and allocates entitlement aid and administrative funds to states. States and recipient agencies then place orders for certain quantities and types of . States and recipient agencies then place orders for certain quantities and types of
~~commodities based on their entitlement al ocation (discussed further in the next section).21 FNS~~
commodities (discussed under “Types of Foods”) based on their entitlement allocation. FNS collaborates closely with USDA’s purchasing agency—the Agricultural Marketing Service collaborates closely with USDA’s purchasing agency—the Agricultural Marketing Service
(AMS)—to process and (AMS)—to process and ~~fulfil~~ fulfill the orders.the orders.2221 AMS and FNS also collaborate to purchase and AMS and FNS also collaborate to purchase and
distribute bonus commodities throughout the year that are not based on state requests but rather distribute bonus commodities throughout the year that are not based on state requests but rather
USDA’s discretion to support different crops. Selected vendors deliver both entitlement and USDA’s discretion to support different crops. Selected vendors deliver both entitlement and
bonus commodities to state-selected distribution points.bonus commodities to state-selected distribution points.23
22 FNS also issues regulations and guidance and provides general oversight of states’ TEFAP FNS also issues regulations and guidance and provides general oversight of states’ TEFAP
operations. FNS provides oversight by reviewing and approving state TEFAP plans, which are operations. FNS provides oversight by reviewing and approving state TEFAP plans, which are
~~documents that outline each state’s operation of TEFAP. States are required to submit~~
~~amendments to the plan for approval “when necessary to reflect any changes in program~~

~~pp. 22-23~~ details/?pubid=94869. 17 Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, Statistical Supplement to Household Food Security in the United States in 2020, AP-091, U.S. Department of Agriculture, Economic Research Service, September 2021, pp. 22-24, https://www.ers.usda.gov/webdocs/publications/, https://www.ers.usda.gov/webdocs/publications/~~99289/ap-084.pdf?v=6449~~102072/ap-091.pdf?v=2176.1. .
18 Weinfield et al., 18 Weinfield et al., Hunger in America 2014, Feeding America, prepared by Feeding America, prepared by Westat and the Urban Institute, August Westat and the Urban Institute, August
2014, pp. 91, 100-102, http://help.feedingamerica.org/HungerInAmerica/hunger-in-america-2014-full-report.pdf. 2014, pp. 91, 100-102, http://help.feedingamerica.org/HungerInAmerica/hunger-in-america-2014-full-report.pdf.
19 For more information on SNAP eligibility, see CRS19 For more information on SNAP eligibility, see CRS Report R42505, Report R42505, Supplemental Nutrition Assistance Program
(SNAP): A ~~Prim er~~Primer on Eligibility and Benefits. .
20 Weinfield et al., 20 Weinfield et al., Hunger in America 2014, Feeding America, prepared by Feeding America, prepared by Westat and the Urban Institute, August Westat and the Urban Institute, August
2014, http://help.feedingamerica.org/HungerInAmerica/hunger-in-america-2014-full-report.pdf. 2014, http://help.feedingamerica.org/HungerInAmerica/hunger-in-america-2014-full-report.pdf.
21 C. Cabili, E. Eslami, and R. Briefel, White ~~21 For the 2021 list of T EFAP food selections, see USDA, FNS, “T he Emergency Food Assistance Program;~~
~~Availability of Foods for Fiscal Year 2021,” 86 Federal Register 3988, January 15, 2021, https://fns-~~
~~prod.azureedge.net/sites/default/files/tefap/tefap-foods-available.pdf.~~
~~22 C. Cabili, E. Eslami, and R. Briefel,~~ ~~White~~ Paper on the Emergency Food Assistance Program (TEFAP) , prepared by , prepared by
Mathematica for the Office of Policy Support, Food and Nutrition Service, U.S.Mathematica for the Office of Policy Support, Food and Nutrition Service, U.S. Department of Department of ~~Agricult ure~~Agriculture, August , August
2013, https://fns-prod.azureedge.net/sites/default/files/2013, https://fns-prod.azureedge.net/sites/default/files/~~T EFAPWhitePaper~~TEFAPWhitePaper.pdf. .pdf.
2322 Section 203B of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. Section 203B of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7505); 7 C.F.R. §251.4. §7505); 7 C.F.R. §251.4.
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link to page 12 link to page 12 The Emergency Food Assistance Program (TEFAP): Background and Funding

documents that outline each state’s operation of TEFAP. States are required to submit amendments to the plan for approval “when necessary to reflect any changes in program operations or administration as described in the plan, or at the request of FNS, to the appropriate operations or administration as described in the plan, or at the request of FNS, to the appropriate
FNS Regional Office.”FNS Regional Office.”2423
State Role
TEFAP is administered at the state level by an agency designated by the governor “or other TEFAP is administered at the state level by an agency designated by the governor “or other
appropriate State executive authority” that enters into an agreement with FNS.appropriate State executive authority” that enters into an agreement with FNS.~~25 As of 2021,~~
~~states~~24 States most commonly most commonly ~~housed~~administer TEFAP TEFAP ~~in a health, human, or social services department (21~~
~~states), agriculture department (14 states), or education department (10 states).26~~through a health/human services, agriculture, or education department.25 State agencies ~~State agencies~~
administering TEFAP are responsible for creating eligibilityadministering TEFAP are responsible for creating eligibility and other program rules (see and other program rules (see
“Eligibility Rules for Individuals and Households”), which are outlined in state plans approved by , which are outlined in state plans approved by
FNS.FNS.2726 They are also responsible for selecting and overseeing recipient agencies. They are also responsible for selecting and overseeing recipient agencies.
Federal regulations Federal regulations ~~al ow~~allow states to delegate a number of responsibilities to recipient agencies states to delegate a number of responsibilities to recipient agencies,
~~(e.g., regional food banks),~~ including selecting and subcontracting with other recipient agencies.including selecting and subcontracting with other recipient agencies.28
27 States often delegate the ordering and distribution of USDA Foods to States often delegate the ordering and distribution of USDA Foods to regional food banks, which receive food banks, which receive
foods and make deliveries to other recipient organizations, such as food pantries.foods and make deliveries to other recipient organizations, such as food pantries.2928 According to a According to a
50-state analysis conducted by Feeding America in 2020, nearly 50-state analysis conducted by Feeding America in 2020, nearly al all states reported that states reported that
commodities were commodities were ~~delivered~~delivered by vendors directly to recipient agencies (often to food banks for distribution to directly to recipient agencies (often to food banks for distribution to
other organizations).other organizations).3029 States cannot delegate their responsibility to set eligibility States cannot delegate their responsibility to set eligibility rules or oversee rules or oversee
recipient agencies.recipient agencies.31
30 States must review at least 25% of recipient agencies contracting directly with the state (e.g., food States must review at least 25% of recipient agencies contracting directly with the state (e.g., food
banks) at least once every four years, and at least one-tenth or 20 (whichever is fewer) of other banks) at least once every four years, and at least one-tenth or 20 (whichever is fewer) of other
recipient agencies each year.recipient agencies each year.3231 If the state finds deficiencies in the course of review, the state If the state finds deficiencies in the course of review, the state
agency must submit a report with the findings to the recipient agency and ensure that corrective agency must submit a report with the findings to the recipient agency and ensure that corrective
action is taken. action is taken.

24 23 Section 202A of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. Section 202A of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7503). §7503).
2524 7 C.F.R. 7 C.F.R. §251.2. §251.2.
2625 USDA, USDA, FNS,FNS, TEFAP State Contacts, https://www.fns.usda.gov/contacts, https://www.fns.usda.gov/contacts~~, accessed on June 15, 2021. T he remaining~~
~~9 states/territories housed T EFAP in another department, such as a family services or economic security agency. T he~~
~~state agency was not listed for the U.S. Virgin Islands and the Commonwealth of the Northern Mariana Islands.~~
~~27 Individual state plans can usually be found~~. 26 Individual state plans are often available on the state agency’s website on the state agency’s website that administers that administers ~~T EFAP~~TEFAP. A list of state . A list of state
agenciesagencies that administer that administer ~~T EFAP~~TEFAP is available at https://www.fns.usda.gov/contacts. According is available at https://www.fns.usda.gov/contacts. According to Section 202A of the to Section 202A of the
Emergency Food Assistance Act of 1983 (codified at 7 U.S.C.Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7503), state plans must include eligibility§7503), state plans must include eligibility rules. rules.
28 27 7 C.F.R. 7 C.F.R. §251.2, 7 C.F.R. §251.5; C. Cabili,§251.2, 7 C.F.R. §251.5; C. Cabili, E. Eslami, and R. Briefel, E. Eslami, and R. Briefel, White Paper on the Emergency Food
Assistance Program (TEFAP), prepared by Mathematica for the U.S. Department of Agriculture, Food and Nutrition , prepared by Mathematica for the U.S. Department of Agriculture, Food and Nutrition
Service, Office of Policy SupportService, Office of Policy Support , August, August 2013, https://fns-prod.azureedge.net/sites/default/files/2013, https://fns-prod.azureedge.net/sites/default/files/
~~T EFAPWhitePaper~~TEFAPWhitePaper.pdf. .pdf.
2928 Feeding Feeding America, America, The Emergency Food Assistance Program: State Guide, February 2020, February 2020,
https://feedingamericaaction.org/wp-content/uploads/2021/04/Resource_Feeding-America-https://feedingamericaaction.org/wp-content/uploads/2021/04/Resource_Feeding-America-~~T EFAP~~TEFAP-State-by-State--State-by-State-
Guide.pdf;Guide.pdf; Washington State Department of Agriculture, Washington State Department of Agriculture, The ~~Em ergency~~Emergency Food Assistance Program (TEFAP):
Distribution National Survey 2015, AGR, AGR 609-574. Per Section 202A of the Emergency Food Assistance Act of 1983609-574. Per Section 202A of the Emergency Food Assistance Act of 1983
(codified at 7 U.S.C.(codified at 7 U.S.C. §7503), state plans must describe§7503), state plans must describe ~~how the st ate~~ how the state will give recipient agencies an opportunity to will give recipient agencies an opportunity to
provide input on the commodities selected. provide input on the commodities selected.
30 29 Washington State Department of Agriculture, Washington State Department of Agriculture, The Emergency Food Assistance Program (TEFAP): Distribution
National Survey 2015, AGR 609-574. Larger states often reported multiple, regional warehouses while, AGR 609-574. Larger states often reported multiple, regional warehouses while smaller states smaller states
sometimes had one central warehouse. sometimes had one central warehouse.
3130 7 C.F.R. 7 C.F.R. §251.5. §251.5.
3231 7 C.F.R. 7 C.F.R. §251.10. §251.10.
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The Emergency Food Assistance Program (TEFAP): Background and Funding

Local Role
Organizations that are eligibleOrganizations that are eligible for TEFAP aid are referred to as for TEFAP aid are referred to as recipient agencies in the in the
Emergency Food Assistance Act. According to the statute, recipient agencies are public or Emergency Food Assistance Act. According to the statute, recipient agencies are public or
nonprofit organizations that administernonprofit organizations that administer
 emergency feeding organizations;  emergency feeding organizations;
 charitable institutions;  charitable institutions;
 summer camps or child nutrition programs;  summer camps or child nutrition programs;
 nutrition projects operating under the Older Americans Act of 1965; or  nutrition projects operating under the Older Americans Act of 1965; or
 disaster relief programs. disaster relief programs.3332
The first category of organizations—emergency feeding organizations—receive priority under The first category of organizations—emergency feeding organizations—receive priority under
TEFAP statute and regulations andTEFAP statute and regulations and ~~also receive~~ the majority of TEFAP aid. the majority of TEFAP aid.3433 Emergency feeding Emergency feeding
organizations are defined as public or nonprofit organizations “providing nutrition assistance to organizations are defined as public or nonprofit organizations “providing nutrition assistance to
relieve situations of emergency and distress through the provision of food to needy persons, relieve situations of emergency and distress through the provision of food to needy persons,
including low-income and unemployed persons.”including low-income and unemployed persons.”3534 They include food banks, food pantries, soup They include food banks, food pantries, soup
kitchens, and other organizations serving similar functions. kitchens, and other organizations serving similar functions.
Recipient agencies are responsible for serving and distributing TEFAP foods to individuals and Recipient agencies are responsible for serving and distributing TEFAP foods to individuals and
households. As discussed above, they may also have additional responsibilities as delegated by households. As discussed above, they may also have additional responsibilities as delegated by
the state agency; for example, food banks may be tasked with distributing food to subcontracted the state agency; for example, food banks may be tasked with distributing food to subcontracted
recipient agencies like food pantries and soup kitchens, which in turn distribute foods or serve recipient agencies like food pantries and soup kitchens, which in turn distribute foods or serve
prepared meals to low-income individuals and families. prepared meals to low-income individuals and families.
~~In addition, recipient~~Recipient agencies must adhere to program rules. For example, they must safely store agencies must adhere to program rules. For example, they must safely store
food and comply with state and/or local food safety and health inspection requirements.food and comply with state and/or local food safety and health inspection requirements.36
35 Recipient agencies must also maintain records of the commodities they receive and a list of Recipient agencies must also maintain records of the commodities they receive and a list of
households receiving TEFAP foods for home consumption.households receiving TEFAP foods for home consumption.3736 There are also restrictions on the There are also restrictions on the
types of activities that can occur at distribution sites. Recipient agencies must ensure that any types of activities that can occur at distribution sites. Recipient agencies must ensure that any
unrelated activities are conducted in a way that makes clear that the activity is not part of TEFAP unrelated activities are conducted in a way that makes clear that the activity is not part of TEFAP
and that receipt of TEFAP foods is not contingent on participation in the activity.and that receipt of TEFAP foods is not contingent on participation in the activity.3837 Activities Activities may may
not disrupt food distribution or meal service and may not be explicitlynot disrupt food distribution or meal service and may not be explicitly religious.religious.3938 In addition, In addition,
recipient agencies may not engage in recruitment activities designed to persuade an individualrecipient agencies may not engage in recruitment activities designed to persuade an individual to to
apply for SNAP benefits.apply for SNAP benefits.40

3339 32 Section 201A of the Emergency Food Assistance Act of 1983 Section 201A of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C.(codified at 7 U.S.C. §7501). §7501).
3433 Section 203B of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. Section 203B of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7505) gives states the option to §7505) gives states the option to
give emergency feedinggive emergency feeding organizations priority. When they cannot meet the full demand of all eligibleorganizations priority. When they cannot meet the full demand of all eligible recipient recipient
organizations, states organizations, states ~~m ust~~must give priority to emergency feeding organizations according to give priority to emergency feeding organizations according to ~~T EFAP~~TEFAP regulations (7 C.F.R. regulations (7 C.F.R.
§251.4). §251.4). ~~T he~~The statement that emergency feeding organizations receive the majority of statement that emergency feeding organizations receive the majority of ~~T EFAP~~TEFAP aid is based aid is based on CRS on CRS
communication with the Food and Nutrition Service in September 2018. communication with the Food and Nutrition Service in September 2018.
3534 Section 201A of the Emergency Food Assistance Act of 1983 Section 201A of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C.(codified at 7 U.S.C. §7501). §7501).
3635 7 C.F.R. 7 C.F.R. §250.14. §250.14.
3736 7 C.F.R. 7 C.F.R. §251.10. §251.10.
3837 Ibid. Ibid.
3938 Ibid; Ibid; USDA,USDA, FNS,FNS, Further Clarification on the Prohibition Against Explicitly Religious Activities As Part of TEFAP
and CSFP Activities,, FD-142, November 28, 2016, https://fns-prod.azureedge.net/sites/default/files/fdd/FD-142-FD-142, November 28, 2016, https://fns-prod.azureedge.net/sites/default/files/fdd/FD-142-
Prohibition-Religious-Activities.pdf. Prohibition-Religious-Activities.pdf.
40 39 USDA, USDA, FNS,FNS, Prohibition of SNAP Recruitment and Promotion Activities by FDPIR and TEFAP Administering
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The Emergency Food Assistance Program (TEFAP): Background and Funding

