NASDA

National Association

State Departments of Agriculture

Food Emergency 

Response Plan Template

August 2011

Version 4.0
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Food Emergency Response Plan

This work was funded by the Office of Health Affairs, Department of Homeland Security, under Contract 

No. HSHQDC-10-C-00151. The work constitutes and contains the intellectual property of the Department 

of Homeland Security. The work may be used freely for governmental food emergency response planning 

purposes and not for commercial use. Any other use requires written permission from the Department of 

Homeland Security.

NASDA appreciates the expertise and cooperation of JHC Associates, L.L.C. and SES, Inc. on fulfilling 

the obligations of this contract and the assistance, cooperation, and guidance of DHS in accomplishing this 

task. NASDA is also grateful to those state and federal representatives who offered their time and feedback 

reviewing this document. 
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Food Emergency Response Plan

TABLE OF CONTENTS

PREFACE ......................................................................................................................................................... v

I. INTRODUCTION ........................................................................................................................................ 1

II. PURPOSE ................................................................................................................................................... 1

III. SCOPE ....................................................................................................................................................... 2

IV. SITUATIONS .............................................................................................................................................2

V. ASSUMPTIONS ......................................................................................................................................... 4

VI. CONCEPT OF OPERATIONS ................................................................................................................. 6

Incident Identification ................................................................................................................................ 6

Incident Management ................................................................................................................................ 7

Defining Response Actions ........................................................................................................................ 9

Communication and Coordination .............................................................................................................. 10

Assessment, Control and Containmen......................................................................................................... 12

Food Emergency Response Teams ......................................................................................................... 12

Food Safety Surveillance ....................................................................................................................... 13

Foodborne Contamination or Adulteration Surveillance and Investigation ......................................... 13

Laboratory Services ................................................................................................................................ 14

Recovery .................................................................................................................................................. 16

VII. PRINCIPAL PARTIES ............................................................................................................................. 17

State ............................................................................................................................................................. 17

Federal ........................................................................................................................................................ 17

Tribal .......................................................................................................................................................... 18

Local .......................................................................................................................................................... 18

Private Sector .............................................................................................................................................. 18

VIII. ACTIONS .............................................................................................................................................. 18

IX. ORGANIZATIONS AND ASSIGNMENT OF RESPONSIBILITIES ................................................... 18

Governor .................................................................................................................................................... 19

Lead Agency ................................................................................................................................................ 19

State Agencies or Departments Supporting the Lead Agency .................................................................... 20

Federal Agencies ......................................................................................................................................... 21

Tribal Governments .................................................................................................................................... 21

Local Government ...................................................................................................................................... 21

Emergency Management ........................................................................................................................ 21

Emergency Responders .......................................................................................................................... 21

Local Health Departments .................................................................................................................... 21

Local Hospitals ..................................................................................................................................... 22

Local Law Enforcement ........................................................................................................................ 22

Local Elected Officials .......................................................................................................................... 22

Voluntary Organizations Active in Disasters and Other Volunteer Response Teams ........................... 22

Private Sector ............................................................................................................................................. 22

Trade Associations ................................................................................................................................. 23

Private Hospitals or Clinics ................................................................................................................... 23

Poison Control Center (Oversite may be private, state, or private/public partnerships) ...................... 23

X. DIRECTION, CONTROL AND COORDINATION ................................................................................. 24

XI. INFORMATION COLLECTION AND RESOURCES ........................................................................... 24

XII. COMMUNICATIONS ............................................................................................................................ 25

XIII. ADMINISTRATION ............................................................................................................................. 25

XIV. PLAN DEVELOPMENT AND MAINTENANCE ............................................................................... 26

XV. AUTHORITIES AND REFERENCES ................................................................................................... 27
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Food Emergency Response Plan

PREFACE

This document is part of an effort to develop a seamless system of food defense between local, state and 

federal jurisdictions. It addresses the goal of protecting public health and enhancing the protection of the 

United States agricultural industry and food security through the increased prevention, detection, response 

and recovery planning. 

In January 2006, the National Association of State Departments of Agriculture (NASDA), in cooperation 

with USDA’s Food Safety Inspection Service (FSIS), the Food and Drug Administration (FDA), and the 

Department of Homeland Security (DHS) developed best practices and guidelines for state and local 

emergency response efforts for incidents involving the nation’s food supply. The resulting document was 

a template designed to help states develop food emergency response plans that dovetail with the federal 

response protocols outlined in the National Response Plan (NRP) and associated annexes. The original 

template was made available to states in the spring of 2006.

Considerable changes in federal guidance and response structure have occurred since the initial template 

release in 2006. In September of 2010, DHS approached NASDA to update the template. The 2011 

template has been revised for consistency with the following documents: National Response Framework 

(NRF), Target Capabilities List (TCL), Comprehensive Preparedness Guide (CPG) 101, NIPP, Homeland 

Security Presidential Directive-9 (HSPD 9), Agriculture and Food Critical Infrastructure and Key Resources 

(CI/KR) Sector Specific Plan, and the National Incident Management System (NIMS). In addition, this 

revised template has been reviewed and approved by federal, state and private sector subject matter experts. 

This template is designed to assist states with developing a food emergency response plan. 

About Food Emergencies

A food-related emergency involves the adulteration and/or contamination, threatened or actual, of food, 

that impacts or may impact human health. The Food Emergency Response Plan (FERP) does not apply 

to food incidents of a limited scope that are routinely handled by local or state health departments or other 

food safety agencies such as state agriculture departments. The FERP applies to food emergencies that may 

involve a large number of people in a small area, or that are widespread, involving a number of localities 

or states. In general, the scope of a food emergency will exceed the capacity of the entity or jurisdiction 

immediately responsible for responding. A food emergency could occur at any point from farm to fork, 

including pre-harvest production, processing, distribution, and retail sales. The document that results 

from application of this template allows for management of food emergencies of varying degrees and 

scope.

While the FERP covers food from farm to fork, the state plant disease response plan and animal disease 

response plan focus more succinctly on pre-harvest components of the food system. NASDA hopes to 

provide templates for these areas of response in future efforts. 

Food-related emergencies may result from a variety of factors, including:

• Natural disasters or man-made events that affect food and impact human health. These may include 

hurricanes, floods, power outages or other events that result in the loss of food from contamination 

or spoilage;

• Unintentional contamination or adulteration of food that results in a public health threat or foodborne disease outbreak, such as improper processing or production of a food product; or,

• Deliberate contamination or adulteration of food to cause harm to the public or to the economy 

of the United States.
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Food Emergency Response Plan

In some cases, it may be difficult to determine initially whether an emergency is the result of deliberate 

actions. However, an initial response to protect public health and reduce the threat will be mostly 

independent of the cause of the incident. 

The organizational chart on the following page shows how the food template is coordinated with the federal 

activities.

About the Template

Use of this template will result in a capabilities-based state emergency operations plan as referenced in the 

National Preparedness Goal. It addresses emergencies relative to two of the national planning scenarios 

related to food and agricultural production. The template is a building block in the national effort to increase federal, state and local ability to effectively respond to and mitigate large-scale emergencies. This 

template provides the baseline structure for preparing state-level plans to protect critical infrastructure and 

key resources identified through implementation of the National Infrastructure Protection Plan (NIPP). In 

addition, it is consistent with the mission and objectives of the Food and Agriculture Sector Government 

Coordinating Council. Through its various sections, this template identifies critical capabilities and tasks 

consistent with DHS Target Capabilities List (TCL) and Universal Task List (UTL) descriptions for food 

and agriculture safety and security. 
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Food Emergency Response Plan

National Response Framework (NRF)

The NRF presents the guiding principles that enable 

all response partners to prepare for and provide a 

unified national response. The Framework defines the 

key principles, roles, and structures that organize the 

way we respond as a nation.

Food & Agriculture - Support Functions of the NFR

Emergency Support Function #11 - describes the mechanism for coordinated Federal assistance to supplement 

state, tribal, and local resources in efforts to provide nutrition assistance; control and eradicate, as appropriate, any 

outbreak of a highly contagious or economically devastating animal or plant pest or disease; ensure the safety and 

security of the commercial food supply; protect natural and cultural resources and historic properties; and provide 

for the safety and well-being of household pets during an emergency response or evacuation situation.

Emergency Support Function #8 - describes the mechanism for coordinated federal assistance to supplement state, 

tribal, and local resources in response to a public health and medical disaster.

Food & Agriculture - NRF Incident Annex

Describes the federal roles and responsibilities associated 

with all incidents involving the nation’s agriculture and food 

systems that require a coordinated federal response.

State Emergency Operations Plan or 

Department Emergency Operations Plan

Defines a state or department’s organization, structure, concept 

of operations, communications and authorities associated with 

all-hazards response to natural or manmade disaster.

State Food 

Response Plans

These plans exist as 

either as an incident 

annex to the state or 

department plan or as a 

stand-alone plan.

State Plant 

Response Plans

These plans exist as 

either as an incident 

annex to the state or 

department plan or as a 

stand-alone plan.

