DISASTER 

MANUAL 

FOOD & NUTRITION SERVICE 

FOOD DISTRIBUTION DIVISION 

August 2004 

(Updated September 2005) 

United States Department of Agriculture 

Food and Nutrition Service 

3101 Park Center Drive 

Alexandria, VA 22302 

www.fns.usda.gov/fdd 
FNS Commodity Program Disaster Manual 2004

Table of Contents 

TABLE OF CONTENTS ................................................................................................................................1

FOOD AND NUTRITION SERVICE (FNS) COMMODITY PROGRAM DISASTER MANUAL .......2

PART I: AN OVERVIEW............................................................................................................................2

A. Types of Disasters (Presidentially Declared vs. Situations of Distress).......................................................2

B. FNS Provides Only Food Support................................................................................................................4

C. FNS’ Primary Response—Disaster Food Stamps........................................................................................4

D. Laws and Regulations Governing Commodity Donations ...........................................................................5

E. Funding Sources for Commodity Donations ................................................................................................5

F. FNS Programs From Which Commodities May Be Used.............................................................................6

G. Sources of Existing Commodity Inventories.................................................................................................7

H. Emergency Procurements............................................................................................................................8

PART II: PREPARING FOR A PRESIDENTIALLY DECLARED DISASTER OR A SITUATION OF

DISTRESS ....................................................................................................................................................9

A. FNS Headquarters Preparation ...................................................................................................................9

B. FNS Regional Office Preparation ..............................................................................................................10

C. State Distributing Agency Preparation ......................................................................................................10

PART III: THE COMMODITY PROGRAM DISASTER RESPONSE.....................................................12

A. Responding to Information Requests from the Media/Public .....................................................................12

B. Congregate Feeding vs. Household Distribution—An Overview...............................................................12

C. Congregate Feeding During Disasters and Situations of Distress.............................................................14

D. Household Distribution During Disasters and Situations of Distress .......................................................15

E. Rapid Food Response System.....................................................................................................................17

PART IV: AFTER THE DISASTER OR SITUATION OF DISTRESS... .................................................18

A. Replacement of Donated Food ...................................................................................................................18

B. Final Summary Report to FNS ...................................................................................................................18

C. State Distributing Agency Record Keeping Requirements.........................................................................18

Attachment 1 Disaster Questions and Answers ............................................................................................20

Attachment 2 Food Distribution Programs Disaster Flowchart (1 of 2).....................................................25

Attachment 2 Food Distribution Programs Disaster Flowchart (2 of 2)......................................................26

Attachment 3 The National Response Plan...................................................................................................27

Attachment 4 Regulations: 7CFR 250.3, 250.42, 250.44..............................................................................30

Attachment 5 Clarification of Commodity Replacement... ............................................................................39

Attachment 6 Rapid Food Response System (background)............................................................................40

 

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FNS Commodity Program Disaster Manual 2004

FOOD AND NUTRITION SERVICE (FNS) 

COMMODITY PROGRAM DISASTER MANUAL

PART I: AN OVERVIEW 

This manual contains important 

information for persons in FNS 

Headquarters, FNS Regional Offices, and 

State Distributing Agencies who are 

charged with the responsibility of 

providing USDA donated commodities to 

disaster relief organizations in the event o

a disaster or a situation of distress. 

f 

The manual provides practical steps for distributing USDA donated commodities in response 

to disasters and situations of distress. It does not address non-commodity food assistance, 

such as disaster food stamps and private donations, although it recognizes that coordination is 

needed between these types of assistance. Part I of this manual provides a general overview 

of the commodity response. Part II discusses preparing for this response ahead of time. Part 

III addresses the actual steps FNS takes when asked to donate commodities. Part IV 

addresses commodity replacement and reporting requirements. 

The American Red Cross is the primary organization responsible for coordinating feeding in a 

State where a disaster occurs. Other recognized organizations equipped to prepare or serve 

meals to disaster victims, such as the Salvation Army, religious-based organizations, fraternal 

orders, etc., may also coordinate disaster feeding. All of these organizations are eligible to 

receive USDA-donated commodities. Depending on the severity of the disaster, and other 

food resources available to the responding agency, FNS may or may not be asked to 

provide disaster assistance. 

__________________________________________________________________________ 

A. Types of Disasters (Presidentially Declared vs. Situations of Distress) 

There are two types of disasters that FNS may legally respond to: 1) Presidentially declared 

disasters and 2) situations of distress. 

1) Presidentially Declared Disasters: When the Governor of the affected State determines 

a need for Federal disaster assistance, a request for assistance is addressed to the 

President. When the President determines, based on the Federal Emergency Management 

Agency’s (FEMA) evaluation and recommendation, that a State requires Federal 

assistance, a formal Presidential disaster declaration is made and resources of the entire 

Federal government become available. 

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FNS Commodity Program Disaster Manual 2004

When FEMA coordinates disaster relief efforts, FNS is the designated primary agency 

for Emergency Support Function 11 (ESF-11) (Food) as outlined in the National 

Response Plan. The details of how FNS fits into the National Response Plan are 

described in Attachment 3. 

If FNS determines that low-income households are unable to purchase adequate 

amounts of nutritious food, FNS makes disaster food stamps available. If disaster food 

stamps are not practical, disaster organizations may be eligible to receive commodities 

for congregate meal service or household distribution in accordance with food 

distribution program regulations at 7 CFR 250.43 and 250.44 respectively. 

In a Presidentially declared disaster, as outlined in Federal regulations, State 

Distributing Agencies have the authority to release commodities for congregate feeding 

for as long as they are needed and FNS guarantees replacement of commodities used. 

2) Situations of Distress: FNS uses the term “situation of distress” when a natural 

catastrophe or other event has not been declared by the President to be a disaster but 

which, in the judgment of the State Distributing Agency or FNS, warrants the use of 

USDA-donated foods for congregate feeding or household distribution. A situation of 

distress could arise from a hurricane, tornado, storm, flood, high water, wind-driven 

water, tidal wave, tsunami, earthquake, volcanic eruption, landslide, mudslide, 

snowstorm, drought, fire, explosion, or other natural catastrophe. There are also 

situations, other than natural catastrophes, such as strikes, explosions, etc., that, in the 

judgement of FNS-Headquarters may warrant the use of donated foods. FNS has the 

authority to release donated foods for both congregate feeding and household distribution. 

Donated foods can be provided under this authorization to provide relief prior to a 

Presidential declaration, at which point the situation of distress is redefined as a disaster. 

In accordance with 7 CFR 250.44, FNS will replace commodities from State Distributing 

Agency and local recipient agency inventories that are used to assist in situations of 

distress, to the extent that funds for replacement are available. State Distributing 

Agencies must submit requests to FNS for replacement of donated foods used in these 

emergencies within 30 days of the termination of assistance. However, since funds for 

replacement of donated foods used in situations of distress are limited, State Distributing 

Agencies that intend to submit a request for replacement of such foods are encouraged to 

do so as soon as possible. It is recommended they do so upon notifying the FNS Regional 

Office within 24 hours of approving an application for assistance. 