Characteristics of Emergency Feeding Organizations
The most recent The most recent ~~national y representative survey~~census of emergency feeding organizations was conducted in 2000 by of emergency feeding organizations was conducted in 2000 by
USDA’sUSDA’s Economic Research Service (ERS).Economic Research Service (ERS).4140 ERS found that there were ERS found that there were approximately 400 food banks, 32,700 approximately 400 food banks, 32,700
food pantries and 5,300 soup kitchens in the United States in 2000.food pantries and 5,300 soup kitchens in the United States in 2000.4241 These organizations were These organizations were reliant on both reliant on both
private and public donations, including TEFAP support. According to the survey, TEFAP foods comprisedprivate and public donations, including TEFAP support. According to the survey, TEFAP foods comprised 14% of 14% of
foods distributed by the emergencyfoods distributed by the emergency food assistance systemfood assistance system and TEFAP administrativeand TEFAP administrative funds comprisedfunds comprised 12% to 27% 12% to 27%
of organizations’ operating costs in 2000.of organizations’ operating costs in 2000.4342 However, However, this proportion may fluctuate fromthis proportion may fluctuate from year to year. year to year.
Most food banks in the ERS survey were secular,Most food banks in the ERS survey were secular, nonprofit organizations, whilenonprofit organizations, while the majority of food pantries and the majority of food pantries and
soup kitchens were nonprofit organizations associated with a religioussoup kitchens were nonprofit organizations associated with a religious group.group.4443 Food banks were Food banks were ~~likely~~ likely to be to be
affiliated with a national organization, including Feeding Americaaffiliated with a national organization, including Feeding America (previously Second Harvest), United Way, (previously Second Harvest), United Way,
Foodchain, Salvation Army,Foodchain, Salvation Army, the Red Cross,the Red Cross, and Catholic Charities.and Catholic Charities.~~45 Al~~ 44 All types of emergencytypes of emergency feeding organizations feeding organizations
were dependent on volunteers.were dependent on volunteers.46
45 Eligibility Rules for Individuals and Households
Under broad federal guidelines, states set eligibilityUnder broad federal guidelines, states set eligibility rules for individuals and households rules for individuals and households
participating in TEFAP. Eligibilityparticipating in TEFAP. Eligibility rules differ for organizations distributing commodities directly rules differ for organizations distributing commodities directly
to households (e.g., food pantries) and organizations providing prepared meals (e.g., soup to households (e.g., food pantries) and organizations providing prepared meals (e.g., soup
kitchens). States must develop income-based standards for households receiving foods directly, kitchens). States must develop income-based standards for households receiving foods directly,
but cannot set such standards for individuals receiving prepared meals. However, organizations but cannot set such standards for individuals receiving prepared meals. However, organizations
serving prepared meals must serve predominantly needy persons, and states “may establish a serving prepared meals must serve predominantly needy persons, and states “may establish a
higher standard than ‘predominantly’ and may determine whether organizations meet the higher standard than ‘predominantly’ and may determine whether organizations meet the
applicable standard by considering socioeconomic data of the area in which the organization is applicable standard by considering socioeconomic data of the area in which the organization is
located, or from which it draws its clientele.”located, or from which it draws its clientele.”4746
Income eligibility Income eligibility rules for households receiving TEFAP foods directly vary by state. Many states rules for households receiving TEFAP foods directly vary by state. Many states
limitlimit income eligibilityincome eligibility to household incomes at or below 185% of the poverty guidelines.to household incomes at or below 185% of the poverty guidelines.4847 Some Some
states also confer household eligibilitystates also confer household eligibility based on participation in other federal and state programs based on participation in other federal and state programs
(known as (known as categorical eligibility).).49

48 Agencies, Policy Memorandum No. FD-143, May 2017, https:// Policy Memorandum No. FD-143, May 2017, https://~~fns-prod.azureedge.net/sites/default/files/fdd/FD-143-~~
~~prohibition-snap-recruitment.pdf.~~
~~41 Feeding America published~~ www.fns.usda.gov/usda-foods/prohibition-snap-recruitment-and-promotion-activities-fdpir-and-tefap-administering-agencies. 40 Feeding America published a study in 2014 of its network of feeding organizations (discusseda study in 2014 of its network of feeding organizations (discussed in this report). in this report).
However, whileHowever, while the Feeding America network comprises a large portion of the emergency feeding network, it is not a the Feeding America network comprises a large portion of the emergency feeding network, it is not a
nationally representative sample of organizations. nationally representative sample of organizations.
4241 J.C. Ohls et al., J.C. Ohls et al., The Emergency Food Assistance System —Findings From the Provider Survey, 16-2, prepared by , 16-2, prepared by
Mathematica Policy Research, Inc. for the Food and RuralMathematica Policy Research, Inc. for the Food and Rural Economics Division, Economic Research Service, USDA, Economics Division, Economic Research Service, USDA,
October 2002, https://www.ers.usda.gov/publications/pub-details/?pubid=46507. October 2002, https://www.ers.usda.gov/publications/pub-details/?pubid=46507.
4342 Ibid; Ibid; see pp. 133-134 for see pp. 133-134 for ~~T EFAP~~TEFAP’s proportion of foods and pp. 45, 77, 110 for its proportion of operating costs.’s proportion of foods and pp. 45, 77, 110 for its proportion of operating costs.
44 43 J.C. Ohls et al., J.C. Ohls et al., The Emergency Food Assistance System —Findings From the Provider Survey, 16-2, prepared by , 16-2, prepared by
Mathematica Policy Research, Inc. for the Food and RuralMathematica Policy Research, Inc. for the Food and Rural Economics Division, Economic Economics Division, Economic ~~Resea rch~~Research Service, USDA, Service, USDA,
October 2002, pp. 16 and 50, https://www.ers.usda.gov/publications/pub-details/?pubid=46507.October 2002, pp. 16 and 50, https://www.ers.usda.gov/publications/pub-details/?pubid=46507.
45 44 Ibid, Ibid, p. 81. p. 81.
4645 Ibid, Ibid, pp. 39, 72, 108. pp. 39, 72, 108.
4746 7 C.F.R. 7 C.F.R. §251.5. §251.5.
4847 Examples include Examples include Arizona, Hawaii,Arizona, Hawaii, Indiana, Iowa, Massachusetts, Nevada, NewIndiana, Iowa, Massachusetts, Nevada, New Mexico, and Wisconsin. Individual Mexico, and Wisconsin. Individual
state plans can usuallystate plans can usually be found on the state agency’s websitebe found on the state agency’s website that administers that administers ~~T EFAP~~TEFAP. A list of state agencies that . A list of state agencies that
administer administer ~~T EFAP~~TEFAP is available at https://www.fns.usda.gov/contacts. is available at https://www.fns.usda.gov/contacts.
49 48 See See page 10 of Feedingpage 10 of Feeding America, America, The Emergency Food Assistance Program: State Guide, February 2020, February 2020,
https://feedingamericaaction.org/wp-content/uploads/2021/04/Resource_Feeding-America-https://feedingamericaaction.org/wp-content/uploads/2021/04/Resource_Feeding-America-~~T EFAP~~TEFAP-State-by-State--State-by-State-
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States may also create other eligibility States may also create other eligibility rules for households’ receipt of TEFAP foods, such as rules for households’ receipt of TEFAP foods, such as
requiring identification or proof of residency within the state or a specific locality.requiring identification or proof of residency within the state or a specific locality.5049 However, However,
according to federal regulations, length of residency cannot be a criterion.according to federal regulations, length of residency cannot be a criterion.51
50 Funding and Appropriations
Federal assistance through TEFAP is primarily provided in the form of USDA-purchased Federal assistance through TEFAP is primarily provided in the form of USDA-purchased
domestic agricultural commodities (domestic agricultural commodities (USDA Foods). A ). A ~~smal er~~smaller amount of assistance is provided in amount of assistance is provided in
the form of cash support for administrative and distribution costs. the form of cash support for administrative and distribution costs.
There are two types of TEFAP commodities: There are two types of TEFAP commodities: entitlement commodities and and bonus commodities.
Funding for entitlement commodities is considered appropriated mandatory spending, meaning Funding for entitlement commodities is considered appropriated mandatory spending, meaning
that the authorizing law sets the level of spending but an annual appropriation is needed to that the authorizing law sets the level of spending but an annual appropriation is needed to
provide funding.provide funding.5251 Funding for bonus commodities is not included in the TEFAP appropriation Funding for bonus commodities is not included in the TEFAP appropriation
and is instead provided by separate USDA budget authority. These funds are used by USDA for and is instead provided by separate USDA budget authority. These funds are used by USDA for
bonus commodity purchases for the program throughout the year. TEFAP's administrative funds bonus commodity purchases for the program throughout the year. TEFAP's administrative funds
are discretionary spendingare discretionary spending~~, requiring~~ and require an annual appropriation. an annual appropriation.5352
In In ~~FY2021, there is nearly $2.3 bil ion available for~~FY2022, there is $981 million available for TEFAP entitlement purchases and administrative entitlement purchases and administrative
funds, including funds from funds, including funds from ~~COVID-19 pandemic response acts (shown in Table 1,~~ ~~and~~ the CARES Act (P.L. 116-136) (discussed discussed
further in the further in the “COVID-19 Pandemic Response”” section). USDA may also distribute bonus section). USDA may also distribute bonus
commodities in commodities in ~~FY2021 (not reflected in the table). In FY2020~~FY2022. In FY2021 (the most recent year with (the most recent year with
complete data), USDA distributed $701 complete data), USDA distributed $701 ~~mil ion~~ million in bonus in bonus commodities through TEFAP.53 Commodity Food Support Entitlement Commodities Mandatory funding for TEFAP commodities is authorized by Section 27 of the Food and Nutrition Act (codified at 7 U.S.C. §2036). The act authorizes $250 million annually plus additional amounts each year in FY2019 through FY2023 as a result of amendments made by the 2018 farm bill (P.L. 115-334). In FY2019, the additional amount was $23 million; for each of FY2020-FY2023, the additional amount is $35 million. Both the base funding of $250 million and the additional amounts are adjusted for food price inflation in accordance with USDA’s Guide.pdf. 49 See individual state plans for state-specific eligibility rules, which can usually be found on the state agency’s website that administers TEFAP. A list of state agencies that administer TEFAP~~commodities through TEFAP.54 Bonus~~
~~commodities increased in FY2019 and FY2020 as a result of the Administration’s trade aid~~
~~package (discussed below).~~
~~Table 1. TEFAP Funding, FY2021~~
~~Budget Authority for TEFAP Entitlement Foods, Administrative Funds, and Other Activities (Excluding~~
~~Bonus Foods) in FY2021~~
~~Budget~~
~~Authority~~
~~(millions~~
~~Authority~~
~~Description~~
~~of dollars)~~
~~The Agriculture Improvement Act of 2018~~
~~Mandatory funding for TEFAP’s Farm to Food Bank~~
~~3.7a~~
~~(Section 4018 of P.L. 115-334)~~
~~Projects (available through FY2022)~~

~~Guide.pdf.~~
~~50 See individual state plans for state-specific eligibility rules, which can usually be found on the state agency’s website~~
~~that administers T EFAP. A list of state agencies that administer T EFAP~~ is available at https://www.fns.usda.gov/ is available at https://www.fns.usda.gov/
contacts. For a summary of state policies as of Februarycontacts. For a summary of state policies as of February 2020, see Feeding2020, see Feeding America, America, The ~~Em ergency~~Emergency Food Assistance
Program : State Guide, February 2020, https://feedingamericaaction.org/wp-content/uploads/2021/04/February 2020, https://feedingamericaaction.org/wp-content/uploads/2021/04/
Resource_Feeding-America-Resource_Feeding-America-~~T EFAP~~ TEFAP-State-by-State-Guide.pdf. -State-by-State-Guide.pdf.
5150 7 C.F.R. 7 C.F.R. §251.5(b); Feeding§251.5(b); Feeding America, America, The Emergency Food Assistance Program: State Guide, February 2020, February 2020,
https://feedingamericaaction.org/wp-content/uploads/2021/04/Resource_Feeding-America-https://feedingamericaaction.org/wp-content/uploads/2021/04/Resource_Feeding-America-~~T EFAP~~TEFAP-State-by-State--State-by-State-
Guide.pdf. Guide.pdf.
52 51 For an explanation of appropriated mandatory spending, see CRS For an explanation of appropriated mandatory spending, see CRS Report R44582, Report R44582, Overview of Funding Mechanisms
in the Federal Budget Process, and Selected ~~Exam ples~~.
53Examples. 52 Funding Funding ~~for T EFAP~~ for TEFAP’s entitlement commodities is typically contained in the Supplemental Nutrition Assistance ’s entitlement commodities is typically contained in the Supplemental Nutrition Assistance
Program (SNAP) account and appropriations for administrative costs is typicallyProgram (SNAP) account and appropriations for administrative costs is typically contained in the Commodity contained in the Commodity
Assistance Program Assistance Program ~~(CAP)~~ account of annual appropriations acts.account of annual appropriations acts.
54 53 USDA, USDA, ~~FNS, “FY2022~~ FNS, “FY2023 USDA Explanatory Notes – Food and Nutrition Service,” p. USDA Explanatory Notes – Food and Nutrition Service,” p. ~~34-129~~35-134, https://www.usda.gov/, https://www.usda.gov/
sites/default/files/documents/34FNS2022Notes.pdf. sites/default/files/documents/34FNS2022Notes.pdf.
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~~link to page 14 link to page 14~~ The Emergency Food Assistance Program (TEFAP): Background and Funding Thrifty Food Plan.54 Appropriations may also provide additional discretionary funding for commodities beyond the levels set in the Food and Nutrition Act. For FY2022,~~The Emergency Food Assistance Program (TEFAP): Background and Funding~~

~~Budget~~
~~Authority~~
~~(millions~~
~~Authority~~
~~Description~~
~~of dollars)~~
~~The Further Consolidated Appropriations~~
~~Carryover funds from FY2020 for TEFAP~~
~~190.6~~
~~Act, 2020 (P.L. 116-94)~~
~~entitlement foods and administrative costs (available~~
~~through FY2021)~~
~~Families First Coronavirus Response Act~~
~~Supplemental funding for TEFAP entitlement foods~~
~~197.1~~
~~(FFCRA; P.L. 116-127)~~
~~and administrative costs (available through FY2021)~~
~~CARES Act (P.L. 116-136)~~
~~Supplemental funding for TEFAP entitlement foods~~
~~81.2~~
~~and administrative costs (available through FY2021)~~
~~Consolidated Appropriations Act, 2021~~
~~Annual appropriation for TEFAP entitlement foods~~
~~421.6~~
~~(Title IV, Division A, P.L. 116-260)~~
~~and administrative costs (available through FY2022)~~
~~Consolidated Appropriations Act, 2021~~
~~Supplemental funding for TEFAP entitlement foods~~
~~400.0~~
~~(Section 711 of Title VII, Division N, P.L.~~
~~and administrative costs (available through FY2021)~~
~~116-260)~~
~~Consolidated Appropriations Act, 2021~~
~~Supplemental funding for the Office of the~~
~~500.0b~~
~~(Section 751 of Title VII, Division N, P.L.~~
~~Agricultural Secretary (“available until expended, to~~
~~116-260)~~
~~prevent, prepare for, and respond to coronavirus”)~~
~~American Rescue Plan Act of 2021 (ARPA;~~
~~Supplemental funding for the Office of the~~
~~500.0b~~
~~Section 1001 of P.L. 117-2)~~
~~Agricultural Secretary (available through FY2021)~~
~~Total~~

