Food Banks and Other Emergency Feeding Organizations: Federal Aid and the Response to COVID-19

Food Banks and Other Emergency Feeding Organizations: Federal Aid and the Response to COVID-19

Food Banks and Other Emergency Feeding
June 25, 2020
Organizations: Federal Aid and the Response
Kara Clifford Billings,
to COVID-19
Coordinator
Analyst in Social Policy
During the Coronavirus Disease 2019 (COVID-19) pandemic, rising unemployment rates and

other factors led an increasing number of Americans to seek food assistance. Food banks, food
Erica A. Lee
pantries, and other emergency feeding organizations—sometimes referred to as the charitable
Analyst in Emergency
food assistance network—are often the first place people go when they become food insecure,
Management and Disaster
and these organizations have experienced an influx in demand during the pandemic. At the same
Recovery
time, they have had to address safety concerns resulting from COVID-19, often operating with

fewer staff or utilizing the National Guard to distribute food, and setting up drive-through and
mobile food distributions.
Elizabeth M. Webster
Analyst in Emergency
Management and Disaster
While the charitable food assistance network relies heavily on private donations, federal
Recovery
programs also provide a significant source of food and revenue for emergency feeding

organizations. The primary federal programs that support food banks and other emergency
feeding organizations are administered by the U.S. Department of Agriculture (USDA) and the

Department of Homeland Security’s (DHS’s) Federal Emergency Management Agency (FEMA).
Ongoing programs , including The Emergency Food Assistance Program (TEFAP) and Emergency Food and Shelter Program
(ESFP), have received supplemental appropriations during the pandemic. Other programs have been activated (USDA’s
Disaster Household Distribution program and FEMA’s Public Assistance (PA) program) or created (USDA’s Farmers to
Families Food Box program) in response to the pandemic. Recent legislation has proposed additional funding for existing
programs as well as the creation of new programs and funding streams for emergency feeding organizations.
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Contents
Introduction ................................................................................................................... 1
Impact of COVID-19 on Emergency Feeding Organizations .................................................. 2
Federal Programs that Support Emergency Feeding Organizations During the COVID-19
Pandemic .................................................................................................................... 5
USDA Programs........................................................................................................ 6
The Emergency Food Assistance Program (TEFAP) .................................................. 6
Disaster Household Distribution ........................................................................... 10
Farmers to Families Food Box Program ................................................................. 11
FEMA Programs ..................................................................................................... 13
Emergency Food and Shelter Program ................................................................... 13
Stafford Act Public Assistance Program ................................................................. 16
Selected Legislative Proposals ........................................................................................ 19

Tables
Table 1. Federal Programs Providing Aid to Emergency Feeding Organizations During
the COVID-19 Pandemic............................................................................................... 6
Table 2. Sources of Federal Funding for Food Banks and Other Emergency Feeding
Organizations, FY2020 ............................................................................................... 18

Contacts
Author Information ....................................................................................................... 21

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Emergency Feeding Organizations: Federal Aid and the Response to COVID-19

Introduction
In April 2020, news reports of farmers dumping milk and plowing under crops corresponded with
footage of cars lining up for miles outside of some food banks in the United States as a result of
the COVID-19 pandemic.1 Many of these stories raised concerns about farmers’ livelihoods as
wel as the rising number of unemployed and food insecure Americans. They also generated
increased interest in federal aid for food banks, food pantries, and other similar organizations
feeding Americans, including the newly unemployed.
Such organizations are cal ed emergency feeding organizations, and they comprise the emergency
food assistance network (also known as the charitable food assistance network). The term
emergency feeding organization, as used in this report, refers to institutions—mostly private
nonprofit institutions—that facilitate the provision of food to households and individuals in times
of need or emergency (emergency, in this sense, refers to personal or household emergencies
rather than large-scale disasters or emergencies).2 Emergency feeding organizations include food
banks, food pantries, shelters, soup kitchens, and hunger relief agencies. Food banks are typical y
regional warehouses that store and deliver food to smal er, client-facing organizations like food
pantries, shelters, and soup kitchens. In some cases, food banks may also provide food directly to
individuals and households.
In recent years, new types of organizations have arguably become part of the emergency food
assistance network, such as restaurants and chef-led organizations like World Central Kitchen,
which provides emergency food assistance in the United States and international y.3 During the
COVID-19 pandemic, many schools have also become emergency food providers. While schools
qualify for some of the programs discussed in this report, the primary sources of federal aid for
schools’ feeding efforts—the federal child nutrition programs—are not discussed here.4
The emergency food assistance network has historical y relied heavily on private donations and
state and local funding in addition to federal aid. For example, Feeding America (a nonprofit
membership and advocacy organization)5 reported that federal commodities represented one-

1 For example, see D. Yaffe-Bellany and M. Corkery, “Dumped Milk, Smashed Eggs, Plowed Vegetables: Food Waste
of the Pandemic,” New York Times, April 11, 2020, https://www.nytimes.com/2020/04/11/business/coronavirus-
destroying-food.html; J. Burnett, “ Thousands Of Cars Line Up At One T exas Food Bank As Job Losses Hit Hard,”
NPR, April 17, 2020, https://www.npr.org/2020/04/17/837141457/thousands-of-cars-line-up-at-one-texas-food-bank-
as-job-losses-hit-hard; and AP News, “ 1,000 cars line up for Nebraska food handout,” April 12, 2020,
https://apnews.com/56decced810f1d737eae0d8201df9909.
2 T his definition is similar to the characterization of the charitable food assistance system in D. O’Brien, E. Staley, S.
Uchima, E. T hompson, and H.T . Aldeen, The Charitable Food Assistance System : The Sector’s Role in Ending Hunger
in Am erica, T he UPS Foundation and the Congressional Hunger Center, 2004. A definition of em ergency feeding
organization can also be found in Section 201A of the Emergency Food Assistance Act (7 U.S.C. §7501).
3 World Central Kitchen, “Our Mission,” https://wck.org/mission.
4 For more information on child nutrition program operations during the pandemic, see U.S. Department of Agriculture
(USDA), Food and Nutrition Service (FNS), “ FNS Response to COVID-19: Child Nutrition Programs,”
https://www.fns.usda.gov/disaster/pandemic/covid-19. For background on the child nutrition programs, see CRS
Report R46234, School Meals and Other Child Nutrition Program s: Background and Funding.
5 T he Feeding America network represents a large segment of emergency feeding organizations nationwide—80% of
such organizations were affiliated with Feeding America in 2000, according to a study published in 2002 ( J.C. Ohls et
al., “ T he Emergency Food Assistance System—Findings From the Provider Survey,” prepared by Mathematica Policy
Research, Inc. for USDA, Economic Research Service, Food and Rural Economics Division, October 2002, p. 2,
https://www.ers.usda.gov/publications/pub-details/?pubid=46507).
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Emergency Feeding Organizations: Federal Aid and the Response to COVID-19

quarter of the meals served by its network of 200 food banks and 60,000 food pantries in
FY2019.6
This report discusses the sources of federal aid available to emergency feeding organizations,
including new federal programs created during the COVID -19 pandemic. The primary federal
programs that support food banks and other emergency feeding organizations are administered by
the U.S. Department of Agriculture (USDA) and the Department of Homeland Security’s
(DHS’s) Federal Emergency Management Agency (FEMA). The focus of this report is on federal
programs that have a specific emphasis on emergency feeding organizations. However, there are
other programs that are not discussed in this report that may provide funding for emergency
feeding organizations among other grant recipients; these include the Commodity Supplemental
Food Program (CSFP), Milk Donation Reimbursement Program (MDRP), and Food Distribution
Program on Indian Reservations (FDPIR).7
The emergency food assistance programs discussed in this report can be distinguished from other
federal nutrition assistance programs for households such as the Supplemental Nutrition
Assistance Program (SNAP) in that they provide in-kind (food) aid rather than near-cash benefits
to households. Food banks and other emergency feeding organizations serve households that do
not participate in SNAP, such as households with incomes that are too high to qualify and
ineligible noncitizen households. They also provide supplemental foods for SNAP households; an
analysis by USDA’s Economic Research Service (ERS) found that roughly half of low-income
households that used food pantries and soup kitchens in 2018 also received SNAP benefits.8
Policy proposals to address increased food insecurity during the COVID-19 pandemic may focus
on distributing foods through the emergency food assistance network, providing near-cash
benefits (e.g., SNAP or unemployment benefits) to help households purchase foods, or other
approaches.
Impact of COVID-19 on Emergency Feeding
Organizations
The COVID-19 pandemic has caused an influx in demand for food banks and other emergency
feeding organizations.9 At the same time, it has posed unique chal enges for many of these
organizations, including a decline in private donations from grocery stores, restaurants, and
individuals, fewer or more expensive foods available for purchase, and reduced ability to utilize
volunteers for safety reasons.10