State Animal

Response Plans

These plans exist as 

either as an incident 

annex to the state or 

department plan or as a 

stand-alone plan.
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Food Emergency Response Plan

Intention and Goals of this Template

This template will assist states with development of either: 1) a stand-alone plan for responding to a foodrelated emergency or 2) an annex or appendix to an existing state or department emergency operations plan. 

Table 1 identifies the applicable pasts of this template, relative to each of these two planning outcomes. 

In any form, a FERP will be a critical component of a State Emergency Operations Plan (SEOP). For states 

that already have food emergency plans prepared, this template can be used to review existing documents 

for completeness and consistency with federal guidelines. This template will assist planners in determining 

how a state will respond to all stages of a food emergency management cycle as defined by the NRF: 

prevention, protection, response and recovery.

TABLE 1

Food Defense Plan Content Guidance

Plan Content1 Appendix or 

Annex Stand-alone

Purpose X X

Scope X X

Situation, Overview, (hazard analysis capability assessment, mitigation overview, special considerations2 and policies2

) 

X X

Assumptions X X

Concept of Operations X X

Actions X X

Organizations and Responsibilities X X

Direction, Control and Coordination X

Information Collection and Dissemination X

Communications X

Administration, Finance and Logistics X

Plan Development and Maintenance X

Authorities and References X

1. The “plan content” entries were derived from the Comprehensive Preparedness Guide 1001 (CP101) and the Food and Agriculture Incident Annex 

to the National Response Framework.

2. Unique to Incident Annexes to the NRF.

Template Layout

The template’s section and subsection headings provide the skeleton of the FERP. General guidance is presented at the beginning of each section, which outlines the intent of the section. Thereafter, each section and 

subsection contains a list of questions that are provided to assist states with developing the plan’s content. 

The questions are not intended to be all-inclusive of possible considerations that a state must address as they 

develop each section of a FERP; rather, they are provided as a seed to begin the planning process. States are 

strongly encouraged to go beyond the listed questions as they develop their plans. Some of the questions may 

not be applicable. Some questions may appear to be repeated between sections; this will be the case for questions dealing with issues that impact planning in multiple sections of the FERP.

As the questions are addressed, template users will identify questions that may not be directly applicable 

to a section being considered; for example, communications questions in the Incident Identification portion 
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Food Emergency Response Plan

of the Concept of Operations Section. These ancillary questions have been added to expand the discussion 

related to a given section, increasing the chance that all pertinent information is captured. In a similar vein, 

template users will notice apparently redundant questions within sections. These types of questions were 

added to ensure thorough consideration of critical plan issues or components. 

This template also includes a supplemental document. The Supplement is intended to provide supporting 

information to further assist states with preparation of a FERP. There are three sections in the Supplement. 

Section I provides general planning guidance adopted from NIMS guidance. Section II contains text 

examples and content suggestions for most sections outlined in the template. Section III contains contact 

and roles and responsibilities tables to be filled out during the planning process. Section II text was taken 

from actual state plans and is provided as a sample for content development or modification. States can use 

the content directly, modify it as needed, or create new content tailored to the state response structure. 

Examples of Supplement sample text have been provided in colored boxes within the template. The text 

provided may or may not be appropriate for individual state response plans and are merely provided as an 

example.

Summary

In summary, the goals of this template provide states with a guide that will help develop plans to manage a 

response to a food emergency and establish a uniform structure and content that will result in plans similar 

in structure, scope and operations among all states. If state plans are developed in a similar manner, it will 

facilitate seamless regional and national response to food emergencies. In addition, the establishment of 

a group or committee to formulate the plan will help enhance coordination and communication among all 

stakeholders well before the need arises to work together in response to an emergency. Five key planning 

processes that should be considered to meet these goals are presented in Section I of the Supplemental.

Ultimately, the FERP provides an outline for development of state FERP. While the template provides 

guidance regarding the intended content of each section and sub-section, the scope and detail presented 

in each portion of the plan is up to the discretion of the planning team.
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Food Emergency Response Plan

EXPLANATION OF ACRONYMS

APHIS Animal and Plant Health Inspection 

Service (of USDA)

BTS Border Transportation and Security 

Directorate

CDC Centers for Disease Control and 

Prevention

CI/KR Critical Infrastructure / 

Key Resources 

CPG Comprehensive Preparedness Guide

DA Department of Agriculture

DEOC Departmental Emergency Operations 

Center

DHS Department of Homeland Security

DHHS Department of Health and Human 

Services

EFORS Electronic Food-borne Outbreak 

Reporting System

EMAC Emergency Management Assistance 

Compact

EPA Environmental Protection Agency

EP&R Emergency Preparedness and Response 

Directorate

EOC Emergency Operations Center

FBI Federal Bureau of Investigation

FDA Food and Drug Administration (of 

DHHS)

FEMA Federal Emergency Management 

Agency

FERN Food Emergency Response Network

FERP Food Emergency Response Plan

FSIS Food Safety and Inspection Service 

(of USDA)

HD Health Department

HSPD Homeland Security Presidential 

Directive

IAIP Information Analysis and Infrastructure 

Protection

IAP Incident Action Plan

IC Incident Command

ICLN Integrated Consortium of Laboratory Networks

ICS Incident Command System

JFO Joint Field Office

JIC Joint Information Center

JIS Joint Information System

JOC Joint Operations Center

LEOP Local Emergency Operations Plan

LHD Local Health Department

LRN Laboratory Response Network

MAC Multi-Agency Command

NAHRS National Animal Health Response System

NIMS National Incident Management System

NIPP National Infrastructure Protection Plan

NRF National Response Framework

NRP National Response Plan

PHL Public Health Laboratory

PHPP Public Health Preparedness Program

PIO Public Information Officer

S&T Science and Technology

SDHS State Department of Homeland Security

SitRep Situation Report

SEMA State Emergency Management Agency

SEOC State Emergency Operations Center

SEOP State Emergency Operations Plan

SOG Standard Operating Guides

SOP Standard Operating Procedures

TCL Target Capabilties List

UC Unified Command

USDA United States Department of Agriculture

VOAD Voluntary Organizations Active in 

Disasters
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I. INTRODUCTION

The introduction section provides the reader with insight about why the plan was written, how it is 

implemented, what it addresses and who participated in the planning process. When the introduction is 

completed, the following questions will be answered:

1. Why is the state developing a FERP?

2. What is the state’s general approach to emergency operations?

3. Why should the state address food defense?

4. What is the significance (e.g., economic, social, health) of pre- and post-harvest food production 

within the state?

5. What will the plan cover?

6. What types of incidents are addressed (i.e., deliberate or unintentional)?

7. Who is the primary audience for the plan?

II. PURPOSE 

The Purpose section must provide the overarching principles and goals used to guide the plan’s 

development. The planning group should consider the various perspectives and reach a general consensus 

in describing the plan’s desired result. Below are questions to consider when developing the Purpose 

Section of a FERP.

1. Why is the state developing a FERP?

2. Why should the state address food defense?

3. How is the plan intended to be used?

4. What is the state’s general approach to 

emergency operations?

5. What is the significance (e.g., economic, 

social, health) of pre- and post-harvest 

food production within the state?

6. How will this plan fit into the structure 

of the state plan and other contributing or related plans (i.e. public health, agriculture, emergency 

management

Sample Goals -

• Ensure effective and coordinated communication 

between state, federal, and local responders, 

authorities and the public

• Minimize impacts of a food-related incident.

• Facilitate rapid recovery following a food-related 

incident by identifying the scope of state involvement 

in recovery

• Specify duties, and roles, and responsibilities

• Provide transition from response to recovery efforts.
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Food Emergency Response Plan

III. SCOPE

The Scope must identify the general application of the 

FERP and its limitations. This can be accomplished by 

defining specific objectives, which relate directly to the 

overall goals of the plan. Objectives which are critical 

to the development of goals should be measurable and 

conform to the legal obligations of affected agencies. 

The process of developing objectives requires 

establishing priorities and identifying strategies to 

meet these objectives. Goals are more overarching 

and global. The goal describes where you want to be. 

The objectives are the steps needed to get there. States 

may choose not to include goals and objectives in their 

FERP; however, goals and objectives still need to be 

developed to drive the planning process.

The Scope should briefly introduce any coordinated 

efforts between federal, state or local entities. In 

addition, this section should identify the participating 

and supporting agencies in a food emergency response.

1. What will the plan cover?

2. What are the limitations of the plan?

3. How will each objective be attained in a measurable manner?

4. Is this intended to be a stand-alone plan or is it a component of an all-hazards base plan?

5. Who is the primary audience for the plan?

6. What types of incidents are addressed (i.e., deliberate or unintentional)?

7. How will the plan assist with coordinating a response between local, state, and federal responders?

IV. SITUATIONS

This section should identify physical, cultural or environmental aspects of a state that could impact response 

and implementation of this plan. Sufficient detail should be included to clearly identify these aspects and 

their potential impact on an emergency or subsequent response and recovery. The level of detail in this 

section will be variable. Aspects that require contingency planning should be highlighted and emphasized 

with inclusion of a brief overview of mitigation efforts. Mitigation should focus on long-term measures 

for reducing or eliminating risk associated with these aspects. 