~~2,294.2~~
Source: CRS, based on current law; correspondence with USDA, FNS, in June 2021; USDA, FNS, “FY 2021
~~Food and Administrative Funding for The Emergency Food Assistance Program,” February 16, 2021,~~
~~https://www.fns.usda.gov/tefap/fy-2021-funding; and USDA, FNS, “FY2022 USDA Explanatory Notes – Food and~~
~~Nutrition Service,” p. 34-129, https://www.usda.gov/sites/default/files/documents/34FNS2022Notes.pdf.~~
Notes: Excludes budget authority for bonus commodities that may be distributed through TEFAP in FY2021.
~~a. FY2021 funding after sequestration (Section 4018 of P.L. 115-334 provides $4 mil ion for TEFAP’s Farm to~~
~~Food Bank Projects in each of FY2019-FY2023).~~
~~b. On June 4, 2021, USDA announced that it would use $500 mil ion in Consolidated Appropriations Act,~~
~~2021 funds and $500 mil ion in ARPA funds for TEFAP to support the Build Back Better initiative (USDA,~~
~~“USDA to Invest $1 Bil ion to Purchase Healthy Food for Food Insecure Americans and Build Food Bank~~
~~Capacity,” June 4, 2021, https://www.usda.gov/media/press-releases/2021/06/04/usda-invest-1-bil ion-~~
~~purchase-healthy-food-food-insecure-americans). According to CRS communication with FNS on June 28,~~
~~2021, these funds were from Section 751 of~~ the Consolidated the Consolidated Appropriations Act, 2022 (P.L. 117-103) and accompanying report language provided $399.75 million for TEFAP entitlement commodities.55 Historically, appropriations laws have allowed states to convert a portion of their funds for entitlement commodities into administrative funds.56 In past years, states were allowed to convert 10% of funds; FY2018 and FY2019 appropriations acts increased the proportion to 15%, and FY2020-FY2022 appropriations acts increased the proportion to 20%.57 States typically exercise this option; for example, in FY2021, states converted $54.7 million~~Appropriations Act, 2021 and Section 1001~~
~~of ARPA, both of which included funding for the Secretary of Agriculture to purchase and distribute~~
~~agricultural commodities to individuals in need.~~
~~Commodity Food Support~~
~~Entitlement Commodities~~
~~Mandatory funding for TEFAP commodities is authorized by Section 27 of the Food and~~
~~Nutrition Act (codified at 7 U.S.C. §2036). The act authorizes $250 mil ion annual y plus~~
~~additional amounts each year in FY2019 through FY2023 as a result of amendments made by the~~
~~2018 farm bil (P.L. 115-334). In FY2019, the additional amount was $23 mil ion; for each of~~
~~FY2020-FY2023, the additional amount is $35 mil ion. Both the base funding of $250 mil ion~~
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~~The Emergency Food Assistance Program (TEFAP): Background and Funding~~

~~and the additional amounts are adjusted for food price inflation.55 Appropriations may also~~
~~provide additional discretionary funding for commodities beyond the levels set in the Food and~~
~~Nutrition Act.~~
~~Historical y, appropriations laws have al owed states to convert a portion of their funds for~~
~~entitlement commodities into administrative funds. In past years, states were al owed to convert~~
~~10% of funds; FY2018 and FY2019 appropriations acts increased the proportion to 15%, and the~~
~~FY2020 and FY2021 appropriations acts increased the proportion to 20%.56 States general y~~
~~exercise this option; for example, in FY2020, states converted $52.8 mil ion out of a possible~~
~~$63.5 mil ion in eligible funds.57~~ out of a possible $68.4 million in eligible funds.58 States are also States are also ~~al owed~~allowed to carry over entitlement commodity to carry over entitlement commodity
funds into the next fiscal year.funds into the next fiscal year.5859
Within USDA, FNS works closely with AMS to determine Within USDA, FNS works closely with AMS to determine ~~what purchases are made~~ which entitlement foods are available for TEFAP. ~~for TEFAP.~~
FNS also solicits input from state and local agencies. According to FNS also solicits input from state and local agencies. According to ~~TEFAP’s authorization of~~
~~appropriations in the Food and Nutrition Act~~statute, USDA must, “to the extent practicable and , USDA must, “to the extent practicable and
appropriate, make purchases based on (1) agricultural market conditions; (2) preferences and appropriate, make purchases based on (1) agricultural market conditions; (2) preferences and
needs of States and distributing agencies; and (3) preferences of recipients.”needs of States and distributing agencies; and (3) preferences of recipients.”5960
TEFAP’s Authorizing Laws
The Emergency Food Assistance Act of 1983: governs TEFAP operations and authorizes discretionary : governs TEFAP operations and authorizes discretionary
funding for administrativefunding for administrative costs (codified at 7 U.S.C. §7501-7516) costs (codified at 7 U.S.C. §7501-7516)
The Food and Nutrition Act of 2008 (previously the Food Stamp Act): Section 27 authorizes mandatory (previously the Food Stamp Act): Section 27 authorizes mandatory
funding for TEFAP commoditiesfunding for TEFAP commodities (codified at 7 U.S.C.(codified at 7 U.S.C. §2036) §2036)
Bonus Commodities
Bonus commodities are purchased at USDA’s discretion throughout the year using separate Bonus commodities are purchased at USDA’s discretion throughout the year using separate ~~(non-~~
~~TEFAP) USDA budget authority for that purpose~~budget authority. USDA’s purchases of bonus commodities are . USDA’s purchases of bonus commodities are
based on agricultural surpluses or other economic problems, as raised by farm and industry based on agricultural surpluses or other economic problems, as raised by farm and industry
organizations organizations orand assessed by USDA’s own commodity experts. The amount and type of bonus commodities USDA’s own commodity experts. The amount and type of bonus commodities
~~that USDA purchases for TEFAP fluctuates from year to year, and depends largely on agricultural~~
~~market conditions. States and recipient agencies are not required to accept bonus foods.~~
~~USDA’s purchases of bonus commodities stem from two authorities: Section 32 of the Act of~~
~~August 24, 1935 and the Commodity Credit Corporation (CCC).60 Section 32 is a permanent~~

~~55 Amounts are adjusted using the T hrifty Food Plan (T FP~~that USDA purchases for 54 Amounts are adjusted using the Thrifty Food Plan (TFP), a USDA-calculation that estimates the cost of purchasing a ), a USDA-calculation that estimates the cost of purchasing a
nutritionally adequate low-cost dietnutritionally adequate low-cost diet ~~. T he T FP~~. The TFP is the cheapest of four diet plans meeting minimal nutrition requirements is the cheapest of four diet plans meeting minimal nutrition requirements
deviseddevised by USDA.by USDA. ~~USDA~~ USDA calculates the cost of the calculates the cost of the ~~T FP~~TFP each year to account for food price inflation each year to account for food price inflation ~~; however, the~~
; additionally, in 2021 USDA reassessed the contents of the contents of the ~~T FP—~~TFP (often thought of as often thought of as ~~its own~~a market basket of goods), which resulted in an increase to TEFAP entitlement commodity funding starting in FY2022. USDA, FNS, “The Emergency Food Assistance Program (TEFAP): Thrifty Food Plan (TFP) Adjustment of TEFAP Funding,” FNS-GD-2021-0086, August 16, 2021. 55 “Explanatory Statement Submitted by Ms. DeLauro, Chair of the House Committee on Appropriations, Regarding the House Amendment to the Senate Amendment to H.R. 2471, Consolidated Appropriations Act, 2022,” Congressional Record, daily edition, vol. 168, no. 42, book 3 (March 9, 2022), p. H1715, https://www.congress.gov/117/crec/2022/03/09/168/42/CREC-2022-03-09-bk3.pdf. 56 States may also ~~market basket of goods—were last revised in 2006.~~
~~56 T he Consolidated Appropriations Act, 2021 (P.L. 116-260). For FY2002-FY2008, states were allowed to convert~~
~~$10 million of entitlement commodity funds into administrative funds. For FY2009-FY2017, states were allowed to~~
~~convert 10% of entitlement commodity funds into administrative funds. For FY2018 and FY2019, they were allowed to~~
~~convert 15%. For FY2020 and FY2021, they were allowed to convert 20%. St ates may~~ convert any amount of convert any amount of
administrative funds into food funds, butadministrative funds into food funds, but this happens to a lesser extent. 57 For FY2002-FY2008, states were allowed to convert $10 million of entitlement commodity funds into administrative funds. For FY2009-FY2017, states were allowed to convert 10% of entitlement commodity funds into administrative funds. 58 USDA, FNS, “FY2023~~this happens to a lesser extent.~~
~~57 USDA, FNS, “FY2022~~ USDA Explanatory Notes – Food and Nutrition Service,” p. USDA Explanatory Notes – Food and Nutrition Service,” p. ~~34-129~~35-134, https://www.usda.gov/, https://www.usda.gov/
sites/default/files/documents/34FNS2022Notes.pdf. sites/default/files/documents/34FNS2022Notes.pdf.
~~58 T his~~ 59 This has occurred has occurred since FY2015 as a result of a provision in the 2014 farm bill (P.L. 113-79). since FY2015 as a result of a provision in the 2014 farm bill (P.L. 113-79).
5960 Section 27 of the Food and Nutrition Act of 2008 (codified at 7 U.S.C. Section 27 of the Food and Nutrition Act of 2008 (codified at 7 U.S.C. ~~§2036(b)).~~
~~60 For Section 32 purchasing authorities, see Section 32 of the act of August 24, 1935 (P .L. 74-320). For CCC~~
~~purchasing authorities, see Section 5 of the CCC Charter Act. T he Secretary’s authority to donate such commodities to~~
~~T EFAP is established by Section 17 of the Commodity Distribution Reform And WIC Amendments Act Of 1987.~~
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§2036(b)). Congressional Research Service 10 link to page 19 The Emergency Food Assistance Program (TEFAP): Background and Funding TEFAP fluctuates from year to year, and depends largely on agricultural market conditions. States and recipient agencies are not required to accept bonus foods. USDA’s purchases of bonus commodities stem from two authorities: Section 32 of the Act of August 24, 1935 and the Commodity Credit Corporation (CCC).61 Section 32 is a permanent appropriation that sets aside the equivalent of 30% of annual customs receipts to support the farm appropriation that sets aside the equivalent of 30% of annual customs receipts to support the farm
sector through the purchase of surplus commodities and a variety of other activities.sector through the purchase of surplus commodities and a variety of other activities.6162 The CCC is The CCC is
a government-owned entity that finances authorized programs that support U.S. agriculture. Its a government-owned entity that finances authorized programs that support U.S. agriculture. Its
operations are supported by USDA’s Farm Service Agency. The CCC has permanent, indefinite operations are supported by USDA’s Farm Service Agency. The CCC has permanent, indefinite
authority to borrow up to $30 authority to borrow up to $30 ~~bil ion~~billion from the U.S. Treasury to finance its programs. from the U.S. Treasury to finance its programs.6263
Section 32 has Section 32 has ~~historical y~~historically financed TEFAP commodities to a greater extent than the Commodity financed TEFAP commodities to a greater extent than the Commodity
Credit Corporation.Credit Corporation.6364 Unlike CCC support, which is Unlike CCC support, which is ~~normal y~~normally limited to price-supported limited to price-supported
commodities (such as milk, grains, and sugar), Section 32 is less constrained in the types of commodities (such as milk, grains, and sugar), Section 32 is less constrained in the types of
commodities that may be provided, and can include meats, poultry, fruits, vegetables, and commodities that may be provided, and can include meats, poultry, fruits, vegetables, and
seafood. seafood.
In In ~~FY2020~~FY2021, USDA distributed $701 , USDA distributed $701 ~~mil ion~~ million in bonus commodities through TEFAP.65 ~~in bonus commodities purchased under Section 32~~
~~through TEFAP.64 Other bonus commodities were funded under CCC authority (discussed below).~~
The level of bonus commodities has fluctuated The level of bonus commodities has fluctuated ~~substantial y~~substantially over time (se over time (see Figure 3).
Trade Mitigation Purchases
In 2018 and 2019, the Trump Administration announced two trade aid packages aimed at assisting In 2018 and 2019, the Trump Administration announced two trade aid packages aimed at assisting
farmers impacted by retaliatory tariffs, using CCC authority.farmers impacted by retaliatory tariffs, using CCC authority.6566 The first trade aid package, The first trade aid package,
announced in August 2018, included $1.2 announced in August 2018, included $1.2 ~~bil ion~~ billion in purchases of in purchases of ~~bonus~~ commodities for commodities for
distribution to TEFAP and other domestic food assistance programs.distribution to TEFAP and other domestic food assistance programs.6667 The second trade aid The second trade aid
package, announced in May 2019, provided another $1.4 package, announced in May 2019, provided another $1.4 ~~bil ion~~billion for such purposes. for such purposes.6768 In total, In total,
USDA distributed $1.1 USDA distributed $1.1 ~~bil ion~~ billion worth of trade mitigation foods through TEFAP in FY2019 and worth of trade mitigation foods through TEFAP in FY2019 and
~~$1.2 bil ion~~ $1.2 billion in FY2020.in FY2020.68 69 The Biden Administration has not announced any plans to purchase The Biden Administration has not announced any plans to purchase
trade mitigation trade mitigation commodities. 61 For Section 32 purchasing authorities, see Section 32 of the act of August 24, 1935 (P.L. 74-320). For CCC purchasing authorities, see Section 5 of the CCC Charter Act. The Secretary’s authority to donate such commodities to TEFAP is established by Section 17 of the Commodity Distribution Reform and WIC Amendments Act Of 1987. 62 For more information, see CRS ~~commodities.~~
~~Types of Foods~~
~~USDA-purchased agricultural products (USDA Foods) in TEFAP include a variety of products,~~
~~such as meats, eggs, vegetables, soup, beans, nuts, peanut butter, cereal, pasta, milk, and juice.69~~
~~Most foods are nonperishable and ready for distribution when delivered to states, although some~~

~~61 For more information, see CRS~~ Report RL34081, Report RL34081, Farm and Food Support Under USDA’s Section 32 Program . .
6263 For more information, see CRS For more information, see CRS Report R44606, Report R44606, The Commodity Credit Corporation (CCC). .
6364 CRS CRS communication with the Food and Nutrition Service in September 2018. communication with the Food and Nutrition Service in September 2018.
6465 USDA, USDA, ~~FNS, “FY2022~~ FNS, “FY2023 USDA Explanatory Notes – Food and Nutrition Service,” p. USDA Explanatory Notes – Food and Nutrition Service,” p. ~~34-129~~35-134, https://www.usda.gov/, https://www.usda.gov/
sites/default/files/documents/34FNS2022Notes.pdf. sites/default/files/documents/34FNS2022Notes.pdf.
65 66 For more information, see CRS For more information, see CRS Report R45310, Report R45310, Farm Policy: USDA’s 2018 Trade Aid Package; and CRS; and CRS Report Report
R45865, R45865, Farm Policy: USDA’s 2019 Trade Aid Package. .
6667 For more information, see CRS For more information, see CRS Report R45310, Report R45310, Farm Policy: USDA’s 2018 Trade Aid Package; and CRS; and CRS Report Report
R45865, R45865, Farm Policy: USDA’s 2019 Trade Aid Package. USDA,. USDA, ~~“ USDA~~ “USDA Announces Details of Assistance for Announces Details of Assistance for
Farmers Impacted by UnjustifiedFarmers Impacted by Unjustified Retaliation,” press release, AugustRetaliation,” press release, August 27, 2018, https://www.usda.gov/media/press-27, 2018, https://www.usda.gov/media/press-
releases/2018/08/27/usda-announces-details-assistance-farmers-impacted-unjustified. releases/2018/08/27/usda-announces-details-assistance-farmers-impacted-unjustified. ~~T he~~The largest purchases announced largest purchases announced
includeinclude pork, sweet cherries, apples, pistachios, dairy, and almonds. pork, sweet cherries, apples, pistachios, dairy, and almonds.
67 68 USDA, USDA, “USDA“USDA Announces Support for Farmers Impacted by Unjustified Retaliation and Announces Support for Farmers Impacted by Unjustified Retaliation and ~~T rade~~Trade Disruption,” press Disruption,” press
release, May 23, 2019, https://www.usda.gov/media/press-releases/2019/05/23/usda-announces-supportrelease, May 23, 2019, https://www.usda.gov/media/press-releases/2019/05/23/usda-announces-support -farmers--farmers-
impacted-unjustified-retaliation-and. impacted-unjustified-retaliation-and.
6869 USDA, USDA, ~~FNS, “FY2022~~ FNS, “FY2023 USDA Explanatory Notes – Food and Nutrition Service,” p. USDA Explanatory Notes – Food and Nutrition Service,” p. ~~34-129~~35-134, https://www.usda.gov/, https://www.usda.gov/
sites/default/files/documents/34FNS2022Notes.pdf. sites/default/files/documents/34FNS2022Notes.pdf.
~~69 USDA, FNS, USDA Foods Available List for The Emergency Food Assistance Program (TEFAP) 2021 , March 15,~~
~~2021, https://www.fns.usda.gov/tefap/usda-foods-available-list-tefap.~~
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~~foods, such as some meat and dairy products, require refrigeration.70~~Congressional Research Service 11 The Emergency Food Assistance Program (TEFAP): Background and Funding Types of Foods USDA-purchased agricultural products (USDA Foods) in TEFAP include a variety of products, such as meats, eggs, vegetables, soup, beans, nuts, peanut butter, cereal, pasta, milk, and juice.70 Most foods are nonperishable and ready for distribution when delivered to states, although some foods, such as some meat, dairy, and fresh produce, require refrigeration.71 States and recipient agencies States and recipient agencies
can request entitlement commodities from a list of USDA Foods.can request entitlement commodities from a list of USDA Foods. In contrast, USDA selects bonus foods USDA selects bonus foods
based on market conditions. In based on market conditions. In ~~FY2020~~FY2021, bonus food purchases included “, bonus food purchases included “~~apples~~asparagus, beans, peas, lentils, butter, milk, cheese, eggs, orange juice, grapefruit juice, fish, shrimp, chicken, turkey, bison, beef, pork, grapes, raisins, cherries, fig pieces, plums, apricots, dates, cranberries, blueberries, peaches, walnuts, pistachios and almonds.”72~~, beans, cheese,~~
~~dried cherries, chicken, eggs, fig pieces, milk, orange juice, plums, pollock, potatoes, spaghetti~~
~~sauce, lentils, shrimp, deli turkey breast, and almonds.”71~~
According to a 2012 USDA study, TEFAP foods According to a 2012 USDA study, TEFAP foods ~~are~~were relatively nutritious compared to foods in the relatively nutritious compared to foods in the
average American diet.average American diet.7273 The study found that TEFAP entitlement and bonus foods delivered to The study found that TEFAP entitlement and bonus foods delivered to
states in FY2009 scored 88.9 points out of a possible 100 points on the Healthy Eating Index—states in FY2009 scored 88.9 points out of a possible 100 points on the Healthy Eating Index—a a
measure of compliance with federal dietary guidelines—compared to 57.5 points scored by the measure of compliance with federal dietary guidelines—compared to 57.5 points scored by the
average American diet.average American diet.7374 Keeping in mind that TEFAP foods are Keeping in mind that TEFAP foods are ~~general y~~generally meant to supplement meant to supplement
diets, the study also found that these foods would supply 81% of fruits, 69% of vegetables, 98% diets, the study also found that these foods would supply 81% of fruits, 69% of vegetables, 98%
of grains, 171% of protein, 36% of dairy, 84% of oils, and 39% of the maximum solid fats and of grains, 171% of protein, 36% of dairy, 84% of oils, and 39% of the maximum solid fats and
added sugars recommended for a 2,000-calorie diet.added sugars recommended for a 2,000-calorie diet.7475
Administrative Cash Support
TEFAP provides funds to cover state and recipient agency costs related to processing, storing, TEFAP provides funds to cover state and recipient agency costs related to processing, storing,
transporting, and distributing USDA-purchased commodities, as transporting, and distributing USDA-purchased commodities, as ~~wel~~ well as administrative costs as administrative costs
related to determining eligibility,related to determining eligibility, training staff, recordkeeping, and training staff, recordkeeping, and ~~publishing announcements.75~~
other activities.76 Administrative funds can also be used to support states’ food recovery efforts.Administrative funds can also be used to support states’ food recovery efforts.76
~~The Emergency Food Assistance Act of 1983 authorizes $100 mil ion to be appropriated annual y~~
~~for administrative costs.77 In recent years, annual appropriations acts have provided nearly $80~~
~~mil ion in discretionary funding for TEFAP administrative funds.78~~
~~The Emergency Food Assistance Act of 1983 also authorizes up to $15 mil ion to be appropriated~~
~~for TEFAP infrastructure grants (and this authority was extended by the 2018 farm bil ). Funds~~
~~were last appropriated for these grants in FY2010.79 In FY2021, USDA made $100 mil ion~~