6 CRS communication with Feeding America on June 2, 2020.
7 For more information on CSFP and FDPIR, see CRS Report R42353, Domestic Food Assistance: Summary of
Program s. For more information on MDRP, see CRS In Focus IF11188, 2018 Farm Bill Prim er: Dairy Program s.
8 Among households with annual incomes below 185% of the poverty guidelines, 52.7% that used food pantries and
57.8% that used emergency kitchens in 201 8 also received SNAP benefits in the previous month, according to A.
Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, Statistical Supplem ent to Household Food Security in the
United States in 2018, AP-081, USDA, Economic Research Service, September 2019, pp. 20-
21, https://www.ers.usda.gov/publications/pub-details/?pubid=94869.
9 For example, see N. Kulish, “‘Never Seen Anything Like It’: Cars Line Up for Miles at Food Banks,” New York
Tim es, April 8, 2020, https://www.nytimes.com/2020/04/08/business/economy/coronavirus-food-banks.html and A.
Vesoulis, “’It’s a Bucket Brigade on a 5-Alarm Fire.’ Food Banks Struggle to Keep Up With Skyrocketing Demand,”
Tim e, April 24, 2020, https://time.com/5825944/food-banks-coronavirus/.
10 For example, see L. Reiley, “ Food banks are seeing volunteers disappear and supplies evaporate as coronavirus fears
mount ,” Washington Post, March 16, 2020, https://www.washingtonpost.com/business/2020/03/16/food-banks-are-
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Prior to the pandemic, analyses of national survey data found that 5% to 10% of households
utilized food pantries, food banks, soup kitchens, or other charitable food assistance.11
During the pandemic, Feeding America has administered biweekly surveys to its 200 food bank
members.12 Based on one of these surveys, conducted from May 4, 2020, to May 6, 2020,
Feeding America reported that 98% of the network’s food banks experienced an increase in
demand compared to the same time in 2019. The reported increase in clients ranged from 10% to
200%, with an average increase of 59%.13 The surveyed food banks estimated that nearly 4 out of
10 clients were new to charitable food assistance.
In addition to the chal enges of increasing demand, news outlets reported that many food banks
and pantries have turned away volunteers during the pandemic out of safety concerns, particularly
for high-risk populations such as older volunteers. Several states have mobilized the National
Guard to help fil the gap and meet increasing demand.14 The Feeding America survey found that
“30 percent of food banks are stil accepting and in need of volunteers, while 53 percent of food
banks or agency partners have deployed the National Guard for support.”15
Whether because of safety, financial, or other factors, the Feeding America survey found that
approximately 18% of the food pantries and meal programs that partner with its food banks have
closed or suspended operations during the pandemic.16

seeing-volunteers-disappear-food-supply-evaporate-coronavirus-fears-mount/; and Feeding America, “ Feeding
America Food Bank Network Projects $1.4 Billion Shortfall Due T o T he COVID-19 Crisis,” April 1, 2020,
https://www.feedingamerica.org/about -us/press-room/feeding-america-food-bank-network-projects-14-billion-
shortfall-due-covid-19.
11 According to an analysis of Current Population Survey (CPS) data by USDA ERS, an estimated 5.7 million
households (4.4%) utilized food pantries and at least 657,000 households (0.5%) utilized soup kitchens in 2018 (A.
Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, Statistical Supplem ent to Household Food Security in the
United States in 2018, AP-081, USDA, ERS, September 2019). However, this is likely an underestimate of the
population using emergency food assistance because the sample did not include certain households with incomes over
185% of the poverty guidelines and the CPS does not fully capture households who are homeless or in tenuous housing
arrangements. For comparison, an analysis of a survey by the Urban Institute (E. Waxman, N. Joo, and D. Gonzalez,
“Who Is Accessing Charitable Food in America?,” Urban Institute, December 2019, https://www.urban.org/research/
publication/who-accessing-charitable-food-america) found that 10.3% of adults reported that they or someone in their
household used charitable food (defined as receiving free groceries or a free meal in the 30 days before the survey).
12 CRS communication with Feeding America on June 2, 2020.
13 Feeding America, “Feeding America Network Stays Resilient During COVID-19 Crisis,” May 12, 2020,
https://www.feedingamerica.org/about -us/press-room/feeding-america-network-stays-resilient-during-covid-19-crisis.
14 For example, see A. Quigley, “National Guard to distribute food at sites across Vermont,” VTDigger, April 21 2020,
https://vtdigger.org/2020/04/21/national-guard-to-distribute-food-at-sites-across-vermont/; E. Wilkinson, “ National
Guard deployed to help Washington food banks,” King5, April 3, 2020, https://www.king5.com/article/news/health/
coronavirus/national-guard-deployed-to-help-washington-food-banks; J. Ruwitch, “ California Leans On National
Guard T o Help With Food Banks,” NPR, March 29, 2020, https://www.npr.org/2020/03/29/823592895/california-
leans-on-national-guard-to-help-with-food-banks.
15 Feeding America, “Feeding America Network Stays Resilient Durin g COVID-19 Crisis,” May 12, 2020,
https://www.feedingamerica.org/about -us/press-room/feeding-america-network-stays-resilient-during-covid-19-crisis.
16 Ibid.
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Food Insecurity During the COVID-19 Pandemic
Recent analyses have shown an increase in food insecurity rates during the pandemic. Food insecurity refers to
reduced food intake and disrupted eating patterns due to a lack of resources, and is a way that researchers
quantify hunger (food security is the absence of such conditions).17 In a survey administered between March 25,
2020, and April 10, 2020, the Urban Institute found that 21.9% of adults were food insecure.18 This was nearly
double the household food insecurity rate of 11.1% in 2018 (the most recent official federal-level estimate).19 The
Urban Institute found that food insecurity rates were significantly higher among adults whose families lost jobs,
work hours, or work-related income (29.6%) compared to those whose families did not (16.3%). Using data from
the Urban Institute survey and another survey, the Hamilton Project (an initiative of the Brookings Institution),
found a similar increase in food insecurity among households with children.20
An analysis by Feeding America published in May 2020 projected future increases in food insecurity under different
scenarios of poverty and unemployment. It projected that 3.3 mil ion to 17.1 mil ion Americans could become
newly food insecure should poverty and unemployment continue to increase.21 Feeding America’s research also
projected variations in food insecurity rates by state and county.22
In addition, the U.S. Census Bureau has administered Household Pulse Surveys during the COVID-19 pandemic,
which include questions on food insufficiency—a narrower measure than food insecurity that examines whether
households have enough to eat. The most recent Household Pulse Survey as of the date of this report, conducted
between June 11, 2020, and June 16, 2020, found that 9.8% of adults (24.5 mil ion individuals) reported food
insufficiency in the last seven days: 8.1% said that they sometimes did not have enough to eat and 1.7% said that
they often did not have enough to eat.23 For comparison, 8.1% of adults (20.1 mil ion individuals) reported food
insufficiency prior to the pandemic (which the Census Bureau classified as March 13, 2020).24 There was a larger
increase in the proportion of adults who reported that they had enough food “but not always the kinds of food
[they] wanted to eat”: 19.8% of adults (49.4 mil ion individuals) reported this was the case before the pandemic,
and 31.1% of adults (77.5 mil ion individuals) reported this was the case between June 11 and June 16.25
Of adults who reported food insufficiency in the most recent Household Pulse Survey, 19.3% reported receiving
free groceries or a free meal, 7.8% reported receiving a free meal from a food pantry or food bank, 4.2% reported
receiving a free meal from a religious organization, and 0.8% reported receiving a free meal from a shelter or soup
kitchen in the last seven days (respondents could select more than one category).26
Despite chal enges, many food banks and other emergency feeding organizations have continued
providing meals during the pandemic by setting up drive-through food distributions, delivering

17 For the definition of food insecurity, see A. Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, Household
Food Security in the United States in 2018 , ERR-270, USDA, ERS, 2019. For further background on the measur ement
of food insecurity, see CRS Report R42353, Dom estic Food Assistance: Sum m ary of Program s.
18 M. Karpman, S. Zuckerman, D. Gonzalez, and G.M. Kenney, The COVID-19 Pandemic Is Straining Families’
Abilities to Afford Basic Needs, Urban Institute, April 2020, https://www.urban.org/research/publication/covid-19-
pandemic-straining-families-abilities-afford-basic-needs.
19 A. Coleman-Jensen, M.P. Rabbitt, C.A. Gregory, and A. Singh, Household Food Security in the United States in
2018, ERR-270, U.S. Department of Agriculture, Economic Research Service, 2019.
20 L. Bauer, The COVID-19 Crisis Has Already Left Too Many Children Hungry in America , Hamilton Project,
Brookings Institution, May 6, 2020, https://www.hamiltonproject.org/blog/
the_covid_19_crisis_has_already_left_too_many_children_hungry_in_america .
21 Feeding America, The Impact of the Coronavirus on Food Insecurity, brief, April 2020,
https://www.feedingamerica.org/research/coronavirus-hunger-research.
22 Feeding America, The Impact of the Coronavirus on Local Food Insecurity, brief, May 2020,
https://www.feedingamerica.org/research/coronavirus-hunger-research.
23 U.S. Census Bureau, Household Pulse Survey: June 11-June 16, “T able 2b. Food Sufficiency for Households, in the
Last 7 Days, by Select Characteristics,” https://www.census.gov/data/tables/2020/demo/hhp/hhp7.html.
24 6.4% of adults said that they sometimes did not have enough to eat and 1.7% said that they often did not have enough
to eat prior to the pandemic. U.S. Census Bureau, Household Pulse Survey: April 23 -May 5, “ T able 2a. Food
Sufficiency for Households, Prior to COVID-19 Pandemic, by Select Characteristics,” https://www.census.gov/data/
tables/2020/demo/hhp/hhp5.html.
25 Ibid.
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food directly to households, and partnering with other meal providers such as schools, among
other strategies.27 While private donations from grocery stores and individuals have declined in
some places, new private donations have occurred as a result of the pandemic.28 In addition, some
states may provide emergency funding for emergency feeding organizations. For example, on
May 3, 2020, New York Governor Andrew Cuomo announced the Nourish New York initiative,
which wil provide $25 mil ion to food banks and emergency feeding providers, primarily to
purchase surplus milk and dairy products.29 Also, as discussed in the sections to follow,
emergency feeding organizations have received increased federal aid in FY2020, largely as a
result of emergency funding and programs.
Federal Programs that Support Emergency Feeding
Organizations During the COVID-19 Pandemic
The following sections discuss a variety of federal programs, most of which existed prior to the
pandemic. Others have been established specifical y to respond to demands resulting from the
pandemic. Of the pre-existing programs, some provide food assistance on an ongoing basis, while
others are emergency authorities triggered by presidential y declared major disasters and/or
emergencies under the Robert T. Stafford Disaster Relief and Emergency Assistance Act
(hereinafter, the Stafford Act).30 These emergency response programs (USDA’s Disaster
Household Distribution program and FEMA’s Public Assistance program) have been activated in
response to the President’s emergency declaration and subsequent major disaster declarations in
response to COVID-19.31
Table 1 summarizes the federal programs that have provided aid to emergency feeding
organizations during the pandemic.