In addition, State Distributing Agencies may approve the use of commodities for 

congregate feeding in situations of distress only if the situation is a natural event, and for 

only up to 30 days. State Distributing Agencies must request approval from FNS 

Headquarters, through the Regional Office, to exceed 30 days. 

A comparison of some key regulatory differences between Presidentially declared disasters 

and situations of distress follows: 

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FNS Commodity Program Disaster Manual 2004

Key Regulatory Differences Between Disasters and Situations of Distress 

 Disasters Situations of Distress 

• Requires a Presidential declaration that 

federal assistance is warranted. 

• No Presidential declaration is required. 

• Guaranteed replacement of 

commodities by FNS. * 

• Replacement of commodities by FNS to 

the extent that funds for replacement are 

available.* 

• State Distributing Agency has 

authority to release commodities for 

congregate feeding for as long as they 

are needed. 

• State Distributing Agency has the 

authority to release commodities for 

congregate feeding, but only if the 

situation is a natural event, and only for 

up to 30 days. If not a natural event, FNS 

Headquarters must approve and 

determine duration of assistance. 

* Replacement may be made through entitlement credit to the applicable program. 

__________________________________________________________ 

B. FNS Provides Only Food Support 

FNS provides only food during situations of distress and disasters. In disasters, when FEMA 

coordinates relief efforts, FNS is the designated primary agency in the National Response 

Plan for ESF-11 (Food). The question occasionally arises as to whether FNS has 

responsibility to supply water under its function. Although certainly related and vital, water is 

an ESF-3 function (Public Works and Engineering). In a disaster, therefore, requests for 

water should be directed to the representative of the agency designated under ESF-3. More 

detail about FEMA and the National Response Plan is outlined in the Attachments. 

________________________________________________________________ 

C. FNS’ Primary Response—Disaster Food Stamps 

When a disaster strikes, FNS is often called upon to provide immediate food assistance in the 

form of USDA commodities. This is especially true when people have relocated to local 

shelters and/or the retail food system is disrupted by flooding or electrical outages. However, 

the primary food assistance response is setting up a Disaster Food Stamp Program to handle 

the increased number of households needing food assistance. 

 

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FNS Commodity Program Disaster Manual 2004

Even if a disaster does not disrupt the retail food system, FNS may be asked to donate 

USDA commodities. State Distributing Agencies are responsible for oversight of the 

distribution of commodities to disaster organizations and their use. Most disaster 

organizations prefer commodities in larger pack sizes to facilitate congregate feeding. 

Occasionally however, smaller sized packages of commodities are requested when the 

disaster organization intends to distribute food to households for preparation and 

consumption at home. All requests for household distribution require FNS Headquarters 

approval prior to State Distributing Agencies releasing commodities for this purpose. 

_______________________________________________________________________ 

D. Laws and Regulations Governing Commodity Donations 

The following laws and regulations govern the use of commodities during disasters: 

 Sections 412 and 413(b) of the Robert T. Stafford Disaster Relief and Emergency 

Assistance Act authorize the Secretary of Agriculture to distribute surplus commodities 

and to use Section 32 funds from the Act of August 24, 1935 to purchase food 

necessary to provide adequate supplies for use in any area of the United States in the 

event of a disaster or situation of distress. 

 Section 416 of the Agricultural Act of 1949 also authorizes the Secretary of Agriculture 

to donate surplus commodities to disaster victims, subject to certain requirements. 

 Section 4(a) of the Agriculture and Consumer Protection Act of 1973 also authorizes 

the Secretary of Agriculture to donate surplus commodities to disaster victims, subject 

to certain requirements. 

 Food Distribution Program regulations at 7 CFR 250.43 (disasters) and 250.44 

(situations of distress) contain language implementing the above statutory authorities. 

_________________________________________________________________________ 

E. Funding Sources for Commodity Donations 

Commodity replacements and emergency purchases are funded from the following 

sources: 

Section 4(a): A limited amount of funds appropriated under Section 4(a) of the 

Agricultural and Consumer Protection Act of 1973 are allocated yearly to FNS for 

disaster assistance. The Food and Nutrition Service Disaster Coordinator 

authorizes use of these funds in emergencies and situations of distress. 

Section 32: The Secretary of Agriculture may also authorize Section 32, 

contingency funds, for the purchase of commodities to be used for 

disaster/emergency feeding. 

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FNS Commodity Program Disaster Manual 2004

______________________________________________________________ 

F. FNS Programs From Which Commodities May Be Used 

Federal, State, and local inventories of commodities from any of the following USDA 

domestic nutrition assistance programs may be used in a Presidentially declared disaster or 

situation of distress: 

Program Sources of Commodities for Disasters and Situations of Distress 

• National School Lunch Program • Summer Camps 

• Child and Adult Care Food Program 

• Summer Food Service Program 

• Food Distribution Program on Indian 

Reservations 

• Nutrition Services Incentive Program 

• Commodity Supplemental Food 

Program 

• Charitable Institutions • The Emergency Food Assistance 

Program 

The specific program from which commodities are taken will depend on the needs of the 

disaster organization, the scale of the disaster, accessible inventories, and available 

funding. If available, State Distributing Agencies should try to use commodities 

provided through the National School Lunch Program whenever possible. These are 

easier for disaster feeding organizations to use in preparing congregate meals, and 

they are easier for FNS to replace or reimburse. FNS will do its best to make timely 

replacements in order to prevent disruption in ongoing service to the programs from which 

commodities are taken. It should be remembered that, while replacement is guaranteed in 

a Presidentially declared disaster, replacement is not guaranteed in situations of distress. 

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FNS Commodity Program Disaster Manual 2004

___________________________________________________________ 

G. Sources of Existing Commodity Inventories 

Commodities may be taken from local, state, and federal 

inventories. 

 Local Inventories: These are usually the first sources that disaster organizations turn to 

when they want donations of USDA commodities. Inventories from school kitchens 

and school district warehouses located close to the emergency are most often used for 

congregate feeding. Other local inventories include food purchased for TEFAP and 

CSFP and are more appropriate when household distribution is approved by FNS. 

 State Inventories: If sufficient food is not available locally, State Distributing 

Agencies sometimes provide inventories from their State-level warehouses to the 

affected area for use by disaster organizations. If the State Distributing Agency does 

not have adequate inventories, it sometimes requests commodities from the inventories 

of other States. When two State agencies involved are in the same FNS Region, the 

Regional Office acts as the liaison between the two. If food must be transported 

between States in different FNS Regions, then the FNS Regional Office in which the 

emergency occurred, or FNS Headquarters, may act as liaison.

 Federal (USDA) Inventories: Federal inventories of commodities purchased for the 

Commodity Supplemental Food Program and Food Distribution Program on Indian 

Reservations are maintained by USDA in Carthage, Missouri and Albuquerque, New 

Mexico. Items such as canned meats, fruits, juices, and vegetables are stored there. In 

addition, food purchased for the National School Lunch Program is sometimes placed 

in Federal storage for later distribution. Depending on inventory levels and program 

needs, some food from these Federal inventories may be immediately available for 

disaster feeding. 

