The Emergency Food Assistance Program (TEFAP): Background and Funding
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The Emergency Food Assistance Program (TEFAP): Background and Funding
Updated August 1, 2025 (R45408) Jump to Main Text of ReportContents
- Introduction
- The Demand for Charitable Food Assistance
- Characteristics of Emergency Food Recipients
- Characteristics of Emergency Feeding Organizations
- Program Administration
- Federal Role
- State Role
- Local Role
- Eligibility Rules for Individuals and Households
- Funding and Appropriations
- Commodity Food Support
- Entitlement Commodities
- Bonus Commodities
- USDA Food Purchasing, Ordering, and Delivery Process
- Types of Foods
- Administrative Cash Support
- Other Funding
- Farm to Food Bank Projects
- Funding Trends
- State Allocation Formula
- State Funding
- Role of TEFAP During Disasters and Emergencies
- COVID-19 Pandemic Response
- Farm Bill Reauthorization
Figures
Tables
Summary
The Emergency Food Assistance Program (TEFAP) is a federal food distribution program thatcommodities—including fruits, vegetables, meats, and grains—and funding for administrative commodities—including fruits, vegetables, meats, and grains—and funding for administrative
account poverty and unemployment rates. TEFAP is administered by the U.S. Department of Agricultureaccount poverty and unemployment rates. TEFAP is administered by the U.S. Department of Agriculture
and Nutrition Service (FNS).and Nutrition Service (FNS).
1983. The Emergency Food Assistance Act continues to govern program operations, while the Food and Nutrition Act 1983. The Emergency Food Assistance Act continues to govern program operations, while the Food and Nutrition Act
authorizes funding for TEFAPauthorizes funding for TEFAP
distributed at USDAdistributed at USDA
amount of discretionary funding is appropriated annually to cover administrative and distribution costs under Emergency amount of discretionary funding is appropriated annually to cover administrative and distribution costs under Emergency
Food Assistance Act authority. Along with TEFAPFood Assistance Act authority. Along with TEFAP
have been distributed through TEFAP in recent years as a result of USDAhave been distributed through TEFAP in recent years as a result of USDA
supplemental appropriations from COVID-19 pandemic response laws. In supplemental appropriations from COVID-19 pandemic response laws. In
approximately $approximately $
provides general program oversight. State agencies—often state departments of health and human services, agriculture, or provides general program oversight. State agencies—often state departments of health and human services, agriculture, or
education—determine program eligibility rules and allocations of aid to feeding organizations (called education—determine program eligibility rules and allocations of aid to feeding organizations (called recipient agencies). ).
States often task food banks, which operate regional warehouses, with distributing foods to other recipient agencies. TEFAP 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 available to emergency feeding organizations, which are reliant on aid makes up a modest proportion of the food and funds available to emergency feeding organizations, which are reliant on
private donations as well.private donations as well.
focus on specific subpopulations; for example, the Federal Emergency Management Agencyfocus on specific subpopulations; for example, the Federal Emergency Management Agency
and Shelter Program distributes food to organizations serving homeless individuals and USDAand Shelter Program distributes food to organizations serving homeless individuals and USDA
Food Program distributes food to organizations serving older individuals with low incomes.Food Program distributes food to organizations serving older individuals with low incomes.
donations from farmers and other agricultural producers, processors, and distributors to emergency feeding organizations. donations from farmers and other agricultural producers, processors, and distributors to emergency feeding organizations.
Recent program developments include the programRecent program developments include the program
Introduction
The Emergency Food Assistance Program (TEFAP; previously the The Emergency Food Assistance Program (TEFAP; previously the Temporary Emergency Food
Assistance Program) provides federally purchased commodities and a smaller amount of cash ) provides federally purchased commodities and a smaller 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.feeding organizations serving low-income households and individuals.
fruits, vegetables, meats, and grains, among other foods.fruits, vegetables, meats, and grains, among other foods.
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
of government-held agricultural surpluses and alleviate hunger in the wake of a recession and of government-held agricultural surpluses and alleviate hunger in the wake of a recession and
declining food stamp benefits.declining food stamp benefits.
operates in all 50 states, the District of Columbia, and four U.S. territories.operates in all 50 states, the District of Columbia, and four U.S. territories.
most recently reauthorized by the 2018 farm bill (P.L. 115-334most recently reauthorized by the 2018 farm bill (P.L. 115-334).
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; generally, these are state designated by the governor or state legislature; generally, these 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 (called funds may flow through the state or directly to feeding organizations (called "recipient agencies"5) )
based on how the state structures the program.based on how the state structures the program.
and distributing food to local feeding organizations. Food banks typically operate regional and distributing food to local feeding organizations. Food banks typically 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.
1
depicts the flow of commodities and funds through TEFAP.
Figure 1. Flow of Foods and Funds through TEFAP Source: Adapted from USDA, FNS, Adapted from USDA, 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 responsibility to food banks.other recipient agencies. States often delegate this responsibility to food banks.
provide cash assistance while others primarily distribute food. TEFAP foods may reach provide cash assistance while others primarily distribute food. TEFAP foods may reach
individuals who do not qualify for other food assistance programs or supplement the assistance individuals who do not qualify for other food assistance programs or supplement the assistance
that they receive through other programs. Related federal programsthat they receive through other programs. Related federal programs9 include the Federal include the Federal
Emergency Management AgencyEmergency Management Agency
among its other services for homeless individuals, provides food through shelters, food banks, among its other services for homeless individuals, provides food through shelters, food banks,
and food pantries.and food pantries.
monthly food packages to low-income elderly individuals through local organizations, which can monthly food packages to low-income elderly individuals through local organizations, which can
assistance. It goes on to discuss the TEFAP program, including its administration at the federal, assistance. It goes on to discuss the TEFAP program, including its administration at the federal,
state, and local levels, eligibility rules, and funding structure. The report concludes with a state, and local levels, eligibility rules, and funding structure. The report concludes with a
summary of TEFAPsummary of TEFAP
TEFAP funding from the programTEFAP funding from the program
funding by state; funding by state;
Definitions
Emergency feeding organizations (EFOs): :institution, a food bank, a food pantry, a hunger relief center, a soup kitchen, or a similar public or private institution, a food bank, a food pantry, a hunger relief center, a soup kitchen, or a similar public or private
nonprofit eligible recipient agency) providing nutrition assistance to relieve situations of emergency and distress nonprofit eligible recipient agency) providing nutrition assistance to relieve situations of emergency and distress
through the provision of food to needy persons, including low-income and unemployed persons.through the provision of food to needy persons, including low-income and unemployed persons.
The term "charitable food organization" is used synonymously with EFO in this report.
Common types of EFOs
Food banks: "The term 'food bank' means a public or charitable institution that maintains an established means a public or charitable institution that maintains an establishedoperation involving the provision of food or edible commodities, or the products of food or edible operation involving the provision of food or edible commodities, or the products of food or edible
an integral part of their normal activities, provide meals or food to feed needy persons on a regular basis.an integral part of their normal activities, provide meals or food to feed needy persons on a regular basis.
" Food pantries:
food to low-income and unemployed households, including food from sources other than the Department of food to low-income and unemployed households, including food from sources other than the Department of
Agriculture, to relieve situations of emergency and distress.Agriculture, to relieve situations of emergency and distress.
" Soup kitchens:
the normal activities of the institution, maintains an established feeding operation to provide food to needy the normal activities of the institution, maintains an established feeding operation to provide food to needy
homeless persons on a regular basis.homeless persons on a regular basis.
The Demand for
According to an analysis of Current Population Survey (CPS) Food Security Supplement data by According to an analysis of Current Population Survey (CPS) Food Security Supplement data by
These are likely underestimates of charitable food receipt—particularly free meal receipt—because of benefit underreporting. In addition, the CPS uses address-based sampling and therefore does not capture individuals who are homeless and does not fully capture those in temporary housing arrangements.14
Figure 2. Population Receiving Charitable Food Assistance in 2023
Individuals Living in Households that Reported Receipt of Free Groceries or Free Meals from a Charitable Organization in the Past 12 Months
Source: Table S-11 (page 21) in USDA, ERS, Statistical Supplement to Household Food Security in the United States in 2023, Report No. AP-124, September 2024, https://www.ers.usda.gov/publications/https://www.ers.usda.gov/publications/pub-details?pubid=109902.Notes: Figures are likely underestimates due to underreporting of benefit receipt and the exclusion of homeless individuals. "Free Groceries" indicates receipt of free groceries from "a food pantry, food bank, church, or other place that helps with free food," and "Free Meals" indicates receipt of free meals from "a church, shelter, home-delivered meal service like Meals on Wheels, or other place that helps with free meals."