Ideally, a state should conduct hazards analysis regarding the food industry prior to the identification of 

“situations” for emergency response planning. This allows a state to focus the identification of “situations” 

on areas that are most likely to be involved if the FERP is activated. The results of assessments should 

be prioritized. However, no state should delay development of a response plan if such assessments are not 

available. 

If assessments have not been formally conducted, the planning group should review targeted food 

production systems, identify risks and vulnerabilities within these systems, and develop a list of “situations.” 

Sample Objectives -

• Identify the lead state agency in a food 

emergency response

• Define the triggers that result in plan 

implementation

• Establish the authority under which this 

plan can be implemented

• Facilitate the creation of mutual aid and 

emergency management assistance compacts 

for interstate assistance

• Identify and define roles and responsibilities 

of supporting agencies and groups to facilitate 

response coordination

• Identify the scope of state involvement in 

recovery and identify responsible agencies 

for recovery after a food emergency
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Food Emergency Response Plan

When conducting the reviews of food production systems, the planning group should keep in mind the three 

components of risk: threat, vulnerability and consequence. Threat is a dynamic variable, which is hard to 

accurately determine. For this reason, states may focus their evaluation on areas of the food sector that 

exhibit some combination of vulnerability and negative consequence. 

States developing a FERP should also consider department or agency food emergency response capabilities. 

The agency or department primarily responsible should review the applicable portions of the TCL (Protect 

Mission: Food and Agriculture Safety and Defense) to assess these capabilities. If there are potential 

challenges to meeting a particular capability, they 

should be identified in the Situations section.

1. What unique physical and geographic 

features or aspects within the state could 

affect response activities?

2. What vulnerabilities related to preand post-harvest food production are 

associated with the greatest potential 

negative consequences?

3. Where are food production, processing, 

and distribution areas located within the 

state?

4. What unique physical and geographic 

features within the state could affect 

the scope and magnitude of a food 

emergency?

5. What cultural aspects of the state could 

affect the scope and magnitude of a food 

emergency?

6. What cultural aspects of the state could impact response activities?

7. What is the expected jurisdictional or municipality level of involvement during a response (e.g., 

city, county, or state)?

8. What target capabilities will the state have challenges meeting? What circumstances may magnify 

those challenges?

9. What mitigation efforts are in place to support and strengthen food defense and response?

10. What is the potential direct and indirect economic impact on food and agriculture?

11. How will a food emergency impact public needs? This becomes especially critical in special 

needs products, such as infant formula.

12. What unique institutional authorities or barriers exist that could affect response activities?

Specific examples of situations that can impact a 

response -

• Local planning and preparedness capabilities

• Rivers or other navigable waterways

• Depth to ground water

• Schools

• Concentration of croplands, livestock, poultry 

or food processing facilities

• Food storage areas

• Mountainous terrain

• Available medical resources

• Major population areas

• Polulations where limited English is spoken or 

cultural norms are a factor

• Regions susceptible to severe storms (e.g., hurricane) or other natural disasters (e.g., earthquake)
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Food Emergency Response Plan

V. ASSUMPTIONS

This section should identify assumptions which exist in response to a food emergency. These assumptions 

may be in regard to responsibilities, availability of resources, priorities and/or constraints. Once an 

assumption has been identified, it can be treated properly. For example, true assumptions may identify 

possible limitations of the plan. False assumptions may require contingency planning or adjustments to 

plan implementation. It is recommended that planners begin by identifying obvious assumptions such as 

1) coordinating and supporting agencies will execute their assigned responsibilities, 2) interstate and federal 

assistance will be required and provided, etc. 

1. Where would a food emergency likely occur?

2. What is the lead agency for the response?

3. What is the lead agency for a criminal investigation?

4. How will agencies integrate criminal investigations with epidemiological investigations?

5. What investigative capabilities should be coordinated?

6. What state agencies will support the response?

7. Who will be responsible for on-site environmental health assessments and control measures?

8. What agency or department is primarily responsible for the environmental aspects of a food 

emergency?

9. What agency or department is primarily responsible for issues within the food service, processing, 

production or manufacturing industries? 

10. What agency or department is primarily responsible for coordination with other states?

11. What federal agencies and services will support a state’s response?

12. What agency or department is primarily responsible for food safety surveillance and the 

identification of an emergency?

13. What is the role of private sector businesses supporting a food emergency response?

14. What resources are expected from the private sector in support of a large-scale food response?

15. What sectors of food production are likely to be involved in a food emergency?

16. What specific commodities are impacted by the food emergency?

17. How might response for various commodities be grouped for the purpose of planning?

18. In the event the food emergency involves pre-harvest food production that does not impact human 

health, how will the FERP provide for coordination with other lead agencies?

19. How will the state ICS be integrated with other state, local, or federal ICS during a food 

emergency?

20. What level of ICS training is required for responders?

21. Who is responsible for assigning general ICS roles?

22. What equipment does the state have available for response to a food emergency?

23. Is the available state equipment adequate to support the tasks? 

24. What equipment will the state need to acquire or procure to support a response?

25. What specialized services will a state need to procure to support a response?

26. What surveillance systems (animal, plant, or human) currently exist which play a role in 

detecting a food emergency?
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Food Emergency Response Plan

27. What procedures might be triggered if a foodborne emergency occurred in another state?

28. What existing communication capabilities require coordination during a food emergency 

response (e.g., government, academic institutions, private sector)?

29. What communication capabilities might be missing?

30. What emergency control measures and recovery capabilities should be coordinated?

31. What agencies are involved in recovery and what is the general scope of their involvement?

32. What ESFs (or comparable section of the state plan) does this plan support?

33. What existing legal capabilities are in place? What are missing? When multiple state/local 

agencies are involved, are mechanisms in place to appropriately in place to use these authorities 

(i.e., MOU, EMAC, etc) 

Sample Assumptions -

• Incident management activities will be initiated and conducted using the principles contained in 

the NIMS

• Threats to the food supply can come from natural sources, as well as deliberate acts. This plan 

may be used to respond to food-borne emergencies, regardless of the cause

• Federal law enforcement will become the lead agency for the criminal investigation portion of a response 

if the food emergency is determined to be the result of a deliberate or criminal act

• The FDA, CDC, and the USDA will support a state’s response to a food-borne emergency

• An effective and coordinated response effort will be needed to restore the public’s confidence 

in the food supply in the aftermath of a contamination event

• Tracing may be difficult due to the lack of a uniform regulatory system that would insure the traceability of all 

products and commodities, regardless of origin

• The farm-to-table pathway has multiple entry points for contamination and may provide easy access to 

implementing a foodborne attack

• State health officials will be the primary group responsible for the identification and control of fooborne illness 

or disease outbreaks in human populations

• The receipt of a threat against the agricultural community, in and of itself, could initiate response actions at all 

levels of government and may impact the general public

• Positive detection of a foodborne emergency in an area outside this state will prompt this state 

to employ additional preparedness measures to prevent the possibility of occurrence in this state

• A deliberate act of contamination may have grave consequences, and encompasses a vaiety of response 

actions at all levels of government, industry, producers and the private sector

• Vector/contamination control may require discarding large quantities of agricultural products and organic 

matter, invoking embargoes or trade restrictions, culling livestock or poultry, and identifying alternative sources 

of food

• Depending on the causative substance of the contamination, contaminated foodstuffs may need 

to be considered and handled as hazardous waste

• Suspected infected locations, machinery, distribution centers, restaurants, eateries and transport vehicles 

may need to be cleaned, disinfected, and re-evaluated for contamination
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Food Emergency Response Plan

VI. CONCEPT OF OPERATIONS

The Concept of Operations section should present an overview of the intended response (i.e., what should 

happen, when, and under whose direction). The Concept of Operation identifies the general response 

actions that will be implemented under FERP activation as well as the coordinating agency and other key 

personnel. The Concept of Operations is a roadmap for a response that results in a coordinated effort among 

all parties. It does not replace specific agency protocols and procedures that are established separately, 

which guide specific actions outlined in the plan. For example, a Concept of Operations may call for the use 

of food recalls; however, the specific policies and procedures for implementing recalls would be established 

separately by the responsible agency. Additional information about agency roles and responsibilities can be 

found in later sections of this planning template. The structure of the Concept of Operations presented in 

this template is based on the Concept of Operations presented in the Food and Agriculture Incident Annex to 

the NRF. The 14 topic areas addressed in the Food and Agriculture Incident Annex have been consolidated 

into six topic areas in this template to simplify the planning process and reduce potential redundancy. 

The following section headers serve as the starting point for developing a Concept of Operations 

document. Each section header is followed by an overview of possible content and general questions, 

which are provided for guidance. General topics will be addressed in this section of the plan, while specific 

information about individual agency or group tasks will be described in the Organizations and Assignment 

of Responsibilities section of this template.

Details regarding specific actions or procedures under each of these headings are not necessary. This level 

of detail should be reserved for operational plans and standard operating procedures or guidelines. Many of 

the questions presented in this section of the template solicit operational and procedural details. The intent 

of these questions is not to increase the level of detail, but rather allow the planning team to consider these 

details to assure the Concept of Operations is accurate and thorough.

Section II of the FERP Supplemental Information volume provides example text and content suggestions 

describing the general operations associated with a food emergency.