 Rapid Food Response System: This new initiative, sponsored by FNS, is being 

established through a Memoranda of Understanding (MOU). The goal of the initiative 

is to supplement, not replace, existing disaster feeding efforts by making a nutritionally 

balanced commodity offering available for congregate feeding during Presidentially 

declared disasters. The offering contains five basic categories of USDA commodity 

foods that can be used to supplement existing disaster feeding efforts. Under the terms 

of the MOU, seven States (NY, PA, NC, OH, OK, CO, and CA) will make their 

currently existing inventory available to any State nationwide. The FNS Regional 

Office in which the disaster occurs will act as gatekeeper to approve requests from 

State Distributing Agencies within its region to activate the Rapid Food Response 

System. 

(See Attachment 6 for additional background) 

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FNS Commodity Program Disaster Manual 2004

___________________________________________________________ 

H. Emergency Procurements 

The Federal government may make emergency procurements of product when existing 

commodity inventories at the local, State, or Federal level are inadequate: 

 USDA Procurement: If the scope of a disaster creates a need for food relief in excess 

of what can be provided by existing inventories, FNS Headquarters works with FNS 

Regional Offices and State agencies to authorize emergency purchases of commodities 

and ships them into affected areas in a timely manner. Emergency purchases are most 

often made when infant formula is needed. FNS authorizes the Agricultural Marketing 

Service or the Farm Service Agency (the two agencies responsible for procuring all of 

FNS’ commodities on an ongoing basis) to make the purchases using FNS funds. 

 Procurement by Other Federal Agencies: The General Services Agency and the 

Department of Defense, Defense Supply Center Philadelphia also coordinate purchases 

for FNS. 

• The General Services Agency is authorized to coordinate purchases of food for off 

shore disaster feeding. Quantities are usually limited and are often purchased 

locally. 

• The Department of Defense has the authority to negotiate emergency purchases for 

direct shipment to disaster areas through its Defense Supply Center Philadelphia. 

 

These purchases are not common, and are only made with approval of FNS Headquarters, 

and with the concurrence of the Agricultural Marketing Service and/or Farm Service 

Agency contracting offices. 

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FNS Commodity Program Disaster Manual 2004

Part II: PREPARING FOR A PRESIDENTIALLY DECLARED 

DISASTER OR A SITUATION OF DISTRESS 

It is important for FNS Headquarters (Food Distribution Division), FNS Regional Offices, 

and State Distributing Agencies to plan for a disaster, or situation of distress, well before it 

occurs. Preparation is critical to make the actual response process flow smoothly in the 

stressful climate of an actual disaster or situation of distress. This preparation 

encompasses both long term and short term planning. Long term planning refers to more 

generic and theoretical preparation, before an emergency ever arises. Short term planning 

refers to situations where there is notice that an emergency is impending, such as a reliable 

prediction of a hurricane’s landfall several days in advance. Plans should be reviewed and 

updated for accuracy at least annually. 

Below are the steps that FNS Headquarters, FNS Regional Offices, and State Distributing 

Agencies should follow to effectively prepare for a disaster. 

_________________________________________________________________________ 

A. FNS Headquarters Preparation 

1) Identify and establish a relationship with the FNS Agency Disaster Coordinator. 

2) Establish and maintain an Emergency Contact List with back-up contacts for key 

USDA commodity staff at FNS Headquarters, FNS Regional Offices, the Agricultural 

Marketing Service, and the Kansas City Commodity Office. The list must include 

Continuity of Operations Plan (COOP) coordinators, as well as disaster coordinators 

and media coordinators. Contacts and backups must have the authority to make quick 

decisions that expedite requests for commodity food and transportation. Contact 

information should include work, home, cell phone and fax numbers. The list should 

be updated annually. This list, which will be available to key USDA staff via the FNS 

Intranet, should be printed out in hard copy each time it is updated so that its 

information is available 24 hours a day, even during power outages. 

3) Establish and periodically update the procedures for internal reporting within FNS. In 

doing so, disaster coordinators and key contacts for media inquiries at the FNS 

Headquarters and Regional Office levels must be consulted. 

4) When a disaster or situation of distress occurs, or can be anticipated, require the 

affected Regional Offices to survey their State Distributing Agencies to determine the 

types, quantities, and location of commodities that disaster organizations are likely to 

be able to use or distribute. This will facilitate responding to requests for food when 

they are received. 

5) Stay familiar with the necessary regulations, policies, and procedures related to 

commodity feeding during disasters and situations of distress. 

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FNS Commodity Program Disaster Manual 2004

______________________________________________________________ 

B. FNS Regional Office Preparation 

1) Identify and establish a relationship with the FNS Regional Office Disaster 

Coordinator. 

2) Maintain a current list of your Regional Office Emergency Contacts and provide to 

FNS Headquarters. Keep copies of the Emergency Contact List received from the 

Food Distribution Division in FNS Headquarters readily available. 

3) Provide your State Distributing Agency staffs with updated copies of your Regional 

Office Emergency Contacts that includes work, home, cell phone, and fax numbers and 

e-mail addresses to ensure contact availability 24 hours a day. This information should 

be updated annually. 

4) Establish internal reporting procedures. Coordinate the procedures with your Regional 

Disaster Coordinator and Regional contact person for media inquires. 

5) Maintain a current Regional list of essential State Distributing Agency personnel and 

keep them apprised of the procedures, policies, and regulations for handling disasters. 

6) When a situation of distress or disaster occurs or is anticipated, contact your State 

Distributing Agencies to determine the types, quantities and location of commodities 

that disaster organizations are likely to be able to use or distribute. This will facilitate 

responding to requests for food when they are received. 

7) Stay familiar with the regulations, policies, and procedures related to commodity 

feeding during disasters and situations of distress. 

______________________________________________________________ 

C. State Distributing Agency Preparation 

1) Develop a relationship with your State Emergency Management Agency. 

 

2) Identify the primary disaster organization responsible for coordinating congregate 

feeding in your State and how to contact them. This will likely be the Red Cross. The 

Salvation Army and other local organizations may also be called on in a disaster 

situation. Those agencies need to know who to contact in the State Distributing 

Agency and what types of assistance, food, etc., are available. Advise them of what 

you can and cannot do and of the reporting requirements once commodities are 

provided. 

 

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FNS Commodity Program Disaster Manual 2004

3) Establish and maintain a list of Emergency Contacts at disaster organizations, TEFAP 

and government emergency agencies at the State level and school district officials at 

the local level. The list should include work, home, cell phone numbers, fax numbers 

as well as e-mail addresses so contacts can be reached 24 hours a day. 

4) Provide the list to the Regional Office, State Distributing Agency disaster coordinator 

and other essential State personnel as necessary. This information should be updated 

annually. 

5) Establish internal reporting procedures. Coordinate procedures with State Disaster 

Coordinator and Information Office. Determine who will be the contact person for 

media inquiries. 

6) Stay familiar with the regulations, policies, and procedures regarding disasters and 

situations of distress. 