ERS found an increase in use of charitable foods during the COVID-19 pandemic. As shown in Figure 3, according to ERS analysis of CPS Food Security Supplement data, household receipt of emergency food reached a recent peak in 2020 (data are not reported for 2022 and subsequent years due to changes to the survey).15 A separate survey by the Urban Institute (a nonprofit research and advocacy organization) found that use of charitable foods was 38% higher in 2021 compared to 2019.16 Factors such as increased demand, increased food prices, decreased private donations, and reduced volunteer capacity posed challenges to emergency food organizations during the pandemic.17 At the same time, such organizations saw an influx of federal aid (discussed in the "COVID-19 Pandemic Response" section). Data on the number of TEFAP food recipients specifically
commodities are mixed in with other commodities provided by emergency feeding organizations commodities are mixed in with other commodities provided by emergency feeding organizations
and because of and because of
"18
Figure
Reported Receipt of Emergency Food from a Food Pantry, Food Bank, or Church in the Past 12 Months
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 UnitedStates, USDA Economic Research Service, for 2008-2021., USDA Economic Research Service, for 2008-2021.
Notes: Comparable data not available for 2022 forward. Figures are likely underestimates due to underreporting of benefit receipt and exclusion of homeless individuals. "Low-income households" are defined as households with income at or below 185% of the federal poverty guidelines, and/or those who reported indications of food insecurity.
Characteristics of Emergency Food Recipients Food insecurity is common among households using emergency feeding organizations.Food insecurity is common among households using emergency feeding organizations.19 According to the ERS analysis, According to the ERS analysis,
be categorized as food insecure in be categorized as food insecure in
households experienced very low food security, meaning that the food intake of some household 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.members was reduced and normal eating patterns were disrupted due to limited resources.
who are ineligible for or do not participate in other federal food assistance programswho are ineligible for or do not participate in other federal food assistance programs
have an income too high to qualify for assistance have an income too high to qualify for assistance
through the Supplemental Nutrition Assistance Program (SNAP), or they may fail to meet other program eligibility rules.23 According to the ERS analysis, an estimated 45% of households receiving free groceries from a charitable feeding organization in 2023 also reported receiving SNAP benefits in the past month.24 Research has found that such households tend to use charitable food assistance after their SNAP benefits run out for the month.25 Characteristics of Emergency Feeding Organizations
There has not been a comprehensive study of emergency feeding organizations in the United States since 2000, or any recent research on organizations participating in TEFAP.26 A U.S. Government Accountability Office (GAO) report published in September 2024 recommended that USDA collect more current data on and conduct more current evaluations of TEFAP.27
Recent informal estimates of the charitable food assistance sector by Feeding America and Food Bank News place the number of food pantries and charitable meal programs at more than 60,000 and the number of food banks at around 370.28 According to the data collected by Food Bank News (an independent news agency geared toward charitable food assistance sector), roughly three-quarters of the nation's food banks were an affiliate or partner to Feeding America in 2023.29 Other food banks operated independently, including the nation's two largest food banks by revenue (Midwest Food Bank and Feed the Children). Other common affiliations include United Way, Salvation Army, Catholic Charities, and other nonprofit organizations.30 According to historic data from 2000, food banks tended to be secular, nonprofit organizations (91%) while the majority (65%) of food pantries and emergency kitchens were associated with a religious group.31
Emergency feeding organizations are reliant on both private donations and publicly funded resources, including TEFAP aid. In recent years, Feeding America has estimated that TEFAP foods comprised more than 20% of the foods delivered through its network.32 This proportion may fluctuate from year to year depending both on the level of private-sector donations and TEFAP funding (see the "Funding Trends" section).
Program Administration Federal Role FNS is responsible for allocating TEFAP aid to states (see "State Allocation Formula") andcoordinating the ordering, processing, and distribution of commodities. Specifically, FNS decides coordinating the ordering, processing, and distribution of commodities. Specifically, FNS decides
which foods will be available in the USDA Foods catalog and allocates entitlement aid and which foods will be available in the USDA Foods catalog and allocates entitlement aid and
administrative funds to states. States and recipient agencies then place orders for certain administrative funds to states. States and recipient agencies then place orders for certain
quantities and types of commodities (discussed under quantities and types of commodities (discussed under "
entitlement allocation. FNS collaborates closely with USDAentitlement allocation. FNS collaborates closely with USDA
Agricultural Marketing Service (AMS)—to process and fulfill the orders.Agricultural Marketing Service (AMS)—to process and fulfill the orders.
collaborate to purchase and distribute bonus commodities throughout the year that are not based collaborate to purchase and distribute bonus commodities throughout the year that are not based
on state requests but rather USDAon state requests but rather USDA
both entitlement and bonus commodities to state-selected distribution pointsboth entitlement and bonus commodities to state-selected distribution points
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 statedocuments that outline each state
amendments to the plan for approval amendments to the plan for approval
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.
36 State Role
TEFAP is administered at the state level by an agency designated by the governor TEFAP is administered at the state level by an agency designated by the governor
appropriate State executive authorityappropriate State executive authority
commonly administer TEFAP through a health and human services, agriculture, or education commonly administer TEFAP through a health and human services, agriculture, or education
department.department.
other program rules (other program rules (
agencies.agencies.
including selecting and subcontracting with other recipient agencies.including selecting and subcontracting with other recipient agencies.
ordering and distribution of USDA Foods to regional food banks, which receive foods and make ordering and distribution of USDA Foods to regional food banks, which receive foods and make
deliveries to other recipient organizations, such as food pantries.deliveries to other recipient organizations, such as food pantries.
delivered by vendors directly to recipient agencies (often to food banks for distribution to other delivered by vendors directly to recipient agencies (often to food banks for distribution to other
organizations).organizations).
recipient agencies.recipient agencies.
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.
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.
Local Role
Organizations that are eligible for TEFAP aid are referred to as Organizations that are eligible 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 nonprofit organizations that
TEFAP statute and regulations and the majority of TEFAP aid.TEFAP statute and regulations and the majority of TEFAP aid.
are defined as public or nonprofit organizations are defined as public or nonprofit organizations
situations of emergency and distress through the provision of food to needy persons, including situations of emergency and distress through the provision of food to needy persons, including
low-income and unemployed persons.low-income and unemployed persons.
and other organizations serving similar functionsand other organizations serving similar functions
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.
comply with state and/or local food safety and health inspection requirements.comply with state and/or local food safety and health inspection requirements.
agencies must also maintain records of the commodities they receive and a list of households agencies must also maintain records of the commodities they receive and a list of households
receiving TEFAP foods for home consumptionreceiving TEFAP foods for home consumption
activities that can occur at distribution sites. Recipient agencies must ensure that any unrelated 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 and that 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.receipt of TEFAP foods is not contingent on participation in the activity.
disrupt food distribution or meal service and may not be explicitly religious.disrupt food distribution or meal service and may not be explicitly religious.
recipient agencies may not engage in recruitment activities designed to persuade an individual to recipient agencies may not engage in recruitment activities designed to persuade an individual to
apply for SNAP benefits.apply for SNAP benefits.
54 Eligibility Rules for Individuals and Households
Under broad federal guidelines, states set eligibility rules for individuals and households Under broad federal guidelines, states set eligibility rules for individuals and households
participating in TEFAP. Eligibility rules differ for organizations distributing commodities directly participating in TEFAP. Eligibility 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
located, or from which it draws its clientele.located, or from which it draws its clientele.
vary by state. Prior to the 2024 change, income eligibility limits ranged from 130% to 400% of the federal poverty guidelines depending on the state.57 Some states also confer household eligibility based on participation in other federal and state programs states also confer household eligibility based on participation in other federal and state programs
(known as (known as categorical eligibility).).
location served by the State agency at the time of applying for assistance.location served by the State agency at the time of applying for assistance.
residency cannot be a criterionresidency cannot be a criterion
TEFAP foods, such as requiring a signature at the time of receipt, or limiting the number of times TEFAP foods, such as requiring a signature at the time of receipt, or limiting the number of times
households can get food in a certain period.households can get food in a certain period.
61 Funding and Appropriations
TEFAP
The Emergency Food Assistance Act of 1983: governs TEFAP operations and authorizes discretionary : governs TEFAP operations and authorizes discretionary
funding for administrative costs (codified at 7 U.S.C. §funding for administrative costs (codified at 7 U.S.C. §§7501-7516)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 commodities (funding for TEFAP commodities (entitlement commodities) (codified at 7 U.S.C. §2036)(codified at 7 U.S.C. §2036)
domestic agricultural commodities (domestic agricultural commodities (USDA Foods). A smaller amount of assistance is provided in ). A smaller 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.
(described further in the sections to follow)(described further in the sections to follow). Funding for entitlement commodities is considered Funding for entitlement commodities is considered
appropriated mandatory spending, meaning that the authorizing law sets the level of spending but appropriated mandatory spending, meaning that the authorizing law sets the level of spending but
an annual appropriation is needed to provide funding.an annual appropriation is needed to provide funding.
included in the TEFAP appropriation and is instead provided by separate USDA budget authority. included in the TEFAP appropriation and is instead provided by separate USDA budget authority.
TEFAP may also receive supplemental appropriations in response to a disaster or emergency. For example, TEFAP received supplemental funding during the COVID-19 pandemic in addition to an influx of bonus commodities (see the "Role of TEFAP During Disasters and Emergencies" section). More recently, the American Relief Act of 2025 (P.L. 118-158) included $25 million for TEFAP agencies' infrastructure needs related to major disasters that occurred in 2023 or 2024.