26 Ibid.
27 For example, see A. T adayon, “ California food banks partner with schools to serve families of students,” EdSource,
March 30, 2020, https://edsource.org/2020/california-food-banks-partner-with-schools-to-serve-families-of-students/
627322.
28 For example, see Feeding America, “ COVID-19 Response Partners,” https://www.feedingamerica.org/about-us/
partners/covid-19-response-partners; and Feeding America, “ Feeding America Responds T o $100 Million Gift from
Jeff Bezos In Support of Food Banks During COVID-19 Pandemic,” April 2, 2020, https://www.feedingamerica.org/
about-us/press-room/jeff-bezos-support -food-banks.
29 New York State Department of Agriculture and Markets, “New York State Provides Additional Details on $25
Million in Funding for Food Banks T hrough Nourish New York Initiative,” May 3, 2020, https://agriculture.ny.gov/
news/new-york-state-provides-additional-details-25-million-funding-food-banks-through-nourish-new.
30 P.L. 93-288 as amended (42 U.S.C. §§5121 et seq.).
31 Letter from Donald J. T rump, President of the United States, to Acting Secretary Wolf, Secretary Mnuchin, Se cretary
Azar, and Administrator Gaynor, March 13, 2020, https://www.whitehouse.gov/wp-content/uploads/2020/03/
LetterFromThePresident.pdf. T he Stafford Act may be found at 42 U.S.C. §§5121 et seq; Stafford Act Declarations as
of June 2, 2020. FEMA, “COVID-19 Disaster Declarations,” https://www.fema.gov/coronavirus/disaster-declarations.
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Table 1. Federal Programs Providing Aid to Emergency Feeding Organizations
During the COVID-19 Pandemic
Operates on
an Ongoing
Operates
Basis,
Based on
Regardless
Stafford
Established
of Major
Act Major
Temporarily Established
Disaster or
Disaster or
in Response
Temporarily
Emergency
Emergency
to COVID-
for Other
Programs
Declarationa Declaration
19
Purposes
USDA Programs

The Emergency Food Assistance Program
X

(TEFAP)
Section 32 bonus commodity purchases
X

Commodity Credit Corporation (CCC) Food

X
Purchase and Distribution Program (FPDP)
Disaster Household Distribution

X

Farmers to Families Food Box Program

X

FEMA Programs

Emergency Food and Shelter Program (EFSP)
X

Public Assistance (PA) program

X

Source: Congressional Research Service (CRS), based on current law.
a. Some of these programs received supplemental funding in COVID-19 response legislation.
USDA Programs
The Emergency Food Assistance Program (TEFAP)
Administered by USDA’s Food and Nutrition Service (FNS), TEFAP provides federal y
purchased foods (hereinafter, USDA Foods) and administrative funds to states for distribution to
emergency feeding organizations.32 While certain other charitable institutions are eligible for
TEFAP aid, priority is given to emergency feeding organizations that “relieve situations of
emergency and distress through the provision of food to needy persons, including low-income
and unemployed persons.”33
There are two types of TEFAP commodities: entitlement commodities and bonus commodities.
Both types of commodities are domestical y grown, but entitlement commodities are selected
from a list of USDA Foods by states and emergency feeding organizations, whereas bonus
commodities are selected by USDA based on agricultural surpluses and made available to states
and emergency feeding organizations (discussed further in the “USDA Food Purchasing and
Delivery Process” section).

32 Further detail on T EFAP can be found in CRS Report R45408, The Emergency Food Assistance Program (TEFAP):
Background and Funding.
33 7 C.F.R. §251.4; Section 203B of the Emergency Food Assistance Act of 1983 (codified at 7 U.S.C. §7505).
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In FY2020, legislation responding to COVID-19 has more than tripled the amount of funding
available for TEFAP entitlement commodities compared to prior years. The annual appropriation
for TEFAP entitlement commodities, provided in the Further Consolidated Appropriations Act for
FY2020 (P.L. 116-94), enacted on December 20, 2019, was $322 mil ion.34 Subsequently, the
Families First Coronavirus Response Act (FFCRA; P.L. 116-127), enacted on March 18, 2020,
provided an additional $400 mil ion for TEFAP entitlement commodities, up to $100 mil ion of
which could be used for food distribution costs. The Coronavirus Aid, Relief, and Economic
Security Act (CARES Act, P.L. 116-136), enacted on March 27, 2020, provided another $450
mil ion for TEFAP entitlement commodities, up to $150 mil ion of which could be used for food
distribution costs. In total, at least $972 mil ion35 is available for TEFAP entitlement commodities
in FY2020, compared to approximately $295 mil ion in FY2019.
There is also a higher-than-usual amount of bonus commodities available for TEFAP in FY2020,
due in part to a food purchasing and distribution component of the Administration’s second round
of aid for producers affected by trade disputes. From FY2014 to FY2018, USDA purchased
roughly $300 mil ion annual y in bonus commodities for TEFAP.36 In FY2019, bonus purchases
increased to $1.46 bil ion with the first round of trade aid purchases. FY2020 bonus purchases are
likely to exceed the FY2019 amount (discussed in the next section).
TEFAP statute also authorizes discretionary administrative funds that participating state agencies
and emergency feeding organizations can use for food storage, preparation, and distribution; and
equipment, personnel, and related costs.37 The FY2020 annual appropriation for TEFAP
administrative funds was $80 mil ion (P.L. 116-94). As noted above, FFCRA subsequently
provided up to $100 mil ion and the CARES Act provided up to $150 mil ion “for food
distribution costs.” FNS guidance indicates that these funds wil be treated as administrative
funds.38
Table 2 displays FY2020 funding for TEFAP and the other programs discussed in this report.
Bonus Commodity Purchasing Authorities: Section 32 and Commodity Credit
Corporation
TEFAP has the capability to receive bonus commodities from two USDA market support
programs: Section 32 and the Commodity Credit Corporation (CCC).
Section 32 of the Act of August 24, 1935, is a permanent appropriation that sets aside 30% of
annual customs receipts ($15.1 bil ion in FY2020) to support the farm sector through the
purchase of surplus commodities and other activities.39 USDA’s Agricultural Marketing Service

34 T he annual appropriation for T EFAP’s entitlement commodities is based on a level of funding specified in Section
27 of the Food and Nutrition Act of 2008, which creates a mandatory level of spending that requires annual
appropriation.
35 T his assumes that states opt to use the maximum funding available for food distribution costs under FFCRA (up to
$100 million) and the CARES Act (up to $150 million).
36 USDA, Office of Budget and Program Analysis, “2021 Explanatory Notes – Food and Nutrition Service,” p. 34-104,
https://www.usda.gov/sites/default/files/documents/32fns2021notes.pdf.
37 Section 204 of the Emergency Food Assistance Act of 1983 (7 U.S.C. §7508); 7 C.F.R. §251.8; USDA FNS, “T he
Emergency Food Assistance Program (T EFAP): Administrative Costs,” FNS Instruction 716-3 (Revision 1), August 9,
2002, https://www.fns.usda.gov/tefap/emergency-food-assistance-program-tefap-administrative-costs.
38 USDA, FNS, “T he Emergency Food Assistance Program (T EFAP): Allocation of Coronavirus Aid, Relief, and
Economic Security Act Supplemental Appropriations,” April 24, 2020.
39 For more information, see CRS Report RL34081, Farm and Food Support Under USDA’s Section 32 Program.
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(AMS) uses a portion of these funds to purchase surplus commodities for distribution through
TEFAP and other nutrition assistance programs. In FY2019, AMS purchased $395.7 mil ion in
bonus commodities for nutrition assistance programs using Section 32 authority.40
An April 17, 2020, USDA press release on the COVID-19 response noted:
USDA has up to an additional $873.3 million available in Section 32 funding to purchase
a variety of agricultural products for distribution to food banks. The use of these funds wil
be determined by industry requests, USDA agricultural market analysis, and food bank
needs.
On May 4, 2020, USDA announced $470 mil ion in purchases using Section 32 authority,
including fruits, vegetables, dairy, poultry, fish, and pork, for distribution through TEFAP and
possibly other nutrition assistance programs.41
The CCC, a government-owned entity that finances authorized programs that support U.S.
agriculture,42 may provide budget authority for bonus purchases for delivery through TEFAP and
additional avenues, among its other purposes. It has permanent authority to borrow up to $30
bil ion from the U.S. Treasury to finance its programs, which is reimbursed as needed by annual
Agriculture appropriations acts.43
In recent years, USDA has used the CCC to fund a Food Purchase and Distribution Program
(FPDP), administered by AMS, to purchase surplus commodities affected by trade retaliation.44
USDA’s 2018 trade aid package, announced in August 2018, included $1.2 bil ion in bonus
purchases for distribution through TEFAP and other nutrition assistance programs.45 The vast
majority of these foods—$1.1 bil ion worth—were distributed through TEFAP in FY2019.46
USDA’s second trade aid package, announced in May 2019, provided another $1.4 bil ion for

