U.S. Department of Agriculture 

Food Safety and Inspection Service 

GUIDE TO 

DEVELOPING A FOOD DEFENSE PLAN 

FOR 

WAREHOUSE AND DISTRIBUTION CENTERS

JANUARY 2008 

BY COMPLETING PAGE 11 IN THIS GUIDE, WAREHOUSE 

AND DISTRIBUTION CENTERS WILL HAVE A FOOD 

DEFENSE PLAN FOR THEIR OPERATION 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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What is Food Defense? 

Food defense is putting measures in place that reduce the chances of the food supply from 

becoming intentionally contaminated using a variety of chemicals, biological agents or other 

harmful substances by people who want to do us harm. These agents could include materials 

that are not naturally-occurring or substances not routinely tested for in food products. A 

terrorist’s goal might be to kill people, disrupt our economy, or ruin your business. Intentional 

acts generally occur infrequently, can be difficult to detect, and are hard to predict. 

Food defense is not the same as food safety. Food safety addresses the accidental contamination 

of food products during storage and transportation and focuses on biological, chemical or 

physical hazards. The main types of food safety hazards are microbes, chemicals and foreign 

objects. Products can become contaminated through negligence and can occur during storage 

and transportation. 

Some of the information you will use to create your Food Defense Plan will already exist in 

your Sanitary Standard Operating Procedures (SSOPs), Hazard Analysis and Critical 

Control Point plan (HACCP) and other documents relating to emergency response 

procedures. Make sure to consult these documents for information. There is no need to 

“reinvent the wheel” when developing your Food Defense Plan. 

Why Develop a Food Defense Plan? 

A Food Defense Plan helps you identify steps you can take to minimize the risk that food 

products in your establishment will be intentionally contaminated or tampered with. A plan 

increases preparedness. Although the plan should be in place at all times, it may be particularly 

helpful during emergencies. During a crisis, when stress is high and response time is at a 

premium, a documented set of procedures improves your ability to respond quickly. A Food 

Defense Plan will help you maintain a safe working environment for your employees, 

provide a safe product to your customers, and protect your business. 

To help owners and operators of warehouse and distribution centers, USDA’s Food Safety and 

Inspection Service (FSIS) has created this guide to assist you in developing a cost-effective Food 

Defense Plan for your facility. This guide was developed in consultation with a variety of 

warehouse and distribution center establishments in an attempt to ensure that the information 

presented is beneficial, practical and achievable. 

By using this guide, you will be able to develop a food defense plan specific to your facility. 

Complete page 11 and you will have your plan. Keep in mind that not all of the guidance 

contained in this document may be appropriate or practical for every warehouse and distribution 

center. FSIS recommends you review the guidance and assess which preventive measures are 

suitable for your operation. You should determine the most cost-effective way to achieve food 

defense goals based on your facility’s situation. It is important to remember that there is no 

“one size fits all” approach to creating your Food Defense Plan. The plan can be as long or 

as short as is appropriate for your operation.
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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Who Might Adulterate a Food Product? 

Below are some examples of the types of individuals who might be motivated to intentionally 

adulterate food products. You should contact your local law enforcement community for 

additional information about potential local threats to your facility. 

Examples of Threats 

• Disgruntled current or former employee 

• Members of terrorist or activist groups posing as: 

- Cleaning crew 

- Contractors 

- Temporary employees 

- Truck drivers (shipping and receiving) 

- Visitors 

- Utility Representatives 

Individuals that want to intentionally adulterate product and do not have authorized access to 

your facility are considered intruders. Another threat may come from an internal source, such as 

disgruntled current or former employees and other insiders, who typically know what procedures 

are followed in the facility and often know how to bypass many security controls that would 

detect or delay an outside intruder. 

Steps in Developing a Food Defense Plan 

FSIS recommends using the following three steps when developing a Food Defense Plan. If you 

follow and complete these steps and use the forms provided as a template, you will have 

developed a food defense plan for your facility. 

Should you need help using or have questions about this guidance, please contact the FSIS 

Office of Food Defense and Emergency Response (OFDER) at 866-395-9701. 

Step 1 – Conduct a Food Defense Assessment 

Begin by choosing a person or team to be responsible for the security of your warehouse or 

distribution center. The team or responsible person will answer the questions in the assessment 

below to help you understand which parts of your facility may be more vulnerable. When 

completing this assessment remember to consider both potential internal and external threats. 