As shown in Table 1, TEFAP TEFAPCategory
Entitlement foods
455.1
156.2
Bonus foods
1,626.1
3.7
Total
2,241.1
p. p.
34-104. Notes: Table displays food and administrative funds made available to states and USDA bonus purchases. Table displays food and administrative funds made available to states and USDA bonus purchases.
prior fiscal year.prior fiscal year.
Commodity Food Support
Entitlement Commodities
Nutrition Act (codified at 7 U.S.C. §2036). The Nutrition Act (codified at 7 U.S.C. §2036). The
2018 farm bill (2018 farm bill (P.L. 115-334) was the most recent vehicle to extend TEFAP's entitlement commodity funding, authorizing $250 million annually plus additional amounts each year in FY2019 through FY2023. Programs with expired funding authorizations may continue to operate if funding is provided in appropriations acts, which has been the case for TEFAP in subsequent years.64
As specified in the law, entitlement commodity funding is adjusted for food price inflation in accordance with USDA's Thrifty Food Plan.65 Appropriations may also provide additional discretionary funding for entitlement commodities beyond the levels set in the Food and Nutrition Act.
entitlement commodities into administrative funds.entitlement commodities into administrative funds.
10% of funds; FY2018 and FY2019 appropriations acts increased the proportion to 15%, and 10% of funds; FY2018 and FY2019 appropriations acts increased the proportion to 15%, and
FY2020-FY2020-
this optionthis option
in eligible funds.in eligible funds.
next fiscal year.next fiscal year.
for TEFAP and considers input from state and local agencies (discussed further in the for TEFAP and considers input from state and local agencies (discussed further in the "
Food Purchasing, Ordering, and Delivery Process
conditions; (2) preferences and needs of States and distributing agencies; and (3) preferences of conditions; (2) preferences and needs of States and distributing agencies; and (3) preferences of
recipients.recipients.
"70 Bonus Commodities
budget authority. USDAbudget authority. USDA
other economic problems, as raised by farm and industry organizations and assessed by USDAother economic problems, as raised by farm and industry organizations and assessed by USDA
's own commodity experts. The amount and type of bonus commodities that USDA purchases for own commodity experts. The amount and type of bonus commodities that USDA purchases for
TEFAP fluctuates from year to year, and depends TEFAP fluctuates from year to year, and depends
within TEFAP has fluctuated substantially over timewithin TEFAP has fluctuated substantially over time
USDA often offers states bonus foods according to the poverty and unemployment formula used in entitlement food allocations (discussed in the "State Allocation Formula" section).71 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 s purchases of bonus commodities stem from two authorities: Section 32 of theAugust 24, 1935 and the Commodity Credit Corporation (CCC).August 24, 1935 and the Commodity Credit Corporation (CCC).
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.
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 USDAoperations are supported by USDA
authority to borrow up to $30 billion from the U.S. Treasury to finance its programs.authority to borrow up to $30 billion from the U.S. Treasury to finance its programs.
TEFAP.TEFAP.
farmers impacted by retaliatory tariffs, using CCC authority.farmers impacted by retaliatory tariffs, using CCC authority.
announced in August 2018, included $1.2 billion in purchases of commodities for distribution to announced in August 2018, included $1.2 billion in purchases of commodities for distribution to
TEFAP and other domestic food assistance programs.TEFAP and other domestic food assistance programs.
in May 2019, provided another $1.4 billion for such purposes.in May 2019, provided another $1.4 billion for such purposes.
billion worth of trade mitigation foods through TEFAP in FY2019 and $1.2 billion in FY2020.billion worth of trade mitigation foods through TEFAP in FY2019 and $1.2 billion in FY2020.
81 USDA provided a smaller amount of funding for organizationsUSDA provided a smaller amount of funding for organizations
with storing and distributing trade mitigation foods.with storing and distributing trade mitigation foods.
intended to help organizations intended to help organizations
deliveries occurring in FY2023 and FY2024).deliveries occurring in FY2023 and FY2024).
round of round of identical CCC aid ($943 million) for the same purpose, with deliveries starting in FY2024.CCC aid ($943 million) for the same purpose, with deliveries starting in FY2024.
rounds of aid included a smaller amount of funding for organizationsrounds of aid included a smaller amount of funding for organizations
' operational costs. In December 2024, the Biden Administration announced another $500 million in slated CCC purchases for FY2025 that were later reportedly cancelled by USDA under the second Trump Administration.85 USDA Food Purchasing, Ordering, and Delivery Process
and agency policy. The process described in this section is specific to TEFAP, but similar and agency policy. The process described in this section is specific to TEFAP, but similar
commodities, FNS and AMS work together to determine a list of foods for the fiscal year that will commodities, FNS and AMS work together to determine a list of foods for the fiscal year that will
be procurable by USDA and usable by emergency feeding organizations.be procurable by USDA and usable by emergency feeding organizations.
commodities, AMS determines which foods it will purchase on an ongoing basis throughout the commodities, AMS determines which foods it will purchase on an ongoing basis throughout the
year based on the needs of producers.year based on the needs of producers.
use their allocated entitlement funds to choose foods from a list that includes meats, eggs, grains, use their allocated entitlement funds to choose foods from a list that includes meats, eggs, grains,
fruits, vegetables, beans, nuts, and milk. They can also opt to receive preselected bonus foods, if fruits, vegetables, beans, nuts, and milk. They can also opt to receive preselected bonus foods, if
available. (Types of entitlement and bonus foods available are discussed further in the next available. (Types of entitlement and bonus foods available are discussed further in the next
section of this report.) Most foods show up in the catalog on a quarterly basis; others are only section of this report.) Most foods show up in the catalog on a quarterly basis; others are only
available in the catalog at certain times of the year (e.g., fresh whole apples).available in the catalog at certain times of the year (e.g., fresh whole apples).
which which
and delivery window, and invites approved vendors to submit offers to fill the demand.and delivery window, and invites approved vendors to submit offers to fill the demand.
approved vendors may respond to the solicitation and then AMS reviews the offers and awards approved vendors may respond to the solicitation and then AMS reviews the offers and awards
contracts. Per the terms of the contract, a vendor may deliver food to a state warehouse, directly contracts. Per the terms of the contract, a vendor may deliver food to a state warehouse, directly
to a food bank or emergency feeding organization, or to a food to a food bank or emergency feeding organization, or to a food
opts to use a portion of their entitlement funds for this purpose).opts to use a portion of their entitlement funds for this purpose).
delivered, AMS pays the vendor.delivered, AMS pays the vendor.
from solicitation through delivery.from solicitation through delivery.
92 Types of Foods
such as meats, eggs, vegetables, soup, beans, nuts, peanut butter, cereal, pasta, milk, and juice.such as meats, eggs, vegetables, soup, beans, nuts, peanut butter, cereal, pasta, milk, and juice.
93 Most foods are nonperishable and ready for distribution when delivered to states, although some 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.foods, such as some meat, dairy, and fresh produce, require refrigeration.
efforts in recent years to increase kosher and halal USDA Foods and raise awareness of available efforts in recent years to increase kosher and halal USDA Foods and raise awareness of available
options.options.
In contrast, USDA selects bonus foods based on market conditions. In FY2024, bonus food purchases included fruits (e.g., grapefruit, oranges, peaches, apples, pears), nuts (e.g., hazelnuts, walnuts, pistachios, pecans, almonds), dried fruits (e.g., prunes, figs, dried cherries, dates), beans (e.g., navy, pinto, kidney), seafood (e.g., shrimp, rockfish, whiting, salmon, catfish), asparagus, pork products, milk, grape juice, and cheese.96
Research has shown that TEFAP foods are relatively nutritious compared to foods in the average Research has shown that TEFAP foods are relatively nutritious compared to foods in the averageGuidelines for the Charitable Food System, which classify foods as green (choose often), yellow Guidelines for the Charitable Food System, which classify foods as green (choose often), yellow
(choose sometimes), or red (choose rarely) based primarily on the amount of saturated fat, (choose sometimes), or red (choose rarely) based primarily on the amount of saturated fat,
sodium, and added sugars they contain.sodium, and added sugars they contain.
green category, 36% were in the yellow category, and 3% were in the red category (2% were not green category, 36% were in the yellow category, and 3% were in the red category (2% were not
ranked because they were condiments or cooking staples).ranked because they were condiments or cooking staples).
98 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 well as administrative costs transporting, and distributing USDA-purchased commodities, as well as administrative costs
related to determining eligibility, training staff, recordkeeping, and other activities.related to determining eligibility, training staff, recordkeeping, and other activities.