40 USDA, Office of Budget and Program Analysis, “2021 Explanatory Notes – Agricultural Marketing Service,” p. 23-
126, https://www.usda.gov/sites/default/files/documents/21ams2021notes.pdf.
41 USDA, AMS, “ USDA Announces Additional Food Purchase Plans,” May 4, 2020, https://www.ams.usda.gov/press-
release/usda-announces-additional-food-purchase-plans.
42 For CCC purchasing authorities, see Section 5 of the CCC Charter Act. T he Secretary of Agriculture’s authority to
donate such commodities to T EFAP is established by Section 17 of the Commodity Distribution Reform and WIC
Amendments Act Of 1987.
43 For more information, see CRS Report R44606, The Commodity Credit Corporation: In Brief.
44 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.
45 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. T he largest purchases announced include pork, sweet cherries, apples, pistachios, dairy, and
almonds. 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.
46 USDA, Office of Budget and Program Analysis, “2021 Explanatory Notes – Agricultural Marketing Service,” p. 23-
126, https://www.usda.gov/sites/default/files/documents/21ams2021notes.pdf.
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bonus purchases, largely for distribution through TEFAP in FY2020.47 Planned purchases include
“fruits, vegetables, some processed foods, beef, pork, lamb, poultry, and milk.”48
Using CCC authority, USDA also provided more than $50 mil ion in administrative funds to
participating TEFAP organizations for costs associated with the receipt, storage, and distribution
of FPDP foods in FY2019.49 In FY2020, approximately $60 mil ion is available for this purpose.50
USDA Food Purchasing and Delivery Process
The processes for procuring and delivering USDA Foods are based on federal law, regulations,
and agency policy. The process described in this section is specific to TEFAP, but similar
processes are used for other federal nutrition assistance programs that use USDA Foods.
The process starts with determining what foods wil be available. In the case of entitlement
commodities, FNS and AMS work together to determine a list of foods for the fiscal year that wil
be procurable and usable by emergency feeding organizations.51 In the case of bonus
commodities, AMS determines which foods it wil purchase on an ongoing basis throughout the
year based on the needs of producers.
State agencies, in consultation with emergency feeding organizations, place orders via the USDA
Foods catalog (in some cases, state agencies may delegate this responsibility to food banks).52
They use their al ocated 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 available.53 Most foods show up in the catalog on a monthly or quarterly basis; others are
only available in the catalog at certain times of the year (e.g., fresh whole apples).54
Once organizations make their selections, AMS publishes a solicitation via an online system,
which “describes USDA’s needs in terms of the product, volume, delivery destination (city/State)

47 USDA, “USDA Announces Support for Farmers Impacted by Unjustified Retaliation and T rade Disruption,” press
release, May 23, 2019, https://www.usda.gov/media/press-releases/2019/05/23/usda-announces-support -farmers-
impacted-unjustified-retaliation-and. Historically, CCC surplus commodities have been distributed through T EFAP and
other FNS nutrition assistance programs. However, in July 2019 USDA issued regulations to establish its authority to
distribute these foods to outlets outside of FNS nutrition assistance programs. T herefore, emergency feeding
organizations may not be the only recipients of these commodities. See USDA, CCC, “ T rade Mit igation Program,” 84
Federal Register 36456, July 29, 2019, https://www.federalregister.gov/documents/2019/07/29/2019-15700/trade-
mitigation-program.
48 USDA, AMS, “ USDA Announces Additional Food Purchase Plans,” May 4, 2020, https://www.ams.usda.gov/press-
release/usda-announces-additional-food-purchase-plans.
49 USDA, Office of Budget and Program Analysis, “2021 Explanatory Notes – Food and Nutrition Service,” p. 34-104,
https://www.usda.gov/sites/default/files/documents/32fns2021notes.pdf.
50 USDA, FNS, “ T erms 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.
51 For the FY2020 list, see USDA, FNS, “USDA Foods Available List for T he Emergency Food Assistance Program
(T EFAP) 2020,” August 2019, https://fns-prod.azureedge.net/sites/default/files/resource-files/tefap-foods-available.pdf.
52 7 C.F.R. §250.10; 7 C.F.R. §251.2(i).
53 In FY2019, bonus foods included apricots, beans, cheese, cherries, chicken, eggs, fig pieces, milk, oranges, orange
juice, peaches, pears, plums, pollock, pumpkin, raisins, salmon, strawberries, sweet p otatoes, and walnuts. USDA,
Office of Budget and Program Analysis, “2021 Explanatory Notes – Food and Nutrition Service,” p. 34-103,
https://www.usda.gov/sites/default/files/documents/32fns2021notes.pdf.
54 See “AMS CPP Procurement Schedule for January 2020 to June 2021 (Schedule) (xlsx) ” at
https://www.ams.usda.gov/selling-food/solicitations.
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and delivery window, and invites approved vendors to submit offers to fil the demand.”55 Pre-
approved vendors may respond to the solicitation and then AMS awards 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 processor (if the state or food bank opts to use a
portion of their entitlement funds for this purpose).56 Once the product has been delivered, AMS
pays the vendor.57 Depending on the product, it takes roughly two to five months from solicitation
through delivery.58
Disaster Household Distribution
During a presidential y declared disaster or emergency, there are program options through which
states may be able to repurpose existing inventories of USDA Foods intended for other nutrition
assistance programs for disaster/emergency feeding efforts. Specifical y, during a presidential y
declared disaster or emergency, state agencies may (1) use USDA Foods for prepared meals in
congregate settings (mass feeding) and/or (2) request FNS approval to use USDA Foods for
household distribution (pick up or delivery).59 For congregate feeding, USDA Foods are typical y
repurposed from the National School Lunch Program (NSLP), given their institutional sizing. For
Disaster Household Distribution, foods are typical y repurposed from TEFAP due to their smal er
packaging.60
Mass feeding is not a viable option during the COVID-19 pandemic, and several states have
requested USDA FNS approval to operate Disaster Household Distributions. According to the
Disaster Household Distribution COVID-19 response website, “FNS may approve state requests
for Disaster Household Distributions for targeted areas to meet specific needs when traditional
channels of food are unavailable and not being replenished on a regular basis.”61 As of May 11,
2020, USDA had approved Disaster Household Distribution programs in 18 states, Guam, and 33
tribal nations in response to COVID-19.62
Under an approved Disaster Household Distribution program, USDA Foods are provided to
disaster feeding organizations, which are selected by the state and may or may not include
TEFAP-participating organizations. These organizations distribute food boxes to households in
need of food assistance because of the disaster or emergency.63 According to program regulations,
“distribution may continue for the period that FNS has determined to be necessary to meet the
needs of such households.”64

55 USDA, AMS, “ How the Process Works,” https://www.ams.usda.gov/selling-food/how-process-works.
56 7 C.F.R. §250.11.
57 USDA, AMS, “ How the Process Works,” https://www.ams.usda.gov/selling-food/how-process-works.
58 See “AMS CPP Procurement Schedule for January 2020 to June 2021 (Schedule) (xlsx) at
https://www.ams.usda.gov/selling-food/solicitations.
59 7 C.F.R. §250.69.
60 USDA, FNS, Food Distribution Division, “USDA Foods Program Disaster Manual,” revised September 2017,
https://fns-prod.azureedge.net/sites/default/files/fdd/disaster-manual.pdf.
61 USDA, FNS, “ Disaster Household Distribution,” May 11, 2020, https://www.fns.usda.gov/usda-foods/covid-19-
disaster-household-distribution.
62 Ibid.
63 7 C.F.R. §250.69(c). Households receiving Disaster Supplemental Nutrition Assistance Program (D-SNAP) benefits
are not eligible for Disaster Household Distribution foods.
64 7 C.F.R. §250.69(b).
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USDA replenishes or reimburses federal nutrition assistance programs (e.g., TEFAP and NSLP)
for USDA Foods reprogrammed for disaster/emergency feeding during a presidential y declared
disaster or emergency.65 According to agency guidance, replacement or reimbursement of USDA
Foods may be funded under Section 4(a) of the Agriculture and Consumer Protection Act of 1973
(7 U.S.C. §612c note) and Section 32 (7 U.S.C §612c).66 USDA also reimburses state agencies for
costs associated with transporting USDA Foods (both within a state and from one state to
another) during presidential y declared disasters and emergencies.67
As noted, Disaster Household Distribution is separate from TEFAP. Some state agencies may see
an advantage in operating a Disaster Household Distribution program because of more flexible
administrative requirements (e.g., loosening eligibility rules), while others may see a
disadvantage in fewer foods being available for current TEFAP recipients and a delay in
replenishing those foods. For example, a FNS letter dated March 24, 2020, approving New York’s
Disaster Household Distribution program stated that orders to replenish TEFAP inventory “may
not be available for delivery prior to July 2020.”68 FNS guidance emphasizes that “during
disasters, emergencies, or situations of distress, States should continue to operate TEFAP if
possible.”69 FNS has also publicized “flexibilities” within TEFAP that, for example, encourage
states to consider expanding eligibility requirements.70 Recent letters from FNS approving
extensions of states’ Disaster Household Distribution programs have included the following
statement:71
Consideration of any further requests to extend disaster household distribution will be
dependent on the targeting of the request to specific areas most in need and justification as
to why the availability of other programs and resources are not meeting the State’s food
assistance needs.
Farmers to Families Food Box Program
On April 17, USDA announced a Coronavirus Food Assistance Program72 that includes $3 bil ion
for a new Farmers to Families Food Box initiative to facilitate the distribution of foods—