The results of the assessment should be kept confidential so that they do not provide a roadmap 

for future attacks. 

To use the following Food Defense Assessment, read each question and check the response that 

best describes how your business operates. Keep in mind that not all questions will be 

appropriate for all facilities. If a question does not apply, check “N/A”. A “Yes” response for 

every question is desirable but not expected. A “No” answer on a question does not 

necessarily mean there is a serious problem with security at your warehouse or distribution 

center. A “No” should trigger some thinking about whether additional security measures 

are needed. Some questions provide a website address for additional information that might 

help you formulate your plan. 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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Outside Security 

1. What food defense measures does your warehouse/distributorship have in place for the 

exterior of the building? 

Yes No N/A 

Are the facility’s grounds secured to prevent entry by unauthorized persons 

(e.g., by locked fence, gate or entry/exit doors, guard service)? 

Is there enough lighting outside the building to properly monitor the warehouse at 

night/early morning? 

Do emergency exits have self-locking doors and/or alarms? 

2. Are the following secured with locks, seals, or sensors when unattended (after 

hours/weekends) to prevent entry by unauthorized persons? 

Yes No N/A 

Outside doors and gates? 

Loading dock doors? 

Trash compacting chutes? 

Windows? 

Roof openings? 

Vent openings? 

Trailer (truck) bodies? 

Truck hatches? 

Railcars? 

3. Does your warehouse/distributorship have food defense procedures for people and/or 

vehicles entering the facility and/or parking in your lot?

Yes No N/A 

Does the property have a controlled or guarded entrance? 

Are employee vehicles identified using placards, decals, or some other form of 

visual identification? 

Are authorized visitor/guest vehicles identified using placards, decals, or some 

other form of visual identification? 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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General Inside Security 

4. Does your warehouse/distributorship have food defense measures inside the facility?

Yes No N/A 

Is there an emergency lighting system in the facility? 

Does your warehouse/distributorship have monitored security cameras (CCTV)? 

Does your building have an emergency alert system that is tested regularly? 

Are the locations of controls for emergency alert systems clearly marked? 

Are all restricted areas (i.e., areas where only authorized employees have access) 

clearly marked? 

Are visitors, guests, and other non-employees (e.g., contractors, salespeople, 

truck drivers) restricted to non-product areas unless accompanied by an 

authorized employee? 

Does local law enforcement (including the fire department) have up-to-date 

copies of facility layouts/blueprints? 

Are procedures in place to check toilets, maintenance closets, personal lockers, 

and storage areas for suspicious packages? 

Do you regularly take inventory of keys to secured/sensitive areas of the 

facility? 

Are ventilation systems constructed in a manner that provides for immediate 

isolation of contaminated areas or rooms? 

5. Are the controls for the following systems restricted (e.g., by locked door/gate or limiting 

access to designated employees) to prevent access by unauthorized persons? 

Yes No N/A 

Heating, Ventilation, and Air Conditioning systems? 

Propane Gas? 

Water systems? 

Electricity? 

Refrigeration systems? 

Volatile chemicals used in refrigeration? 

Engine/compressor rooms? 

6. Does your facility have food defense procedures in place for its computer systems? 

Yes No N/A 

Is the access to the system password-protected? 

Are firewalls built into the computer network? 

Is the system using a current virus detection system? 

Are back ups kept off-site? 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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7. Which of the following food defense procedures does your facility have in place for the 

storage of hazardous materials/chemicals such as pesticides, industrial chemicals, cleaning 

materials, and disinfectants? 

Yes No N/A 

Is the access to inside and outside storage areas for hazardous 

materials/chemicals such as pesticides, industrial chemicals, cleaning materials, 

and disinfectants restricted in some manner to allow use by designated 

employees only? 

Is a regular inventory of hazardous materials/chemicals maintained? 

Are discrepancies in daily inventory of hazardous materials/chemicals (in 

excess of household use) immediately investigated? 

Is a procedure in place to receive and securely store hazardous chemicals? 

Is a procedure in place to control disposition of hazardous chemicals? 