99 Administrative funds can also be used to support the costs of storing, handling, and distributing foods from non-TEFAP sources, including private donations and food rescue efforts such as gleaning.100
The Emergency Food Assistance Act of 1983 authorizes $100 million to be appropriated annually for administrative costs.101 In FY2024, appropriators designated $80 million in discretionary funding for TEFAP administrative funds, consistent with levels in FY2020-FY2022, but down from a recent high of $92 million in FY2023.102
The Emergency Food Assistance Act of 1983 also authorizes up to $15 million to be appropriated for competitive grants to improve the infrastructure and capacity of emergency feeding organizations, particularly those in rural areas.103 Funds ($6 million) were last appropriated for these grants in FY2010 (P.L. 111-80). More recently, USDA used $100 million in American Rescue Plan Act (ARPA; P.L. 117-2) funding for Reach and Resiliency grants similarly geared toward improving capacity and infrastructure.104 The grants were awarded competitively to 42 TEFAP state agencies in 2022 and 2023 to expand the program into remote, rural, tribal, and low-income areas underserved by TEFAP.105 Funds were used for needs assessments, equipment and supplies (including expanded freezing and cooling capacity), building and warehouse renovations, mobile distribution infrastructure, staff training, and outreach to underserved populations, among other activities.106
turn distribute at least 40% of the funds to emergency feeding organizations.turn distribute at least 40% of the funds to emergency feeding organizations.
required to match whatever administrative funds they keep. As a result, states typically send required to match whatever administrative funds they keep. As a result, states typically send
nearly all of these funds to emergency feeding organizations.nearly all of these funds to emergency feeding organizations.
lesser extent than the conversion of food funds to administrative funds.lesser extent than the conversion of food funds to administrative funds.
109 Other Funding
Farm to Food Bank Projects
processing, packaging, and/or transportation of raw or unprocessed commodities from processing, packaging, and/or transportation of raw or unprocessed commodities from
agricultural producers, processors, and distributors to emergency feeding organizations—termed 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 by USDA. The law provided $4 million in annual mandatory
funding for the projects from FY2019 to FY2023 funding for the projects from FY2019 to FY2023 (extended through FY2024 by P.L. 118-22 and through FY2025-FY2031 by P.L. 119-21) and required at least a 50% nonfederal match. It 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 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 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 would be allocated to such states; through rulemaking published in October 2019, USDA
and feeding organizations, rescuing or gleaning commodities, processing foods into end products, and feeding organizations, rescuing or gleaning commodities, processing foods into end products,
and distributing foods through food bank networks. Some states used funds to support statewide and distributing foods through food bank networks. Some states used funds to support statewide
initiatives, while othersinitiatives, while others
group of organizations. Likewise, some projects group of organizations. Likewise, some projects
commodities from the programcommodities from the program
high in FY2020 as a result of high in FY2020 as a result of
costs provided by COVID-19 pandemic response costs provided by COVID-19 pandemic response
when TEFAP served as a means for disposing of large stockpiles of government-held when TEFAP served as a means for disposing of large stockpiles of government-held
commodities (for further legislative history, seecommodities (for further legislative history, see
Appendix C).
Figure 4. TEFAP Funding, FY1983-FY2024 Source: CRS calculations using USDA, FNS Congressional Budget Justifications for FY1983-CRS calculations using USDA, FNS Congressional Budget Justifications for FY1983-
2024." Notes: Graph displays Graph displays the value of food and administrative funds made available to states and USDA bonus purchases. food and administrative funds made available to states and USDA bonus purchases.
see Table A-1.
TEFAPTEFAP
statutory formula that takes into account poverty and unemployment rates.statutory formula that takes into account poverty and unemployment rates.
calculates each statecalculates each state
federal poverty level and each statefederal poverty level and each state
individuals. A stateindividuals. A state
unemployed individuals is multiplied by 40% to calculate the stateunemployed individuals is multiplied by 40% to calculate the state
commodities and funds. For example, if a state has 4% of all households in poverty and 2% of all commodities and funds. For example, if a state has 4% of all households in poverty and 2% of 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.TEFAP funds.
funds for one fiscal year (e.g., from funds for one fiscal year (e.g., from
FY2024 to FY2025). State Funding States must match any administrative funds that are not allocated to emergency feeding States must match any administrative funds that are not allocated 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.
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 small state match requirement.resulting in a small state match requirement.
TEFAP program either directly or indirectlyTEFAP program either directly or indirectly
State Department of Agriculture in 2015.State Department of Agriculture in 2015.
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 programsupporting such organizations at the program
effort went into effect)—whichever is later.effort went into effect)—whichever is later.
118 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 through TEFAP. Both of these approaches
(discussed in the next section).(discussed in the next section).
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.
119 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.
households by reducing administrative requirements (e.g., removing eligibility determinations); households by reducing administrative requirements (e.g., removing eligibility determinations);
however, it temporarily results in lower USDA Foods inventory for TEFAP and other federal however, it temporarily results in lower USDA Foods inventory for TEFAP and other federal
nutrition assistance programs. USDA authorized Disaster Household Distribution using TEFAP nutrition assistance programs. USDA authorized Disaster Household Distribution using TEFAP
foods in several states in recent foods in several states in recent
response, and additional flexibilities may be provided. Congress may provide supplemental response, and additional flexibilities may be provided. Congress may provide supplemental
funding for disaster or emergency feeding through TEFAP, as was the case during the COVID-19 funding for disaster or emergency feeding through TEFAP, as was the case during the COVID-19
pandemic and during hurricanes and wildfires in recent pandemic and during hurricanes and wildfires in recent
may adjust certain program rules during a disaster or emergency (e.g., by amending state plans).may adjust certain program rules during a disaster or emergency (e.g., by amending state plans).
COVID-19 Pandemic Response
The COVID-19 pandemic response included both transferring TEFAP foods to Disaster The COVID-19 pandemic response included both transferring TEFAP foods to Disaster
Household Distribution programs and distributing a higher volume of foods and funds through Household Distribution programs and distributing a higher volume of foods and funds through
TEFAP.TEFAP.
use TEFAP foods for Disaster Household Distribution. Following the presidential emergency use TEFAP foods for Disaster Household Distribution. Following the presidential emergency
declaration for COVID-19, USDA approved requests from 21 states, Guam, and 33 tribal nations declaration for COVID-19, USDA approved requests from 21 states, Guam, and 33 tribal nations
to repurpose TEFAP foods for Disaster Household Distribution.to repurpose TEFAP foods for Disaster Household Distribution.
timeframes but typically ended by July 2020.timeframes but typically ended by July 2020.
by COVID-19 pandemic response acts. Specifically, supplemental appropriations for TEFAP by COVID-19 pandemic response acts. Specifically, supplemental appropriations for TEFAP
entitlement foods and administrative funds were provided by the Families First Coronavirus 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 Response Act (FFCRA; P.L. 116-127) ($400 million), the CARES Act (P.L. 116-136) ($450
million), and the Consolidated Appropriations Act, FY2021 (P.L. 116-260) ($400 million). In million), and the Consolidated Appropriations Act, FY2021 (P.L. 116-260) ($400 million). In
addition, the Biden Administration decided to use another $500 million in CARES Act funds for addition, the Biden Administration decided to use another $500 million in CARES Act funds for
TEFAP entitlement purchases and administrative funds and $100 million in ARPA funds for TEFAP entitlement purchases and administrative funds and $100 million in ARPA funds for
Reach and Resiliency grants (discussed previously).Reach and Resiliency grants (discussed previously).
facilitate food distribution, such as expanding eligibility rules for participants and waiving facilitate food distribution, such as expanding eligibility rules for participants and waiving
Authority (in order of enactment)
Description
Timeframe
Budget Authority (millions of dollars)
Made available to states in FY2020
400
Made available to states in FY2020
450
be used for administrative be used for administrative
Made available to states in FY2022
500
Made available to states in FY2021
400
million for TEFAP Reach and Resiliency grants.e
Made available to states in FY2022 and FY2023
100
Total
1,850
Notes: Amounts made available are not necessarily the amounts expended by states. Amounts made available are not necessarily the amounts expended by states.
Act),Act),
2021. Farm Bill Reauthorization
TEFAP TEFAP
334) extended TEFAP334) extended TEFAP
and provided $4 million in annual mandatory funding for such projects through FY2023and provided $4 million in annual mandatory funding for such projects through FY2023 (extended through FY2024 by P.L. 118-22 and through FY2025-FY2031 by P.L. 119-21). In
addition, the 2018 farm bill required states to include, in their TEFAP state plans, a plan to addition, the 2018 farm bill 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 regard to USDA Foods), such as provide input on commodity preferences and needs (e.g., in regard to USDA Foods), such as
through a state advisory board. In addition, the law required USDA to issue guidance outlining through a state 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.best practices to minimize food waste of commodities donated by non-USDA entities.