65 7 C.F.R. §250.69(g).
66 USDA, FNS, Food Distribution Division, “USDA Foods Program Disaster Manual,” revised September 2017, pp. 8 -
9, https://fns-prod.azureedge.net/sites/default/files/fdd/disaster-manual.pdf. Sections 412 and 413 of the Robert T .
Stafford Disaster Relief and Emergency Assistance Act authorize USDA to use Section 32 funds “ to purchase food
commodities necessary to provide adequate supplies for use in any area of the United States in the event of a major
disaster or emergency in such area” (42 U.S.C. §5180).
67 7 C.F.R. §250.69(h).
68 USDA, FNS, “Approval of Disaster Household Distribution in Response to the National Emergency Declaration due
to COVID-19,” March 24, 2020, https://fns-prod.azureedge.net/sites/default/files/resource-files/NY-COV-19-DHHD-
Final-Approval.pdf.
69 USDA, FNS, Food Distribution Division, “USDA Foods Program Disaster Manual,” revised September 2017, p. 26,
https://fns-prod.azureedge.net/sites/default/files/fdd/disaster-manual.pdf.
70 USDA, FNS, “T he Emergency Food Assistance Program (T EFAP) Flexibilities for State Agencies,” March 30, 2020,
https://www.fns.usda.gov/tefap/flexibilities-state-agencies.
71 For example, see New York’s extension: USDA, FNS, “Extension Approval of Disaster Household Distribution in
Response to the National Emergency Declaration Due to COVID-19,” May 28, 2020, https://fns-prod.azureedge.net/
sites/default/files/resource-files/NERO-NYWestchester-COV-DHD-Extension2-Final-Approval.pdf; and
Pennsylvania’s extension: USDA, FNS, “Extension Approval of Disaster Household Distribution in Response to the
National Emergency Declaration Due to COVID-19,” May 23, 2020, https://fns-prod.azureedge.net/sites/default/files/
resource-files/MARO-PDA-COV-DHD-Extension2-Final-Approval.pdf.
72 For more information on the Coronavirus Food Assistance Program, see CRS Report R46347, COVID-19, U.S.
Agriculture, and USDA’s Coronavirus Food Assistance Program (CFAP) ; and CRS Report R46348, COVID-19:
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specifical y, fresh fruits and vegetables, dairy, and meat products—from local and regional
suppliers to public and nonprofit organizations, including food banks, schools, tribal
organizations, and faith-based organizations.73 The stated goals of the program are to expedite
federal y sponsored food deliveries to food banks and other feeding organizations and to “sel
food previously destined for restaurants and bulk purchasers to distributors, preventing waste.”74
USDA is operating the program using authority provided by Section 1101(g) of FFCRA, which
gives the Secretary of Agriculture the authority to “purchase commodities for emergency
distribution in any area of the United States during a public health emergency designation” during
FY2020.75
Unlike TEFAP, state agencies do not play a role in the administration of the Farmers to Families
Food Box program. Instead, AMS awards contracts to businesses through a solicitation process.
According to the terms of the contracts, suppliers must package products into “family-sized
boxes” and distribute the boxes to food banks and other recipient organizations selected by the
supplier (which may or may not include TEFAP-participating organizations).76 Boxes must
contain fresh fruit and vegetables, dairy products, fluid milk, precooked meats, or a combination
of those items.77
On May 8, 2020, AMS awarded $1.2 billion for the first round of contracts. The initial food
distribution was scheduled to take three weeks to two months from solicitation (April 24) to
delivery (May 15 to June 30).78 Following the awards, some news outlets, industry organizations,
and lawmakers raised concerns about the supplier selection process.79 Some food banks also
raised concerns that the program does not include funding for their food handling and distribution
costs.80 Others have argued that the program has sped up federal aid and expanded the foods

Supply Chain Disruptions in the U.S. Fruit and Vegetable Industry: In Brief.
73 USDA, “ USDA Announces Coronavirus Food Assistance Program,” April 17, 2020, https://www.usda.gov/media/
press-releases/2020/04/17/usda-announces-coronavirus-food-assistance-program. Nonprofits must have 501(c)(3) tax
exempt status and all recipient organizations must “ demonstrate that they have the operational and financial capability
to receive, store and distribute requested food items.” USDA, AMS, “ Farmers to Families Food Box Program FAQs,”
April 27, 2020, https://www.ams.usda.gov/publications/content/farmers-families-food-box-program-faqs.
74 USDA, AMS, “ Farmers to Families Food Box Infographic,” https://www.ams.usda.gov/sites/default/files/media/
FarmerstoFamiliesFoodBox.pdf; USDA AMS webinar on April 21, 2020, recording available at
https://www.ams.usda.gov/selling-food-to-usda/farmers-to-families-food-box.
75 USDA, AMS, “Notice of Funds Availability (NOFA); Purchase of Fruit, Vegetable, Dairy, and Meat Products Due
to COVID-19 National Emergency-USDA Food Box Distribution Program,” 85 Federal Register 23325, April 27,
2020, https://www.federalregister.gov/documents/2020/04/27/2020-08979/notice-of-funds-availability-nofa-purchase-
of-fruit-vegetable-dairy-and-meat -products-due-to.
76 USDA, AMS, “ Farmers to Families Food Box,” https://www.ams.usda.gov/selling-food-to-usda/farmers-to-families-
food-box, accessed on June 8, 2020.
77 USDA, AMS, Solicitation AG-12-3J14-20-R-0377, April 24, 2020, p. 5, https://www.ams.usda.gov/sites/default/
files/media/RFP_ERAcquisition.pdf.
78 USDA, AMS, Solicitation AG-12-3J14-20-R-0377, April 24, 2020, p. 6, https://www.ams.usda.gov/sites/default/
files/media/RFP_ERAcquisition.pdf.
79 U.S. Congress, House Agriculture Committee, “ Fudge, Costa, and Plaskett Push USDA for Answers on Food Box
Contracts,” May 22, 2020; J. Hagstrom, “ Stabenow leads Dem to question Perdue about food box program ,” Hagstrom
Report, June 8, 2020; R. McCrimmon, “ USDA food boxes start flowing, direct aid on deck,” Politico Morning
Agriculture, May 18, 2020, https://www.politico.com/newsletters/morning-agriculture/2020/05/18/usda-food-boxes-
start-flowing-direct-aid-on-deck-787676; and R. McCrimmon, “ Filling the safety gap for farmworkers,” Politico
Morning Agriculture, May 12, 2020, https://www.polit ico.com/newsletters/morning-agriculture/2020/05/12/filling-the-
safety-gap-for-farmworkers-787524.
80 N. Rasul, “‘Last Mile’ Concerns Complicate USDA Food Box Program,” Food Bank News, June 2, 2020,
https://foodbanknews.com/last-mile-concerns-complicate-food-box-program/; T . Orsborn, “ San Antonio Food Bank
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available to those in-need of food assistance.81 Solicitation and awards for the remaining portions
of the program are expected through the summer and fal of 2020.
FEMA Programs
Emergency Food and Shelter Program
The Emergency Food and Shelter Program (EFSP) provides grants for ongoing programs by
private nonprofit organizations and local governments to provide shelter, food, and supportive
services for individuals and families who are homeless or experiencing economic emergencies.82
The EFSP is governed by a National Board83 that is chaired by a director (by statute, the FEMA
Administrator).84 The National Board also includes representatives from private nonprofit
organizations.85 When Congress appropriates funding to the EFSP, the director is responsible for
awarding a grant to the National Board,86 and the National Board is responsible for establishing
program guidelines87 and disbursing the funding.88 Localities (i.e., cities or counties) are
designated for funding based on a formula that includes population, poverty, and unemployment
data.89 Each locality designated for funding must establish a Local Board, which is responsible
for advertising funding availability and determining how their al otment of local funding wil be
distributed, including selecting the grant recipients (i.e., private nonprofit organizations or public