Incident Identification 

Incident identification involves the rapid identification, detection and confirmation of the incident. 

Incident identification also defines notification and action triggers.

1. What systems exist for routine food safety monitoring and for routine disease and illness 

surveillance?

2. What existing surveillance systems are capable of detecting a large-scale food emergency?

3. How are these systems related to activation of the FERP?

4. Who conducts surveillance?

5. What is the frequency of surveillance?

6. What components of the food system and/or individual commodities are included in surveillance 

programs?

7. For what parameters is surveillance conducted (matrices, contaminants, etc.)?

8. What are the indicators of a potential incident?

9. What type of data is needed to confirm an emergency (e.g., sample analysis results, observations)?
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Food Emergency Response Plan

10. How is chain-of-custody maintained for 

samples? This would be important if the 

incident were deemed to be the result of 

an intentional act.

11. What triggers FERP implementation?

12. When does a response start?

13. How might specific aspects of incident 

negatively impact an affected industry 

and how might this hinder eventual 

recovery?

14. To whom is an incident reported?

15. Who would report problems?

16. What standard operating procedures 

(SOPs) or guides (SOGs) regarding 

incident notification exist?

17. How are clinical samples tested and who 

will test them, both public and private 

resources?

18. How are food samples tested and which 

public and private resources will test 

them?

19. How are environmental samples tested and which public and private resources will test them?

20. Who has the authority to initiate a response?

21. How is response staff notified?

22. How are coordinating and supporting agencies notified?

23. How are private entities notified?

24. How are community-based organizations notified?

25. When is response staff notified? Are there levels of notification and if so, what are they?

Incident Management 

Incident management involves: activating the Emergency Operations Center (EOC), (either the SEOC or 

DEOC); establishing the chain of command; establishing incident command posts and/or area command; 

and other operational components, such as incident management teams, in order to respond to an event. 

1. What is required to activate the DEOC and/or SEOC for a food emergency?

2. How will the scope of a food emergency affect the full or incremental activation of the DEOC 

and/or SEOC?

3. Who can activate the DEOC and/or SEOC?

4. Who operates the DEOC and/or SEOC?

5. What agencies, departments, or other entities will be present in the DEOC and/or SEOC during 

a food emergency?

6. How will state and local elected officials be represented in the DEOC and/or SEOC?

Sample Text -

Observations that could indicate a food-related incident 

has occurred include:

• Discovery of unusual findings during routine 

monitoring and laboratory surveillance of food 

supplies

• Discovery of some physical characteristic of a food 

item or agricultural product that suggests possible 

contamination with a biological or chemical agent 

(e.g., presence of an unidentified and unexpected 

powder, a bad odor or an abnormal taste)

• Reports of unusual clusters or types of illness 

among employees or consumers, possibly related 

to a food or agricultural product

• Observation of suspicious behavior or activity by 

an employee or customer

• A significant security breach in a food-system facility, storage tank or shipping vehicle, or receipt of a 

threat indicating that an agricultural or food product 

has been or will be contaminated

• Two or more of these events occurring 

simultaneously
8

Food Emergency Response Plan

7. How will private industry or major trade 

organizations be represented in the DEOC 

and/or SEOC?

8. How will voluntary organizations active 

in disasters (VOADs) and communitybased organizations be represented in the 

DEOC and/or SEOC?

9. How will agencies supporting a food 

response, which operate their own 

emergency operation centers, coordinate 

with the SEOC?

10. Where is contact information for the 

individuals operating the DEOC and/or 

SEOC listed? 

11. Who is responsible for contact information and when is the list updated?

12. Will a multi-agency coordination (MAC) group be established?

13. How will state operations coordinate with private sector, local, territorial, interstate, and federal 

operations?

14. How will individual incident or area command posts be integrated into the state response and 

DEOC and/or SEOC?

15. Who has the operational authority to direct and manage a food emergency?

16. Who assigns personnel to the five elements of incident command (i.e., command, planning, 

operations, logistics, finance and administration) for a food emergency response?

17. Who is responsible for developing the appropriate job action sheets detailing the following for 

each specific task: 1) a brief explanation of the functional role and purpose of each job; 2) details 

of immediate, intermediate and longer-term (extended) responsibilities for each job; 3) the title 

and contact information of the job’s supervisor; and 4) key contact information? 

18. What could cause a change in the chain of command and how would the change be implemented? 

Who has the authority to make the change?

19. How is the organizational chart for a food emergency response structured?

20. How will the food response be coordinated with an associated animal or plant health emergency 

response?

21. How are high-level elected officials kept informed, although they may not typically part of the 

incident command.

Sample text relavant to the activation of a 

SEOC -

Dependent upon the level of the incident, the SEOC 

may need to be activated. Representatives from the 

state health department, food regulatory agency, and 

agriculture department should be present in the SEOC 

for food and agricultural emergencies to ensure rapid 

activation of multiple Emergency Support Functions, if 

the need arises. In all food and agricultural emergencies, 

communication between departments will be critical to 

assuring the best possible response. The liaisons or 

representatives should be pre-identified and contact 

information upated as determined by the Communication 

and Coordination section of this plan. 
9

Food Emergency Response Plan

Defining Response Actions

Defining response actions requires assessing the needs of lead and supporting agencies and defining actions 

necessary for implementation of an integrated response regardless of cause or jurisdiction. Once completed, 

this section should result in a comprehensive bulleted list of the potential actions needed in a food emergency response and recovery.

1. What various response actions are required 

for a food emergency response at all levels 

of government, industry and private 

sector?

2. What are the general steps in response 

actions?

3. What actions are necessary to support 

industry recovery or minimize the impact 

of an incident on an affected industry?

4. How will response efforts be altered if the 

incident is identified as a terrorist attack?

5. What evidence-gathering activities may be 

necessary to support a response?

6. What additional policing could be 

associated with a response?

7. What types of additional security might 

be needed to protect pre- and postharvest food production, processing and 

distribution?

8. If transportation is affected, what resources 

will be needed to respond? This could 

include restricted movement of products, 

consumers, and other related issues. 

9. What type of legal support might be 

needed during a food emergency? 

Considerations might include:

• How will access to affected facilities be 

obtained if owners do not cooperate?

• What are the procedures for condemning, confiscating, and disposing of food products?

• How are responders protected or supported relative to liability, insurance, contracting, etc.?

• What are the procedures for restricting movement?

10. What types of technical support will the lead agency require during a food emergency?

Sample Text -

Some of the possible actions that a state department of 

agriculture may need to plan for and implement include, 

but are not limited to:

• Identifying the need to implement a coordinated 

response to the incident following standard operating procedures and guidelines

• Assessing the human health and environmental 

impact of the incident

• Determining what types of incident surveillance is 

needed

• Developing incident action plans

• Assessing the need to form and activate appropriate strike teams or incident response teams. The 

state should assess the need to form and activate 

geographic divisions for the response. These divisions may be specifically tasked with quarantine, 

surveillance, outbreak investigation, vector control, movement controls, disposal, or cleaning and 

disinfection

• Assessing the need for federal support or support 

from other states

• Assessing the need to relax or modify existing 

state regulations to support the response efforts

• Assessing the types of public information required 

and the mechanisms to deliver that information

• Assessing the potential for environmental 

contamination

• Evaluating economic implications and 

consequences
10

Food Emergency Response Plan

Communication and Coordination 

Effective response coordination involves establishing and maintaining clear lines of communication 

between lead and supporting agencies, neighboring jurisdictions, and the private sector. Communication 

and coordination also involves dissemination of incident information to the public.

A contact list for primary and support entities identified in this plan should be included as an appendix to 

the FERP. The list should be updated periodically, as determined by the plan. A lead organization should be 

designated as the responsible entity to update the plans. An example of a contact list is included in Section 

III of the FERP Supplemental Information.

1. How will existing state communication networks (e.g., health alert network) be used 

to disseminate information during a food emergency?

2. How will incident command posts or area commands communicate with the SEOC?

3. What agency will be the lead in the Joint Information Center (JIC)?

4. What agencies, groups or associations will be present in the JIC during a food emergency?

5. Where will the JIC be located?

6. Who will have access to the contact information associated with the FERP?

7. How will this information be distributed?

8. How would disease surveillance or outbreak investigation results be shared with the Joint 

Operations Center (JOC) or Joint Field Office (JFO), if necessary?

9. If the incident is determined to be a terrorist incident, how will the response JIC interact with the 

Federal Bureau of Investigation (FBI) JIC?

10. How will information be shared 

among public and private partners?

11. How will information be used to 

minimize the impact of an incident 

on an industry or facilitate recovery?

12. With whom will information be 

shared?

13. What communication strategies and 

plans exist?

14. Is there a graphic representation of 

the communication system or plan?

15. What types of fact sheets, key 

messages, and other informational 

materials need to be prepared 

in advance to support a food 

emergency?

16. What groups will be involved with 

the development and dissemination 

of public information?

17. What are the procedures for establishing a Joint Information System 

(JIS)?