7) Periodically remind your local agencies of the regulatory requirements to: 1) maintain 

meal counts during the emergency, 2) keep a list of USDA commodities distributed to 

disaster relief organizations and, 3) report this information as soon as possible to the 

State Distributing Agency, which must follow post-disaster reporting requirements to 

FNS (submitting the FNS 292 Report to the Regional Office within 45 days of 

termination of the emergency assistance). 

8) Consider past history and determine what types of disasters are more likely to occur 

within the State (i.e. floods, snow storms, tornados, earthquakes). Obtain information 

from the State Emergency Management Agency about the likely assistance 

requirements that each type of disaster may create. 

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FNS Commodity Program Disaster Manual 2004

PART III: THE COMMODITY PROGRAM DISASTER RESPONSE 

This section describes the process FNS follows once a request is made by a disaster 

organization, through its State Distributing Agency, to utilize donated commodities in a 

situation of distress or Presidentially declared disaster. 

_________________________________________________________________________ 

A. Responding to Information Requests from the Media/Public 

A situation of distress or Presidentially declared disaster 

generates interest and requests for information from parties 

and individuals aside from those involved in the response. 

All such requests for information must be referred to the 

Regional Office of Public Affairs. The role of the Regional 

Office of Public Affairs is to provide accurate, consistent, timely, and easy-to-understand 

information to the public about emergency food assistance. The Public Affairs staff works 

together with State and/or local public information offices to coordinate the release of 

information to the public, and also serves as the liaison with the Federal Emergency 

Management Agency (FEMA) Public Information staff. Unless prior authorization has 

been obtained otherwise, all media inquiries must be referred to the Regional Office of 

Public Affairs.

_________________________________________________________________________ 

B. Congregate Feeding vs. Household Distribution—An Overview 

Disaster organizations use two primary methods to feed people in response to a disaster or 

situation of distress: congregate feeding and household distribution of food. 

 Congregate Feeding: Congregate feeding is the most common form of food 

assistance provided during disasters or situations of distress. In congregate feeding, the 

disaster organization prepares meals in large quantities and serves them cafeteria–style 

in a central location. To expedite preparation, disaster organizations generally prefer 

foods in institutional size packages, such as #10 cans. Such commodities are usually 

available from existing State/local agency inventories of USDA food purchased for 

child nutrition programs, such as the National School Lunch Program. School food 

inventory levels vary by time of year (lower as the end of the school year approaches), 

which may have an effect on what types of commodities are available. 

If congregate feeding is being provided as a result of a Presidentially declared disaster, 

the State Distributing Agency has authority to immediately make State/local agency 

stocks of USDA-donated commodities available without prior FNS approval. 

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FNS Commodity Program Disaster Manual 2004

For situations of distress caused by a natural event, the State Distributing Agency has 

authority to make commodities available for congregate feeding for a period of up to 

30 days without prior FNS approval. The State Distributing Agency must request 

approval from FNS Headquarters, through the Regional Office, to exceed 30 days. 

When a situation of distress is not caused by a natural event, FNS Headquarters must 

approve initiation of commodity assistance and its duration. 

 Household Distribution: When conditions warrant, the disaster organization may 

distribute commodities in smaller packages, such as #300 cans, in limited quantities to 

individual households to take home for preparation and consumption. Such 

commodities are usually available from existing State/local agency inventories of food 

purchased for the Emergency Food Assistance Program, the Commodity Supplemental 

Food Program, or the Food Distribution Program on Indian Reservations. 

Household distribution of commodities is seldom invoked because FNS primarily 

addresses household food needs during disasters by issuing food stamps. Commodities 

and disaster food stamps may be distributed in a given disaster area simultaneously. 

However, the same household may not benefit from both forms of assistance. 

Therefore, FNS Headquarters must provide prior approval for household 

distribution of commodities and determine the duration. This is true for both a 

Presidentially declared disaster and a situation of distress. 

A comparison of the key differences between congregate feeding and household distribution 

is addressed in the table below: 

 Differences Between Congregate Feeding and Household Distribution 

for both Disasters and Situations of Distress 

Congregate Feeding Household Distribution 

In Presidentially Declared Disasters: 

• State Distributing Agency approves and 

determines the duration of feeding. 

• FNS guarantees replacement. 

• FNS approves and determines duration. 

• FNS guarantees replacement. 

In Situations of Distress: 

• State Distributing Agency can approve for 

up to 30 days duration only if the 

emergency results from a natural event. If 

not the result of a natural event, FNS 

approves and determines duration. 

• FNS replaces only to the extent that funds 

for replacement are available. 

• FNS approves and determines duration.

 

 

• FNS replaces only to the extent that 

 funds for replacement are available.

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FNS Commodity Program Disaster Manual 2004

______________________________________________________________________ 

C. Congregate Feeding During Disasters and Situations of Distress 

When a disaster organization wishes to use USDA 

commodities for congregate feeding, it must 

submit an application to the State Distributing 

Agency for review. As noted in the previous table, 

whether the State Distributing Agency, or FNS, is 

responsible for approving the application will 

depend on whether there is a Presidentially 

declared disaster or a situation of distress. 

 Applications for Congregate Feeding Submitted to State Distributing Agencies By 

Disaster Organizations: The initial application by a disaster organization for the 

receipt and use of commodities for congregate feeding, as a result of a Presidentially 

declared disaster or situation of distress, is addressed at 250.43(b)(2) and 250.44(b)(2). 

Applications for the receipt and distribution of donated foods are submitted by the 

disaster organization to the State Distributing Agency in writing if circumstances 

permit or, if not, confirmed in writing in a timely manner. Applications must, to the 

extent possible, include the following: 

 Required Disaster Application Information 

• A description of the disaster or situation of distress. 

• The number of people requiring meals. 

• The period of time for which meals are being requested 

• The quantity and types of food needed. 

Additionally, disaster organizations must report to the State Distributing Agency the 

number and location of sites providing congregate meal services as such sites are 

established. Therefore, it is suggested that the application reference this requirement. 

 Approval of Congregate Feeding—Presidentially Declared Disasters: When a 

disaster is Presidentially declared, the State Distributing Agency is responsible for 

reviewing and approving the application, and determining the duration of commodity 

donations for congregate feeding. In doing so, the State Distributing Agency must take 

into consideration the magnitude of the situation. Within 24 hours of approving an 

application for congregate feeding, the State Distributing Agency must report the 

information contained in the application to the FNS Regional Office. 

 Approval of Congregate Feeding—Situations of Distress: In a situation of distress, 

the State Distributing Agency may decide to approve commodity donations for 

congregate feeding for a maximum of 30 days. Within 24 hours of approving an 

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FNS Commodity Program Disaster Manual 2004

application for congregate feeding, the State Distributing Agency must report the 

information contained in the application to the FNS Regional Office. The FNS 

Regional Office does not need to forward this to FNS Headquarters, but it will 

maintain the information forwarded to it on file. 

When the initial request for congregate feeding is for less than 30 days and then is 

extended to the 30 day limit, the State Distributing Agency will notify the FNS 

Regional Office of this extension. The State Distributing Agency shall request 

approval from FNS Headquarters, through the FNS Regional Office, to exceed 30 days. 

