TEFAP Procedures Manual Section 2: TEFAP Administration
All WSDA FA TEFAP forms and publications listed in this section are found here.
2.1 Definitions
Acquisition Cost: The total costs incurred in acquiring and readying an asset for its intended use, including the cost of modifications, accessories, and ancillary charges.
Administrative Expenses: The expenses incurred in the overall operation and management of the organization that are direct billed. Salaries, wages, supplies, general expenses, and membership dues that are direct billed.
Agreement: A written agreement (Grant – state funding, Subaward – federal funding) between the Washington State Department of Agriculture (WSDA) Food Assistance (FA) and the Lead Agency identifying the rights and obligations of both parties governed by the Agreement, including the following of exhibits, attachments or other documents incorporated by reference.
Ancillary Charges: The expenses involved in the transaction, but not directly related or incidental. These expenses include items such as taxes, duty, transit insurance, freight, and installation may be included in the acquisition cost, in accordance with the participating organization’s accounting practices.
Assistance Listing Number: Assistance listings are detailed public descriptions of federal programs that provide grants, loans, scholarships, insurance, and other types of assistance awards. Previously known as the Catalog of Federal Domestic Assistance (CFDA).
Authorized Representative: For FA, the designee authorized in writing to act on the Director’s behalf; for the Lead Agency, the Authorized Signer.
Authorized Signature: Signature of the board president, tribal chairperson, agency director, or other official authorized to sign.
Backpack / Weekend Bags for Kids: Means clients (kids) who receive a food bag for one person. This is typically given to clients for the weekend and holidays when schools are closed.
Bill Of Lading (BOL): A document provided by the shipping/trucking agent or warehouse as a written record of program food shipped to or received by the Lead Agency or Sub Agency. The BOL details the types and amounts of food shipped or received.
Bonus Food: Food purchased that supports the market impacts based on agricultural surpluses and price support activities, to help American agriculture producers. These bonus foods are then offered to TEFAP as USDA Foods at no cost to entitlement dollars.
Bonus Redistribution Center: Responsible for receiving direct shipments of USDA “bonus” foods that cannot be direct shipped to Lead Agencies. Also responsible for redistributing these bonus foods to other Lead Agencies based on the allocation rate provided by FA.
Budget Period: The budget period (the timeframe to incur eligible expenses) for TEFAP
Capital Assets: Tangible or intangible assets used in operations having a useful life of more than one year which are capitalized in accordance with Generally Accepted Accounting Principles (GAAP). See Federal Guidance 2 CFR §200.1 and §200.465.
Capital Improvement Project: The actual additions, improvements, modifications, replacements, rearrangements, reinstallations, renovations, or alterations to property, infrastructure, or facilities that increase their value or useful life (not ordinary repairs and maintenance), has a per unit cost which equals or exceeds the lesser of the capitalization level established by the organization for financial statement purposes, of $10,000 (if procured October 1, 2024, or thereafter).
Capitalization Policy: The criteria used by an organization to determine which capital expenditure should be reported as a capital asset. Capital assets with a unit cost (including ancillary costs) of $10,000 or greater, or collections of capital assets with a total cost of $10,000 or greater, are capitalized, unless otherwise noted.
CFR: The Code of Federal Regulations. 7 CFR Parts 250 and 251 have TEFAP specific information.
Client Intake Forms: FA provided forms that are used by participating TEFAP agencies to track client information for clients receiving TEFAP USDA Foods. Alternate forms must be approved by FA.
Commodity Credit Corporation (CCC): TEFAP CCC funding helps emergency food organizations to deal with supply chain challenges and elevated food costs by supporting food purchases and TEFAP eligible recipient agencies’ operational costs for the storage and distribution of the additional CCC food purchases. CCC funds are in addition to TEFAP entitlement foods, bonus foods, and TEFAP administrative funds.
Contract: A written Agreement between FA and the Contractor/Vendor identifying the rights and obligations of both parties governed by the Contract, including the following of exhibits, attachments or other documents incorporated by reference.
Coordinated Services: Making contact with and sharing information about other programs and establishing procedures for referring clients between food pantries and other services.
Current Fair Market Value: The value of equipment and supplies determined by selling them in a competitive market or by researching advertised prices for similar items on the used market.
Davis-Bacon Act: Federal law requiring the payment of prevailing wage in certain contracts (minimum threshold of $2,000.00) for the construction, alteration, or repair (including painting and decorating) of public buildings or public works supported with federal funding and required by the fund source. Exceptions may apply.