Shipping and Receiving Security 

8. Does your facility have food defense procedures in place for handling outgoing shipments? 

(Helpful information is provided at the following website: 

http://www.fsis.usda.gov/oa/topics/transportguide.htm) 

Yes No N/A 

Are outgoing shipments sealed with tamper-evident seals? 

Are the seal numbers on outgoing shipments documented on the shipping 

documents? 

Do you keep records of the above-referenced inspections? 

Is a bill of lading maintained for all outbound activity? 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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9. Which of the following food defense procedures does your facility have in place for handling 

incoming shipments? 

Yes No N/A 

Is access to loading docks controlled? 

Are loaded trailers and/or rail cars on the premises maintained under lock 

and/or seal? 

Are trailers and rail cars inspected prior loading and unloading? 

Is a bill of lading maintained for all inbound activity? 

Is advance notification from suppliers (by phone, e-mail, or fax) required for 

all incoming deliveries? 

Are suspicious alterations in the shipping documents immediately 

investigated? 

Are all deliveries checked against the roster of scheduled deliveries? 

Are unscheduled deliveries held outside facility premises pending verification? 

Are off-hour deliveries accepted? 

If off-hour deliveries are accepted, is prior notice of the delivery required? 

If off-hour deliveries are accepted, is the presence of an authorized individual 

to verify and receive the delivery required? 

Are less-than-truckload (LTL) or partial load shipments vehicles checked? 

Are incoming shipments of products required to be sealed with tamper-evident 

or numbered seals (and documented in the shipping documents)? Are these 

seals verified prior to entry? 

Are transportation companies selected with consideration of the company’s 

ability to safeguard the security of product being shipped? 

Do the transportation companies perform background checks on drivers and 

other employees who have access to products? 

When choosing your compressed gas vendor do you consider whether or not 

they have implemented general security measures? 

10. Does this facility allow returned goods, including returns of U.S. exported products, to enter 

the plant? 

 Yes 

 No [GO to Question 12 under Mail Handling Security] 

11. Which of the following food defense procedures does this facility have in place for returned 

goods?

Yes No N/A 

Are all returned goods segregated in the plant for evidence of possible 

tampering before salvage? 

Are records maintained for returned goods? 

Does the plant follow the procedures outlined in FSIS Directive 9010.1 for 

return of U.S. exported products? 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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Mail Handling Security 

12. Which of the following food defense procedures does this facility have in place to ensure 

mail handling security? 

Yes No N/A 

Is mail handling activity conducted outside operations? (For example, in a 

separate room or facility away from operations?) 

Are mail-handlers trained to recognize and handle suspicious pieces of mail 

using U.S. Postal Service guidelines? (Helpful information is provided at the 

following website: http://www.usps.com/news/2001/press/serviceupdates.htm) 

Personnel Security 

13. Which of the following food defense procedures does your facility have in place for ensuring 

that personnel adhere to the security requirements?

Yes No N/A 

Are background checks conducted on all employees and contractors (both 

permanent and seasonal) who will be working in sensitive operations? 

Do all employees receive training on security procedures as part of their 

orientation training? 

Are employees, visitors, and contractors (including construction workers, 

cleaning crews, and truck drivers) identified in some manner at all times while 

on the premises? 

Does your facility control access by employees and contractors entering the 

plant during working hours (e.g. coded doors, receptionist on duty, swipe card, 

etc.)? 

Does your facility control entry of employees and contractors into the plant 

during non-working hours (e.g. access limited by key card or code number)? 

Does your facility have a way to restrict temporary employees and contractors 

(including construction workers, cleaning crews, and truck drivers) to areas of 

the warehouse relevant to their work? 

Is an updated shift roster (i.e., who is absent, who the replacements are, and 

when new employees are being integrated into the workforce) kept by 

management for each shift? 

Do you inspect employee lockers? 

Are employees and/or visitors restricted as to what they can bring (cameras, 

etc.) into the warehouse? 

Are employees monitored when removing company-provided clothing or 

protective gear from the premises? 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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Step 2 – Develop a Food Defense Plan 

Now that you have identified the aspects of your warehouse or distribution center that may be 

vulnerable you will need to identify cost-effective preventive actions that can be taken to 

minimize those vulnerabilities. 

At a minimum, your Food Defense Plan should address: 

• inside security 

• outside security 

• storage security 

• shipping and receiving security 

Some examples of potential vulnerabilities and food defense measures are listed below. 