FNS Headquarters will determine the duration of such donations, taking into 

consideration the magnitude of the situation. The FNS Regional Office will notify the 

State Distributing Agency of the request’s approval and duration, or its denial. 

In a situation of distress that is not the result of a natural event, as described in Section 

250.3(a) of the Federal Regulations, the State Distributing Agency will send the 

disaster relief organization’s application to the FNS Regional Office to forward to FNS 

Headquarters. FNS Headquarters will determine the initial duration of the donation, up 

to the 30 day limit, as well as any extension beyond 30 days. All parties shall be 

notified of the decision. The initial determination about the duration of commodity 

donations may be revised as developing circumstances dictate. 

All transactions related to these requests, notifications and approvals shall be 

documented and the documents maintained in each respective office. The relief 

organization must maintain a copy of the application that it submits to the State 

Distributing Agency, plus the written approval it receives, for 3 years plus the current 

year as required by Food Distribution Program regulations at 7 CFR 250.16(b). 

D. Household Distribution During Disasters and Situations of Distress 

When a disaster organization determines it needs to distribute USDA commodities to 

households in response to a disaster or situation of distress, it must submit an application to 

the State Distributing Agency for review. 

 Applications for Household Distribution 

Submitted to State Distributing Agencies by 

Disaster Organizations: The initial application by 

disaster relief organizations for the receipt and 

distribution of foods to households is addressed at 

250.43(c)(2) and 250.44(c)(2) respectively. 

Applications for the receipt and distribution of USDA commodities to households are 

submitted by the disaster organization to the State Distributing Agency in writing if 

circumstances permit or, if not, confirmed in writing in a timely manner. Applications 

must, to the extent possible, include the information outlined in the table below. The 

information required is the same for Presidentially declared disasters and situations of 

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FNS Commodity Program Disaster Manual 2004

distress except that, information on the method(s) of distribution available in the affected 

area is required for a disaster but not for a situation of distress. 

Application Information Requirements For Household Distribution 

During Disasters and Situations of Distress 

• A description of the disaster or situation of distress 

• Identification of specific areas which would be served 

• Number of households affected who are expected to participate 

• An explanation as to why household distribution is warranted 

• The anticipated distribution period 

• The quantity and types of food needed 

• Assurance household will not receive both donated foods and disaster food 

stamps 

• A description of the system to prevent dual participation 

• Method(s) of distribution available (required for Presidentially declared 

disaster only) 

• Additionally, disaster organizations must report to the State Distributing Agency 

the number and location of sites providing congregate meal services as such 

sites are established. Therefore, it is suggested that the application include this 

information to the extent possible. 

 Approval of Household Distribution—For Both Presidentially Declared Disasters 

and Situations of Distress: The State Distributing Agency must submit the application 

to the appropriate FNS Regional Office. The Regional Office will, in turn, submit the 

application to FNS Headquarters for approval. If approved, FNS Headquarters will 

determine the duration of the donation, taking into consideration the magnitude of the 

situation and other appropriate factors. FNS Headquarters will relay its decision to the 

FNS Regional Office which will, in turn, inform the State Distributing Agency of the 

decision. 

 Collection of Household Information by Disaster Organizations in Areas Receiving 

Disaster Food Stamps: If a disaster relief organization is distributing commodities to 

households in an area where disaster food stamps are also being issued, the organization 

must collect certain additional information, as itemized at 7 CFR 250.43(c)(3) and 

250.44(c)(3) from each household receiving the commodities. The information that must 

be collected is as follows: 

• Name of household member applying for assistance 

• Address 

• Number of household members 

• A statement signed by the household certifying that the household: 

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FNS Commodity Program Disaster Manual 2004

o Is in need of food assistance 

o Understands that misrepresentation of need, and the sale or exchange of 

donated food are prohibited and could result in a fine, imprisonment, or both 

o Is not residing in a shelter which provides food assistance, and 

o Is not receiving disaster food stamp benefits. 

The State Distributing Agency will prescribe the format that the relief organization will 

follow when compiling and submitting this information to the State. The State Distributing 

Agency does not need to forward this information to the FNS Regional Office, but will 

maintain the information on file for three years plus the current year as required by Food 

Distribution Program regulations at 7 CFR 250.16(b). 

If the disaster relief organization is an agency of the State government, the State Distributing 

Agency has the discretion to direct that this information be maintained by the organization 

distributing the commodities, as provided in Food Distribution Program regulations at 7 CFR 

250.44(c)(3). 

__________________________________________________________________________ 

E. Rapid Food Response System 

The Rapid Food Response System (RFRS) is designed to ensure the availability of a more 

nutritionally balanced offering of commodities to support congregate feeding during 

disasters. The RFRS provides selected commodities that are normally available from the 

inventories of seven large states. These commodities are consistent with Federal nutrition 

guidance based on the Dietary Guidelines for Americans and the Food Guide Pyramid. 

Should a disaster occur, the State Distributing Agency would first use its own inventory of 

commodities. If it is unable to meet all requests for commodity assistance, it should seek 

additional commodities through the FNS Regional Office from neighboring states. 

To activate the Rapid Food Response System, the State Distributing Agency should 

contact its FNS Regional Office, which will approve such requests. The Regional Office 

will contact its participating Rapid Food Response State to obtain the needed commodities, 

and work with FNS Headquarters and the State Distributing Agency requesting the 

commodities to transport theme to the disaster area. 

(See Attachment 6 for additional background) 

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FNS Commodity Program Disaster Manual 2004

PART IV: AFTER THE DISASTER OR SITUATION OF DISTRESS... 

______________________________________________________________ 

A. Replacement of Donated Food 

State Distributing Agencies must submit requests for replacement of commodities used in 

disasters or situations of distress in writing to FNS Headquarters, via the FNS Regional 

Office, within 30 days of the termination of the assistance. Because funds for replacement 

of commodities used in situations of distress are limited, State Distributing Agencies are 

encouraged to notify FNS of their intent to request replacement as soon as possible. 

FNS will replace commodities used by State Distributing Agencies and Recipient Agencies 

for disaster feeding purposes with special funds made available following a Presidential 

declaration of disaster. FNS will also replace commodities used by State Distributing 

Agencies and recipient agencies for feeding purposes in situations of distress, as long at its 

annual appropriation of funds for emergency situations lasts. However, FNS has no 

authority to replace commodities for State Distributing Agencies or Recipient Agencies 

that are lost, destroyed, contaminated, or otherwise rendered unusable in a disaster due to 

flooding, fire, wind, power outage, or other cause. 

The Federal Emergency Management Agency (FEMA) is responsible for overall disaster 

relief. FEMA’s coverage provides funds to State and local government agencies, as well 

as to private businesses and citizens, for the recovery and/or replacement of lost or 

damaged property and other assets. Accordingly, commodity losses experienced at the 

State or local level must be incorporated into any claims files with FEMA for financial 

assistance. 

(Remember that a request for commodity replacement is required before the final 

summary report is due to FNS as indicated below.) 