~~70 C. Cabili, E. Eslami, and R. Briefel,~~ ~~White~~ 77 70 USDA, FNS, USDA Foods Available List for The Emergency Food Assistance Program (TEFAP) 2022, August 30, 2021, https://www.fns.usda.gov/tefap/usda-foods-available-list-tefap. 71 C. Cabili, E. Eslami, and R. Briefel, White Paper on the Emergency Food Assistance Program (TEFAP) , prepared by , prepared by
Mathematica for the Office of Policy Support, Food and Nutrition Service, U.S.Mathematica for the Office of Policy Support, Food and Nutrition Service, U.S. Department of Department of ~~Agricult ure~~Agriculture, August , August
2013, https://fns-prod.azureedge.net/sites/default/files/2013, https://fns-prod.azureedge.net/sites/default/files/~~T EFAPWhitePaper.pdf.~~
~~71 USDA, FNS, “FY2022~~TEFAPWhitePaper.pdf. USDA added mixed fresh produce boxes to its TEFAP offerings in 2021 following the completion of the separate Farmers to Families Food Box Program. For more information, see USDA, FNS, “TEFAP Fresh Produce,” March 30, 2021, https://www.fns.usda.gov/tefap/fresh-produce. 72 USDA, FNS, “FY2023 USDA Explanatory Notes – Food and Nutrition Service,” p. USDA Explanatory Notes – Food and Nutrition Service,” p. ~~34-128~~35-133, https://www.usda.gov/, https://www.usda.gov/
sites/default/files/documents/34FNS2022Notes.pdf. sites/default/files/documents/34FNS2022Notes.pdf.
72 73 See See USDA,USDA, FNS,FNS, Nutrient and MyPyramid Analysis of USDA Foods in Five of Its Food and Nutrition Programs, ,
prepared by Westat for the Office of Research prepared by Westat for the Office of Research ~~an d~~and Analysis, January 2012, p. 3-76 to 3-84, https://fns- Analysis, January 2012, p. 3-76 to 3-84, https://fns-
prod.azureedge.net/sites/default/files/ops/NutrientMyPyramid.pdf. prod.azureedge.net/sites/default/files/ops/NutrientMyPyramid.pdf.
7374 Federal dietary guidelines Federal dietary guidelines refer to the 2010 USDA Food Patterns, which are basedrefer to the 2010 USDA Food Patterns, which are based on the Dietary Guidelineson the Dietary Guidelines for for
Americans. Americans.
74 75 USDA, USDA, FNS,FNS, Nutrient and MyPyramid Analysis of USDA Foods in Five of Its Food and Nutrition Programs, ,
prepared by Westat for the Office of Research and prepared by Westat for the Office of Research and ~~Analy sis~~Analysis, January 2012, https://fns-prod.azureedge.net/sites/default/, January 2012, https://fns-prod.azureedge.net/sites/default/
files/ops/NutrientMyPyramid.pdf. files/ops/NutrientMyPyramid.pdf.
7576 Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7508). §7508).
7677 Section 203D and Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. Section 203D and Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. 7§507). Also see 7§507). Also see
C. Cabili,C. Cabili, E. Eslami, and R. Briefel, E. Eslami, and R. Briefel, White Paper on the ~~Em ergency~~Emergency Food Assistance Program (TEFAP) , prepared by , prepared by
Mathematica for the Office of Policy Support, Food and Nutrition Service, U.S.Mathematica for the Office of Policy Support, Food and Nutrition Service, U.S. ~~Department of Agricult ure, August~~
~~2013, https://fns-prod.azureedge.net/sites/default/files/T EFAPWhitePaper.pdf.~~
~~77 Section 204 of the Emergency Food Assistance Act Of 1983 (codified at 7 U.S.C. §7508).~~
~~78 T he Further Consolidated Appropriations Act , 2020 (P.L. 116-94) and the Consolidated Appropriations Act, 2021~~
~~(P.L. 116-260) provided an annual appropriation of $79.6 million for T EFAP administrative funds in each of FY2020~~
~~and FY2021.~~
~~79 USDA, FNS, The Emergency Food Assistance Program (TEFAP) General Infrastructure Grant,~~
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~~available for a new program that wil include infrastructure improvements (discussed further in~~
~~the “COVID-19 Pandemic Response” section).80~~
~~The statute specifies that administrative funds must be made available to states, which must in~~
~~turn distribute at least 40% of the funds to emergency feeding organizations.81 However, states are~~
~~required to match whatever administrative funds they keep. As a result, states typical y send~~
~~nearly al of these funds to emergency feeding organizations.82~~
~~States can convert any amount of their administrative funds to food funds, but this happens to a~~
~~lesser extent than the conversion of food funds to administrative funds.83~~
~~Funding Trends~~
~~Figure 3~~ ~~displays TEFAP’s expenditures on~~ Department of Agriculture, August Congressional Research Service 12 The Emergency Food Assistance Program (TEFAP): Background and Funding The Emergency Food Assistance Act of 1983 authorizes $100 million to be appropriated annually for administrative costs.78 In recent years, annual appropriations acts have provided approximately $80 million in discretionary funding for TEFAP administrative funds.79 The Emergency Food Assistance Act of 1983 also authorizes up to $15 million to be appropriated for TEFAP infrastructure grants (and this authority was extended by the 2018 farm bill). Funds were last appropriated for these grants in FY2010.80 In FY2021, USDA made $100 million available for new Reach and Resiliency grants that will include infrastructure improvements (discussed below).81 The statute specifies that administrative funds must be made available to states, which must in turn distribute at least 40% of the funds to emergency feeding organizations.82 However, states are required to match whatever administrative funds they keep. As a result, states typically send nearly all of these funds to emergency feeding organizations.83 States can convert any amount of their administrative funds to food funds, but this happens to a lesser extent than the conversion of food funds to administrative funds.84 Other Funding Farm to Food Bank Projects The 2018 farm bill (§4018 of P.L. 115-334) authorized projects to support the harvesting, processing, packaging, and/or transportation of raw or unprocessed commodities from agricultural producers, processors, and distributors to emergency feeding organizations—termed Farm to Food Bank Projects by USDA. The law provided $4 million in annual mandatory funding for the projects from FY2019 to FY2023 and required at least a 50% nonfederal match. It also required states to include a plan of operations for Farm to Food Bank Projects in their state TEFAP plans in order to receive funding. The law gave USDA discretion to determine how funds would be allocated to such states; through rulemaking published in October 2019, USDA established that funds would be allocated the same way as current TEFAP entitlement funds: 2013, https://fns-prod.azureedge.net/sites/default/files/TEFAPWhitePaper.pdf. 78 Section 204 of the Emergency Food Assistance Act Of 1983 (codified at 7 U.S.C. §7508). 79 The amount was $81 million in FY2022 and $79.6 million in FY2021 and FY2020, according to the committee reports accompanying the Consolidated Appropriations Act, 2022 (P.L. 117-103), Consolidated Appropriations Act, 2021 (P.L. 116-260), and the Further Consolidated Appropriations Act, 2020 (P.L. 116-94). 80 USDA, FNS, The Emergency Food Assistance Program (TEFAP) General Infrastructure Grant, https://www.fns.usda.gov/emergency-food-assistance-program-tefap-general-infrastructure-grant; Section 209 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7511a). 81 USDA, “USDA to Invest $1 Billion to Purchase Healthy Food for Food Insecure Americans and Build Food Bank Capacity,” June 4, 2021, https://www.usda.gov/media/press-releases/2021/06/04/usda-invest-1-billion-purchase-healthy-food-food-insecure-americans. 82 Section 204 of the Emergency Food Assistance Act Of 1983 (codified at 7 U.S.C. §7508). 83 For the percentage of administrative funds distributed to recipient organizations by state, see USDA, FNS, “Percentage of TEFAP Administrative Funds Passed Through from State Agencies to Emergency Feeding Organizations: FY2020,” https://www.fns.usda.gov/tefap/percentage-tefap-administrative-funds-passed-through-state-agencies-emergency-feeding. 84 USDA, FNS, “FY2023 USDA Explanatory Notes – Food and Nutrition Service,” p. 35-134, https://www.usda.gov/sites/default/files/documents/34FNS2022Notes.pdf. Congressional Research Service 13 link to page 19 link to page 19 link to page 19 link to page 24 The Emergency Food Assistance Program (TEFAP): Background and Funding based on state’s shares of households in poverty and unemployed persons (see the “State Allocation Formula” section).85 FNS awarded Farm to Food Bank funds to 19 states in FY2020, 24 states in FY2021, and 29 states in FY2022 that submitted plans to implement projects.86 Projects typically focus on setting up state-level infrastructure to facilitate relationships between agricultural donors and feeding organizations, rescuing or gleaning commodities, processing foods into end products, and distributing foods through food bank networks. Some states are using funds to support statewide initiatives, while others have funded specific projects carried out by a single organization or group of organizations. Likewise, some projects support various agricultural sectors while others focus on specific commodities (e.g., blueberries and cheese). In many cases, federal funding is supporting pre-existing state and local initiatives.87 Reach and Resiliency Grants In June 2021, the Biden Administration announced its intent to use $100 million in funds provided by the American Rescue Plan Act (ARPA; P.L. 117-2) for infrastructure grants for emergency feeding organizations.88 FNS issued a Request for Applications for a first round of Reach and Resiliency grants in December 2021 that explained that the grants would be awarded competitively to TEFAP state agencies to expand the program into remote, rural, tribal, and low-income areas currently underserved by TEFAP.89 Funds may be used for needs assessments, equipment and supplies, building and warehouse renovations, mobile distribution infrastructure, staff training, and outreach to underserved populations, among other activities. In June 2022, FNS awarded $39 million in Reach and Resiliency funds to 38 states.90 Funding Trends Figure 3 displays TEFAP funding for administrative costs, entitlement commodities, and administrative costs, entitlement commodities, and
bonus commodities from the program’s inception (FY1983) to bonus commodities from the program’s inception (FY1983) to ~~FY2020~~FY2021 in constant (inflation- in constant (inflation-
adjusted) dollars (adjusted) dollars (seesee Appendix A for specific dollar amounts). for specific dollar amounts). Available TEFAP funding~~TEFAP expenditures~~ reached a reached a
recent high in recent high in ~~FY2019 and~~ FY2020 as a result of additional funding for entitlement commodities FY2020 as a result of additional funding for entitlement commodities
and administrative costs provided by COVID-19 pandemic response acts and the Trump and administrative costs provided by COVID-19 pandemic response acts and the Trump
Administration’s trade mitigation program. Previously, spending was highest around the time of Administration’s trade mitigation program. Previously, spending was highest around the time of
~~the program’s inception, when TEFAP served as a means for disposing of large stockpiles of~~
~~government-held commodities (for further legislative history, see Appendix C).~~

~~https://www.fns.usda.gov/emergency-food-assistance-program-tefap-general-infrastructure-grant; Section 209 of the~~
~~Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7511a).~~
~~80 USDA, “USDA to Invest $1 Billion to Purchase Healthy Food for Food In secure Americans and Build~~ the program’s inception, 85 USDA, FNS, “The Emergency Food Assistance Program: Implementation of the Agriculture Improvement Act of 2018,” 84 Federal Register 52997 October 4, 2019, https://www.federalregister.gov/documents/2019/10/04/2019-21665/the-emergency-food-assistance-program-implementation-of-the-agriculture-improvement-act-of-2018. For more information on Farm to Food Bank Projects, see USDA, FNS, “The Emergency Food Assistance Program Farm to Food Bank Project Grants,” https://www.fns.usda.gov/tefap/farm-to-food-bank-project-grants. 86 USDA, FNS, “The Emergency Food Assistance Program Farm to Food Bank Project Grants,” March 4, 2021, https://www.fns.usda.gov/tefap/farm-to-food-bank-project-grants. 87 USDA, FNS, “FY 2022 Farm to Food Bank Project Summaries,” https://www.fns.usda.gov/tefap/fy-2022-farm-food-bank-project-summaries. 88 USDA, “USDA to Invest $1 Billion to Purchase Healthy Food for Food Insecure Americans and Build Food Bank Food Bank
Capacity,” June 4, 2021, https://www.usda.gov/media/press-releases/2021/06/04/usda-invest-1-billion-purchase-Capacity,” June 4, 2021, https://www.usda.gov/media/press-releases/2021/06/04/usda-invest-1-billion-purchase-
healthy-food-food-insecure-americans. healthy-food-food-insecure-americans.
~~81 Section 204 of the Emergency Food Assistance Act Of 1983 (codified at 7 U.S.C. §7508).~~
~~82 For the percentage of administrative funds distributed to recipient organizations by state, see USDA, FNS,~~
~~“Percentage of T EFAP Administrative Funds Passed T hrough from State Agencies to Emergency Feeding~~
~~Organizations: FY2019,” https://www.fns.usda.gov/tefap/percentage-tefap-administrative-funds-passed-through-state-~~
~~agencies-emergency-feeding.~~
~~83 USDA, AMS, “FY2022 USDA Explanatory Notes – Agricultural Marketing Service,” p. 23-116,~~
~~https://www.usda.gov/sites/default/files/documents/23AMS2022Notes.pdf.~~
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89 USDA, FNS, “The Emergency Food Assistance Program (TEFAP) Reach and Resiliency Grants: Fiscal Year 2022 Request for Applications (RFA),” CDFA 10.568, December 6, 2021. 90 USDA, FNS, “TEFAP Reach and Resiliency: Round One Projects,” June 1, 2022, https://www.fns.usda.gov/tefap/reach-resiliency-grant-round-one-awards. Also see USDA, FNS, “TEFAP Reach and Resiliency Grant Initiative,” https://www.fns.usda.gov/tefap/reach-resiliency-grant. Congressional Research Service 14 link to page 28 The Emergency Food Assistance Program (TEFAP): Background and Funding

when TEFAP served as a means for disposing of large stockpiles of government-held commodities (for further legislative history, see Appendix C). Figure 3. TEFAP Funding, FY1983-FY2021~~Figure 3. TEFAP Expenditures, FY1983-FY2020~~