2014 (P.L. 113-79) and 2008 (P.L. 110-246). The 2014 farm bill also required USDA to develop a 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 plan to increase purchases of Kosher and Halal foods and allowed TEFAP funds to be spent over
two fiscal years. Appendix A. TEFAP Funding, FY1983-FY2024 Table A-1. Annual TEFAP Funding, FY1983-FY2024
(nominal dollars in millions)
Fiscal Year
Annual Administrative Funds
Annual Entitlement Foods
Bonus Foods
Disaster and COVID-19 Foods and Funds
Commodity Credit Corporation Foods and Funds
Total
1983
50.0
0.0
948.2
0.0
—
998.2
1984
50.0
0.0
1,030.0
0.0
—
1,074.6
1985
57.0
0.0
972.0
0.0
—
1,026.2
1986
50.0
0.0
846.1
0.0
—
895.2
1987
50.0
0.0
845.7
0.0
—
895.0
1988
50.0
0.0
537.2
0.0
—
645.4
1989
50.0
160.0
135.2
0.0
—
301.2
1990
50.0
159.0
118.9
0.0
—
329.2
1991
50.0
152.0
89.3
0.0
—
298.7
1992
44.9
151.3
85.1
0.0
—
271.3
1993
44.9
160.0
105.6
0.0
—
270.8
1994
40.0
119.4
48.4
0.0
—
264.1
1995
40.0
65.2
35.2
0.0
—
134.8
1996
30.7
49.1
14.3
0.0
—
79.6
1997
41.7
130.3
29.5
0.0
—
191.8
1998
46.4
100.0
108.8
0.0
—
234.3
1999
45.8
89.2
107.5
0.0
—
243.2
2000
43.6
98.7
162.0
0.0
—
224.8
2001
44.7
99.6
319.4
0.0
—
377.1
2002
54.3
134.8
171.4
0.0
—
434.5
2003
59.7
130.3
242.1
0.0
—
455.6
2004
59.2
128.5
233.0
0.0
—
419.7
2005
58.6
130.5
154.3
0.0
—
372.4
2006
63.5
130.1
67.0
6.0
—
300.4
2007
58.0
130.6
58.2
0.0
—
255.4
2008
57.1
182.3
178.1
0.0
—
417.5
2009
63.6
236.2
373.7
125.0
—
798.5
2010
67.1
231.9
346.6
54.6
—
700.2
2011
70.3
228.4
235.3
0.0
—
534.0
2012
65.8
242.9
304.2
0.0
—
612.9
2013
64.3
247.2
228.5
5.7
—
545.7
2014
69.1
268.0
298.8
0.0
—
635.9
2015
74.0
327.0
302.9
0.0
—
703.9
2016
77.9
320.3
305.5
0.0
—
703.7
2017
83.3
297.0
268.6
0.0
—
648.9
2018
90.7
287.5
308.9
24.0
—
711.1
2019
148.6
254.9
403.0
0.0
1,059.3
1,865.8
2020
137.2
92.2
716.2
606.5
1,193.3
2,745.4
2021
158.4
319.9
701.0
397.3
1,576.6
2022
136.2
465.4
517.0
539.4
1,618.6
2023
156.3
405.1
954.8
58.5
934.3
2,509.0
2024
156.2
455.1
753.0
0.0
873.1
2,237.4
Source: CRS calculations using USDA, FNS Congressional Budget Justifications for FY2000-FY2024 amounts and USDA, FNS, "Food Distribution Tables (Emergency Food Assistance)," June 13, 2025, for FY1983-FY1999 amounts.
Notes: Subtotals may not sum to totals due to rounding. Table displays food and administrative funds made Subtotals may not sum to totals due to rounding. Table displays food and administrative funds madeavailable to states and USDA bonus purchases. available to states and USDA bonus purchases.
(in dollars)
Annual Administrative Funds
Annual Entitlement Foods
Bonus Foods
Commodity Credit Corporation Foods and Funds
State Total
Alabama
1,488,843
3,896,934
10,687,772
11,386,673
27,460,222
Alaska
211,360
1,325,533
1,457,853
1,949,749
4,944,495
Arizona
3,765,501
9,018,456
20,537,352
20,546,709
53,868,018
Arkansas
1,394,854
3,497,062
8,841,902
8,167,782
21,901,600
California
21,150,903
45,472,586
88,762,410
109,718,294
265,104,193
Colorado
1,107,920
5,977,549
10,769,540
12,378,162
30,233,171
Connecticut
792,625
6,954,804
6,047,800
7,914,238
21,709,467
Delaware
370,422
1,157,490
5,634,573
7,203,183
14,365,668
DC
419,627
885,022
1,754,315
2,502,695
5,561,659
Florida
8,974,759
22,876,393
49,647,906
54,224,099
135,723,157
Georgia
3,905,958
11,500,524
22,282,235
26,730,718
64,419,435
Hawaii
287,356
1,133,160
3,875,924
4,396,994
9,693,434
Idaho
789,319
1,619,882
2,661,236
3,363,856
8,434,293
Illinois
3,194,128
14,387,056
27,702,358
33,573,266
78,856,808
Indiana
1,532,094
6,070,811
14,474,687
15,239,064
37,316,656
Iowa
655,122
3,743,667
6,016,398
7,084,001
17,499,188
Kansas
1,076,816
2,977,659
2,805,581
4,479,180
11,339,236
Kentucky
2,678,540
5,590,290
12,048,007
13,343,859
33,660,696
Louisiana
2,894,487
7,019,599
13,193,874
15,587,790
38,695,750
Maine
264,713
2,076,054
4,387,184
6,396,631
13,124,582
Maryland
2,402,981
5,196,322
3,570,528
6,124,315
17,294,146
Massachusetts
2,618,257
7,111,777
7,943,565
11,373,996
29,047,595
Michigan
5,488,651
11,043,036
25,660,788
31,358,517
73,550,992
Minnesota
1,544,329
5,475,873
10,805,583
11,148,766
28,974,551
Mississippi
962,997
4,689,820
8,758,266
8,802,311
23,213,394
Missouri
1,340,647
7,330,728
11,627,486
12,301,217
32,600,078
Montana
489,272
1,060,859
1,919,838
2,550,665
6,020,634
Nebraska
506,307
1,963,952
3,098,514
3,857,668
9,426,441
Nevada
1,009,957
5,568,755
7,978,875
8,768,024
23,325,611
New Hampshire
361,673
1,007,726
1,989,398
2,574,404
5,933,201
New Jersey
4,114,039
7,934,922
11,747,150
18,160,696
41,956,807
New Mexico
1,281,269
2,426,082
6,528,159
8,515,577
18,751,087
New York
11,077,101
23,439,605
50,613,725
52,234,876
137,365,307
North Carolina
5,404,453
11,187,894
25,065,727
25,143,590
66,801,664
North Dakota
311,735
645,453
1,502,894
2,283,010
4,743,092
Ohio
6,302,031
12,102,280
29,578,334
31,748,398
79,731,043
Oklahoma
1,256,733
4,868,864
10,662,472
10,310,009
27,098,078
Oregon
3,145,522
3,301,818
9,499,446
13,441,114
29,387,900
Pennsylvania
6,732,396
13,730,579
27,783,266
34,046,737
82,292,978
Rhode Island
252,288
1,107,096
3,381,699
4,497,291
9,238,374
South Carolina
1,232,633
6,648,195
11,437,384
13,966,115
33,284,327
South Dakota
379,970
728,829
1,784,221
2,462,404
5,355,424
Tennessee
3,524,890
6,570,885
15,646,083
16,093,403
41,835,261
Texas
12,950,103
39,875,648
84,959,569
94,846,138
232,631,458
Utah
1,157,644
2,630,543
5,244,921
6,405,651
15,438,759
Vermont
262,572
850,940
743,356
1,080,652
2,937,520
Virginia
3,762,427
7,546,359
13,430,672
17,760,394
42,499,852
Washington
16,957,190
7,710,099
15,419,689
19,648,581
59,735,559
West Virginia
1,087,099
2,346,303
7,464,241
7,524,128
18,421,771
Wisconsin
2,467,583
4,880,889
7,263,591
11,242,397
25,854,460
Wyoming
151,365
644,595
1,015,160
2,299,590
4,110,710
78,764
0
0
0
78,764
Guam
68,258
593,001
47,749
201,447
910,455
Puerto Rico
4,099,054
9,321,229
15,026,252
13,937,057
42,383,592
Virgin Islands
67,586
171,895
266,978
373,932
880,391
147,821,928
455,187,374
753,054,486
873,270,013
2,229,333,801
Source: CRS, adapted from Table FNS-67 and Table FNS-68 in USDA, Office of Budget and Program Analysis, 2026 USDA Explanatory Notes – Food and Nutrition Service, pp. 34-108 to 34-109.
Notes: Table displays food and administrative funds made available to states and USDA bonus purchases. Food and administrative funds are post-conversion (following any conversion of entitlement food funds to administrative funds, and vice versa) and include any entitlement food funds carried over from the prior fiscal year.
a. USDA providesProgram Inception
130 In 1982, the Reagan Administration created a discretionary dairy distribution program to dispose In 1982, the Reagan Administration created a discretionary dairy distribution program to dispose
of stockpiles of CCC-purchased of stockpiles of CCC-purchased
the aftermath of reductions in federal food assistance (e.g., food stamps) legislated in 1981 and 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 1982 and in the midst of an economic recession and growing concern over hunger and homelessness. concern over hunger and homelessness.