footing costly bill for USDA program, adds delay in getting food to those in need,” San Antonio Express-News, June
13, 2020, https://www.expressnews.com/news/local/article/San-Antonio-Food-Bank-footing-costly-bill-for-
15337758.php.
81 For example, see K. Whitcomb, “Free food program also helps farmers,” Rutland Herald, June 1, 2020,
https://www.rutlandherald.com/news/free-food-program-also-helps-farmers/article_14479ae4-6706-5a06-85cb-
897500559729.html and L. Moore, “ Farmers’ bounty distributed for free in ongoing Muskegon area relief effort ,”
MLive, June 5, 2020, https://www.mlive.com/news/muskegon/2020/06/farmers-bounty-distributed-for-free-in-
muskegon-heights.html.
82 EFSP was first authorized under the Stewart B. McKinney Homeless Assistance Act of 1987 (P.L. 100-77), later
renamed the McKinney-Vento Homeless Assistance Act and reauthorized under the Stewart B. McKinney Homeless
Assistance Amendments Act of 1988 (P.L. 100-628). 42 U.S.C. §11343; FEMA, “ Emergency Food and Shelter
Program,” last updated May 7, 2020, https://www.fema.gov/pt-br/media-library/assets/documents/24422.
83 42 U.S.C. §11331.
84 42 U.S.C. §11331(c) and 42 U.S.C. §11351(1).
85 42 U.S.C. §11331(b). T he nonprofit organizations that comprise the EFSP National Board include the American Red
Cross, Catholic Charities U.S.A., the Jewish Federations of North America (referred to in statute as the Council of
Jewish Federations, Inc.), the National Council of Churches of Christ in the U.S.A., the Salvation Army, and United
Way Worldwide (referred to in statute as the United Way of America). T he United Way serves as the EFSP National
Board’s Secretariat and Fiscal Agent, and administers the program nationally on a day -to-day basis (see FEMA,
“Emergency Food and Shelter Program,” fact sheet, April 29, 2020, https://www.fema.gov/media-library-data/
1588188618188-ef2cf79e8202bfb49bfe3c7c877e8542/
FACT SHEET EmergencyFoodandShelterProgramMay2020compliant.pdf (hereinafter, FEMA, “ EFSP Fact Sheet”)).
86 42 U.S.C. §11341.
87 42 U.S.C. §11346.
88 42 U.S.C. §11345.
89 Emergency Food and Shelter National Board Program (EFSP National Board), “How Areas Qualify,”
https://www.efsp.unitedway.org/efsp/website/websiteContents/index.cfm?template=qualify.cfm (last accessed May 29,
2020) (hereinafter, EFSP National Board, “ How Areas Qualify”) . Per the EFSP website, “ For fiscal years 2019 and
2020 funding, jurisdictions qualified for funding if they met one of the follo wing criteria: [1] Number of unemployed:
300 or more with a 3.7% rate of unemployment [and] [2] Number of unemployed: 300 or more with a 14.1% rate of
poverty.”
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organizations of the local government in the individual locality).90 The National Board disburses
funds directly to local recipient organizations (LROs) selected by the Local Boards.91
Additional y, localities that do not qualify under the formula may receive funds through the State
Set-Aside process, which can also be used to al ow localities that are designated for funding to
receive additional funding.92
Eligible applicants for EFSP grants through the Phase 37, Phase 38, and Phase CARES funds
(described in the following section) include private nonprofit organizations93 that provide food
and shelter services.94 Thus, food banks and other emergency feeding organizations that meet the
eligibility requirements may apply to receive a grant; however, it is a competitive grant process.95
Available EFSP Funding
In calendar year 2020, $445 mil ion in EFSP funding is set for implementation.96 Congress
appropriated $120 mil ion for the EFSP in FY2019,97 and $125 mil ion in FY2020.98 Congress
appropriated an additional $200 mil ion for the EFSP in FY2020 through the CARES Act.99 The
EFSP refers to the grant cycles as “Phases.” Thus, Phase 37 refers to the FY2019 annual funding,

90 42 U.S.C. §11332.
91 FEMA, “EFSP Fact Sheet.”
92 EFSP National Board, “How Areas Qualify.” Per the EFSP website, “[j]urisdictions that do not qualify under the
formula and thus do not receive funding directly from the National Board may receive funds through the State Set -
Aside process, and jurisdictions that do qualify may receive additional fundin g the same way.”
93 42 U.S.C. §11351(6) defines private nonprofit organization as “an organization—(A) no part of the net earnings of
which inures to the benefit of any member, founder, contributor, or individual; (B) that has a voluntary board; (C) that
has an accounting system, or has designated a fiscal agent in accordance with requirements established by the Director;
and (D) that practices nondiscrimination in the provision of assistance.”
94 EFSP National Board Program, “Preliminary Funding Notice: Phases 37, 38 and CARES Funding,”
https://www.efsp.unitedway.org/efsp/website/websiteContents/pdfs/PreliminaryFundingNoticesP37_38_CARES.pdf
(last accessed June 3, 2020) (hereinafter, EFSP, “ Preliminary Funding Notice”).
95 In order to receive an EFSP grant, potential applicants must submit an application to the Local Board in the
jurisdiction where they are providing services. EFSP, “P reliminary Funding Notice.” See also EFSP National Board
Program, “Overview and Guidance: Phases 37, 38 and CARES Calendar Year 2020,” presentation, slide 3,
https://www.efsp.unitedway.org/efsp/website/websiteContents/pdfs/
OverviewandGuidance(Phases%2037%2038%20and%20CARES).pdf (hereinafter, EFSP, “ Overview and Guidance
Presentation”). Additionally, food banks are past EFSP grant recipients. For past funded organizations, see the “Funded
Organizations” tab of the EFSP National Board website, available at https://www.efsp.unitedway.org/efsp/website/
index.cfm.
96 An additional $30 million was appropriated through T itle III of the Emergency Supplemental Appropriations for
Humanitarian Assistance and Security at the Southern Border Act, 2019 (Border Supplemental, P.L. 116-26). T he
EFSP funding through the Border Supplemental is being administered in a different way than the annually appropriated
funding and CARES Act funding and is not relevant to the discussion about programs for COVID -19 assistance. More
information regarding the Border Supplemental funding for the EFSP is available through the EFSP National Board’s
website, available at https://www.efsp.unitedway.org/efsp/website/index.cfm (see the “ Supplemental Funding Info”
tab).
97 T itle III of Division A of the Consolidated Appropriations Act, 2019 (P.L. 116-6). The EFSP National Board
published the list of FY2019 Phase 37 allocations (appropriated in P.L. 116-6), available at
https://www.efsp.unitedway.org/efsp/website/websiteContents/pdfs/Phase%2037%20Allocations.pdf.
98 T itle III of Division D of the Consolidated Appropriations Act, 2020 (P.L. 116-93). EFSP, “Preliminary Funding
Notice”; EFSP, “Overview and Guidance Presentation,” slide 5.
99 T itle VI of Division B of the CARES Act (P.L. 116-136). T he EFSP National Board published the list of FY2020
Phase CARES allocations (appropriated in P.L. 116-136), available at https://www.efsp.unitedway.org/efsp/website/
websiteContents/pdfs/Phase%20CARES%20Allocations.pdf.
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Phase 38 refers to the FY2020 annual funding, and Phase CARES refers to the FY2020 CARES
Act supplemental funding.100
EFSP Services and CARES Act Supplemental Funding for COVID-19 Feeding
Support
The following services are eligible for EFSP funding:
 food (i.e., served meals or groceries);
 lodging (i.e., mass shelter or hotel/motel, limited to 30 days per individual or
household);
 one month’s rent or mortgage payment;
 one month’s utility bil ; and
 equipment necessary to feed or shelter people (up to $300 per item).101
EFSP funding may also be used for expenses related to repairing necessary equipment (not to
exceed $300 per item), as wel as repairs to mass feeding or sheltering facilities for building code
compliance (not to exceed $2,500), and expenses related to making mass feeding or sheltering
facilities accessible for individuals with disabilities (not to exceed $2,500).102
Although the EFSP is administered by FEMA, it does not require a major disaster or emergency
declaration for implementation.103
Consistent with normal program administration, according to the Preliminary Funding Notice for
Phase CARES (which also includes the Phase 37 and Phase 38 funding), the EFSP funds “must
be used to supplement food and shelter services and may not be used as seed money for new
programs.”104 Eligible use of funds mirror the above-listed eligible services. The Preliminary
Notice of Funding and the EFSP National Board’s presentation providing an overview and
guidance for the Phase 37, Phase 38, and Phase CARES funding also provide details on the use of
funds relevant to providing services during the COVID-19 pandemic. For example, “food
services” includes home delivery meals (e.g., Meals on Wheels),105 “lodging” includes lodging in
a non-congregate setting such as a hotel/motel,106 and “supplies essential to feeding or sheltering
people” include cleaning supplies.107 Additional y, administrative funds (which are limited to 2%
of the jurisdiction’s award and require Local Board approval) “may be used to offset costs to
administer the program, including staff salary.”108

100 EFSP, “Preliminary Funding Notice.”
101 EFSP National Board, “About the Emergency Food and Shelter Program,” https://www.efsp.unitedway.org/efsp/
website/websiteContents/index.cfm?template=about.cfm (last accessed May 29, 2020)
102 EFSP, “Preliminary Funding Notice.”
103 42 U.S.C. §5122(1) and (2).
104 EFSP, “Preliminary Funding Notice.”
105 EFSP, “Overview and Guidance Presentation,” slide 10.
106 EFSP, “Preliminary Funding Notice.”
107 EFSP, “Preliminary Funding Notice”; and EFSP, “Overview and Guidance Presentation,” slide 10.
108 EFSP, “Preliminary Funding Notice.” More information regarding the Phase 37 and Phase CARES funding for the
EFSP is available through the EFSP National Board’s website, available at https://www.efsp.unitedway.org/efsp/
website/index.cfm (see the “ FY2019/2020/CARES Funding” tab).
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Stafford Act Public Assistance Program
The Public Assistance (PA) program authorized in the Stafford Act provides grant assistance to
state, tribal, territorial, and local governments as wel as eligible nonprofits for the costs of urgent
response and long-term recovery work following an emergency or major disaster declared under
the act.109 The President issued an emergency declaration and subsequent major disaster
declarations for al 50 states, five territories, the District of Columbia and one tribe authorizing
PA for COVID-19 response efforts.110
The Stafford Act declarations for the COVID-19 pandemic specifical y authorized assistance for
PA Category B: Emergency Protective Measures, defined as work undertaken to save lives and
protect property or public health and safety, or avert the threat of a catastrophe.111 This includes
the provision of food to achieve these ends.112 For the pandemic, FEMA reimburses state, tribal,
territorial, and local governments as wel as eligible nonprofits (PA Applicants) for 75% of
eligible costs incurred while performing eligible work.113 There is no predetermined limit on the
amount of funding available through the PA program.
For the pandemic, FEMA provides PA for food assistance required as a lifesaving or life-
sustaining commodity given stay-at-home orders that reduce food access, atypical demand for
food, or disruptions to food supply chains.114 State, tribal, territorial, or local governments may
receive reimbursement for such assistance, or may contract with other entities including food
banks to provide food assistance and receive reimbursement for eligible costs incurred through
those contracts.115 FEMA provided a non-exclusive list of populations that may require food