_________________________________________________________________________

B. Final Summary Report to FNS 

The State Distributing Agency must provide a summary report to the FNS Regional Office 

within 45 days of the termination of relief operations following a disaster or situation of 

distress. The State Distributing Agency must complete and submit Form FNS-292, Report 

of Coupon Issuance and Commodity Distribution for Disaster Relief.

______________________________________________________________ 

C. State Distributing Agency Record Keeping Requirements 

All applications, extension requests and approvals from relief organizations, distributing 

agencies and FNS must be initially submitted or responded to in writing if circumstances 

permit, or confirmed in writing in a timely manner. All such records must be maintained 

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FNS Commodity Program Disaster Manual 2004

in the appropriate offices for 3 years plus the current year, as required by Food Distribution 

Program regulations at 7 CFR 250.16(b).

 The FNS-292: State Distributing Agencies will provide a summary report to the FNS 

Regional Office using Form FNS-292, Report of Food Stamp Benefit Issuance and 

Commodity Distribution for Disaster Relief. 

 In order to receive commodity replacement, the State Distributing Agency must report 

accurate amounts and values of commodities distributed during a disaster or situation 

of distress. To do this, the State Distributing Agency will need to identify the 

commodities taken from the State or contracted warehouse each time they are 

withdrawn and document the quantity and value of these commodities. 

 In addition, the State Distributing Agency must gather the quantity and values of 

commodities taken from all local agencies, combine those with the amounts and values 

withdrawn from State or contracted warehouses, and record the information as a 

summary attached to the Form FNS-292. 

 Recordkeeping in “Single Inventory” Management Systems: 

 Special documentation is required when a Recipient Agency which practices “single 

inventory” management (commingling of purchased and commodity foods) uses foods 

for disaster feeding, and the Recipient Agency requests commodity replacement. 

 The State Distributing Agency must acquire documentation that either: 

o Confirms that the foods used for the disaster were donated commodities or 

o Confirms the receipt of the same types of commodities (through consignee receipts 

or other records) by the Recipient Agency, during the year preceding the onset of 

the disaster feeding, as those foods used for disaster feeding. 

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Attachment 1 Disaster Questions and Answers 

1. What role does USDA/FNS play in response to disaster situations? 

There is a National Response Plan (NRP) that outlines the process for coordinating 

delivery of Federal assistance and resources to assist states and localities overwhelmed by 

a major disaster or emergency. The NRP supports implementation of the Robert T. 

Stafford Disaster Relief and Emergency Assistance Act as well as individual agency 

statutory authorities. 

USDA/FNS is the primary federal agency tasked with providing food relief (Emergency 

Support Function 11) under the NRP. When a disaster strikes, FNS is often called upon to 

provide immediate food assistance in the form of USDA commodities. However, the 

primary disaster relief response by FNS is the issuance of Disaster Food Stamp Benefits

to disaster victims. 

FNS may also provide infant formula and baby food when requested to do so by the 

State Distributing Agency. Such requests may originate from the Red Cross, state health 

agencies, or other agencies. All such requests should be made to the State Distributing 

Agency for submission through its FNS Regional Office to Headquarters. 

7 CFR 250.43 and 250.44 contain the regulations authorizing the Secretary of Agriculture 

to make commodities available to victims of disasters and situations of distress. 

2. Is there any difference in the response that the State Distributing Agency may make 

regarding a disaster as opposed to a situation of distress? 

When the President issues a disaster declaration, the State Distributing Agency may authorize 

the use of commodities for congregate feeding for the duration, with notice to the FNS 

Regional Office within 24 hours of doing so. 

When there is no presidential declaration, and a situation of distress arises from a natural 

catastrophe, the State Distributing Agency may authorize the use of commodities for up to 30 

days, with notice to the FNS Regional Office within 24 hours of doing so. FNS Headquarters 

approval is required to exceed 30 days. 

If a situation of distress arises from circumstances other that a natural catastrophe, or should 

the State Distributing Agency want to release commodities for distribution to households for 

home preparation, the State Distributing Agency must receive prior approval from FNS 

Headquarters. 

3. What is the role of the State Distributing Agency in response to disasters?

The State Distributing Agency receives and responds to requests for food assistance from 

non-profit disaster relief agencies such as the American Red Cross or the Salvation Army, 

and forwards pertinent information to the FNS Regional Office. This information 

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FNS Commodity Program Disaster Manual 2004

includes projections of the number of persons and meals expected to be served, length of 

time, types of commodities needed, etc. The State Distributing Agency also coordinates 

the release of commodities from its warehouses or from recipient agency inventories to 

meet the immediate need for food in the area affected by the disaster or situation of 

distress. 

4. What preparations should a State Distributing Agency make to respond to a 

request for disaster relief? 

The State Distributing Agency should become familiar with the Emergency Operations 

Plan in its state. Often, another individual within the State Agency is the liaison with the 

state’s Emergency Operations Center. In addition to being familiar with the people in that 

communication chain, the State Distributing Agency should maintain emergency phone 

numbers of individuals with physical control of commodity inventories to expedite their 

release and use in the event of a disaster or situation of distress. 

The State Distributing Agency should also incorporate instructions about the required 

protocols regarding the use of commodities for disaster feeding when conducting program 

training for its recipient agencies. 

5. When is prior FNS approval required for the State Distributing Agency to release 

commodities for disaster feeding purposes? 

FNS Headquarters approval is required for the distribution of commodities to households 

in both disasters and situations of distress. When FNS approves issuance of disaster food 

stamps, assurances must be made that individual households do not simultaneously receive 

food stamps and commodities for home preparation. 

Should a situation of distress arise from circumstances other that a natural catastrophe, 

FNS Headquarters approval is also required to use commodities for congregate feeding. 

6. What commodities may be used for disaster feeding purposes?

Commodities purchased for all FNS feeding programs may be used for a disaster or 

situation of distress. The most practical commodities to use for congregate feeding are 

those provided for the National School Lunch Program simply because the packaging, such 

as #10 cans, is designed for mass feeding. Commodities packaged in smaller sizes, such as 

# 300 cans, are more appropriate for household distribution. Small cans may complicate 

congregate feeding efforts, but they may be utilized. 

7. What is congregate feeding and where are such feeding sites set up? 

Congregate feeding involves feeding groups of people often staying in locally designated 

shelters. Congregate feeding may occur in schools, churches, community centers, and 

soup kitchens. It also involves meal service from mobile kitchens set up by non-profit 

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FNS Commodity Program Disaster Manual 2004

disaster response organizations, such as the American Red Cross, in designated service 

centers in the immediate disaster area. 

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FNS Commodity Program Disaster Manual 2004

8. May disaster relief workers be served meals containing commodity foods? Is there 

any limit as to their numbers or length of time they may be served? 

 

Once congregate feeding is approved for an area, disaster relief workers may also be served if 

such persons: 

1) have a reasonable need to be in the area, i.e. providing disaster relief; and 

2) they are unable to reasonably procure food on their own, because: 

a. the disaster has destroyed or disrupted normal commercial food channels; or, 

b. they are unable to reasonably and conveniently leave their duties to access 

food through whatever normal commercial channels may be available. 

There are no limits to the number of relief workers who may be served, and they may receive 

meals as long as the congregate feeding is in effect. 