Additional defense measures may be found in trade association guidance material. 

General Inside Security 

Sample Vulnerabilities Potential Food Defense Measures 

Unescorted visitors with access to storage areas Limit visitor access through the use of checkpoints and 

badges. Restrict visitors from congregating/waiting in close 

proximity to outside dock areas. 

Personnel security- contractors Require contractors to screen and train their employees. 

Provide plant supervision or oversight of contract staff 

working in the facility. 

Storage Security 

Sample Vulnerabilities Potential Food Defense Measures 

Cleaning supplies, pest control chemicals and 

other hazardous material may be used as 

contaminants. 

Secure access to all points of building entry during nonoperating hours. Control use and storage of hazardous 

materials by locking in area away from other inventory. 

Allow access to only those who should have access. 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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Shipping and Receiving Security 

Sample Vulnerabilities Potential Food Defense Measures 

Unscheduled deliveries Accept receipt of only scheduled deliveries. Inventory 

packages against manifest and order forms and examine 

package integrity. 

Products shipped in unsecured trucks, or multiple 

deliveries per shipment (less-than-truckload) 

All truck shipments should be secured by use of tamperevident seals. Drivers should be trained regarding proper 

shipping documentation. 

Contaminants placed in products awaiting 

loading/unloading 

Make periodic checks of integrity of packaging. Require 

personnel identification badges. Increase employee 

awareness of this risk. CCTV may also be used. 

Truck drivers on dock with access to plant Have drivers sign in and escort them at all times while 

inside the facility. 

General Outside Security 

Sample Vulnerabilities Potential Food Defense Measures 

Open perimeter, allowing access to facility Secure all entry ways, windows, vents, loading bays, and 

other access points. 

Exterior access to storage areas, loading docks, 

on site trailers used for cold and dry storage 

Fence exterior access points to storage structures. Secure all 

access points, including loading areas. Install exterior 

lighting. Use tamper-evident locks or seals on trailers. 

Using the above information, you are now ready to complete your plan. After completing the 

following pages you will have successfully developed a Food Defense Plan for your specific 

facility. Congratulations! 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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Food Defense Plan 

(Your facility’s name) ______________________________________________ 

Step 1. Begin by answering the self assessment questions in this guide or the attached pamphlet 

to determine if changes should be made to your current practices. 

Step 2. Copy the possible areas of vulnerability you found you may have into the column called 

“Vulnerability” below. Then in the column beside it, list what food defense solutions you plan to 

use to reduce them. If you do not know of possible solutions, you may contact the FSIS Office of 

Food Defense and Emergency Response (OFDER) at 866-395-9701. You may also find help 

through your trade association. 

Outside Security 

 Vulnerability Food Defense Solutions 

Example: There is no outside surveillance system. Example: Install a security system. 

Inside Security 

Vulnerability Food Defense Solutions 

Example: No record of customers to contact in 

case of a food recall. 

Example: Keep a list of major customers, how to contact 

them and what foods they generally buy. 

Shipping and Receiving Security 

Vulnerability Food Defense Solutions 

Example: Deliveries are never on a schedule. Example: Set up a delivery schedule with supplier and 

stick to it. 

Personnel Security 

Vulnerability Food Defense Solutions 

Example: Employees do not know that 

intentional food poisoning could occur 

Example: Discuss intentional food poisoning with 

employees and what they should do if they suspect it. 

If you suspect someone has tampered with food at your facility consult your emergency contact 

list (see page 14). 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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Step 3 – Implement the Food Defense Plan 

Once you have a written Food Defense Plan, these questions will help you to ensure that it is 

functional and up-to-date 

Yes No N/A 

Is there a designated person or team to implement, manage and update the Food 

Defense Plan? 

Have appropriate personnel been trained in food defense? 

Are the details of food defense procedures kept confidential? 

Is the emergency contact information for local, state, and federal government 

homeland security authorities and public health officials included in the food 

defense plan? 

Is the contact information reviewed and updated regularly? 

Have you or someone in your facility initiated contact with these authorities? 

Are employees encouraged to report signs of possible product contamination, 

unknown or suspicious persons in the facility, or breaks in the food defense 

system? 