USDA distributed the foods to states, which selected recipient organizations.USDA distributed the foods to states, which selected recipient organizations.
rice, and nonfat dry milk that USDA had purchased and rice, and nonfat dry milk that USDA had purchased and
reports of local organizations declining foods because of a lack of storage and distribution 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 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 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 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 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 assistance federal commodity inventory and storage costs, provided an alternative source of food assistance
for low-income individuals, and supported an expanding network of charitable emergency for low-income individuals, and supported an expanding network of charitable emergency
feeding providers that also drew food and resources from private sources.feeding providers that also drew food and resources from private sources.
131 Changes to TEFAP
132 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 substantially because of changes in agricultural policies and the economy, and the began to drop substantially because of changes in agricultural policies and the economy, and the
Reagan Administration indicated plans to phase out TEFAP. Instead, Congress authorized a Reagan Administration indicated plans to phase out TEFAP. Instead, Congress authorized a
specific level of funding (starting at $120 million for FY1989) for USDA to buy commodities for specific level of funding (starting at $120 million for FY1989) for USDA 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 million for FY1989). The separate program was (mandatory funding was provided at $40 million 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.
few years, funding for TEFAP declined, reaching an all-time low in FY1996. However, that same few years, funding for TEFAP declined, reaching an all-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 million per year through FY2002) for 193) reinstated appropriated mandatory funding ($100 million per year through FY2002) for
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.
There was another dip in appropriations in FY2006 and FY2007, but the 2008 farm bill raised There was another dip in appropriations in FY2006 and FY2007, but the 2008 farm bill raised
annual entitlement purchases to $250 million starting in FY2009 (indexed annually for food-price annual entitlement purchases to $250 million starting in FY2009 (indexed annually for food-price
inflation in later years).inflation in later years).
and FY2010 as a result of ARRA. In addition, the 2014 farm bill increased mandatory funding for and FY2010 as a result of ARRA. In addition, the 2014 farm bill increased mandatory funding for
million over five years.million over five years.
million annually.million annually.
135 Recent Changes and Increases in Spending
As discussed in this report, there has been an influx of federal aid in TEFAP in recent years. The As discussed in this report, there has been an influx of federal aid in TEFAP in recent years. The
2018 farm bill increased funding for TEFAP2018 farm bill increased funding for TEFAP
million over five years. It also provided mandatory funding of $4 million for each of FY2019-million over five years. It also provided mandatory funding of $4 million for each of FY2019-
FY2023 for new Farm to Food Bank ProjectsFY2023 for new Farm to Food Bank Projects (later extended through FY2024). These projects . These projects
organizations (in contrast to TEFAPorganizations (in contrast to TEFAP
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
Footnotes
The 1990 farm bill (P.L. 101-624) removed "Temporary" from the program title.
USDA, FNS, "USDA Foods Available List for The Emergency Food Assistance Program (TEFAP)," https://www.fns.usda.gov/tefap/foods-available.
Puerto Rico, the U.S. Virgin Islands, the Commonwealth of the Northern Mariana Islands, and Guam. Throughout this report, the term states includes these territories and DC.
Consistent with statute and regulations, this report uses the term "recipient agency" to describe organizations receiving TEFAP support. Emergency feeding organizations are the most common type of recipient agency.
For an inventory of states' TEFAP policies as of summer 2023, see Feeding America, "The Emergency Food Assistance Program State Policies," April 2024, https://feedingamericaaction.org/wp-content/uploads/2021/04/Resource_Feeding-America-TEFAP-State-by-State-Guide.pdf (accessed June 2025) (hereinafter, "Feeding America, TEFAP State Policies, 2024").
See "Program Administration" for further discussion of federal, state, and local roles. 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://www.fns.usda.gov/white-paper-emergency-food-assistance-program-tefap (hereinafter, "Cabili et al. 2013").
For more information, see CRS Report R42353, Domestic Food Assistance: Summary of Programs. Other recent, temporary programs included the Farmers to Families Food Box Program (2020-2021), which funded food boxes for distribution to households in need during the first year of the COVID-19 pandemic; and the Local Food Purchase Assistance (LFPA) program (2021-2024), which awarded funds to state agencies, territories, and tribes to purchase and distribute local and regional foods to food banks and other types of feeding organizations. For more information, see CRS Report R46681, USDA Nutrition Assistance Programs: Response to the COVID-19 Pandemic; and USDA, AMS, "Local Food Purchase Assistance Cooperative Agreement Program," https://www.ams.usda.gov/selling-food-to-usda/lfpacap (accessed June 2025).
For a discussion of additional programs, see CRS Report R48124, Connecting Charitable Food Assistance Organizations to Federal Funding Information and Resources.
For more information, see CRS Report R42766, The Emergency Food and Shelter National Board Program and Homeless Assistance.
For more information, see CRS Report R42353, Domestic Food Assistance: Summary of Programs.
"Low-income" is defined as households with income at or below 185% of the federal poverty guidelines, and/or those who reported indications of food insecurity.
The U.S. Census Bureau conducts the CPS Food Security Supplement annually with funding from USDA's ERS. The charitable food assistance on the Food Security Supplement was revised in 2022, disallowing comparisons with prior years. USDA, ERS, Statistical Supplement to Household Food Security in the United States in 2023, Report No. AP-124, September 2024, https://www.ers.usda.gov/publications/pub-details?pubid=109902 (hereinafter, "ERS Statistical Supplement 2023").
For literature on underreporting of benefits, see, for example, Bruce D. Meyer, Wallace K.C. Mok, and James X. Sullivan, "Household Surveys in Crisis," Journal of Economic Perspectives, vol. 29, no. 4 (Fall 2015), pp. 199-226. For limitations of the CPS sample pertaining to charitable food assistance, see ERS Statistical Supplement 2023, p. 20.
Statistical supplements to Household Food Security in the United States for 2019-2020.
Poonam Gupta, Julio Salas, and Elaine Waxman, Two Years into the Pandemic, Charitable Food Remains a Key Resource for One in Six Adults: Findings from the December 2021 Well-Being and Basic Needs Survey, Urban Institute, May 2022. Also see Elaine Waxman, Poonam Gupta, and Dulce Gonzalez, "Charitable Food Use Increased Nearly 50 Percent from 2019 to 2020," Urban Institute, March 2021.
For further discussion, see CRS Report R46432, Food Banks and Other Emergency Feeding Organizations: Federal Aid and the Response to COVID-19 (June 2020).
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://www.fns.usda.gov/sites/default/files/ops/NutrientMyPyramid.pdf.
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.
ERS Statistical Supplement 2023, p. 21.
For these and other characteristics, see ERS Statistical Supplement 2023, p. 22. For additional research, see Urban Institute, Households Faced Persistent Challenges Affording Food in 2024, March 2025 and Urban Institute, Who Is Accessing Charitable Food in America?, December 2019.
Nancy S. Weinfield et al., Hunger in America 2014, Feeding America, prepared by Westat and the Urban Institute, August 2014, pp. 91, 100-102, http://help.feedingamerica.org/HungerInAmerica/hunger-in-america-2014-full-report.pdf (hereinafter, "Feeding America, Hunger in America, 2014").
For more information on SNAP eligibility, see CRS Report R42505, Supplemental Nutrition Assistance Program (SNAP): A Primer on Eligibility and Benefits.
ERS Statistical Supplement 2023, p. 21.
Linlin Fan et al., "The Use of Charitable Food Assistance Among Low-Income Households in the United States," Journal of the Academy of Nutrition and Dietetics, vol. 121, no. 1 (January 2021), pp. 27-35.
At the time, ERS found that there were approximately 5,300 soup kitchens, 32,700 food pantries, and 400 food banks in the United States. J. C. Ohls et al., The Emergency Food Assistance System—Findings From the Provider Survey, 16-2, prepared by Mathematica Policy Research, Inc. for the Food and Rural Economics Division, Economic Research Service, USDA, October 2002, https://www.ers.usda.gov/publications/pub-details/?pubid=46507 (hereinafter, "Ohls et al. 2002").
GAO, Charitable Food Assistance: USDA Can Enhance Guidance and Improve Program Performance Assessment, GAO-24-106539, September 23, 2024, https://www.gao.gov/products/gao-24-106539. USDA congressional budget justifications in FY2024 and FY2025 requested funding for a study of TEFAP agencies (https://www.usda.gov/about-usda/general-information/staff-offices/office-budget-and-program-analysis/congressional-justifications).
Feeding America, "More than 53 Million People Received Help from Food Banks and Food Pantries in 2021," June 15, 2022, https://www.feedingamerica.org/about-us/press-room/53-million-received-help-2021 (accessed June 2025) and FoodBankNews.org, "How Many Food Banks Are There?," January 8, 2020, https://foodbanknews.org/how-many-food-banks-are-there (accessed June 2025).
Food Bank News, "Which Food Banks are the Biggest in the U.S., 2024?," October 23, 2024, https://foodbanknews.org/which-food-banks-are-the-biggest-in-the-u-s-2024.