9. Does USDA replace commodities used in a disaster or distress situation? How 

does use of “single inventory” management by schools affect commodity 

replacement?

FNS will replace commodities used under a disaster declaration if the State Distributing 

Agency provides appropriate documentation with the commodity replacement request. 

When a school that uses “single inventory” management (commingling of commercial and 

commodity foods) requests commodity replacement, the State Distributing Agency must 

provide documentation to FNS that: 

1) Confirms that the foods used for the disaster were donated commodities, or 

2) Confirms the receipt of the same types of commodities (through consignee receipts 

or other records) by the school, during the year preceding the onset of the disaster 

feeding, as those foods used for the disaster feeding. 

Funds are limited to replace commodities used in a situation of distress. Therefore, it is 

very important that the State Distributing Agency notify the FNS Regional Office as soon 

as possible of its intention to request commodity replacement. The FNS Regional Office 

will notify FNS Headquarters of the request for replacement, which in turn will determine 

whether sufficient funds are available. 

10. Does USDA reimburse the State Distributing Agency for any expenses incurred 

transporting commodities for emergency feeding? 

USDA will reimburse transportation expenses of a State Distributing Agency that arranges 

shipment of commodities to other States (interstate movement). The State Distributing 

Agency must bear any costs incurred in transporting commodities within its own borders. 

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FNS Commodity Program Disaster Manual 2004

11. Does USDA reimburse the State Distributing Agency or Recipient Agencies for 

processing fees paid for further processed commodities used for disaster feeding? 

No. USDA may reimburse only the value of the raw commodity contained in further 

processed items. The State Distributing Agency should consider this when evaluating 

whether it should release any further processed items in its control for disaster feeding 

purposes. 

12. What is the Rapid Food Response System? How does a State Distributing Agency 

receive assistance through the Rapid Food Response System? 

The Rapid Food Response System (RFRS) is designed to ensure the availability of a more 

nutritionally balanced offering of commodities to support congregate feeding during disasters. 

The RFRS provides selected commodities that are normally available from the inventories of 

seven large States. These commodities are consistent with Federal nutrition guidance based 

on the Dietary Guidelines for Americans and the Food Guide Pyramid. 

In the event of a disaster, the State Distributing Agency would first use its own inventory of 

commodities. If it is unable to meet all requests for commodity assistance, it should seek 

additional commodities through the FNS Regional Office from neighboring states. 

To activate the Rapid Food Response System, the State Distributing Agency should contact 

the FNS Regional Office, which will approve such requests. The Regional Office will contact 

its participating Rapid Food Response State to obtain the needed commodities, and work with 

the State Distributing Agency requesting the commodities to transport them to the disaster 

area. 

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FNS Commodity Program Disaster Manual 2004

25

Attachment 2 Food Distribution Programs Disaster Flowchart (1 of 2) 

Event Type of 

Assistance 

Application 

Channels 

Application Contents to extent 

possible – (initially in writing if 

possible) otherwise confirmed in 

writing in timely manner 

Approval 

Authority 

Notification 

Requirement 

Duration 

Congregate 

Meal Service 

(central 

site(s) 

serving 

prepared 

meals 

Disaster 

Organization 

(DO) applies 

to State 

Distributing 

Agency 

(SDA) 

1. Description of disaster 

2. Number of persons needing meals 

3. Anticipated duration of feeding 

4. Quantity / types of food needed 

5. Number / location of sites (as 

established) 

SDA may 

approve 

SDA informs 

FNSRO of 

approval with 

copy of 

application(s) 

within 24 hours 

SDA may 

initially 

determine 

and 

extend 

duration 

DISASTER 

Presidential 

Declaration

that, in U.S.: 

1.catastrophe 

of natural or 

other causes, 

warrants 

assistance 

under the 

Stafford Act 

FNSHQ 

will 

initially 

determine 

and may 

extend 

duration 

2. any other 

instance 

warrants 

Federal 

assistance to 

lessen or 

avert threat 

of 

catastrophe 

Household 

Distribution 

(central 

site(s) 

distributing 

USDA 

commodities 

to 

households 

for them to 

prepare 

meals at 

home) 

Disaster 

Organization

(DO) applies 

to State 

Distributing 

Agency 

(SDA), 

which if it 

approves, 

seeks (via 

FNSRO) 

FNSHQ 

approval. 

1. Description of disaster 

2. Identify specific geographic area(s) 

3. Number of households affected 

4. Why household distribution 

warranted 

5. Anticipated duration of feeding 

6. Method(s) of distribution available 

7. Quantity / types of food needed 

8. Assurance households won’t get 

commodities and disaster food stamps 

9. System to prevent dual participation 

10. Number / location of sites (as 

established) 

FNSHQ 

must 

approve 

N/A 

SDA may 

approve 

for up to 

30 days if 

situation 

is a 

natural

event 

SDA informs 

FNSRO of 

approval with 

copy of 

application(s) 

within 24 hours 

and if it extends 

duration of 

initial approval 

up to 30 day 

limit 

Extension 

beyond 30 

days 

requires 

FNSHQ 

approval 

Congregate 

Meal Service 

(central 

site(s) 

serving 

prepared 

meals 

Disaster 

Organization 

(DO) applies 

to State 

Distributing 

Agency 

(SDA) 

1. Description of situation of distress 

2. Number of persons needing meals 

3. Anticipated duration of feeding 

4. Quantity / types of food needed 

5. Number / location of sites (as 

established) 

If not a 

natural 

event, 

SDA must 

seek (via 

FNSRO) 

FNSHQ 

approval 

N/A 

SITUATION 

OF 

DISTRESS 

No 

Presidential 

Declaration,

but: 

1. if natural

catastrophe, 

in judgment 

of SDA 

warrants use 

of USDA 

commodities 

for 

congregate 

feeding, or 

2. if nonnatural 

event, in 

judgment of 

FNS

warrants use 

of USDA 

commodities 

for 

congregate 

feeding or 

household 

distribution 

Household 

Distribution 

(central 

site(s) 

distributing 

USDA 

commodities 

to 

households 

for them to 

prepare 

meals at 

home) 

Disaster 

Organization 

(DO) applies 

to State 

Distributing 

Agency 

(SDA), 

which if it 

approves, 

seeks (via 

FNSRO) 

FNSHQ 

approval. 

1. Description of situation of distress 

2. Identify specific geographic area(s) 

3. Number of households affected 

4. Why household distribution 

warranted 

5. Anticipated duration of feeding 

6. Quantity / types of food needed 

7. Assurance households won’t get 

commodities and disaster food stamps 

8. System to prevent dual participation 

9. Number / location of sites (as 

established) 

FNSHQ 

must 

approve. 