Source: CRS calculations using USDA, FNS Congressional Budget Justifications for FY1983-CRS calculations using USDA, FNS Congressional Budget Justifications for FY1983-~~FY2022~~FY2023. Amounts . Amounts
are in FY2020 dol ars,are in FY2020 dol ars, adjusted for GDP inflation by CRS using Office of Management and Budget (OMB), adjusted for GDP inflation by CRS using Office of Management and Budget (OMB),
“Historical“Historical Tables: Table 10.1—GrossTables: Table 10.1—Gross ~~Domestic~~ Domestic Product and Deflators Used in the HistoricalProduct and Deflators Used in the Historical Tables: 1940–Tables: 1940–
~~2026,” April 2021.~~
~~Notes:~~ ~~Expenditures~~2027.” Notes: Graph displays food and administrative funds made available to states and USDA bonus purchases. State funds are after conversion of any entitlement commodity are after conversion of any entitlement commodity funds to administrativefunds to administrative funds, and funds, and
~~administrative~~ administrative funds to commodityfunds to commodity funds, and include any entitlement food and administrativefunds, and include any entitlement food and administrative funds that states funds that states
carried over fromcarried over from the prior fiscal year. the prior fiscal year. Graph does not include Farm to Food Bank Project funding. In FY2009 and FY2010, entitlement food and administrative fund amounts In FY2009 and FY2010, entitlement food and administrative fund amounts
include supplemental Americaninclude supplemental American Recovery and Reinvestment Act (ARRA) funding. ARRA included $100 mil ionRecovery and Reinvestment Act (ARRA) funding. ARRA included $100 mil ion in in
TEFAP commodityTEFAP commodity funding and $50 mil ionfunding and $50 mil ion in TEFAP administrativein TEFAP administrative funding that was distributed in FY2009 and funding that was distributed in FY2009 and
FY2010. An additional $28 mil ionFY2010. An additional $28 mil ion in ARRA funds were reprogrammedin ARRA funds were reprogrammed as TEFAP administrativeas TEFAP administrative funds in FY2010. funds in FY2010.
State Allocation Formula
TEFAP’s entitlement commodity and administrative funds are TEFAP’s entitlement commodity and administrative funds are ~~al ocated~~allocated to states based on a to states based on a
statutory formula that takes into account poverty and unemployment rates.statutory formula that takes into account poverty and unemployment rates.~~84 Specifical y~~91 Specifically, USDA , USDA
calculates each state’s share of the total national number of households with incomes below the calculates each state’s share of the total national number of households with incomes below the
federal poverty level and each state’s share of the total national number of unemployed federal poverty level and each state’s share of the total national number of unemployed
individuals. A state’s share of households in poverty is then multiplied by 60% and its share of individuals. A state’s share of households in poverty is then multiplied by 60% and its share of
unemployed individualsunemployed individuals is multipliedis multiplied by 40% to calculate the state’s share of TEFAP by 40% to calculate the state’s share of TEFAP
commodities and funds. For example, if a state has 4% of commodities and funds. For example, if a state has 4% of al all households in poverty and 2% of households in poverty and 2% of al
all unemployed individuals, it would receive (4% x 60% = 2.4%) + (2% x 40% = 0.8%) = 3.2% of unemployed individuals, it would receive (4% x 60% = 2.4%) + (2% x 40% = 0.8%) = 3.2% of
~~TEFAP funds.85 As noted previously, states may carry over any extra food or administrative funds~~
~~for one fiscal year (e.g., from FY2020 to FY2021).~~

~~84 7 C.F.R.~~ 91 7 C.F.R. §251.3(h). Administrative funds use the same formula as commodities according§251.3(h). Administrative funds use the same formula as commodities according to Section 204 of the to Section 204 of the
Emergency Food Assistance Act of 1983 (codified at 7 U.S.C.Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. ~~§7508).~~
~~85 T his explanation draws upon Appendix B of C. Cabili, E. Eslami, and R. Briefel,~~ ~~White Paper on the~~ §7508). Congressional Research Service 15 The Emergency
Food Assistance Program (TEFAP): Background and Funding TEFAP funds.92 As noted previously, states may carry over any extra food or administrative funds for one fiscal year (e.g., from FY2021 to FY2022).~~(TEFAP), prepared by Mathematica for the Office of Policy Support, Food and Nutrition~~
~~Service, U.S. Department of Agriculture, August 2013 , https://fns-prod.azureedge.net/sites/default/files/~~
~~Congressional Research Service~~

15

~~The Emergency Food Assistance Program (TEFAP): Background and Funding~~

State Funding
States must match any administrative funds that are not States must match any administrative funds that are not ~~al ocated~~allocated to emergency feeding to emergency feeding
organizations or expended by the state on behalf of such organizations.organizations or expended by the state on behalf of such organizations.8693 In practice, most states In practice, most states
use 80% to 100% of their administrative funds to support emergency feeding organizations, use 80% to 100% of their administrative funds to support emergency feeding organizations,
resulting in a resulting in a ~~smal~~ small state match requirement.state match requirement.8794
Beyond the state match, 14 states reported supplying additional state funds “to support the Beyond the state match, 14 states reported supplying additional state funds “to support the
TEFAP program either directly or indirectly” in a national survey conducted by the Washington TEFAP program either directly or indirectly” in a national survey conducted by the Washington
State Department of Agriculture in 2015.State Department of Agriculture in 2015.88
95 There is also a maintenance of effort requirement in TEFAP, meaning that states cannot reduce There is also a maintenance of effort requirement in TEFAP, meaning that states cannot reduce
their own funding or commodity support for recipient agencies below the level that they were their own funding or commodity support for recipient agencies below the level that they were
supporting such organizations at the program’s inception or FY1988 (when the maintenance of supporting such organizations at the program’s inception or FY1988 (when the maintenance of
effort went into effect)—whichever is later.effort went into effect)—whichever is later.8996
Role of TEFAP During Disasters and Emergencies
There are two main ways TEFAP can be deployed in disaster response: (1) transferring TEFAP There are two main ways TEFAP can be deployed in disaster response: (1) transferring TEFAP
foods to disaster response organizations for distribution to households (foods to disaster response organizations for distribution to households (Disaster Household
Distribution programs) and (2) adjusting TEFAP program rules and/or distributing additional aid programs) and (2) adjusting TEFAP program rules and/or distributing additional aid
through TEFAP. Both of these approaches have been used during the COVID-19 pandemic through TEFAP. Both of these approaches have been used during the COVID-19 pandemic
(discussed in the next section). (discussed in the next section).
During a During a ~~presidential y~~presidentially declared disaster or emergency, USDA may approve state requests to declared disaster or emergency, USDA may approve state requests to
operate Disaster Household Distribution programs and repurpose USDA Foods (largely from operate Disaster Household Distribution programs and repurpose USDA Foods (largely from
TEFAP) for direct distribution to households in areas affected by an emergency or disaster.TEFAP) for direct distribution to households in areas affected by an emergency or disaster.90
97 USDA later replenishes or reimburses TEFAP and federal nutrition assistance programs for the USDA later replenishes or reimburses TEFAP and federal nutrition assistance programs for the
reprogrammed foods.reprogrammed foods.9198 Disaster Household Distribution facilitates faster distribution to Disaster Household Distribution facilitates faster distribution to
~~households by reducing administrative requirements (e.g., removing eligibility determinations);~~
~~however, it temporarily results in lower USDA Foods inventory for TEFAP and other federal~~
~~nutrition assistance programs. USDA authorized Disaster Household Distribution using TEFAP~~
~~foods in several states in recent years, including during the COVID-19 pandemic.92~~

~~T EFAPWhitePaper.pdf.~~
86 92 This explanation draws upon Appendix B of C. Cabili, E. Eslami, and R. Briefel, White Paper on the Emergency Food Assistance Program (TEFAP), prepared by Mathematica for the Office of Policy Support, Food and Nutrition Service, U.S. Department of Agriculture, August 2013, https://fns-prod.azureedge.net/sites/default/files/TEFAPWhitePaper.pdf. 93 Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7508). §7508).
8794 USDA, USDA, FNS,FNS, “Percentage of “Percentage of ~~T EFAP~~TEFAP Administrative Funds Passed Administrative Funds Passed ~~T hrough~~ Through from State Agencies to Emergency from State Agencies to Emergency
FeedingFeeding Organizations (EFO): Organizations (EFO): ~~FY2019~~FY2020,” https://www.fns.usda.gov/tefap/percentage-tefap-administrative-funds-,” https://www.fns.usda.gov/tefap/percentage-tefap-administrative-funds-
passed-through-state-agencies-emergency-feeding. Note that territories are exempt from the matching requirement if it passed-through-state-agencies-emergency-feeding. Note that territories are exempt from the matching requirement if it
is underis under $200,000 (7 C.F.R. §251.9). $200,000 (7 C.F.R. §251.9).
8895 See See Washington State Department of Agriculture, Washington State Department of Agriculture, The Emergency Food Assistance Program (TEFAP): Distribution
National Survey 2015, AGR 609-574. , AGR 609-574.
8996 Section 215 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. Section 215 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7516). §7516).
9097 7 C.F.R. 7 C.F.R. §250.69; USDA,§250.69; USDA, FNS,FNS, Food Distribution Division, “USDAFood Distribution Division, “USDA Foods Program Disaster Manual,” revised Foods Program Disaster Manual,” revised
September 2017, https://fns-prod.azureedge.net/sites/default/files/fdd/disaster-manual.pdf; USDA,September 2017, https://fns-prod.azureedge.net/sites/default/files/fdd/disaster-manual.pdf; USDA, ~~FNS, “ USDA~~ FNS, “USDA Foods Foods
Disaster Assistance,” https://www.fns.usda.gov/disaster/usda-foods-disaster-assistance.Disaster Assistance,” https://www.fns.usda.gov/disaster/usda-foods-disaster-assistance. Note that households cannot Note that households cannot
receive both disaster SNAPreceive both disaster SNAP benefits and disasterbenefits and disaster ~~USDA~~ USDA Foods. USDAFoods. USDA Foods for household consumption are most Foods for household consumption are most
often obtained from inventories intended for often obtained from inventories intended for ~~T EFAP~~TEFAP, the Commodity Supplemental Food Program, and the Food , the Commodity Supplemental Food Program, and the Food
Distribution Program on Indian Reservations. Distribution Program on Indian Reservations.
9198 7 C.F.R. 7 C.F.R. ~~§250.69(g).~~
~~92 For example, foods intended for T EFAP were used for disaster response in Florida, T exas, and Puerto Rico following~~
§250.69(g). Congressional Research Service Congressional Research Service

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link to page link to page ~~13 link to page 19 link to page 23~~22 The Emergency Food Assistance Program (TEFAP): Background and Funding

~~Additional foods may also be distributed through TEFAP to aid in disaster and emergency~~
~~response, and additional flexibilities may be provided. For example, USDA and/or states may~~
~~adjust certain program rules during a disaster or emergency (e.g., by amending state plans). In~~
~~addition,~~households by reducing administrative requirements (e.g., removing eligibility determinations); however, it temporarily results in lower USDA Foods inventory for TEFAP and other federal nutrition assistance programs. USDA authorized Disaster Household Distribution using TEFAP foods in several states in recent years, including during the COVID-19 pandemic.99 Additional foods may also be distributed through TEFAP to aid in disaster and emergency response, and additional flexibilities may be provided. Congress may provide supplemental funding for disaster or emergency feeding through Congress may provide supplemental funding for disaster or emergency feeding through
TEFAP, as was the case during the COVID-19 pandemic and during hurricanes and wildfires in TEFAP, as was the case during the COVID-19 pandemic and during hurricanes and wildfires in
recent years.recent years.93
100 In addition, USDA and/or states may adjust certain program rules during a disaster or emergency (e.g., by amending state plans). COVID-19 Pandemic Response
TEFAP has been involved in responding to the COVID-19 pandemic TEFAP has been involved in responding to the COVID-19 pandemic ~~both~~ in terms of in terms of both transferring transferring
foods to Disaster Household Distribution programs and distributing a higher volume of foods foods to Disaster Household Distribution programs and distributing a higher volume of foods
through TEFAP.through TEFAP.101
During the During the early months of the COVID-19 pandemic, USDA authorized some states’ requests to use TEFAP foods for COVID-19 pandemic, USDA authorized some states’ requests to use TEFAP foods for
Disaster Household Distribution. Following the presidential emergency declaration for COVID-Disaster Household Distribution. Following the presidential emergency declaration for COVID-
19, USDA approved requests from 21 states, Guam, and 33 tribal nations to repurpose TEFAP 19, USDA approved requests from 21 states, Guam, and 33 tribal nations to repurpose TEFAP
foods for Disaster Household Distributionfoods for Disaster Household Distribution ~~during the early months of the pandemic.94~~.102 These These
approvals had different timeframes but approvals had different timeframes but ~~typical y~~typically ended by July 2020. ended by July 2020.
There was also additional federal aid distributed through TEFAP as a result of funding provided There was also additional federal aid distributed through TEFAP as a result of funding provided
by COVID-19 pandemic response acts. by COVID-19 pandemic response acts. ~~Specifical y~~Specifically, supplemental appropriations for TEFAP , supplemental appropriations for TEFAP
~~were provided by FFCRA ($400 mil ion), the CARES Act ($450 mil ion~~entitlement foods and administrative funds were provided by the Families First Coronavirus Response Act (FFCRA; P.L. 116-127) ($400 million), the CARES Act (P.L. 116-136) ($450 million), and the Consolidated ~~), and the Consolidated~~
Appropriations Act, FY2021 (Appropriations Act, FY2021 (~~$400 mil ion).95 In~~ P.L. 116-260) ($400 million). In addition, the Biden Administration addition, the Biden Administration ~~announced~~
~~its intent to use funds provided by the Consolidated Appropriations Act, FY2021 ($500 mil ion)~~
~~and ARPA ($500 mil ion)~~decided to use another $500 million in CARES Act funds for for TEFAP entitlement purchases and administrative funds and $100 million in ARPA funds for Reach and Resiliency grants (discussed previously).103 These amounts and authorities are shown in Table 1. During the pandemic, USDA also encouraged states to make policy changes within TEFAP to facilitate safe food distribution, such as expanding eligibility rules for participants and waiving signature requirements for the receipt of TEFAP foods.104 99 For example, foods intended for TEFAP were used for disaster response in Florida, Texas, and Puerto Rico following Hurricanes Irma, Harvey, and Maria in 2017. For a list of FNS’s disaster response by state, see USDA, FNS, “State by State FNS Disaster Assistance,” https://www.fns.usda.gov/disaster/state-by-state. 100 For example, the Bipartisan Budget Act of 2018 (P.L. 115-123) provided $24 million in supplemental funding for TEFAP~~TEFAP (1) entitlement food purchases with priority for smal ,~~
~~women-owned, minority-owned, and veteran-owned businesses and to continue a fresh produce~~
~~box initiative announced earlier in the year;96 (2) cooperative agreements with state and tribal~~
~~governments or other local entities to purchase local and regional foods and foods from social y~~
~~disadvantaged producers, and (3) infrastructure grants for emergency feeding organizations, with~~
~~an emphasis on those in “underserved communities and communities of color.”97 TEFAP funds~~
~~available in FY2021 are displayed in Table 1. FFCRA and CARES Act funds expended in~~
~~FY2020 are included in Figure 3 and Table A-1.~~