Does the plan contain evacuation procedures? (Helpful information is provided at 

the following website: www.osha.gov/dep/evacmatrix/index.html) 

Are procedures in place to restrict access to the facility to authorized personnel 

only during an emergency? 

Does the facility have a documented recall plan that is updated regularly and 

ensures the segregation and proper disposition of recalled products? 

As discussed above, key elements of effective plan implementation include assigning 

responsibilities, training staff, developing contact lists, and checking your recall plan. 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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Assigning Responsibilities

Individual employee’s food defense responsibilities should be defined and documented in your 

plan. Assign overall responsibility for food defense to a single employee, if possible, who has an 

understanding of the security requirements. 

Staff Training 

Train staff in all provisions of the plan. The purpose of food defense awareness training is to 

ensure your employees know their responsibilities. Training should address access control 

procedures, access to restricted areas, protecting critical components, and procedures for 

reporting suspicious activities. Understanding the threat of intentional adulteration and the 

potential consequences should help employees consistently execute preventive measures, 

increasing the overall effectiveness of the plan. Encourage the “neighborhood watch” concept - 

employees can be your “eyes and ears”. 

Food Defense Plan Assessment and Revision 

Review your plan and revise it, as needed, at least annually or when there is a change in your 

process. You may need to revise the plan to address changing conditions such as adding a new 

customer; adding a new technology; etc. Record the fact that you have done so in the space 

below. 

Date Reason for Assessment Signature 
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Emergency Contact Numbers

In addition to warehouse employees, current local, state and federal government Homeland 

Security contacts and public health officials should be listed in the plan. Local law enforcement 

and FBI offices should also be included in the contact list. Update the list regularly. You may 

wish to keep this list near your phones for a ready reference. 

Person, Agency or Organization Phone Number 

Warehouse Emergency Contact/Crisis Management Team 

Local Police Department 

Local FBI Office Weapons of Mass Destruction Coordinator 

http://www.fbi.gov/hq/nsb/wmd/wmd_home.htm 

City/County Department of Health 

State Department of Health 

State Department of Emergency Response or Homeland Security 

USDA FSIS OPEER 

USDA FSIS Office of Food Defense & Emergency Response 866-395-9701 

FDA 

Customers 

Insurance Carrier 

Other 

Product Recall Procedures

You probably already have Product Recall Procedures developed and included in some other 

plan in your operation. Please review your recall procedures and determine if any updates need 

to be made to address food defense concerns. If you do not have established recall procedures in 

place, please contact an industry trade association for additional information. 
Guide to Developing a Food Defense Plan for Warehouse and Distribution Centers 

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List of Resources 

Here is a list of sources of helpful information to consult when developing your facility’s food 

defense plan. 

FSIS “Safety & Security Guidelines for the Transportation & Distribution of Meat, 

Poultry & Egg Products” 

http://www.fsis.usda.gov/PDF/Transportation_Security_Guidelines.pdf

FSIS “Guidelines for the Disposal of Intentionally Adulterated Food Products and the 

Decontamination of Food Processing Facilities”

http://www.fsis.usda.gov/PDF/Disposal_Decontamination_Guidelines.pdf

World Health Organization (WHO) – “Terrorist Threats to Food – Guidelines for 

Establishing and Strengthening Prevention and Response Systems” 

(ISBN 92 4 154584 4) 

http://www.who.int/foodsafety/publications/general/terrorism/en/

U.S. Food and Drug Administration (FDA) – Food Defense & Terrorism 

http://www.cfsan.fda.gov/~dms/defprog.html

U.S. Food and Drug Administration (FDA) – “Retail Food Stores and Food Service 

Establishments; Food Security Preventive Measures Guidance” 

http://www.cfsan.fda.gov/~dms/secgui11.html 

U.S. Food and Drug Administration (FDA) – ALERT: The Basics

http://www.cfsan.fda.gov/~dms/alert.html

Center for Infectious Disease Research and Policy (CIDRAP), Academic Health Center, 

University of Minnesota 

http://www.cidrap.umn.edu/cidrap/content/biosecurity/food-biosec/guidelines

County of San Diego, Department of Environmental Health, “Guidelines for Food 

Safety and Security” 

http://www.sdcounty.ca.gov/deh/fhd/pdf/food_safety_security_217.pdf