Ohls et al. 2002 and United Way, "Strengthening Food Security," https://www.unitedway.org/our-impact/healthy-community/food-security, Salvation Army, "Hunger," https://www.salvationarmyusa.org/hunger, and Catholic Charities, "What We Do: Food and Nutrition," https://www.catholiccharitiesusa.org/what-we-do/food-and-nutrition.
Ohls et al. 2002, pp. 16, 50.
Feeding America, "Our Lawmakers Must Invest in TEFAP," https://www.feedingamerica.org/advocate/the-emergency-food-assistance-program (accessed June 2025). For state-specific rates, see Feeding America, "State-by-State Resource: How Food Banks and the Farm Bill's Nutrition Programs Address Hunger in the United States," https://feedingamericaaction.org/resources/state-by-state-food-banks-and-farm-bill (accessed June 2025). For historic rates, see Ohls et al. 2002, which found that TEFAP foods comprised 14% of foods distributed by the emergency food assistance system and TEFAP administrative funds comprised 12% to 27% of organizations' operating costs in 2000.
Cabili et al. 2013.
Section 203B of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7505); 7 C.F.R. §251.4 and 7 C.F.R. §250. A September 2024 GAO report evaluated the TEFAP food delivery process and found that while recipient organizations reported that most deliveries went smoothly, they had concerns with federal inefficiencies in regards to the rejection of spoiled foods. GAO, Charitable Food Assistance: USDA Can Enhance Guidance and Improve Program Performance Assessment, GAO-24-106539, September 23, 2024, https://www.gao.gov/products/gao-24-106539.
Section 202A of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7503).
USDA, Office of Inspector General (OIG), COVID-19—Oversight of the Emergency Food Assistance Program—Final Report, August 18, 2023, https://usdaoig.oversight.gov/reports/inspection-evaluation/covid-19-oversight-emergency-food-assistance-program-final-report.
7 C.F.R. §251.2(b).
USDA, FNS, TEFAP State Contacts, https://www.fns.usda.gov/contacts.
Individual state plans are often available on the state agency's website that administers TEFAP. A list of state agencies that administer TEFAP is available at https://www.fns.usda.gov/contacts. According to Section 202A of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7503), state plans must include eligibility rules.
7 C.F.R. §251.2, 7 C.F.R. §251.5; Cabili et al. 2013.
Feeding America, The Emergency Food Assistance Program: State Guide, February 2020; Washington State Department of Agriculture, The Emergency Food Assistance Program (TEFAP): Distribution National Survey 2015, AGR 609-574. Per Section 202A of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7503), state plans must describe how the state will give recipient agencies an opportunity to provide input on the commodities selected.
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 smaller states sometimes had one central warehouse.
7 C.F.R. §251.5.
7 C.F.R. §251.10.
Section 201A of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7501).
Section 203B of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7505) gives states the option to give emergency feeding organizations priority. When they cannot meet the full demand of all eligible recipient organizations, states must give priority to emergency feeding organizations according to TEFAP regulations (7 C.F.R. §251.4). The statement that emergency feeding organizations receive the majority of TEFAP aid is based on CRS communication with the Food and Nutrition Service in September 2018.
Section 201A of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7501).
See discussion starting on page 45 of Feeding America, Hunger in America, 2014.
For a list of states that allow mobile distribution, see Feeding America, TEFAP State Policies, 2024, pp. 23-28. Recent literature on home delivery in the charitable food sector includes Urban Institute, Connecting People with Charitable Food through New Home Delivery Partnerships: Insights from DoorDash's Project DASH, September 2023, https://www.urban.org/research/publication/connecting-people-charitable-food-through-new-home-delivery-partnerships.
7 C.F.R. §250.14.
7 C.F.R. §251.10.
7 C.F.R. §251.10.
7 C.F.R. §251.10; USDA, FNS, Further Clarification on the Prohibition Against Explicitly Religious Activities As Part of TEFAP and CSFP Activities, FD-142, https://www.fns.usda.gov/usda-foods/prohibition-against-explicitly-religious-activities.
USDA, FNS, Prohibition of SNAP Recruitment and Promotion Activities by FDPIR and TEFAP Administering Agencies, Policy Memorandum No. FD-143, May 2017, https://www.fns.usda.gov/usda-foods/prohibition-snap-recruitment-and-promotion-activities-fdpir-and-tefap-administering-agencies.
USDA, FNS, "Food Distribution Programs: Improving Access and Parity," 89 Federal Register 87228, October 31, 2024, https://www.federalregister.gov/documents/2024/10/31/2024-24966/food-distribution-programs-improving-access-and-parity.
7 C.F.R. §251.5.
Feeding America, TEFAP State Policies, 2024, p. 23.
Feeding America, TEFAP State Policies, 2024, pp. 23-28.
7 C.F.R. §251.5(b).
7 C.F.R. §251.5(b)(3), as amended by 89 Federal Register 87228, October 31, 2024. Also see USDA, FNS, "Participant Eligibility in TEFAP (Revised)," FD-120, December 6, 2024, https://www.fns.usda.gov/tefap/participant-eligibility-revised.
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 is available at https://www.fns.usda.gov/contacts. For state-by-state policies, see Feeding America, TEFAP State Policies, 2024.
For an explanation of appropriated mandatory spending, see CRS Report R44582, Overview of Funding Mechanisms in the Federal Budget Process, and Selected Examples.
Funding for TEFAP's entitlement commodities is typically contained in the Supplemental Nutrition Assistance Program (SNAP) account and appropriations for administrative costs is typically contained in the Commodity Assistance Program account of annual appropriations acts.
USDA-FNS, "FY 2024 Food and Administrative Funding for TEFAP," April 19, 2024, https://www.fns.usda.gov/tefap/fy-2024-funding and USDA-FNS, "TEFAP - Availability of Foods for Fiscal Year 2025," April 28, 2025, https://www.fns.usda.gov/tefap/fr-042825.
Amounts are adjusted using the Thrifty Food Plan (TFP), a USDA-calculation that estimates the cost of purchasing a nutritionally adequate low-cost diet. The TFP is the cheapest of four diet plans meeting minimal nutrition requirements devised by USDA. USDA calculates the cost of the TFP each year to account for food price inflation; additionally, in 2021 USDA reassessed the contents of the TFP (often thought of as 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.
States may also convert any amount of administrative funds into food funds, but this happens to a lesser extent.
Prior to FY2009, from FY2002-FY2008, states were allowed to convert $10 million of entitlement commodity funds into administrative funds.
USDA, Office of Budget & Program Analysis, 2026 USDA Explanatory Notes – Food and Nutrition Service, p. 34-104.
This has occurred since FY2015 as a result of a provision in the 2014 farm bill (P.L. 113-79).
Section 27 of the Food and Nutrition Act of 2008 (codified at 7 U.S.C. §2036(b)).
Feeding America, TEFAP State Policies, 2024, p. 18.
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.
For more information, see CRS Report R44606, The Commodity Credit Corporation (CCC).
CRS communication with USDA, FNS in September 2018.
CRS review of USDA, FNS Congressional Budget Justifications for FY1983-FY2026.
CRS review of USDA, FNS Congressional Budget Justifications for FY2019-FY2026.
Farmers Impacted by Unjustified Retaliation,Farmers Impacted by Unjustified Retaliation,
releases/2018/08/27/usda-announces-details-assistance-farmers-impacted-unjustified. The largest purchases announced releases/2018/08/27/usda-announces-details-assistance-farmers-impacted-unjustified. The largest purchases announced
include pork, sweet cherries, apples, pistachios, dairy, and almonds.include pork, sweet cherries, apples, pistachios, dairy, and almonds.
release, May 23, 2019, https://www.usda.gov/media/press-releases/2019/05/23/usda-announces-support-farmers-release, May 23, 2019, https://www.usda.gov/media/press-releases/2019/05/23/usda-announces-support-farmers-
impacted-unjustified-retaliation-and.
USDA, FNS, "FY2023 USDA Explanatory Notes – Food and Nutrition Service," p. 35-134, https://www.usda.gov/sites/default/files/documents/35-2023-FNS.pdf.
USDA, FNS, "Trade Mitigation Program Eligible Recipient Agency Operational Funds," January 14, 2020, https://www.fns.usda.gov/usda-foods/trade-mitigation-program-eligible-recipient-agency-operational-funds; and USDA, FNS, "Terms and Conditions for Funds Available for Storage and Distribution of Food Purchase Distribution Program Foods," December 5, 2019, https://www.fns.usda.gov/tefap/terms-and-conditions-funds-available-storage-and-distribution-food-purchase-distribution.
USDA, FNS, "Conditions for Funds Available for the Storage and Distribution of Commodity Credit Corporation (CCC) USDA Foods," February 3, 2023, https://www.fns.usda.gov/tefap/conditions-funds-available-storage-distribution-ccc-foods.
USDA, FNS, "FY 2024 Commodity Credit Corporation TEFAP Funding," November 30, 2023, https://www.fns.usda.gov/tefap/fy24-ccc-funding.