~~Hurricanes Irma, Harvey, and Maria in 2017. For a list of FNS’s disaster response by state, see USDA, FNS, “ State by~~
~~State FNS Disaster Assistance,” https://www.fns.usda.gov/disaster/state-by-state.~~
~~93 For example, the Bipartisan Budget Act of 2018 (P.L. 115-123) provided $24 million in supplemental funding for~~
~~T EFAP~~ commodities and administrative funds to jurisdictions that received a major disaster or emergency declaration commodities and administrative funds to jurisdictions that received a major disaster or emergency declaration
related to the consequences of Hurricanesrelated to the consequences of Hurricanes Harvey, Irma, and Maria or wildfiresHarvey, Irma, and Maria or wildfires in 2017.in 2017.
~~94 USDA, FNS, “ Disaster Household~~ 101 For further discussion of the use of TEFAP in responding to the COVID-19 pandemic, see CRS Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic. 102 USDA, FNS, “Disaster Household Distribution,” June 11, 2020, https://www.fns.usda.gov/usda-foods/covid-19-Distribution,” June 11, 2020, https://www.fns.usda.gov/usda-foods/covid-19-
disaster-household-distribution. disaster-household-distribution.
~~95 FFCRA (P.L. 116-127, Division A, T itle I); CARES Act (P.L. 116-136, Division B, T itle I); Consolidated~~
~~Appropriations Act, 2021 (P.L. 116-260, Division N, T it le VII, §711). T hese laws also specified the proportion of~~
~~funding could be used for administrative/food distribution costs.~~
~~96 USDA, FNS, “T EFAP Fresh Produce,” March 30, 2021, https://www.fns.usda.gov/tefap/fresh-produce.~~
~~97 USDA, “ USDA to Invest $1 Billion to Purchase Healthy Food for Food Insecure Americans and Build Food Bank~~
~~Capacity,” June 4, 2021, https://www.usda.gov/media/press-releases/2021/06/04/usda-invest -1-billion-purchase-~~
~~healthy-food-food-insecure-americans~~ 103 USDA, FNS, “The Emergency Food Assistance Program (TEFAP): Allocation of Supplemental Food and Administrative Funds from Division B of the Coronavirus Aid, Relief, and Economic Security Act (CARES Act),” FNS-GD-2021-0083, August 4, 2021. 104 USDA, FNS, “Questions and Answers related to COVID-19 and the Emergency Food Assistance Program (TEFAP),” May 22, 2020, https://www.fns.usda.gov/tefap/covid-19-qas. .
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link to page link to page 1922 link to page link to page 1922 The Emergency Food Assistance Program (TEFAP): Background and Funding Table 1. COVID-19 Response Funding for TEFAP Budget Authority (millions of Authority Description dollars) Families First Coronavirus Response Supplemental funding for TEFAP entitlement foods, 400 Act (FFCRA; P.L. 116-127), Division up to $100 mil ion of which could be used for A, Title I, “Commodity Assistance administrative costs (available through FY2021). Program” CARES Act (P.L. 116-136), Division B, Supplemental funding for TEFAP entitlement foods, 450 Title I, “Commodity Assistance up to $150 mil ion of which could be used for Program” administrative costs (available through FY2021). CARES Act (P.L. 116-136), Division B, Funding for USDA "to prevent, prepare for, and 500 Title I, “Office of the Secretary” respond to coronavirus by providing support for agricultural producers” (no expiration). USDA used $500 mil ion for supplemental TEFAP entitlement foods, up to $100 of which could be used for administrative funds.a Consolidated Appropriations Act, Supplemental funding for TEFAP entitlement foods, 400 2021 (P.L. 116-260), Division N, Title up to $80 mil ion of which could be used for VII, Section 711 administrative costs (available through FY2021). American Rescue Plan Act of 2021 Funding for USDA “to make loans and grants and 100 (ARPA; P.L. 117-2), Title I, Section provide other assistance to maintain and improve 1001(b)(4) food and agricultural supply chain resiliency” (no expiration). USDA used $100 mil ion for TEFAP Reach and Resiliency grants.b Total 1,850 Source: CRS, based on the referenced laws and USDA funding announcements (cited below). a. USDA, FNS, “The Emergency Food Assistance Program (TEFAP): Allocation of Supplemental Food and Administrative Funds from Division B of the Coronavirus Aid, Relief, and Economic Security Act (CARES Act),” FNS-GD-2021-0083, August 4, 2021. b. USDA, FNS, “USDA Foods from Farm to Plate: Household Highlights, December 2021,” December 22, 2021. Farm Bill Reauthorization TEFAP is typically amended and reauthorized through farm bills. The 2018 farm bill (P.L. 115-334) extended TEFAP’s funding authorization, including an increase for entitlement commodities, through FY2023.105 The law also authorized Farm to Food Bank Projects (discussed previously) and provided $4 million in annual mandatory funding for such projects through FY2023. The 2018 farm bill ~~The Emergency Food Assistance Program (TEFAP): Background and Funding~~

~~USDA also encouraged states to make policy changes within TEFAP to facilitate safe food~~
~~distribution, such as expanding eligibility rules for participants and waiving signature~~
~~requirements for the receipt of TEFAP foods.98~~
~~The 2018 Farm Bill~~
~~In addition to reauthorizing and extending TEFAP’s funding, the 2018 farm bil (§4018 of P.L.~~
~~115-334) made policy changes to TEFAP. The law authorized Farm to Food Bank Projects (as~~
~~termed by USDA), which are projects that support the harvesting, processing, packaging, and/or~~
~~transporting of raw or unprocessed commodities from agricultural producers, processors, and~~
~~distributors to emergency feeding organizations. The law provided $4 mil ion in annual~~
~~mandatory funding for the projects from FY2019 to FY2023 and required at least a 50%~~
~~nonfederal match. States must include a plan of operations for Farm to Food Bank Projects in~~
~~their state TEFAP plans in order to receive federal funding. The law gives USDA discretion to~~
~~determine how funds are al ocated to such states; through rulemaking published in October 2019,~~
~~USDA established that funds would be al ocated the same way as current TEFAP entitlement~~
~~funds, based on their share of households in poverty and unemployed persons (see~~ ~~“State~~
~~Al ocation Formula”).99 FNS awarded funds to 19 states in FY2020 and 24 states in FY2021 that~~
~~submitted plans to implement Farm to Food Bank Projects.100~~
~~The 2018 farm bil~~ also required states to include, in their TEFAP state plans, a plan to provide also required states to include, in their TEFAP state plans, a plan to provide
emergency feeding organizations and other recipient agencies with the opportunity to provide emergency feeding organizations and other recipient agencies with the opportunity to provide
input on commodity preferences and needs (e.g., in input on commodity preferences and needs (e.g., in ~~regards~~regard to USDA Foods), such as through a to USDA Foods), such as through a
state advisory board. In addition, the law required USDAstate advisory board. In addition, the law required USDA ~~to issue guidance outlining best~~
~~practices to minimize food waste of commodities donated by non-USDA entities. USDA issued~~
~~guidance regarding this provision on August 15, 2019.101~~

~~98 USDA, FNS, “ Questions and Answers related to COVID-19 and the Emergency Food Assistance Program~~
~~(T EFAP),” May 22, 2020, https://www.fns.usda.gov/tefap/covid-19-qas.~~
~~99 USDA, FNS, “T he Emergency Food Assistance Program: Implementation of the Agriculture Impr ovement Act of~~
~~2018,” 84 Federal Register 52997 October 4, 2019, https://www.federalregister.gov/documents/2019/10/04/2019-~~
~~21665/the-emergency-food-assistance-program-implementation-of-the-agriculture-improvement-act-of-2018. For more~~
~~information on Farm to Food Bank Projects, see USDA, FNS, “ T he Emergency Food Assistance Program Farm to~~
~~Food Bank Project Grants,” https://www.fns.usda.gov/tefap/farm-to-food-bank-project -grants.~~
~~100 USDA, FNS, “T he Emergency Food Assistance Program Farm to Food Bank Pr oject Grants,” March 4, 2021,~~
~~https://www.fns.usda.gov/tefap/farm-to-food-bank-project-grants.~~
~~101 USDA, FNS,~~ to issue 105 For further discussion, see CRS Report R45525, The 2018 Farm Bill (P.L. 115-334): Summary and Side-by-Side Comparison. Congressional Research Service 18 The Emergency Food Assistance Program (TEFAP): Background and Funding guidance outlining best practices to minimize food waste of commodities donated by non-USDA entities.106 Prior farm bills have also increased funding for TEFAP’s entitlement commodities, including in 2014 (P.L. 113-79) and 2008 (P.L. 110-246). The 2014 farm bill also required USDA to develop a plan to increase purchases of Kosher and Halal foods and allowed TEFAP funds to be spent over two fiscal years. 106 USDA issued guidance regarding this provision on August 15, 2019; USDA, FNS, “Best Practices to Minimize Food Waste of Privately Donated Foods to “Best Practices to Minimize Food Waste of Privately Donated Foods to ~~T he~~The Emergency Food Emergency Food
Assistance Program (Assistance Program (~~T EFAP~~TEFAP) State Agencies and Emergency Feeding) State Agencies and Emergency Feeding Organizations,” AugustOrganizations,” August 15, 2019, 15, 2019,
https://www.fns.usda.gov/tefap/best-practices-minimize-food-waste. https://www.fns.usda.gov/tefap/best-practices-minimize-food-waste.
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Appendix A. TEFAP ~~Spending~~Funding, FY1983-~~FY2020~~FY2021
Table A-1. Total TEFAP ~~Expenditures~~Funding, FY1983-~~FY2020~~FY2021
Constant (inflation-adjusted) Constant (inflation-adjusted) ~~FY2020 dol ars in mil ions~~FY2021 dollars in millions Disaster and
Trade
Annual
Annual
~~Disaster~~COVID-19
Mitigation
Fiscal
Administrative
Entitlement
Bonus
Foods and
Foods and
Year
Funds
Foods
Foods
Funds
Funds
Total
1983 1983
~~120.5~~124
- -
2, 2,~~001.4~~062
- -
- -
2,~~121.9~~186
1984 1984
~~115.0~~119
- -
2, 2,~~369.8~~441
- -
- -
2,~~484.9~~560
1985 1985
~~126.5~~130
- -
2, 2,~~157.3~~222
- -
- -
2,~~283.8~~352
1986 1986
~~108.7~~112
- -
1, 1,~~839.3~~894
- -
- -
~~1,948.0~~2,006
1987 1987
~~105.6~~109
- -
1, 1,~~786.9~~841
- -
- -
1,~~892.5~~950
1988 1988
~~102.1~~105
- -
1, 1,~~097.3~~130
- -
- -
1,~~199.4~~236
1989 1989
~~98.2~~
~~314.4~~
~~265.7~~101 324 274
- -
- -
~~678.3~~699
1990 1990
~~95.5~~
~~303.6~~
~~227.0~~98 313 234
- -
- -
~~626.1~~645
1991 1991
~~91.4~~
~~277.8~~
~~163.2~~94 286 168
- -
- -
~~532.4~~548
1992 1992
~~78.9~~
~~265.7~~
~~149.5~~81 274 154
- -
- -
~~494.0~~509
1993 1993
~~76.6~~
~~272.9~~
~~180.1~~79 281 186
- -
- -
~~529.7~~546
1994 1994
~~67.1~~
~~200.2~~
~~81.1~~69 206 84
- -
- -
~~348.3~~359
1995 1995
~~65.1~~
~~106.1~~
~~57.3~~67 109 59
- -
- -
~~228.6~~235
1996 1996
~~48.9~~
~~78.3~~
~~22.8~~50 81 23
- -
- -
~~150.0~~155
1997 1997
~~65.1~~
~~203.5~~
~~46.1~~67 210 47
- -
- -
~~314.7~~324
1998 1998
~~71.9~~
~~154.9~~
~~168.5~~74 160 174
- -
- -
~~395.2~~407
1999 1999
~~70.1~~
~~136.5~~
~~164.5~~72 141 169
- -
- -
~~371.0~~382
2000 2000
~~65.1~~
~~147.3~~
~~241.7~~67 152 249
- -
- -
~~454.0~~468
2001 2001
~~65.0~~
~~144.8~~
~~464.4~~67 149 478
- -
- -
~~674.2~~694
2002 2002
~~77.8~~
~~193.0~~
~~245.4~~80 199 253
- -
- -
~~516.2~~532
2003 2003
~~83.1~~
~~181.4~~
~~337.1~~86 187 347
- -
- -
~~601.6~~619
2004 2004
~~80.3~~
~~174.4~~
~~316.2~~83 179 325
- -
- -
~~570.9~~587
2005 2005
~~76.9~~
~~171.2~~
~~202.4~~79 176 208
- -
- -
~~450.5~~463 2006 83 170 87 8 - 348 2007 74 166 74 - - 313 2008 70 223 218 - - 512 2009 109 413 459 a - 980 2010 147 280 418 a - 844 2011 83 269 277 - - 629 2012 76 281 351 - - 708 2013 73 282 260 6 - 622 Congressional Research Service 20
~~2006~~
~~80.5~~
~~165.0~~
~~85.0~~
~~7.6~~
-
~~338.1~~
~~2007~~
~~71.6~~
~~161.2~~
~~71.8~~
-
-
~~304.5~~
~~2008~~
~~68.1~~
~~217.4~~
~~212.4~~
-
-
~~497.9~~
~~2009~~
~~105.7~~
~~401.0~~
~~445.8~~
a
-
~~952.5~~
~~2010~~
~~142.6~~
~~271.8~~
~~406.2~~
a
-
~~820.6~~
~~2011~~
~~80.5~~
~~261.5~~
~~269.4~~
-
-
~~611.5~~
~~2012~~
~~73.9~~
~~272.7~~
~~341.6~~
-
-
~~688.2~~
~~2013~~
~~71.2~~
~~273.7~~
~~253.0~~
~~6.3~~
-
~~604.1~~
~~Congressional Research Service~~

19

The Emergency Food Assistance Program (TEFAP): Background and Funding

Disaster and Trade
Annual
Annual
~~Disaster~~COVID-19
Mitigation
Fiscal
Administrative
Entitlement
Bonus
Foods and
Foods and
Year
Funds
Foods
Foods
Funds
Funds
Total
2014 2014
~~75.3~~
~~292.1~~
~~325.7~~77 301 335
- -
- -
~~693.1~~713
2015 2015
~~80.3~~
~~354.6~~
~~328.5~~83 365 338
- -
- -
~~763.4~~785
2016 2016
~~83.9~~
~~345.1~~
~~329.1~~86 355 339
- -
- -
~~758.1~~780
2017 2017
~~88.3~~
~~314.7~~
~~284.6~~91 324 293
- -
- -
~~687.5~~707 2018 97 306 329 26 - 758 2019 156 267 422 0 1,109 1,954 2020 141 95 735 623 1,225 2,818 2021 158 320 701 397 - 1,577
~~2018~~
~~93.9~~
~~297.8~~
~~320.0~~
~~24.9~~
-
~~736.6~~
~~2019~~
~~151.2~~
~~259.4~~
~~410.0~~
-
~~1,077.8~~
~~1,898.4~~
~~2020~~
~~137.2~~
~~92.2~~
~~716.2~~
~~606.5~~
~~1,193.3~~
~~2,745.4~~
Source: CRS calculations using USDA, FNS Congressional Budget Justifications for FY1983-CRS calculations using USDA, FNS Congressional Budget Justifications for FY1983-~~FY2022~~FY2023. Amounts . Amounts
are in are in ~~FY2020~~FY2021 dol ars, dol ars, adjusted for GDP inflation by CRS using Office of Management and Budget (OMB), adjusted for GDP inflation by CRS using Office of Management and Budget (OMB),
“Historical“Historical Tables: Table 10.1—GrossTables: Table 10.1—Gross ~~Domestic~~ Domestic Product and Deflators Used in the HistoricalProduct and Deflators Used in the Historical Tables: 1940–Tables: 1940–
~~2026,” April 2021.~~
~~Notes:~~ ~~Expenditures~~2027.” Notes: Table displays food and administrative funds made available to states and USDA bonus purchases. State funds are after conversion of any entitlement commodity are after conversion of any entitlement commodity funds to administrativefunds to administrative funds, and funds, and
~~administrative~~ administrative funds to commodityfunds to commodity funds, and include any entitlement food and administrativefunds, and include any entitlement food and administrative funds that states funds that states
carried over fromcarried over from the prior fiscal year.the prior fiscal year.
Table does not include Farm to Food Bank Project funding. a. In FY2009 and FY2010, entitlement food and administrativea. In FY2009 and FY2010, entitlement food and administrative fund amounts includefund amounts include supplemental American supplemental American
Recovery and Reinvestment Recovery and Reinvestment Act (ARRA) funding. ARRA included $100 mil ionAct (ARRA) funding. ARRA included $100 mil ion in TEFAP commodityin TEFAP commodity funding funding
and $50 mil ionand $50 mil ion in TEFAP administrative funding that was distributed in FY2009 and FY2010. An additional in TEFAP administrative funding that was distributed in FY2009 and FY2010. An additional
$28 mil ion$28 mil ion in ARRA funds werein ARRA funds were ~~reprogrammed~~ reprogrammed as TEFAP administrative funds in FY2010. as TEFAP administrative funds in FY2010.
Congressional Research Service Congressional Research Service