Sample Communication Tasks -

• Activate the JIS, ensuring that local health departments 

and other partners are updated

• Prepare and update basic fact sheets, key messages 

and other informational materials for distribution to partners, stakeholders, and the public through appropriate 

established channels

• Prepare and publish information that is accessible to the 

public via the Internet, in coordination with the Department of Agriculture, PIOs, local health departments, and 

other participating groups

• Coordinate with federal, state, and local PIOs regarding 

information release protocols

• Prepare and send out media releases in coordination 

with the lead agency to the Department of Agriculture, 

DHS Communications, the governor’s office, Emergency 

Management, epidemiologists, affected local agencies 

and other participating groups

• Prepare a media release in anticipation of the laboratory 

confirmation of a presumptive positive, including instructions for the public about proper treatment and access to 

information about specific sites

• Prepare for media briefings
11

Food Emergency Response Plan

18. How will local, state, and federal public 

information officers (PIO) be coordinated?

19. Will affected industries be part of the 

JIC?

20. What are the procedures for holding 

media briefings?

21. How will safe handling of contaminated 

product be conveyed to consumers, 

especially if a recall is initiated?

22. What strategies exist to encourage 

consumer participation in product recall?

23. How will the food response be coordinated with an associated animal or plant 

health emergency response?

24. What procedures exist to obtain authority 

to request or offer interstate assistance?

25. How will communication be coordinated 

with international entities in Border 

States? 

26. How will communication be coordinated when the emergency impacts international trade?

27. How will entities responsible for animal and plant safety coordinate with the lead agency during a 

food emergency?

28. What types of educational information will the state need to prepare and disseminate during a food 

emergency?

29. How are education and outreach efforts of public and private sector stakeholders coordinated and 

tied into public information dissemination?

30. What circumstances require interstate coordination?

31. How would interstate coordination benefit recovery efforts?

32. How will the state seamlessly coordinate interstate responses?

33. How will out-of-state support personnel be coordinated?

34. Are response plans consistent with the response plans of states providing support?

35. Are response priorities consistent between adjacent states? Response priorities can include 

conditions under which a FERP is activated, policies or practices regarding response activities, 

or any other response-related activities that, if not coordinated and consistent, could negatively 

impact the effectiveness of a response.

36. How will a comprehensive and functional communications network be established to support the 

response?

37. How will the state coordinate logistical issues with local responders, federal agencies, and other 

states providing support to the response?

38. What is the procedure for coordination and communication between responders, supporting 

entities, and the DEOC or SEOC?

39. How will response be coordinated with foreign countries, when necessary?

Sample Coordination Text -

When incidents require support from outside states, an 

interstate coordination liaison should facilitate incident 

management and policy coordination. This liaison should 

be identified from within the lead agency and closely 

coordinate efforts with Incident Command. The principal 

functions and responsibilities of the lead agency liaison 

should include:

• Ensuring that each agency involved with incident 

management activities is providing appropriate situational awareness and resource status information

• Establishing priorities between states

• Acquiring and allocating resources required by 

incident management personnel in concert with the 

incident command (IC) or unified command (UC) 

involved

• Anticipating and identifying future resource requirements

• Coordinating and resolving policy issues arising from 

the incident

• Providing strategic coordination, as required
12

Food Emergency Response Plan

40. What media policies exist concerning information dissemination to the public?

41. While not part of an actual response, national associations (e.g., NASDA, ASTHO) may provide a 

resource for distribution of information nationally. How do you intend to disseminate information 

to these organizations?

Assessment, Control and Containment

The Assessment, Control and Containment section includes a listing of the control, containment, 

decontamination, and disposal methods used to ensure effective recovery. Disposal may include any 

infected, contaminated or adulterated products, animals and property. An assessment of environmental 

contamination and extent of cleanup, decontamination, and disposal of livestock carcasses, plants, or food 

products also may be included. 

The details of this list should further include: the method(s) used to determine adulteration or contamination, 

an assessment of the further risk of contamination or adulteration, and a determination of public health and 

economic implications and consequences. 

1. What roles would the agencies responsible for pre-harvest food production potentially play in a 

food emergency?

2. How will pre-harvest animal and plant products be controlled, if necessary, from a response 

standpoint?

3. What steps are necessary to protect the environment during a food emergency?

4. How are environmental impacts monitored?

5. What are the procedures for destruction and disposal of affected food products?

6. What permitting requirements may be tied to the protection of the environment during the 

response and recovery from a food emergency?

7. How will food products identified for disposal be transported to the disposal areas?

8. How will outside sources (i.e., contractors, rental equipment, etc.) be identified and deployed 

in support of a response?

9. What will be done to maintain business continuity and support recovery?

10. Which agencies are responsible for oversight of movement controls and permitting?

11. What are the permitting issues for moving commodities that are not infected, contaminated, 

or otherwise adulterated, from within a suspect area?

12. How can assessment, control, and containment impact an affected industry and what measures 

could be employed to minimize this impact?

Food Emergency Response Teams

1. Does the state have a food emergency response team?

2. What jobs would a food response team perform?

3. What types of response teams (e.g., trace-back, sampling, surveillance) does the state intend to 

use in a food emergency?

4. What type and level of expertise is required for each team?

5. When would teams be formed?

6. Who will be involved?
13

Food Emergency Response Plan

7. How are response teams activated?

8. Who has the authority to activate response teams?

9. Who maintains the list of contacts for the food emergency response team?

Food Safety Surveillance

1. How is food safety surveillance coordinated with the lead agency?

2. What is the procedure for inspection of state licensed facilities associated with a suspected or 

confirmed foodborne illness outbreak?

3. What groups are responsible for food surveillance?

4. What are the mechanisms for trace-forward and trace-back of products containing suspect 

(contaminated or adulterated) ingredients?

5. What are the planned field actions to mitigate the incident (i.e., embargo, condemn, quarantine, 

etc.)?

6. How will contaminated or adulterated food products be retrieved from consumers?

7. How will contagions or chemical hazards be addressed in a recall or during disposal?

8. How is food response coordinated with other animal or plant production agencies or groups if

 the investigation requires access to or examination of raw food products?

Foodborne Contamination or Adulteration Surveillance and Investigation

1. How is surveillance for foodborne illnesses and disease outbreaks conducted?

2. What groups are responsible for this surveillance?

3. How will groups trained to handle dangerous materials (i.e., National Guard, HAZMAT teams, 

etc.) be used to support sampling efforts?

4. What authorities exist to allow investigators access to potentially impacted product or processing 

areas?

5. How is this surveillance coordinated with the lead agency?

6. What is the protocol for the investigation of foodborne illness cases and disease outbreaks?

7. How will chain-of-custody be maintained for samples? This would be important if the incident 

were deemed to be the result of an intentional act.

8. What are the provisions for collecting split samples for law enforcement when the incident is 

believed to be the result of a criminal or terrorist act?

Sample text relative to food-incident response teams -

As the scope of a food emergency expands, it may become necessary to form and activate strike teams (food 

emergency response teams) to address specific response tasks. These teams may be charged with tasks appropriate to the response, such as: surveillance, sampling, product recalls, trace-backs, disposal of contaminated 

materials, decontamination and disinfection, evidence gathering, quarantine or embargo, security, public education, 

sample analysis, or any other operational aspect of mitigating a food emergency. Under ICS, response team roles 

and responsibilities fall under Planning and Operations. The expertise and agencies represented on a team will be 

a direct function of the assigned response-specific tasks. Generally, a team should include experts in the following 

aspects of the emergency: technical or science, policy, media relations, communications staff, etc. Specific examples of appropriate personnel might include, but are not limited to, epidemiologists, law enforcement personnel, 

food inspectors, samplers, FDA or FSIS personnel, representatives of the lead agency, etc.
14

Food Emergency Response Plan

9. How are foodborne illness reports/cases or disease outbreak investigations coordinated with 

appropriate food safety officials at the local, state, or federal level?

10. What is the procedure for reporting cases or outbreaks of foodborne illness to the state and the 

Centers for Disease Control and Prevention (CDC)?

11. How is CDC assistance requested?

12. How are health and food safety information and guidance provided to the public? (Cross-reference 

with the Public Information section that follows)

13. How are hospitals, poison control centers, and local public health personnel involved with 

foodborne illness and outbreak detection?

14. How will recalled food products be addressed and retrieved from retailers, consumers, and other 

groups such as community food banks?

15. How will contagions or chemical hazards be addressed in a recall or during disposal?

16. What areas of food response still require development or updating of procedures and/or 

guidelines?

17. How will transportation be impacted by the response (e.g., embargoes or movement control)?

18. How will contaminated or adulterated product be disposed of during the response? How is this 

contaminant or adulterant dependant?

19. Will quarantines, embargoes, or recalls be associated with the response? If so, who or what 

agency has the authority to issue these orders?

20. If embargoed products need to be moved, what are the procedures for moving these products?

21. What logistical support is required for a food response?

22. How will food contamination or adulteration trace-back occur?

23. How will law enforcement be involved with a response action?

24. How will monitoring of safety and security of unaffected agriculture and food infrastructure 

be carried out during a response?

25. What procedures will be needed to control and possibly detain suspect food products or 

ingredients before exportation or importation?

26. What precautions are associated with transporting dangerous goods (e.g., infectious materials, 

hazardous waste or radioactive materials)?