109 Public Assistance is authorized under Stafford Act Sections 402, 403, 406, 407, 418, 419, 428, and 502; 42 U.S.C.
§§5170a-5170b, 5172; 5173, 5185-86, 5189f; 5192. See 44 C.F.R. §206.220 for general eligibility for public assistance.
Per 44 C.F.R. Section 206.225(c) and (d), PA “emergency work” includes emergency com munications and emergency
transportation authorized under Stafford Act Sections 418 and 419. FEMA’s Public Assistance guidance explains: “[a]
State, T erritorial, T ribal, or local government may provide emergency communication services and public
transportation when existing systems are damaged to the extent vital functions of community life or incident response
are disrupted. T he costs of these services are not eligible for reimbursement. However, FEMA may provide short -term
DFA [Direct Federal Assistance] for these services,” FEMA, Public Assistance Program and Policy Guide (PAPPG) ,
FP 104-009-2, effective June 1, 2020, p. 114, https://www.fema.gov/media-library-data/1589895203535-
0badc3ece1c1d4efe5e599566654860a/PAPPG_V4_Final_6-1-2020_508.pdf (hereinafter, FEMA, PAPPG).
110 Stafford Act Declarations as of June 2, 2020. FEMA, “COVID-19 Disaster Declarations,” https://www.fema.gov/
coronavirus/disaster-declarations.
111 FEMA released guidance specific to COVID-19 including a non-exclusive list of emergency protective measures.
FEMA, “Coronavirus (COVID-19) Pandemic: Eligible Emergency Protective Measures,” fact sheet, March 19, 2020,
https://www.fema.gov/news-release/2020/03/19/coronavirus-covid-19-pandemic-eligible-emergency-protective-
measures. Assistance for emergency protective measures is authorized under Stafford Act Sections 402, 403, 407, 418,
and 419 for major disasters and 502 for emergencies; 42 U.S.C. §§5170a-5170b, 5173, 5185-86, 5192.
112 T he provision of emergency food is authorized under Stafford Act Section 403(a)(3)(B); 42 U.S.C. §5170b(a)(3)(B).
113 See, for example, 42 U.S.C. Section 5170b(b), which states “[t]he Federal share of assistance under t his section
[essential assistance] shall be not less than 75 percent of the eligible cost of such assistance.” See also 44 C.F.R.
Section 206.65. On general public assistance eligibility, see 44 C.F.R. Section 206.220 and FEMA, PAPPG, pp. 42-47,
51-59, 65.
114 FEMA, “Coronavirus (COVID-19) Food Eligible for PA.”
115 On reasonable costs, see 2 C.F.R. Section 200.404, 44 C.F.R. Section 206.228, and FEMA, “Public Assistance:
Reasonable Cost Evaluation,” Job Aid, October 2018, https://www.fema.gov/media-library-data/1539879525279-
d00ae1c43f9765c5a4b415e1a31202c5/PA_Reasonable_Cost_Evaluation_Job_Aid_508_FINAL_10-16-2018.pdf.
Additionally, PA Applicants must follow procurement procedures to ensure that costs are eligible. FEMA released a
memorandum for COVID-19 procurement; FEMA, “ Procurement Under Grants Conducted Under Emergency or
Exigent Circumstances for COVID-19,” memorandum, March 17, 2020, https://www.fema.gov/media-library-data/
1584457999950-7186ffa29ace3e6faf2ca2f764357013/
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assistance due to the pandemic, including those diagnosed with or exposed to COVID-19 who do
not require hospitalization, high-risk individuals, and other populations as identified by
appropriate health officials.116 FEMA may reimburse a range of costs through PA, including the
purchase, packaging, preparation, storage, and delivery of food to individuals or points of
distribution.117
When PA Applicants do not have capacity to perform eligible work under the PA program, FEMA
may provide direct assistance (referred to as Direct Federal Assistance or DFA).118 In these cases,
FEMA may assign work to FEMA personnel or other federal personnel. Under this authority,
FEMA tasked USDA with food supply assistance in certain instances.119
There are certain limitations to food assistance that may be provided through PA for the
pandemic. FEMA stated that it wil provide PA for food assistance for an initial 30-day period.
Thereafter, PA Applicants may request extensions from their respective FEMA Regional
Administrators.120 Additional y, FEMA only reimburses for food assistance that is directly
required as a result of the pandemic. For example, FEMA may not reimburse PA Applicants for
ongoing costs predating the pandemic of operating food banks, though FEMA may reimburse PA
Applicants for the costs of food storage, purchase, preparation, and distribution at food banks in
response to the pandemic.121 FEMA does not reimburse for costs funded by other means,
including assistance provided by federal agencies like USDA.122
FEMA has obligated funds specifical y for food assistance for states including Oregon,
California, Texas, Kansas, and Arizona through the PA program.123 Work descriptions include
reimbursement for National Guard food missions, food bank purchases, expanded Meals on
Wheels funding, and California’s Great Plates program, a public program that delivers restaurant-
prepared meals to populations vulnerable to COVID-19.124 Additional funds may have been
obligated for food assistance but not designated as such in publicly available data.
Public Assistance Funding
PA is funded through the Disaster Relief Fund, the primary source of funding for the federal
government’s domestic general disaster relief programs. DRF appropriations are not al ocated for
specific emergencies, disasters, or forms of assistance, including PA. There is no statutory limit

Procurement_Under_EE_Circumstances_Memo_final_508AB.pdf . See also FEMA, “ Procurement Under Grants:
Under Emergency or Exigent Circumstances,” fact sheet, March 20, 2020, https://www.fema.gov/news-release/2020/
03/20/procurement -under-grants-under-exigent-or-emergency-circumstances.
116 FEMA, “Coronavirus (COVID-19) Food Eligible for PA.”
117 FEMA, “Coronavirus (COVID-19) Food Eligible for PA.”
118 Authorized in Stafford Act Sections 402, 418, 419, and 502; 42 U.S.C. §§5170a, 5185-86, 5192. See also 44 C.F.R.
Section 206.208.
119 FEMA, “Region 7 COVID-19 Fact Sheet,” April 20, 2020, https://www.fema.gov/news-release/2020/04/20/region-
7-covid-19-fact-sheet.
120 FEMA, “Coronavirus (COVID-19) Food Eligible for PA.”
121 44 C.F.R. §206.223(a)(1).
122 Stafford Act §312; 42 U.S.C. §5155. See also 44 C.F.R. Section 206.250(c).
123 Based on application titles for COVID-19 declarations including the search terms food, plates, and meals in
OpenFEMA, “Public Assistance Funded Projects – Details,” available at https://www.fema.gov/openfema-dataset-
public-assistance-funded-projects-details-v1. T he most recent data in the dataset were last updated on May 30, 2020.
124 California Governor’s Office of Emergency Services, “Great Plates Delivered Program Guidance,” May 7, 2020, p.
1, https://covid19.ca.gov/img/wp/great-plates-delivered-program-guidance.pdf
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on the amount of funding that may be available to any PA recipient, PA Applicant, declaration, or
project—including food distribution—for the COVID-19 pandemic or other Stafford Act
declarations. The terms of assistance provided pursuant to each disaster are set by an agreement
negotiated between FEMA and the declaration recipient.
Division B of the CARES Act (P.L. 116-136) included $45 bil ion for the DRF in March 2020,
bringing its available balance for the costs of major disasters to more than $87 bil ion at the end
of the month.125 This is the first time FEMA has exercised Stafford Act authorities as a primary
response to a pandemic, so FEMA has not provided projections for future spending from the
DRF—including PA—on the COVID-19 response.126
Table 2. Sources of Federal Funding for Food Banks and Other Emergency Feeding
Organizations, FY2020
FY2020
Available
Funding ($ in

Authorizing Law
millions)
U.S. Department of Agriculture (USDA) Programs
Farmers to Families Food Box program
Families First Coronavirus Response Act
3,000
(FFCRA; P.L. 116-127)
Disaster Household Distribution
Section 32 (7 U.S.C. §612c) and Section 4(a) of
Not available
the Agricultural and Consumer Protection Act
of 1973 (7 U.S.C. §612c note)
Commodity Credit Corporation (CCC)
CCC Charter Act (15 U.S.C. §714)
1,460a
Food Purchase and Distribution Program
(FPDP)
Section 32 bonus commodity purchases
Section 32 of the act of August 24, 1935
873b
(7 U.S.C. §612c)
The Emergency Food Assistance Program

(TEFAP)
Entitlement commodities
Further Consolidated Appropriations Act of
972c
FY2020 (P.L. 116-94); Division A of FFCRA (P.L.
116-127); Division B of CARES Act (P.L. 116-
136)
Administrative and food distribution
Further Consolidated Appropriations Act of
330c
costs
FY2020 (P.L. 116-94); Division A of FFCRA (P.L.
116-127); Division B of CARES Act (P.L. 116-
136)
Farm to Food Bank Projects
Section 203D of the Emergency Food Assistance
4
Act of 1983 (7 U.S.C. §7507)
Federal Emergency Management Agency (FEMA) Programs
Emergency Food and Shelter Program
McKinney-Vento Homeless Assistance Act (P.L.
445d
(EFSP)
100-77, reauthorized under P.L. 100-628; 42
U.S.C. §11331 et seq.)