N/A 

FNSHQ 

will 

initially 

determine 

and may 

extend 

duration 
FNS Commodity Program Disaster Manual 2004

26

Attachment 2 Food Distribution Programs Disaster Flowchart (2 of 2) 

Foods to 

Use 

Collection of written 

household information 

by DO to include: 

Record keeping 

Requirement 

Replacement Reporting Requirement 

N/A (1) 

Applications/ approvals 

to be kept according to 

requirements of Part 

250 

Foods 

from 

ALL FNS 

Programs 

1. Name of applicant 

2. Address 

3. Number in household 

4. Signed statement that 

household is/will not: 

A. lying about need 

B. sell/trade 

commodities 

C. residing in a shelter 

serving meals 

D. getting disaster food 

stamps 

See (1) above; 

Also DO must forward 

household information 

to SDA; 

SDA may allow DO to 

keep these records if 

DO is an agency of 

State govt. 

All foods used from State and 

local inventories replaced 

State must request replacement 

within 30 days of end of 

assistance 

FNS may waive 30 day 

deadline with justification 

N/A See (1) above 

Foods N/A See (1) above 

from 

ALL FNS 

Programs 

1. Name of applicant 

2. Address 

3. Number in household 

4. Signed statement that 

household is/will not: 

A. lying about need 

B. sell/trade 

commodities 

C. residing in a shelter 

serving meals 

D. getting disaster food 

stamps 

See (1) above; Also DO 

must forward household 

information to SDA; 

SDA may allow DO to 

keep these records if 

DO is an agency of 

State govt. 

State must request replacement 

of foods used from State and 

local inventories within 30 days 

of end of assistance 

FNS will replace such foods 

only to the extent that funding 

is available 

Replacement cannot therefore 

be guaranteed 

Within 45 days of end of 

assistance SDA files form 

FNS-292 (Report of Coupon 

Issuance and Commodity 

Distribution for Disaster 

Relief) with FNSRO 
FNS Commodity Program Disaster Manual 2004

Attachment 3 The National Response Plan

The Department of Homeland Security is responsible for the National 

Response Plan to ensure that all levels of government work together in 

response to disasters of all kinds. Copied below is a brief fact sheet on the 

plan. For additional details access the website at www.dhs.gov

THE NATIONAL RESPONSE PLAN 

What it does for America 

The National Response Plan establishes a comprehensive all-hazards approach to enhance 

the ability of the United States to manage domestic incidents. The Plan incorporates best 

practices and procedures from incident management disciplines—homeland security, 

emergency management, law enforcement, firefighting, public works, public health, 

responder and recovery worker health and safety, emergency medical services, and the 

private sector—and integrates them into a unified structure. It forms the basis of how 

federal departments and agencies will work together and how the federal government will 

coordinate with state, local, and tribal governments and the private sector during incidents. 

 It establishes protocols to help protect the nation from terrorist attacks and other natural 

and manmade hazards; save lives; protect public health, safety, property, and the 

environment; and reduces adverse psychological consequences and disruptions to the 

American way of life. 

Plan Organization 

Base Plan: Concept of Operations, Coordinating Structures, Roles and Responsibilities, 

Definitions, etc. 

Appendixes: Glossary, Acronyms, Authorities, and Compendium of National Interagency 

Plans 

Emergency Support Function Annexes: Groups capabilities & resources into functions that 

are most likely needed during an incident (e.g., Transportation, Firefighting, Mass Care, 

etc.) 

Support Annexes: Describes common processes and specific administrative requirements 

(e.g., Public Affairs, Financial Management, Worker Safety & Health, etc.) 

Incident Annexes: Outlines core procedures, roles and responsibilities for specific 

contingencies (e.g., Bio, Radiological, Cyber, HAZMAT Spills) 

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FNS Commodity Program Disaster Manual 2004

National Response Plan Incident Management Priorities 

• Save lives and protect the health and safety of the public, responders, and recovery 

workers. 

• Ensure security of the homeland. 

• Prevent an imminent incident, including acts of terrorism, from occurring. 

• Protect and restore critical infrastructure and key resources. 

• Conduct law enforcement investigations to resolve the incident, apprehend the 

perpetrators, and collect and preserve evidence for prosecution and/or attribution. 

• Protect property and mitigate damages and impacts to individuals, communities, 

and the environment. 

• Facilitate recovery of individuals, families, businesses, governments, and the 

environment. 

Emphasis on Local Response 

• The Plan identifies police, fire, public health and medical, emergency management, 

and other personnel as responsible for incident management at the local level. 

• The Plan enables incident response to be handled at the lowest possible 

organizational and jurisdictional level. 

• The Plan ensures the seamless integration of the federal government when an 

incident exceeds local or state capabilities. 

• Timely Federal Response to Catastrophic Incidents 

• The Plan identifies catastrophic incidents as high-impact, low-probability incidents, 

including natural disasters and terrorist attacks that result in extraordinary levels of 

mass casualties, damage, or disruption severely affecting the population, 

infrastructure, environment, economy, national morale, and/or government 

functions. The Plan provides the means to swiftly deliver federal support in 

response to catastrophic incidents. 

Multi-agency Coordination Structure 

• The Plan identifies police, fire, public health and medical, emergency management, 

and other personnel as responsible for incident management at the local level. 

• The Plan enables incident response to be handled at the lowest possible 

organizational and jurisdictional level. 

• The Plan ensures the seamless integration of the federal government when an 

incident exceeds local or state capabilities. 

New Coordinating Features in the National Response Plan 

Homeland Security Operations Center (HSOC): The HSOC serves as the primary national 

level multi-agency hub for domestic situational awareness and operational coordination. 

 The HSOC also includes DHS components, such as the National Infrastructure 

Coordinating Center (NICC), which has primary responsibility for coordinating 

communications with the Nation’s critical infrastructure during an incident. 

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FNS Commodity Program Disaster Manual 2004

National Response Coordination Center (NRCC): The NRCC, a functional component of 

the HSOC, is a multi-agency center that provides overall federal response coordination. 

Regional Response Coordination Center (RRCC): At the regional level, the RRCC 

coordinates regional response efforts and implements local federal program support until a 

Joint Field Office is established. 

Interagency Incident Management Group (IIMG): A tailored group of senior federal 

interagency experts who provide strategic advice to the Secretary of Homeland Security 

during an actual or potential Incident of National Significance. 

Joint Field Office (JFO): A temporary federal facility established locally to provide a 

central point to coordinate resources in support of state, local, and tribal authorities. 

Principal Federal Official (PFO): A PFO may be designated by the Secretary of 

Homeland Security during a potential or actual Incident of National Significance. While 

individual federal officials retain their authorities pertaining to specific aspects of incident 

management, the PFO works in conjunction with these officials to coordinate overall 

federal incident management efforts. 

Maintaining the National Response Plan 

• The Department of Homeland Security/Emergency Preparedness and Response 

(EP&R)/Federal Emergency Management Agency (FEMA), in close coordination 

with the DHS Office of the Secretary, will maintain the National Response Plan. 

• The Plan will be updated to incorporate new Presidential directives, legislative 

changes, and procedural changes based on lessons learned from exercises and 

actual events. 

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FNS Commodity Program Disaster Manual 2004

Attachment 4 Regulations: 7CFR 250.3, 250.42, 250.44 

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Attachment 5 Clarification of Commodity Replacement... 

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FNS Commodity Program Disaster Manual 2004

Attachment 6 Rapid Food Response System (background) 

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