27. How will evidence collection and policing be coordinated with response efforts to mitigate the 

threat to public health?

28. How will evidence gathering be coordinated with possible specimen and sample collection?

Laboratory Services 

1. Is there a state or agency laboratory response plan? If so, does it address a food-related 

emergency response?

2. What clinical laboratory support is needed during the response to a food emergency?

3. What food laboratory support is needed during the response to a food emergency?

4. What environmental laboratory support is needed during the response to a food emergency?

5. What animal laboratory support is needed during the response to a food emergency?

6. What plant laboratory support is needed during the response to a food emergency?
15

Food Emergency Response Plan

7. What types of food samples will be analyzed and what are the target analytes?

8. What types of biological samples will be analyzed and what are the target analytes?

9. What types of environmental samples will be analyzed and what are the target analytes?

10. What types of chemical samples will be analyzed and what are the target analytes?

11. What types of radiological samples will be analyzed and what are the target analytes?

12. What types of animal-related samples will be analyzed and what are the target analytes?

13. What types of plant-related samples will be analyzed and what are the target analytes?

14. What are the contingency plans for providing laboratory support (food, biological, environmental 

or radiological) when state laboratory capacity is exceeded?

15. How will chain-of-custody be maintained for samples? This would be important if the incident 

were deemed to be the result of an intentional act.

16. What laboratories will do the analyses?

17. How will the level of data quality, desired throughput capabilities or other factors affect the 

laboratory selection process?

18. What sample throughput will be required of laboratories supporting a food emergency response 

and can that throughput be maintained for the anticipated time frame? What is the laboratory 

surge capacity?

19. If sample throughput cannot be maintained, what are the contingency plans to provide analytical 

support to the response?

20. Are there safety issues that should be 

addressed relative to the inherent danger 

of the samples themselves?

21. How will chain-of-custody be maintained 

by the laboratories?

22. How will laboratories coordinate with the 

lead agency?

23. What are the roles of food and human 

health laboratory networks (i.e., Food 

Emergency Response Network (FERN), 

Laboratory Response Network (LRN), 

National Animal Health Response System 

(NAHRS), Integrated Consortium of Laboratory Networks (ICLN) and others) for the 

purposes of human or animal disease and 

contamination surveillance and diagnosis?

24. How will laboratories coordinate 

information and data sharing with 

the appropriate food and human health 

networks (i.e., FERN, LRN, NAHRS and 

others) for the purposes of human or animal 

disease, contamination, surveillance, and 

diagnosis?

Sample text relavant to laboratory services -

The roles and responsibilities of the laboratories used 

during a food emergency must address the need for 

clinical, food, and environmental sample analysis. 

States should identify the laboratories capable 

of testing for specific agents (chemical, physical, 

biological or radiological) in both human and animal 

populations.

Sample Tasks -

• Provide analytical testing of food, environmental, 

animal and human clinical samples for pathogens, 

toxins and chemicals

• Maintain capability for conducting analysis using 

rapid, precise and accurate methods

• Perform complex food analyses with high 

precision and accuracy at an elevated throughput 

rate for extended periods of time

• Coordinate information and data sharing with 

food, animal and human health laboratory 

networks, such as the FERN, NAHRS, LRN and 

ICLN

• Provide timely reports of laboratory results

• Maintain chain-of-custody

• Provide sample collection tools, equipment and 

guidance to field investigators
16

Food Emergency Response Plan

25. How will the laboratories coordinate delivery of information and results to epidemiology staff, 

local public health partners, and federal agencies such as CDC, USDA, and FDA?

26. What are the potential gaps in the ability to deliver the required information and data?

27. How will food and clinical laboratories share results?

28. What rules govern the release of laboratory findings?

Recovery

Recovery planning and actions are critical to ensuring that there is a continued market for goods following 

a food or agriculture incident. Industry recovery begins the instant an incident is identified and a response 

is initiated. Some early recovery efforts may focus on communication designed to inform and protect the 

public health while maintaining and protecting economic industry vital to a community. Recovery planning 

and actions during an incident are as critical as those taken at the terminal end of an incident. In fact, recovery actions taken during an incident are likely to facilitate final recovery and lessen the overall impact on an 

incident on an industry. 

Since the globalization of the farm-to-table pathway, an incident involving food and agriculture 

would likely impact trade internationally. A quick 

recovery may help ensure re-establishment of markets in a short time period.

Recovery addresses the events necessary to return 

an area or business to pre-emergency conditions. 

A food-related incident, particularly a deliberate 

one, can have widespread negative effects. For 

many states, the agriculture and food industries 

account for a large portion of the economy. In 

addition, this type of incident could easily escalate 

into a national and international crisis, resulting 

in product embargoes. Because of the serious 

ramifications of a food-related emergency, it is 

necessary to plan for recovery.

Recovery can be addressed in detail in this section; however, some states may have a detailed and separate 

recovery plan. If a state has a separate recovery plan, this section should, at the least, identify the various 

agencies involved with recovery. In addition, the existing plan should be verified to ensure it addresses any 

unique aspects of recovery related to a food incident.

1. What resources are necessary to assist in the full recovery of the food systems (i.e., businesses) 

affected by the incident?

2. How is business continuity addressed under recovery?

3. What are the necessary elements of recovery?

4. What specific recovery topics need to be addressed in the FERP?

5. If the state has an independent recovery plan, does it address any unique elements that result 

from a food emergency?

• What state agencies are involved with recovery planning and implementation?

Sample recovery topics and general elements of a 

recovery plan - 

• Public information policy and procedures

• Media relations planning

• Financial assistance 

• Prepared statements for state department officials

• Prepared statements for the governor

• Alternate transportation plans

• Environmentally sound disposal of contaminated 

materials

• Ongoing communication with impacted private sector 

entities
17

Food Emergency Response Plan

• Who is responsible for updates to 

the recovery plan?

6. How will recovery be included in the 

response?

7. Where will the detailed recovery procedures be addressed? Will there be a 

stand-alone recovery plan?

8. What are the general recovery requirements?

9. What tasks will be required to address 

recovery?

10. What additional equipment or staff 

will be involved?

11. How should food surveillance be used 

during recovery?

12. How should disease surveillance be 

used during recovery?

13. How will recovery activities such as 

decontamination be impacted by a 

criminal investigation component?

14. What is the procedure for decontamination of a food distribution, processing, or preparation facility and the process for reinspection which will allow 

a return to normal business operations?

VII. PRINCIPAL PARTIES

An important part of preplanning for an event is the identification of all agencies, organizations and principal parties needed to carry out the response. It allows the planners to agree on available resources and 

response activities needed. It also allows planners to ensure incident management structure and protocols 

are consistent with NIMS. This section produces a list of entities that will be discussed in detail in the 

Organizations and Responsibilities Section of the FERP.

State 

1. What state agency or agencies will be leading the food emergency response?

2. What state agencies will be supporting a food emergency response?

3. How are these agencies made aware of their potential roles?

4. Are responsibilities identified in the Organizations and Responsibilities section?

Federal

1. What federal agencies support a food emergency response?

2. Are responsibilities identified in the Organizations and Responsibilities section?

Sample topics that should be addressed in Recovery -

• Determine what continued surveillance is needed and 

the timeline for continued surveillance

• Determine the conditions under which recovery would 

be complete

• Identify all areas involved with the response that require 

recovery activities and support

• Provide access control to the affected zone and remove 

access control when possible

• Remove controls on food, water, crops and livestock 

when possible

• Involve community and social service agencies

• Maintain continuity of government

• Restore essential food production and retail services

• Track costs for reimbursement

• Respond to the media and communicate with the public 

to address concerns and/or rumors

• Host official visitors and delegations

• Conduct hazards evaluations to ensure safety of response teams and the public

• Resolve long-term issues related to pre- and post-harvest food production impacted by the food emergency

• Encourage immediate business recovery

• Foster long-term economic recovery

• Identify gaps and initiate repair of response plan
18

Food Emergency Response Plan

Tribal

1. What tribal entities support a food emergency response?

2. How will they interact with the lead state agency?

3. How are these entities made aware of their potential roles?

4. Are responsibilities identified in the Organizations and Responsibilities section?

Local

1. What local agencies support a food emergency response?

2. How are these groups made aware of their potential roles?

3. Are responsibilities identified in the Organizations and Responsibilities section?

Private Sector

1. What private organizations and individuals (i.e., trade or commodity groups, agricultural partners, 

companies, veterinarians or other professionals) are involved in support of a food emergency 

response?

2. How are private organizations and individuals made aware of their potential roles?

3. Which of these private organizations and individuals warrant inclusion in the plan’s Organizations 

and Responsibilities section?

VIII. ACTIONS

The Actions section is included in the Food and Agriculture Incident Annex to the NRF and has been 

adapted for this template. This section is not listed as a base plan component in the CPG 101. If used, this 

section identifies key departments or agencies and ties the actions from the Concept of Operations section to 

those responsible for the actions. The Actions Section should describe these lead agencies and their critical 

roles and responsibilities in an Executive Summary. The inclusion of this section should only be considered 

when a state’s intent is to produce a supporting annex or appendix to an existing overarching departmental 

emergency operations plan. 