125 FEMA, “Disaster Relief Fund: Monthly Report, as of March 31, 2020,” April 8, 2020, p. 7, https://www.fema.gov/
media-library-data/1586553202915-6ad14cfec022590b2485cba9039190b0/Apr2020DisasterReliefFundReport.pdf.
126 For more information, see CRS Report R45484, The Disaster Relief Fund: Overview and Issues; and CRS Report
R46326, Stafford Act Declarations for COVID-19 FAQ.
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Public Assistance (PA) program
Sections 402, 403, 418, 419, and 502 of the
No
Stafford Act (P.L. 93-288, as amended; (42
predetermined
U.S.C. §§5121 et seq.)
limite

Total

More than
7,084f
Source: Congressional Research Service (CRS), based on current law.
Notes: Amounts reflect budget authority unless noted.
a. Includes $1.4 bil ion for food purchases and $60 mil ion for administrative costs.
b. This is the amount available for the remainder of FY2020 as of April 17, 2020. Actual amount may be higher.
c. Assumes that states opt to use the maximum funding available for food distribution costs under FFCRA (up
to $100 mil ion) and the CARES Act (up to $150 mil ion). TEFAP entitlement commodities funds include
$322 mil ion provided in FY2020 annual appropriations, $300 mil ion provided by FFCRA, and $350 mil ion
provided by the CARES Act. TEFAP administrative and food distribution funds include $80 mil ion provided
in FY2020 annual appropriations, $100 mil ion provided by FFCRA, and $150 mil ion provided by the
CARES Act.
d. The $445 mil ion in total funding awarded to the Emergency Food and Shelter Program (EFSP) National
Board by the Federal Emergency Management Agency (FEMA) for implementation in calendar year 2020
includes the $200 mil ion appropriated through the CARES Act, $125 mil ion appropriated in FY2020 annual
appropriations, and $120 mil ion appropriated in FY2019 annual appropriations.
e. Public Assistance is funded through the Disaster Relief Fund (DRF), the primary source of funding for the
federal government’s domestic general disaster relief programs. DRF appropriations are not al ocated to
specific emergencies, disasters, or specific forms of assistance, including food assistance. Division B of the
CARES Act (P.L. 116-136) included $45 bil ion for the DRF in March 2020, bringing its available balance for
the costs of major disasters to more than $87 bil ion. As of April 30, 2020, the balance of the fund is
approximately $80 bil ion.
f.
Total does not include funding for the USDA Disaster Household Distribution program or FEMA Public
Assistance (PA) program.
Selected Legislative Proposals
In recent months, federal policymakers have introduced bil s to increase support for food banks
and agricultural producers. Proposals often differ in terms of which entity they provide funding to
(e.g., states and/or local organizations) and al owable uses of funds (e.g., food purchases,
transportation costs, and/or infrastructure costs). Some of these proposals seek to involve
restaurants in emergency feeding efforts.
The House-passed Heroes Act (H.R. 6800) would make changes to existing programs. It would
provide an additional $150 mil ion for TEFAP and $200 mil ion for ESFP. It would also waive a
state matching requirement that applies when states retain TEFAP administrative funds rather
than distribute them to or expend them on behalf of emergency feeding organizations. The bil
would also amend and provide an additional $25 mil ion for TEFAP’s Farm to Food Bank
Projects, which facilitate the harvesting, processing, packaging, and transporting of donated
commodities from agricultural producers, processors, and distributors to emergency feeding
organizations. H.R. 6800 would also waive a 50% state matching requirement in the Farm to
Food Bank Projects and encourage the inclusion of specific types of agricultural products.127

127 Specifically, “a dairy, meat, or poultry product, or a specialty crop—(A) packaged or marketed for sale to
commercial or food service industries; (B) for which decreased demand exists for such a product due to the COVID –19
outbreak; and (C) the repurposing of which would be impractical for grocery or retail sale.”
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Other proposals would create new programs. The Food Supply Protection Act (S. 3840),
introduced by Senator Debbie Stabenow, Ranking Member of the Senate Committee on
Agriculture, Nutrition, and Forestry, would authorize new temporary funding streams for
emergency feeding organizations.128 Specifical y, the act would authorize USDA to reimburse
food banks and other eligible organizations129 for costs associated with the distribution and
storage of perishable commodities, providing at least $500 mil ion in CCC funding for this
purpose. Additional y, S. 3840 would provide $500 mil ion in CCC funding for USDA to award
grants to such eligible organizations for “infrastructure, equipment, and supplies that support the
distribution of surplus perishable food or meals prepared with that food.”130 Final y, the act would
provide at least $1 bil ion in formula funding to states and Indian tribes to purchase foods that
“would otherwise be unharvested or surplus” for distribution to eligible feeding organizations
(including restaurants).131 It would also authorize USDA to reimburse eligible feeding
organizations and eligible food organizations132 for costs associated with the distribution of these
donated foods.133
Other proposals would fund state and federal food purchases for distribution to emergency
feeding organizations. The Food Bank Access to Fresh Farm Produce Act of 2020 (S. 3605)
would provide $8 bil ion for grants to states through USDA’s Specialty Crop Block Grant
Program. States would distribute the funds to food banks and food access networks to purchase
and distribute specialty crops.134 Relatedly, the Farmers Feeding Families Coronavirus Response
Act (H.R. 6725 and S. 3655) would provide $200 mil ion in Section 32 funds to states to
purchase specialty crops, dairy, and meat and poultry products for distribution through state food
assistance programs and emergency feeding organizations. The bil s would also al ow the use of
funds for infrastructure, transportation, food storage, and preparation costs. Additional y, they
would provide $300 mil ion for federal food purchases of specialty crops, dairy, and meat and
poultry products for distribution through federal nutrition assistance programs including TEFAP.
Other bil s would establish partnerships between emergency feeding organizations and
restaurants. The FEMA Empowering Essential Deliveries Act (FEED Act) (S. 3614 and H.R.
6700) would authorize FEMA to approve state and local partnerships with qualifying restaurants
and nonprofits to provide meals to individuals in need for the duration of the COVID-19 Stafford
Act declarations. Through PA, FEMA currently reimburses state, tribal, territorial, and local

128 It would authorize such funding streams until December 31, 2020 or “a date after December 31, 2020, if there are
remaining food surpluses relat ing to the COVID-19 emergency, as determined by the Secretary [of Agriculture].” Bill
text available at U.S. Congress, U.S. Senate Committee on Agriculture, Nutrition, and Forestry, “ Ranking Member
Stabenow Introduces Legislation to Protect America’s Food Supply,” May 27, 2020,
https://www.agriculture.senate.gov/newsroom/dem/press/release/ranking-member-stabenow-introduces-legislation-to-
protect -americas-food-supply.
129 Eligible organizations would include nonprofits (e.g., food banks, schools, and emergency feeding organizations),
faith-based organizations, tribal organizations, child and adult care centers, and “ similar entities as determined by
USDA.”
130 Ibid, Section 3. T he bill would also authorize such sums as necessary from the CCC for this grant program.
131 Ibid, Section 4. T he bill would also authorize such sums as necessary from the CCC for these formula funds.
Eligible feeding organizations are defined as public and nonprofit organizations, including tribal organizations, and
restaurant s operating an emergency feeding or food relief program.
132 Eligible food organizations are defined as farming cooperatives; farmers organizations, food hubs, food distributors,
majority-controlled producer-based business ventures, or other food aggregators; and foo d processors.
133 Such expenses could include harvesting, processing, packaging, transportation, storage, and meal preparation costs.
134 Specialty crops include “fruits, vegetables, tree nuts, dried fruits, horticulture, and nursery crops (including
floricult ure)”; Section 101 of the Specialty Crops Competitiveness Act of 2004 (7 U.S.C. 1621 note). For more
information, see CRS In Focus IF11317, 2018 Farm Bill Prim er: Specialty Crops and Organic Agriculture.
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governments for up to 75% of eligible costs incurred while providing meals prepared by private
entities, including restaurants and nonprofits, to respond to elevated food demand as a result of
COVID-19.135 S. 3614 may provide statutory enforcement to this policy. Additional y, S. 3614
would eliminate the 25% nonfederal cost share for al PA authorized pursuant to Stafford Act
declarations for COVID-19.136 The Community Meals Fund (H.R. 6384) would authorize
appropriations of $20 mil ion for USDA to award grants to nonprofit feeding organizations137 to
partner with smal and mid-sized restaurants or food contractors “to expand meal access and
delivery” during a pandemic and under a major disaster declaration.

Author Information

Kara Clifford Billings, Coordinator
Elizabeth M. Webster
Analyst in Social Policy
Analyst in Emergency Management and Disaster

Recovery

Erica A. Lee

Analyst in Emergency Management and Disaster
Recovery

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should n ot be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or
material from a third party, you may need to obtain the permission of the copyright holder if you wish to
copy or otherwise use copyrighted material.

135 FEMA, “Coronavirus (COVID-19) Food Eligible for PA.”
136 T he Stafford Act authorizes FEMA to reimburse not less than 75% of the eligible costs of specific types of disaster
response and recovery work undertaken by eligible PA Applicants. See, for example, Stafford Act Section 403(b), 42
U.S.C. §5170b(b). FEMA may recommend that the President increase the federal cost share in extraordinary cases at
the request of a state, territory, or tribe, per 44 C.F.R. Section 206.47.
137 Nonprofit feeding organizations include anti-hunger organizations, food banks, food pantries, soup kitchens, food
rescue groups, or community food security organizations.
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