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Appendix B. TEFAP Spending by State, ~~FY2020~~FY2021
Table B-1. TEFAP Expenditures by State, ~~FY2020~~FY2021 Disaster

~~Trade~~
~~Disaster~~
~~Mitigation~~
Annual
Annual
Foods and
~~Foods and~~
~~Administrative~~
~~Entitlement~~
~~Bonus~~
~~Administrative~~
~~Administrative~~
~~Funds~~
~~Foods~~
~~Foods~~
~~Funds~~
~~Funds~~
~~Total~~
AL
~~2,416,876~~
~~1,884,512~~
~~10,079,875~~
~~7,111,754~~
~~19,211,823~~
~~40,704,839~~
AK
~~254,805~~
~~364,083~~
~~2,017,364~~
~~1,786,460~~
~~4,148,451~~
~~8,571,164~~
AZ
~~3,042,206~~
~~2,789,227~~
~~21,035,100~~
~~18,641,094~~
~~40,538,597~~
~~86,046,224~~
AR
~~1,212,770~~
~~969,500~~
~~9,863,773~~
~~6,836,149~~
~~14,603,019~~
~~33,485,211~~
CA
~~17,916,310~~
~~14,880,295~~
~~76,312,849~~
~~76,333,354~~
~~117,628,056~~
~~303,070,863~~
CO
~~2,116,982~~
~~1,086,040~~
~~11,415,399~~
~~9,914,270~~
~~18,654,199~~
~~43,186,891~~
CT
~~815,588~~
~~1,286,099~~
~~5,939,293~~
~~4,610,285~~
~~7,444,506~~
~~20,095,771~~
DE
~~267,403~~
~~130,006~~
~~3,525,000~~
~~1,867,418~~
~~9,286,649~~
~~15,076,475~~
DC
~~433,634~~
~~274,029~~
~~338,824~~
~~1,422,749~~
~~217,727~~
~~2,686,963~~
FL
~~9,142,328~~
~~6,337,604~~
~~48,514,642~~
~~37,929,440~~
~~87,236,931~~
~~189,160,946~~
GA
~~3,857,469~~
~~2,653,095~~
~~18,341,519~~
~~23,969,641~~
~~34,568,067~~
~~83,389,790~~
HI
~~242,030~~
~~476,767~~
~~939,477~~
~~2,080,045~~
~~3,717,137~~
~~7,455,456~~
ID
~~624,397~~
~~237,607~~
~~1,499,410~~
~~2,499,844~~
~~3,574,673~~
~~8,435,931~~
IL
~~5,739,798~~
~~1,409,892~~
~~23,509,815~~
~~21,343,646~~
~~42,473,754~~
~~94,476,906~~
IN
~~1,944,168~~
~~1,592,146~~
~~14,689,215~~
~~11,907,345~~
~~26,896,267~~
~~57,029,141~~
IA
~~1,089,875~~
~~921,169~~
~~5,929,043~~
~~4,803,909~~
~~8,760,129~~
~~21,504,125~~
KS
~~968,459~~
~~474,158~~
~~6,703,799~~
~~3,552,832~~
~~11,062,076~~
~~22,761,325~~
KY
~~2,311,433~~
~~3,667,035~~
~~12,362,674~~
~~8,680,332~~
~~21,199,353~~
~~48,220,827~~
LA
~~2,226,831~~
~~2,834,513~~
~~15,109,533~~
~~9,686,075~~
~~29,851,681~~
~~59,708,632~~
ME
~~532,615~~
~~505,570~~
~~3,519,840~~
~~2,391,208~~
~~5,792,533~~
~~12,741,767~~
MD
~~2,219,784~~
~~1,276,880~~
~~1,697,832~~
~~8,328,103~~
~~2,482,106~~
~~16,004,705~~
MA
~~1,544,339~~
~~1,685,894~~
~~10,115,480~~
~~9,242,547~~
~~15,567,489~~
~~38,155,749~~
MI
~~4,716,937~~
~~4,033,319~~
~~26,167,468~~
~~20,189,612~~
~~44,043,384~~
~~99,150,720~~
MN
~~1,993,209~~
~~926,677~~
~~8,514,277~~
~~9,113,046~~
~~14,754,589~~
~~35,301,799~~
MS
~~1,746,415~~
~~1,207,461~~
~~4,990,716~~
~~4,648,082~~
~~12,660,830~~
~~25,253,504~~
MO
~~2,017,670~~
~~2,250,109~~
~~12,606,370~~
~~12,178,642~~
~~23,166,588~~
~~52,219,380~~
MT
~~460,125~~
~~323,151~~
~~1,646,198~~
~~2,010,609~~
~~3,309,845~~
~~7,749,929~~
NE
~~678,105~~
~~322,619~~
~~3,333,124~~
~~3,694,943~~
~~5,553,989~~
~~13,582,780~~
NV
~~933,213~~
~~825,341~~
~~11,390,703~~
~~5,097,111~~
~~17,899,463~~
~~36,145,831~~
NH
~~380,854~~
~~327,811~~
~~846,858~~
~~1,347,453~~
~~2,455,531~~
~~5,358,507~~
NJ
~~3,312,345~~
~~2,924,583~~
~~11,549,043~~
~~15,241,824~~
~~30,235,673~~
~~63,263,468~~
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21

~~link to page 26~~ ~~The Emergency Food Assistance Program (TEFAP): Background and Funding~~

~~Trade~~
~~Disaster~~
~~Mitigation~~
~~Annual~~
~~Annual~~
~~Foods and~~
~~Foods and~~
~~Administrative~~
~~Entitlement~~
~~Bonus~~
~~Administrative~~
~~Administrative~~
~~Funds~~
~~Foods~~
~~Foods~~
~~Funds~~
~~Funds~~
~~Total~~
NM
~~1,270,631~~
~~1,131,967~~
~~7,569,670~~
~~6,888,500~~
~~11,531,199~~
~~28,391,968~~
NY
~~8,877,416~~
~~3,785,046~~
~~42,763,190~~
~~31,435,702~~
~~73,227,932~~
~~160,089,286~~
NC
~~4,776,108~~
~~3,702,518~~
~~29,120,389~~
~~19,421,051~~
~~45,526,553~~
~~102,546,620~~
ND
~~254,065~~
~~267,487~~
~~1,644,296~~
~~1,275,128~~
~~2,361,738~~
~~5,802,715~~
OH
~~5,646,341~~
~~3,854,383~~
~~27,547,274~~
~~19,388,485~~
~~51,550,022~~
~~107,986,505~~
OK
~~1,427,873~~
~~1,026,147~~
~~9,807,909~~
~~3,571,335~~
~~17,601,723~~
~~33,434,988~~
OR
~~1,906,720~~
~~1,723,620~~
~~9,431,259~~
~~7,065,632~~
~~15,333,656~~
~~35,460,887~~
PA
~~5,560,867~~
~~4,277,991~~
~~28,594,165~~
~~19,391,138~~
~~45,063,382~~
~~102,887,543~~
RI
~~437,017~~
~~436,766~~
~~1,883,918~~
~~732,292~~
~~2,604,983~~
~~6,094,975~~
SC
~~1,305,764~~
~~1,129,469~~
~~11,406,820~~
~~8,718,053~~
~~12,682,493~~
~~35,242,599~~
SD
~~228,414~~
~~69,628~~
~~1,905,537~~
~~1,270,131~~
~~2,669,239~~
~~6,142,947~~
TN
~~2,998,407~~
~~2,711,936~~
~~14,981,343~~
~~10,158,368~~
~~21,313,942~~
~~52,163,996~~
TX
~~10,833,176~~
~~9,814,295~~
~~76,497,612~~
~~58,846,435~~
~~118,172,451~~
~~274,163,969~~
UT
~~809,501~~
~~600,608~~
~~5,457,175~~
~~3,930,415~~
~~10,391,706~~
~~21,189,406~~
VT
~~212,760~~
~~15,738~~
~~700,268~~
~~737,093~~
~~1,417,633~~
~~3,083,492~~
VA
~~2,994,962~~
~~2,664,565~~
~~9,504,834~~
~~13,364,753~~
~~14,919,215~~
~~43,448,329~~
WA
~~3,217,224~~
~~2,655,232~~
~~16,917,919~~
~~12,151,286~~
~~25,355,706~~
~~60,297,367~~
WV
~~1,012,307~~
~~1,031,282~~
~~5,680,108~~
~~4,109,585~~
~~16,360,375~~
~~28,193,656~~
WI
~~2,148,841~~
~~1,890,100~~
~~10,688,250~~
~~6,766,668~~
~~18,448,207~~
~~39,942,066~~
WY
~~132,564~~
~~239,875~~
~~1,263,310~~
~~1,160,016~~
~~2,907,455~~
~~5,703,220~~
~~CNMIa~~
~~49,607~~
~~182,719~~
-
~~494,914~~
-
~~727,240~~
GU
~~127,613~~
~~91,303~~
~~680,111~~
~~515,948~~
~~904,942~~
~~2,319,918~~
PR
~~3,536,800~~
~~652,183~~
~~999,512~~
~~14,001,945~~
~~3,902,695~~
~~23,093,136~~
~~USVI~~
~~67,075~~
~~111,204~~
~~16,954~~
~~119,380~~
~~79,598~~
~~394,210~~
~~Total~~
~~137,164,951~~
~~92,238,004 716,234,057~~
~~606,466,988~~
~~1,193,321,963 2,745,425,962~~
Source: Data acquired through CRS communication with USDA on June 28, 2021.
Notes: Entitlement foods and administrative funds categories include funds carried over from FY2020 and
~~funding from COVID-19 pandemic response acts. Table shows expenditures after conversion of any entitlement~~
~~commodity funds to administrative funds, and administrative funds to commodity funds.~~
~~Amounts may not sum to total. Entitlement food total includes $3.6 mil ion in spending on federal food~~
~~procurement administrative expenses. Bonus food total includes $16.7 mil ion for a commodity barter of peanuts~~
~~in exchange for peanut butter that was delivered to multiple states. Totals for administrative costs, entitlement~~
~~foods, and disaster aid include anticipated adjustments of $173,925, -$16,281,242, and $12,492,912, respectively.~~
~~a. USDA provided the Commonwealth of the Northern Mariana Islands with cash in lieu of commodities in~~
~~FY2020.~~
~~Congressional Research Service~~