IX. ORGANIZATIONS AND ASSIGNMENT OF RESPONSIBILITIES

The purpose of the Organizations and Assignment of Responsibilities section is to identify the entity 

responsible for lead areas of a response and those supporting response efforts. In many instances, multiple 

agencies will be involved with each specific response-related task as the lead agency, primary responding 

agency, or support agency. These roles are required to execute and accomplish FERP objectives. 

The level of detail in this section should clearly define specific responsibilities. If certain responsibilities 

shift as the scope or duration of an emergency changes, these changes should be noted. Specific triggers for 

such changes should be described and potentially impacted departments or agencies listed. 

Section III of the FERP Supplement contains a responsibilities matrix that can be completed during the 

planning process. The responsibilities listed in this example matrix are not intended to be all-inclusive. The 

graphic representation of the roles and responsibilities provides a summary of the information and should be 

included in the FERP.
19

Food Emergency Response Plan

Governor

If the FERP is an annex to a state all-hazard emergency plan, the role of the governor should already be 

appropriately defined. Thus, the only additional responsibilities summarized in the FERP should be those 

gubernatorial responsibilities unique to food emergencies. If the FERP is a stand-alone document, the role 

of the governor needs to be consistent with other state emergency planning assumptions and should be 

briefly summarized in the FERP.

1. What role will the governor play in a food emergency?

2. What state resources require the governor’s involvement before they can be used to support 

a response? 

3. What actions will the governor take to activate the FERP?

4. What are the governor’s powers related to rescinding orders or regulations to facilitate a response 

action?

5. How is the governor involved in the state’s participation in EMACs or the formation of mutual 

aid agreements?

6. What is the governor’s role in requesting assistance from other states or the federal government?

7. How does the governor coordinate with the lead agency?

8. How will the governor be notified of a food emergency?

9. What are the triggers for notifying the governor?

Lead Agency (Agriculture and/or Health)

Identify the agencies or departments within the state that will be acting as the lead agency. The questions 

below apply to these agencies or departments.

1. Is there a single lead agency or are there 

shared responsibilities in a food emergency? Does this depend on the type 

of food involved in the incident?

2. Identify the lead agency or agencies.

3. Can any of the lead agencies activate the 

FERP?

4. What authorities do the lead agency or 

agencies have for managing a food emergency response?

5. How is the lead agency involved 

with obtaining resources to support a 

response?

6. What is the lead agency’s role in restricting or otherwise controlling transportation and distribution of potentially contaminated food within the state or into 

the state from boundary states or across 

international boarders?

Sample Tasks -

• Define restrictions on interstate commerce

• Obtain additional resources, as necessary

• Implement an embargo on contaminated products

• Request voluntary product recalls

• Consult with federal, state and local authorities regarding response and food safety threat warnings

• Define the affected area

• Direct and/or assist with disease prevention and 

food safety activities, including quarantine, embargo, 

product recall, evaluation, slaughter, disposal, cleaning and disinfecting, epidemiology, trace-back, traceforward, vector control, and transportation permitting 

arrangements

• Define training requirements for employees of support agencies involved with emergency response 

operations

• Prepare information for dissemination to the public, 

producers, processors, and other concerned groups
20

Food Emergency Response Plan

7. What other jurisdictions may share authority in movement restrictions (e.g. sheriffs office)?

8. How does the lead agency coordinate with the governor?

9. How does the lead agency coordinate with local response entities, federal agencies, and other 

states that are supporting the response?

10. How is the lead agency involved with defining the affected area or issuing a quarantine or product 

embargo?

11. What role does the lead agency have in product recalls?

12. What role does the lead agency have in product trace-back?

13. How is the lead agency involved with public information creation or dissemination?

14. 1What roles will the lead agency have in recordkeeping and developing after-action reports 

relative to the response?

15. How will the lead agency coordinate with law enforcement in the event of a threat, intentional 

tampering, or terrorist event?

16. Is there a food safety task force? If so, what is their role?

State Agencies or Departments Supporting the Lead Agency

Identify the agencies or departments within the state that will be supporting the lead agency. The questions 

below apply to all of these agencies or departments.

1. What authorities do the supporting agencies or departments have to support a food emergency 

response?

2. How are the support agencies or departments involved in obtaining resources to support 

a response?

3. What are the support agencies or departments roles in restricting or otherwise controlling 

transportation and distribution of potentially contaminated food within the state or into the state 

from boundary states or across international borders?

4. How do the support agencies or departments coordinate with the lead agency?

5. How are the support agencies or departments involved in defining the affected area or issuing 

a quarantine or product embargo?

6. What responsibilities do the support agencies or departments have in product recalls?

7. What roles do the support agencies or departments have in product trace-back?

8. How are the support agencies or departments involved with public information creation or 

dissemination?

9. How are supporting agencies or departments involved in disease eradication and food safety threat 

activities such as quarantine, embargo, product recall, evaluation, slaughter, disposal, cleaning and 

disinfecting, epidemiology, trace-back, vector control, and permitting arrangements during a food 

emergency?

10. What roles will the support agencies or departments have in recordkeeping and developing afteraction reports relative to the response?

11. How will the support agencies or departments coordinate with law enforcement in the event of 

a threat, intentional tampering, or terrorist event?
21

Food Emergency Response Plan

Federal Agencies

Federal responsibilities are not determined by the states; however, it is recommended that states identify 

expected federal responsibilities within their respective plans to ensure seamless integration with the NRF, 

Emergency Support Function (ESF) #11, the Food and Agriculture Incident Annex to the NRF, and NIMS. 

This is essential to proper planning, which must effectively integrate and coordinate federal response assistance. Sample descriptions of key federal agencies that may be involved in a food emergency and their 

common responsibilities are provided in Section II of the FERP Supplemental Information. If the desired 

federal support is not identified in the NRF or in Section II of the FERP Supplemental Information, states 

should find alternative sources for that support.

Tribal Governments

Coordination with tribal governments within a state will be a critical part of the planning process. State 

and tribal government interactions, communication, authorities should be clearly defined in the FERP.

1. How does a tribal area become involved in a state’s food emergency response?

2. What are the mechanisms in place to coordinate mutual aid with a tribe?

3. Who is the tribal liaison with the DEOC or SEOC?

4. How does the lead agency coordinate with tribal entities involved in a response?

5. What are the procedures for coordinating the dissemination of information within the tribal 

nation, businesses, and other tribal entities?

6. How do tribal governments request support from state entities? How do state entities request 

support from tribal governments?

Local Government

This section should address responsibilities at the local level, including consideration of available resources, 

communication, and coordination. Local responders may play a pivotal role in a response action. Local 

agencies may have individual response plans that include areas such as public health response, hospital 

surge capacity, and law enforcement. Upon completion of a food response plan, states should coordinate 

with local entities to assure plan integration. 

Emergency Management

1. What local entity will be responsible for developing and maintaining a Local Emergency 

Operations Plan (LEOP)?

2. How are LEOPs coordinated with the FERP?

3. How does this tie into state emergency management?

Emergency Responders

1. What is the scope of involvement for local responders when supporting a response action?

2. What are potential roles for local responders during a food emergency?

3. How do emergency responders prepare to support a food emergency?
22

Food Emergency Response Plan

Local Health Departments

1. Which local departments, agencies, or entities will be the initial responders in a food emergency?

2. What are the roles of local health departments in the multiple aspects of a food emergency 

response?

3. How are the actions of the local health departments coordinated with the lead agency?

4. What authorities exist to allow local investigators access to potentially impacted product 

or processing areas?

5. Do local entities have the authority to issue quarantine or embargo orders for food products? 

If yes, where and with whom does the authority lie?

6. Do local entities have the authority to condemn food products or ingredients? If yes, where and 

with whom does the authority lie?

Local Hospitals

1. What roles will local hospitals play in the multiple aspects of a food emergency response 

(i.e., diagnosis, capacity, capability, surveillance, investigations, reporting and treatment)?

2. How will local hospitals be integrated into ICS and NIMS?

3. What are the reporting requirements for hospitals relative to illness, contamination, and disease 

surveillance?

4. How will food emergency information be communicated to this group?

Local Law Enforcement

1. What are the roles of local law enforcement relative to a food emergency?

2. How will local and state law enforcement coordinate response actions?

3. How will local law enforcement coordinate response actions with federal law enforcement 

in the event of intentional tampering or terrorist event?

Local Elected Officials

1. How are local resources made available to support a response action?

2. What roles do local elected officials play during a food emergency response?

3. What special authorities do local governments have that would be used to support a food 

emergency response?

4. How will communication of information be addressed with elected officials?

Voluntary Organizations Active in Disasters and Other Volunteer Response Teams

1. What roles will VOADs play in response to a food emergency?

2. It is common for individuals to belong to multiple VOADs. How will this be factored in when 

planning for VOAD support?

3. What VOADs exist within the state?

4. What locations are available to assist within the state?

5. What volunteer organizations exist in the state? At the local level? How will they be notified? 
23

Food Emergency Response Plan

Private Sector

This section should identify the private entities that provide support during a food emergency response. 

In addition to mitigation of food emergency incidents, food producers, processors, transporters and retailers 

have policies, procedures and protocols in place to detect and evaluate potential pre- and post-harvest food 

incidents. Examples of private sector entities are included in Section II of the FERP Supplement.