USDA, FNS, "Fiscal Year 2025 Commodity Credit Corporation (CCC) The Emergency Food Assistance Program (TEFAP) Funding," December 2, 2024, https://www.fns.usda.gov/tefap/fy25-ccc-funding and Rebekah Alvey, "USDA suspends food bank funding source, cites 'unsustainable' expectations," AgriPulse, March 25, 2025.
USDA, FNS, "USDA Foods Available List for The Emergency Food Assistance Program (TEFAP)," https://www.fns.usda.gov/tefap/foods-available.
7 C.F.R. §250.10; 7 C.F.R. §251.2. For further details on this process, see Feeding America, TEFAP State Policies, 2024, pp. 18-19.
See "AMS CPP Procurement Schedule" at https://www.ams.usda.gov/selling-food/solicitations.
USDA, AMS, "How the Process Works," https://www.ams.usda.gov/selling-food/how-process-works.
7 C.F.R. §250.2 "Processor"; 7 C.F.R. §250.11.
USDA, AMS, "How the Process Works," https://www.ams.usda.gov/selling-food/how-process-works.
CRS calculations based on "AMS CPP Procurement Schedule for 2025 to 2026 (xlsx)," available at https://www.ams.usda.gov/selling-food/solicitations. In general, fruits and vegetables have longer procurement timeframes compared to other types of products.
USDA, FNS, "USDA Foods Available List for The Emergency Food Assistance Program (TEFAP)," https://www.fns.usda.gov/tefap/foods-available.
Cabili et al. 2013. 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.
USDA, Office of Budget & Program Analysis, 2025 USDA Explanatory Notes – Food and Nutrition Service, p. 34-134.
USDA, Office of Budget & Program Analysis, 2026 USDA Explanatory Notes – Food and Nutrition Service, pp. 34-103 to 34-104.
Healthy Eating Research, Healthy Eating Research Nutrition Guidelines for the Charitable Food System, March 2020, p. 11.
M. F. Gombi-Vaca and M. B. Schwartz, "Evaluation of US Department of Agriculture Foods Programs for Households Using Nutrition Guidelines for the Charitable Food System," Journal of the Academy of Nutrition and Dietetics, 2023. For prior research, see 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, https://www.fns.usda.gov/sites/default/files/ops/NutrientMyPyramid.pdf.
Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7508).
Section 203D and Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7507). Also see Cabili et al. 2013.
Section 204 of the Emergency Food Assistance Act Of 1983 (codified at 7 U.S.C. §7508).
Committee reports accompanying P.L. 116-94, P.L. 116-260, P.L. 117-103, P.L. 117-328, and P.L. 118-42.
Section 209 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7511a).
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.
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.
USDA, Office of Budget & Program Analysis, 2025 USDA Explanatory Notes – Food and Nutrition Service, p. 34-135.
Section 204 of the Emergency Food Assistance Act Of 1983 (codified at 7 U.S.C. §7508). States may count funds they spend on direct expenses of emergency feeding organizations toward this requirement.
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," https://www.fns.usda.gov/tefap/percentage-tefap-administrative-funds-passed-through-state-agencies-emergency-feeding (accessed June 2025).
USDA, Office of Budget & Program Analysis, 2026 USDA Explanatory Notes – Food and Nutrition Service, p. 34-104.
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.
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 (accessed June 2025).
USDA, FNS, "FY 2024 Farm to Food Bank Project Summaries," https://www.fns.usda.gov/tefap/fy24-farm-food-bank-projects.
7 C.F.R. §251.3(h). Administrative funds use the same formula as commodities according to Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7508).
This explanation draws upon Appendix B of Cabili et al. 2013.
Section 204 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7508).
USDA, FNS, "Percentage of TEFAP Administrative Funds Passed Through from State Agencies to Emergency Feeding Organizations," https://www.fns.usda.gov/tefap/percentage-tefap-administrative-funds-passed-through-state-agencies-emergency-feeding. Note that territories are exempted from the matching requirement if it is under $200,000 (7 C.F.R. §251.9).
Washington State Department of Agriculture, The Emergency Food Assistance Program (TEFAP): Distribution National Survey 2015, AGR 609-574.
Section 215 of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7516).
7 C.F.R. §250.69; USDA, FNS, Food Distribution Division, "USDA Foods Program Disaster Manual," revised September 2017, https://www.fns.usda.gov/usda-foods/program-disaster-manual; USDA, FNS, "USDA Foods Disaster Assistance," https://www.fns.usda.gov/disaster/usda-foods-disaster-assistance. Note that households cannot receive both disaster SNAP benefits and disaster USDA Foods. USDA Foods for household consumption are most often obtained from inventories intended for TEFAP, the Commodity Supplemental Food Program, and the Food Distribution Program on Indian Reservations.
7 C.F.R. §250.69(g).
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.
For example, the Bipartisan Budget Act of 2018 (P.L. 115-123) provided $24 million in supplemental funding for TEFAP commodities and administrative funds to jurisdictions that received a major disaster or emergency declaration related to the consequences of Hurricanes Harvey, Irma, and Maria or wildfires in 2017. More recently, the American Relief Act of 2025 (P.L. 118-158) included $25 million for TEFAP agencies' infrastructure needs related to major disasters that occurred in 2023 or 2024.
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.
USDA, FNS, "Disaster Household Distribution," June 11, 2020, https://www.fns.usda.gov/usda-foods/covid-19-disaster-household-distribution.
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.
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; USDA, Office of Inspector General (OIG), COVID-19—Oversight of the Emergency Food Assistance Program—Final Report, August 18, 2023, https://usdaoig.oversight.gov/reports/inspection-evaluation/covid-19-oversight-emergency-food-assistance-program-final-report.
For a discussion of 118th Congress farm bill efforts, see CRS Report R48167, The 2024 Farm Bill: H.R. 8467 Compared with Current Law.
For further discussion, see CRS Report R45525, The 2018 Farm Bill (P.L. 115-334): Summary and Side-by-Side Comparison.
USDA issued guidance regarding this provision on August 15, 2019; USDA, FNS, "Best Practices to Minimize Food Waste of Privately Donated Foods to The Emergency Food Assistance Program (TEFAP) State Agencies and Emergency Feeding Organizations," August 15, 2019, https://www.fns.usda.gov/tefap/best-practices-minimize-food-waste.
Adapted from CRS Report RL30164, The Emergency Food Assistance Program and Emergency Feeding Needs; and CRS Issue Brief IB85095, Commodity Donations to the Poor: The Temporary Emergency Food Assistance Program. (These reports are no longer available.)
Further discussion of the history and expansion of the emergency feeding network is in Doug O'Brien, Erinn Staley, Stephanie Uchima, Eleanor Thompson, and Halley Torres Aldeen, The Charitable Food Assistance System: The Sector's Role in Ending Hunger in America, UPS Foundation and the Congressional Hunger Center, 2004, https://www.hungercenter.org/wp-content/uploads/2012/10/The-Charitable-Food-Assistance-System-Americas-Second-Harvest.pdf.
Adapted from CRS Report RL30164, The Emergency Food Assistance Program and Emergency Feeding Needs; and CRS Issue Brief IB85095, Commodity Donations to the Poor: The Temporary Emergency Food Assistance Program. (These reports are no longer available.)
See CRS Report RL33934, The 2008 Farm Bill: A Summary of Major Provisions and Legislative Action (available to congressional clients upon request).
See CRS Report R43332, SNAP and Related Nutrition Provisions of the 2014 Farm Bill (P.L. 113-79).
USDA, FNS Congressional Budget Justifications for FY2008-FY2020, available at USDA, "Congressional Justifications: Archived USDA Explanatory Notes," https://www.usda.gov/obpa/congressional-justifications.
USDA, "USDA Announces Details of Assistance for Farmers Impacted by Unjustified Retaliation," press release, August 27, 2018, https://www.usda.gov/media/press-releases/2018/08/27/usda-announces-details-assistance-farmers-impacted-unjustified; USDA, "USDA Announces Support for Farmers Impacted by Unjustified Retaliation and Trade Disruption," press release, May 23, 2019, https://www.usda.gov/media/press-releases/2019/05/23/usda-announces-support-farmers-impacted-unjustified-retaliation-and. For more information, see CRS Report R45310, Farm Policy: USDA's 2018 Trade Aid Package; and CRS Report R45865, Farm Policy: USDA's 2019 Trade Aid Package.
Nicholas Kulish, "'Never Seen Anything Like It': Cars Line Up for Miles at Food Banks," April 8, 2020, New York Times, https://www.nytimes.com/2020/04/08/business/economy/coronavirus-food-banks.html.
USDA, FNS, "Conditions for Funds Available for the Storage and Distribution of Commodity Credit Corporation (CCC) USDA Foods," February 3, 2023, https://www.fns.usda.gov/tefap/conditions-funds-available-storage-distribution-ccc-foods; and USDA, FNS, "FY 2024 Commodity Credit Corporation TEFAP Funding," November 30, 2023, https://www.fns.usda.gov/tefap/fy24-ccc-funding.
TEFAP spending was roughly $500-$700 million annually (unadjusted) in FY2010-FY2018.