22

~~The Emergency Food Assistance Program (TEFAP): Background and Funding~~

~~Appendix C. Legislative History of TEFAP~~
Program Inception102
~~In 1982, the Reagan Administration created a discretionary dairy distribution program to dispose~~
~~of stockpiles of CCC-purchased commodities (namely, cheese and butter). This effort occurred in~~
~~the aftermath of reductions in federal food assistance (e.g., food stamps) legislated in 1981 and~~
~~1982, and in the midst of an economic recession and concern over hunger and homelessness.~~
~~USDA distributed the foods to states, which selected the recipient organizations.~~
~~As the program developed, there were requests for additional types of commodities such as flour,~~
~~rice, and non-fat dry milk that USDA had purchased and put in storage. In addition, there were~~
~~reports of local organizations declining foods because of a lack of storage and distribution~~
~~capacity. These and other factors prompted pressure for federal cash assistance as wel as~~
~~increased variety and volume of foods. In 1983, Congress followed up with funding for grants to~~
~~help with distribution costs and legislative authority that created the Temporary Emergency Food~~
~~Assistance Program (TEFAP) (P.L. 98-8 and P.L. 98-92). Establishment of TEFAP helped reduce~~
~~federal commodity inventory (and storage costs)~~Administrative Entitlement Administrative Bonus Foods Fundsa ($) Foodsa ($) Fundsb ($) ($) Total ($) Alabama 2,234,566 5,213,005 12,735,552 2,320,973 22,504,096 Alaska 306,209 1,010,458 1,261,130 11,121,878 13,699,675 Arizona 3,597,725 9,319,940 12,997,441 9,421,348 35,336,454 Arkansas 1,093,312 3,111,183 5,606,530 21,455,175 31,266,200 California 19,074,789 34,820,613 81,451,559 70,293,633 205,640,593 Colorado 2,007,123 5,249,934 7,943,662 11,324,221 26,524,940 Connecticut 812,829 2,369,160 7,117,482 5,103,024 15,402,495 Delaware 328,618 1,261,184 1,729,950 480,208 3,799,960 D.C. 275,960 793,330 2,108,325 5,880,538 9,058,153 Florida 12,451,135 21,538,939 39,894,655 52,865,168 126,749,897 Georgia 4,502,732 14,307,345 15,059,340 20,385,996 54,255,412 Hawaii 330,543 1,966,233 3,350,352 727,488 6,374,617 Idaho 513,793 1,045,402 3,322,469 1,320,259 6,201,923 Il inois 8,519,937 8,766,618 25,799,233 4,985,056 48,070,844 Indiana 3,287,341 5,664,601 13,305,907 3,484,295 25,742,144 Iowa 1,415,720 3,143,731 4,616,186 27,364,631 36,540,268 Kansas 1,264,294 3,321,397 6,615,640 15,635,430 26,836,762 Kentucky 2,183,373 4,249,620 10,459,775 5,872,554 22,765,322 Louisiana 2,705,277 2,745,296 12,521,585 10,847,098 28,819,257 Maine 341,519 927,968 2,139,261 15,211,473 18,620,220 Maryland 2,078,752 2,486,499 11,247,832 8,739,626 24,552,709 Massachusetts 1,806,376 3,591,589 13,095,060 1,186,759 19,679,783 Michigan 5,017,072 11,444,512 19,723,087 5,187,321 41,371,991 Minnesota 1,924,715 3,397,205 7,605,579 28,020,505 40,948,004 Mississippi 860,210 4,943,718 12,368,767 7,082,774 25,255,470 Missouri 1,372,169 8,676,176 9,250,899 13,316,447 32,615,691 Montana 590,306 457,986 1,954,108 8,137,031 11,139,431 Nebraska 634,915 1,753,363 2,055,986 1,676,763 6,121,026 Nevada 886,010 2,722,249 7,458,632 22,664,435 33,731,326 New Hampshire 407,010 1,037,148 2,188,628 1,383,032 5,015,818 New Jersey 3,708,953 8,581,649 14,017,454 2,966,519 29,274,575 New Mexico 1,157,065 3,356,009 3,570,134 1,589,649 9,672,858 Congressional Research Service 22 link to page 27 link to page 27 link to page 27 link to page 27 The Emergency Food Assistance Program (TEFAP): Background and Funding Disaster Annual Annual Foods and Administrative Entitlement Administrative Bonus Foods Fundsa ($) Foodsa ($) Fundsb ($) ($) Total ($) New York 9,408,430 23,538,877 45,515,593 16,079,821 94,542,721 North Carolina 4,611,381 12,113,311 19,932,759 6,692,602 43,350,053 North Dakota 339,386 494,825 977,282 12,099,464 13,910,957 Ohio 7,080,356 12,270,166 27,210,614 39,703,321 86,264,457 Oklahoma 990,107 2,846,251 11,653,941 28,716,809 44,207,108 Oregon 1,792,909 2,066,243 9,059,463 9,708,047 22,626,662 Pennsylvania 7,485,328 8,908,036 28,775,352 9,751,753 54,920,470 Rhode Island 376,449 529,538 3,225,591 28,376,304 32,507,882 South Carolina 1,690,848 7,343,822 10,663,462 5,058,396 24,756,528 South Dakota 277,042 805,142 1,798,034 1,231,581 4,111,798 Tennessee 2,496,557 6,757,945 15,622,829 10,237,665 35,114,996 Texas 12,498,157 40,491,764 53,245,321 1,953,003 108,188,244 Utah 1,472,686 2,885,666 4,684,800 14,075,826 23,118,978 Vermont 241,897 522,590 1,157,860 71,947,266 73,869,613 Virginia 3,678,337 6,294,032 11,711,212 5,053,428 26,737,009 Washington 3,853,732 7,398,245 16,365,669 9,952,095 37,569,741 West Virginia 938,220 2,136,981 4,361,404 181,245 7,617,850 Wisconsin 3,239,638 3,117,393 11,404,586 669,177 18,430,794 Wyoming 150,000 576,861 777,526 15,697,096 17,201,483 Northern 41,175 173,524 205,429 9,248,568 9,668,696 Mariana Islandsc Guam 107,011 344,811 1,290,408 5,132,165 6,874,395 Puerto Rico 3,557,178 6,404,150 19,649,000 1,561,578 31,171,906 Virgin Islands 85,264 113,502 370,318 0 569,084 Total 154,116,347 335,558,763 736,303,331 701,178,517 1,927,143,046 Source: Data acquired through CRS communication with USDA on May 9, 2022. Notes: Amounts may not sum to total due to rounding and the fol owing: (1) entitlement food total includes $29 mil ion in spending on federal food procurement administrative expenses; (2) totals for administrative costs, entitlement foods, and disaster aid include anticipated adjustments of $13,913, -$25,006,599, and $62,072,677, respectively. a. Entitlement foods and administrative funds categories include funds carried over from FY2020. Table shows expenditures after conversion of any entitlement commodity funds to administrative funds, and administrative funds to commodity funds. b. Disaster Foods and Administrative Funds category includes COVID-19 response funding provided under FFCRA (P.L. 116-127), the CARES Act (P.L. 116-136), and the Consolidated Appropriations Act, FY2021 (P.L. 116-260). c. USDA provided the Commonwealth of the Northern Mariana Islands with cash in lieu of commodities in FY2021. Congressional Research Service 23 The Emergency Food Assistance Program (TEFAP): Background and Funding Appendix C. Legislative History of TEFAP Program Inception107 In 1982, the Reagan Administration created a discretionary dairy distribution program to dispose of stockpiles of CCC-purchased commodities (namely, cheese and butter). This effort occurred in the aftermath of reductions in federal food assistance (e.g., food stamps) legislated in 1981 and 1982 and in the midst of an economic recession and concern over hunger and homelessness. USDA distributed the foods to states, which selected recipient organizations. As the program developed, there were requests for additional types of commodities such as flour, rice, and non-fat dry milk that USDA had purchased and put in storage. In addition, there were reports of local organizations declining foods because of a lack of storage and distribution capacity. These and other factors prompted pressure for federal cash assistance as well as increased variety and volume of foods. In 1983, Congress followed up with funding for grants to help with distribution costs and legislative authority that created the Temporary Emergency Food Assistance Program (TEFAP) (P.L. 98-8 and P.L. 98-92). Establishment of TEFAP helped reduce federal commodity inventory and storage costs, provided an alternative source of food , provided an alternative source of food
assistance for low-income individuals, and supported an expanding network of charitable assistance for low-income individuals, and supported an expanding network of charitable
emergency feeding providers that also drew food and resources from private sources.emergency feeding providers that also drew food and resources from private sources.~~103~~108
Changes to TEFAP’s Funding~~104~~109
USDA continued to distribute large amounts of CCC-purchased foods (including cheese, butter, USDA continued to distribute large amounts of CCC-purchased foods (including cheese, butter,
nonfat dry milk, cornmeal, flour, honey, and rice) through FY1988. That year, CCC holdings nonfat dry milk, cornmeal, flour, honey, and rice) through FY1988. That year, CCC holdings
began to drop began to drop ~~substantial y~~substantially because of changes in agricultural policies and the economy, and the because of changes in agricultural policies and the economy, and the
Reagan Administration indicated plans to phase out TEFAP. Instead, Congress authorized Reagan Administration indicated plans to phase out TEFAP. Instead, Congress authorized
~~appropriated mandatory~~a specific level of funding (starting at $120 funding (starting at $120 ~~mil ion~~million for FY1989) for FY1989) for USDA to buy commodities for to buy commodities for
distribution through TEFAP, entitling the program to a minimum level of support regardless of the distribution through TEFAP, entitling the program to a minimum level of support regardless of the
level of federal commodity holdings (P.L. 100-435). The law also created a separate program to level of federal commodity holdings (P.L. 100-435). The law also created a separate program to
buy commodities for soup kitchens and food banks not receiving TEFAP commodities buy commodities for soup kitchens and food banks not receiving TEFAP commodities
(mandatory funding was provided at $40 (mandatory funding was provided at $40 ~~mil ion~~million for FY1989). The separate program was for FY1989). The separate program was
established out of a concern that some food banks had trouble meeting TEFAP rules, and that established out of a concern that some food banks had trouble meeting TEFAP rules, and that
most commodities for emergency feeding were going to local agencies that distributed food most commodities for emergency feeding were going to local agencies that distributed food
packages directly to individuals and families (e.g., food pantries), rather than to soup kitchens, packages directly to individuals and families (e.g., food pantries), rather than to soup kitchens,
homeless shelters, and other organizations serving meals in congregate settings. homeless shelters, and other organizations serving meals in congregate settings.

~~102~~ 107 Adapted from CRS Adapted from CRS Report RL30164, Report RL30164, The Emergency Food Assistance Program and Emergency Feeding Needs; ;
and CRSand CRS ~~Issue~~ Issue Brief IB85095, Brief IB85095, ~~Com m odity~~Commodity Donations to the Poor: The ~~Tem porary Em ergency Food Assistance~~
~~Program .~~ ~~(Both reports are available to congressional clients upon request to CRS).~~
~~103 Further discussion~~ Temporary Emergency Food Assistance Program. (These reports are no longer available.) 108 Further discussion of the history and expansion of the emergency feeding network is in Dougof the history and expansion of the emergency feeding network is in Doug O’Brien, Erinn Staley, O’Brien, Erinn Staley,
Stephanie Uchima, Eleanor Stephanie Uchima, Eleanor ~~T hompson~~Thompson, and Halley , and Halley ~~T orres~~Torres Aldeen, Aldeen, The Charitable Food Assistance System : The
Sector’s Role in Ending Hunger in America, UPS Foundation and the Congressional Hunger Center, 2004, UPS Foundation and the Congressional Hunger Center, 2004,
https://www.hungercenter.org/wp-content/uploads/2012/10/The-Charitable-Food-Assistance-System-Americas-https://www.hungercenter.org/wp-content/uploads/2012/10/The-Charitable-Food-Assistance-System-Americas-
Second-Harvest.pdf.Second-Harvest.pdf.
~~104~~109 Adapted from CRS Adapted from CRS Report RL30164, Report RL30164, The Emergency Food Assistance Program and Emergency Feeding Needs; ;
and CRSand CRS ~~Issue~~ Issue Brief IB85095, Brief IB85095, ~~Com m odity~~Commodity Donations to the Poor: The ~~Tem porary Em ergency~~Temporary Emergency Food Assistance
Program . ( (~~Both reports are available to congressional clients upon request to CRS).~~
These reports are no longer available.) Congressional Research Service Congressional Research Service

23

~~link to page 22~~ 24 The Emergency Food Assistance Program (TEFAP): Background and Funding

In 1990, the omnibus farm In 1990, the omnibus farm ~~bil~~ bill (P.L. 101-624) changed funding for TEFAP and the soup kitchen (P.L. 101-624) changed funding for TEFAP and the soup kitchen
program from appropriated mandatory to discretionary (dependent on annual appropriations program from appropriated mandatory to discretionary (dependent on annual appropriations
decisions). The law also removed the word “Temporary” from the program title. Over the next decisions). The law also removed the word “Temporary” from the program title. Over the next
few years, funding for TEFAP declined, reaching an few years, funding for TEFAP declined, reaching an al all-time low in FY1996. However, that same -time low in FY1996. However, that same
year, the Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA; P.L. 104-year, the Personal Responsibility and Work Opportunity Reconciliation Act (PRWORA; P.L. 104-
193) reinstated appropriated mandatory funding ($100 193) reinstated appropriated mandatory funding ($100 ~~mil ion~~ million per year through FY2002) for per year through FY2002) for
TEFAP’s entitlement foods, partly in an effort to provide a safety net for households losing access TEFAP’s entitlement foods, partly in an effort to provide a safety net for households losing access
to food stamps as a result of other provisions in the law. PRWORA also incorporated the soup to food stamps as a result of other provisions in the law. PRWORA also incorporated the soup
kitchen program into TEFAP. kitchen program into TEFAP.
Following these changes, funding Following these changes, funding ~~general y~~generally increased in the late 1990s and early to mid-2000s. increased in the late 1990s and early to mid-2000s.
There was another dip in appropriations in FY2006 and FY2007, but the 2008 farm There was another dip in appropriations in FY2006 and FY2007, but the 2008 farm ~~bil~~ bill raised raised
annual entitlement purchases to $250 annual entitlement purchases to $250 ~~mil ion~~million starting in FY2009 (indexed starting in FY2009 (indexed ~~annual y~~annually for food-price for food-price
inflation in later years).inflation in later years).~~105~~110 There were also supplemental funds available for TEFAP in FY2009 There were also supplemental funds available for TEFAP in FY2009
and FY2010 as a result of ARRA.and FY2010 as a result of ARRA. In addition, the 2014 farm In addition, the 2014 farm ~~bil~~ bill increased mandatory funding for increased mandatory funding for
TEFAP’s entitlement commodities by a Congressional Budget Office (CBO)-estimated $125 TEFAP’s entitlement commodities by a Congressional Budget Office (CBO)-estimated $125
~~mil ion~~ million over five years.over five years.~~106~~111 Total funding from FY2011 to FY2018 hovered around $600-$700 Total funding from FY2011 to FY2018 hovered around $600-$700
~~mil ion annual y.107~~million annually.112
Recent Changes and Increases in Spending
As discussed in this report, there As discussed in this report, there ~~have been several changes to, and~~ has been an influx of federal aid inan influx of federal aid in,
TEFAP in recent years. The 2018 farm TEFAP in recent years. The 2018 farm ~~bil once again~~bill increased funding for TEFAP’s entitlement increased funding for TEFAP’s entitlement
~~foods,~~foods by a CBO-estimated $105 by a CBO-estimated $105 ~~mil ion~~ million over five years. It also provided mandatory funding of over five years. It also provided mandatory funding of
~~$4 mil ion~~ $4 million for each of FY2019-FY2023 for new Farm to Food Bank Projectsfor each of FY2019-FY2023 for new Farm to Food Bank Projects ~~(discussed in the~~
~~“The 2018 Farm Bil ”~~ ~~section)~~. These projects, which provide funds directly to local . These projects, which provide funds directly to local
organizations, are emblematic of a recent debate over USDA’s food purchasing role in TEFAP. organizations, are emblematic of a recent debate over USDA’s food purchasing role in TEFAP.
This debate resurfaced at the start of the COVID-19 pandemic and contributed to USDA’s This debate resurfaced at the start of the COVID-19 pandemic and contributed to USDA’s
creation of a temporary program, the Farmers to Families Food Box Program, which attempted to creation of a temporary program, the Farmers to Families Food Box Program, which attempted to
expedite the federal purchasing process.expedite the federal purchasing process.~~108~~
113 In August 2018, the Trump Administration announced an additional $1.2 In August 2018, the Trump Administration announced an additional $1.2 ~~bil ion~~ billion for TEFAP bonus for TEFAP bonus
purchases as part of its trade aid package.purchases as part of its trade aid package.~~109~~114 These and another round of purchases ($1.4 These and another round of purchases ($1.4 ~~bil ion)~~
billion) were distributed through TEFAP in FY2019 and FY2020.were distributed through TEFAP in FY2019 and FY2020.~~110~~115 In FY2020 and FY2021, TEFAP saw In FY2020 and FY2021, TEFAP saw
another influx of aid as lawmakers aimed to use the program to address increased demand for another influx of aid as lawmakers aimed to use the program to address increased demand for

~~105 CRS~~ 110 See CRS Report RL33934, Report RL33934, The 2008 Farm Bill: A Summary of Major Provisions and Legislative Action (available to (available to
congressional clients upon request). congressional clients upon request).
~~106 CRS~~ 111 See CRS Report R43332, Report R43332, SNAP and Related Nutrition Provisions of the 2014 Farm Bill (P.L. 113 -79). .
~~107~~112 USDA, USDA, ~~FNS~~ FNS Congressional BudgetCongressional Budget Justifications for FY2008-FY2020, available at USDA,Justifications for FY2008-FY2020, available at USDA, “Congressional “Congressional
Justifications: Archived USDAJustifications: Archived USDA Explanatory Notes,” https://www.usda.gov/obpa/congressional-justifications. Explanatory Notes,” https://www.usda.gov/obpa/congressional-justifications.
~~108 USDA, AMS webinar~~ 113 USDA, AMS webinar on April 21, 2020, recording available at https://www.ams.usda.gov/selling-food-to-usda/on April 21, 2020, recording available at https://www.ams.usda.gov/selling-food-to-usda/
farmers-to-families-food-box. farmers-to-families-food-box.
~~109~~114 For more information, see CRS For more information, see CRS Report R45310, Report R45310, Farm Policy: USDA’s 2018 Trade Aid Package; and CRS; and CRS Report Report
R45865, R45865, Farm Policy: USDA’s 2019 Trade Aid Package. USDA,. USDA, ~~“ USDA~~ “USDA Announces Details of Assistance for Announces Details of Assistance for
Farmers Impacted by UnjustifiedFarmers Impacted by Unjustified Retaliation,” press release, AugustRetaliation,” press release, August 27, 2018, https://www.usda.gov/media/press-27, 2018, https://www.usda.gov/media/press-
releases/2018/08/27/usda-announces-details-assistance-farmers-impacted-unjustified. releases/2018/08/27/usda-announces-details-assistance-farmers-impacted-unjustified. ~~T he~~The largest purchases announced largest purchases announced
includeinclude pork, sweet cherries, apples, pistachios, dairy, and almonds. pork, sweet cherries, apples, pistachios, dairy, and almonds.
~~110~~ 115 USDA, USDA, “USDA“USDA Announces Support for Farmers Impacted by Unjustified Retaliation and Announces Support for Farmers Impacted by Unjustified Retaliation and ~~T rade~~Trade Disruption,” press Disruption,” press
release, May 23, 2019, https://www.usda.gov/media/press-releases/2019/05/23/usda-announces-supportrelease, May 23, 2019, https://www.usda.gov/media/press-releases/2019/05/23/usda-announces-support -farmers--farmers-
impacted-unjustified-retaliation-and. impacted-unjustified-retaliation-and.
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The Emergency Food Assistance Program (TEFAP): Background and Funding

food assistance during the COVID-19 pandemic. food assistance during the COVID-19 pandemic.~~111~~116 In total, approximately $1.9 billion was available for TEFAP in FY2019, $2.7 billion was available for TEFAP in FY2020, and nearly $1.6 billion was available in FY2021—more than double the amount available in recent prior years ~~In total, approximately $2.7 bil ion was~~
~~available for TEFAP in FY2020, and at least $2.3 bil ion is available in FY2021 (excluding bonus~~
~~purchases)—three times the amount available in FY2018~~. It is unclear whether this level of . It is unclear whether this level of
spending is a new normal for TEFAP, or whether it spending is a new normal for TEFAP, or whether it ~~wil~~ will return to return to ~~prior~~previous levels. levels.

Author Information

Kara Clifford Billings Kara Clifford Billings

Analyst in Social Policy Analyst in Social Policy

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
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under the direction of Congress. Information in a CRS Report should under the direction of Congress. Information in a CRS Report should ~~n ot~~not be relied upon for purposes other be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
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~~111~~ 116 Nicholas Kulish, “‘Never Seen Anything Like It’: Cars Line Up for Miles at Food Banks,” April 8, 2020, Nicholas Kulish, “‘Never Seen Anything Like It’: Cars Line Up for Miles at Food Banks,” April 8, 2020, New York
~~Tim es~~Times, https://www.nytimes.com/2020/04/08/business/economy/coronavirus-food-banks.html.https://www.nytimes.com/2020/04/08/business/economy/coronavirus-food-banks.html.
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