1. What private entities within a state will provide support during a food emergency response?

2. What support can private entities provide to a food emergency response?

3. What food-related purchase records do food processors, retailers, and restaurants maintain? 

Which of these records will be useful in a product trace-back?

4. What are the laboratory capabilities of private entities?

5. How will pharmacies be used to support a food emergency?

6. What policies and procedures should private entities have in place to prepare for a food 

emergency response or to help prevent the occurrence of a food emergency?

7. How do private entities coordinate their support of a food emergency response?

8. How will private entities be used to support communications?

9. What are the procedures for a private entity to report a suspected food emergency incident?

10. How do food companies evaluate consumer complaints and use this information to monitor 

for the occurrence of a food incident?

11. What are the relevant reporting requirements to governmental and regulatory agencies?

12. What product and ingredient tracking requirements exist for food producers, processors, 

distributors, and retailers?

13. How will recalls initiated by the private sector be coordinated with government officials?

14. How will trace-back/trace-forward investigations conducted by the private sector be coordinated 

with government officials?

15. Is there a formal public/private partnership that can support an emergency?

Trade Associations

1. What trade associations within a state could provide support during a food emergency response?

2. How do trade associations coordinate support of a food emergency response?

3. How should trade associations assist with information development and dissemination?

4. How are trade associations involved with preparedness relative to preventing or responding 

to food emergencies?

Private Hospitals or Clinics

1. What roles will private hospitals or clinics play in the multiple aspects of a food emergency 

response (i.e., surveillance, investigations, reporting and treatment)?

2. What are the reporting requirements for hospitals relative to illness, contamination and disease 

surveillance?

3. How is information disseminated to this group and how is it shared?
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Food Emergency Response Plan

Poison Control Center (Oversite may be private, state, or private/public partnerships)

1. What is the role of a poison control center in supporting a food emergency response?

2. How does a poison control center coordinate and report possible incidents to the lead agency?

X. DIRECTION, CONTROL, AND COORDINATION

This section should describe the framework for all food response related direction, control and coordination. 

It should identify the necessary authorities to initiate response and recovery activities relative to a food incident. In order to be NIMS compliant, information in this section should include a description of the conditions under which the lead agency assumes command of an incident. It should identify who has operational 

and tactical control of response assets. In other words, this section should identify command responsibilities 

for both the emergency operations and response aspects related to a food emergency incident. In addition, 

this section should outline the conditions for establishing different incident command structures (i.e., multiagency coordination system, area command, etc.). This structure is critical for allowing each participating 

jurisdiction to maintain its own DEOC, if necessary. 

This section should also include information about designated agency and department personnel trained 

in NIMS and ICS responsible for overall direction of the response activities.

1. What authorities are required to implement this response plan?

2. What authorities are necessary to initiate recovery?

3. How does the lead agency assume command of an incident?

4. Is there a different command for emergency operations and response activities? If so, what are 

the specific differences and how does that comply with NIMS?

5. What incident command structures are anticipated for most food incidents and specifically, what 

are the triggers for establishing each type of anticipated command structure?

6. How have the lead and support agencies addressed the need for NIMS and ICS training?

7. What does the graphical representation of the proposed command structure look like

XI. INFORMATION COLLECTION AND RESOURCES

This section identifies the type of information needed, where it originates, who uses the information, how 

the information is shared, the format for providing the information, and any specific instances when the 

information is needed.

When local entities are expected to create or deliver information, the state should develop this section in 

close coordination with local representatives and communicate these expectations to local jurisdictions. 

This section may be expanded as an annex or as a stand-alone department communications plan.

1. What are the types of public information that will need to be created and disseminated during 

a food incident and subsequent recovery?

2. What information needs to be assembled and conveyed to responders?

3. What is the intended purpose of communication to the public? Is additional information 

developed for responders?

4. Who is responsible for content development?
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Food Emergency Response Plan

5. Who will be the spokesperson for information dissemination to the public?

6. How are Incident Action Plans (IAPs) and Situation Reports (SitReps) integrated into this type 

of emergency? Who will be responsible for maintaining these reports, how often will updates 

be required, and who will be the recipient of these reports?

XII. COMMUNICATIONS

This section describes communication protocols between response organizations and coordination procedures used during emergencies and disasters. It does not describe communications hardware or specific 

procedures found in departmental standard operating procedures or guidelines. 

1. What response agencies will need to maintain direct communications?

2. How will communication be coordinated between response agencies?

3. Who is responsible for this coordination?

4. What mechanisms will be used for communication?

XIII. ADMINISTRATION

This section should describe administrative policies that support the implementation of the plan. At a minimum, this section should contain information about agreements and understandings that support regional 

response. Careful attention must be paid to planning in support of emergencies that remain at the state 

level and do not reach the level of a federal emergency, where additional support would become available 

(Stafford Act, Incident of National Significance, secretary declaration). Example text is provided in Section 

II of the FERP Supplemental Information.

1. What emergency actions would require significant state 

support?

2. What are the state’s sources of federal and non-federal 

emergency funding?

3. Are there specific state statutes that address emergency 

funding?

4. What Memoranda of Understanding (MOU) or Mutual 

Aid Agreements (MAA) exist to support a food emergency 

response?

5. What MOUs and MAAs need to be developed to support 

a food emergency response?

6. How will resources necessary for the response be monitored, delivered and allocated?

7. What assets would be accessible through the Emergency Management Assistance Compact 

(EMAC)

Content suggestion - 

All agencies and organizations 

included in this plan should provide 

annual training to their staff assigned 

to implementing the plan. In addition, if a food emergency response 

team is included as part of the food 

response plan, that team should 

receive training as a team at least 

annually. Ideally, this training will 

consist of tabletop or functional exercises of the FERP.
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Food Emergency Response Plan

XIV. PLAN DEVELOPMENT AND MAINTENANCE

Due to the changing nature of food production, potential threats and the ability to respond to emergencies, 

states should periodically review, revise and update their FERP. Phone numbers and other contact information must be current. (See Section II of the FERP Supplemental Information volume for additional guidance.)

1. What agency or department is responsible for plan 

development and maintenance? If possible, this duty 

should be tied to a specific person or job description.

2. How will exercise after-action reports be used to update 

the plan?

3. What other sources of information will be used to 

update the plan?

4. How often is the plan updated?

5. Who is responsible for the updates?

6. How frequently will the contact lists attached to the plan be verified?

7. Will the contact information be verified more frequently than the plan itself?

8. How are updates shared with responders and supporting agencies or other involved entities?

9. How are the FERP users notified when it is updated?

10. What training is provided for agencies and organizations 

involved with a food emergency response?

11. How are the multiple agencies responsible for 

responding to a food emergency trained together to 

encourage a united response?

12. How is training used to support preparedness?

13. How does the state test the preparedness of responders 

or the efficacy of the FERP?

14. What agencies and other groups supporting a food 

response are involved with training and exercises?

15. How are agencies and other groups retrained based on 

exercise outcomes and lessons learned?

16. What levels of education and training are needed for the responders?

17. How will exercises be used to educate responders and the public?

18. What experts do you use to critique your plan?

Content Suggestion -

This plan should be reviewed at least annually. Additionally, the FERP’s contact 

list should be updated whenever any 

changes to key individuals are made. 

Key individuals should be noted on the 

contact list. Responsibility for plan updates and maintenance should be placed 

with an individual of appropriate authority, within the lead agency. 

Content Suggestion -

The Food Emergency Response Plan 

should be exercised on an annual basis. 

Retraining of response team members 

and agency and organization staff should 

be based on lessons learned while exercising the plan.

New employees also should receive 

training so that they are able to carry 

out their respective duties in case of a 

food emergency. New employee contact information should be updated and 

delivered to all departments that will use 

the food defense plan.
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Food Emergency Response Plan

XV. AUTHORITIES AND REFERENCES

This section should describe the legal basis for emergency operations and contain references to important 

documents the appendix supports, such as the emergency operations plans. Planners must be sure that the 

responding and supporting agencies have the authority to implement the state response plan. Legal authority related to the treatment of citizens, use and payment of state and local resources, and other aspects of 

an incident response must be carefully reviewed for consistency with existing local, state and federal laws, 

regulations or policies.

States should focus on the special authorities needed for a large-scale food emergency response. If the 

FERP is intended to be a stand-alone document, general authorities relative to implementing the response 

should be included. This section should provide a detailed listing of legal authorities. State and federal 

regulations and statutes should be cited specifically and attached to the plans to provide easy reference for 

the reader. Care should be taken to check for conflicts between the various legal authorities involved, as 

well as potential for interstate or federal conflicts. If other state emergency plans, annexes, appendices or 

emergency support functions already reference these authorities, cross-referencing these existing plans may 

be appropriate. 

1. What authorities exist to specifically deal with the unique requirements of a food emergency 

response (i.e., access to products or facilities, inspection, quarantine, embargo, and destruction 

of products)?

2. What food emergency response actions will require additional or revised authorities for the 

responding agencies?

3. What federal and state statutes related to food emergencies have the potential for conflict and 

how will this be resolved?