Debarment, Suspension, and Ineligibility: The act of being suspended or being declared ineligible by any state or federal agency from participating in any transactions with them. Also referred to as suspension and debarment.
Emergency Food: Food that is given to clients who do not have the means to acquire that food themselves, so that they will not go hungry.
Entitlement Food: Allocated to states based on a poverty and unemployment rate which determines the entitlement funding allotted to the state TEFAP Distributing Agency. The TEFAP Distributing Agency orders their entitlement foods based on the USDA Foods available and USDA purchases food on behalf of the state.
Equipment: Tangible personal property (including information technology systems) that has a useful life of more than one year, is movable, and has a per-unit acquisition cost which equals or exceeds the lesser of the capitalization level established by the non-federal entity (organization) for financial statement purposes, or $10,000.
Equipment Repairs: Equipment repairs with a cost of $10,000 or more are considered a capital expenditure and should be capitalized when they prolong the useful life of the equipment being repaired. Equipment repair costs which equal or exceed the lesser of the capitalization level established by the non-Federal entity (organization) for financial statement purposes, or $10,000. Equipment repairs funded in part or entirely with FA funds must be pre-approved by FA.
Federal Award Uniform Guidance: 2 CFR Part 200, Uniform Administrative Requirements, Cost Principles, and Audit Requirements for Federal Awards, available at https://www.ecfr.gov/current/title-2/subtitle-A/chapter-II.
Federal Fiscal Year (FFY): The accounting period of the federal government. It begins on October 1 and ends on September 30 of the next calendar year.
First In, First Out (FIFO): An inventory control system to ensure that the USDA Foods received in “first” are also the “first” to be issued out. Typically, USDA Foods are to be stored so that the stock rotation of USDA Foods with the nearest expiration/Best If Used By dates are in front and used first, followed by USDA Foods with the oldest pack dates.
Food Assistance (FA): Washington State Department of Agriculture's (WSDA) Food Assistance (FA) and its programs.
Food Assistance Advisory Committee (FAAC): Part of the Washington Food Coalition (WFC) that makes recommendations to FA for program and policy improvements.
Food Bank: An organization that collects, warehouses, and distributes food, including perishable foods, or other products to hunger relief organizations on a regional, county, or statewide basis. Also referred to as a Provider.
Food and Nutrition Services (FNS): The section of the United States Department of Agriculture (USDA) that manages the majority of the federal food assistance programs.
Food Pantry: An eligible hunger relief organization that distributes unprepared food without charge to its clients and is selected to participate in TEFAP. The organization must provide direct client services, food storage, and distribution with consistency. Also referred to as a Provider.
Hunger Relief Organization: An eligible entity that provides low-income clients with any kind of emergency food including prepared meals.
In-Kind: The value of volunteer services or donated goods including staff time, rent, food, supplies, and transportation.
Income Eligibility: The client who falls within the Federal Poverty Income Guidelines set forth by the government. For TEFAP this is 400% of the Federal Poverty Income Guidelines and subject to USDA approval.
Indirect Expenses: The general overhead expenses of an organization that cannot be readily identified with a particular program.
Interested Party: Any eligible organization wishing to participate in TEFAP.
Lead Agency: The entity that holds a written Agreement with Washington State Department of Agriculture (WSDA) to implement the program at the local level and/or through its Sub Agencies. The term Grantee is used for state pass-through funded grants. The term Subrecipient is used for federal pass-through funded subawards. Also referred to as a Provider.
Meal Program: An emergency food assistance provider that provides predominately low-income clients prepared meals in a congregate setting.
Mobile Food Pantry: An eligible hunger relief organization that distributes unprepared food without charge to its clients and is selected to participate in TEFAP. The organization must provide direct client services, food storage, and distribution with consistency. A food distributor that travels to communities, oftentimes with a regular or semi-regular distribution schedule.
Modified Total Direct Cost (MTDC): All direct salaries and wages, applicable fringe benefits, materials and supplies, services, travel, and up to the first $50,000 of each subaward (regardless of the period of performance of the subawards under the award). MTDC excludes equipment, capital expenditures, rental costs, and the portion of each subaward in excess of $50,000.
Nonprofit: A private agency or organization with 501(c)(3) tax-exempt status under the Internal Revenue Code, or that has applied for 501(c)(3) tax-exempt status with the Internal Revenue Service.
Operational Expenses: Those costs that are identifiable with providing direct services to TEFAP clients and/or supporting distribution services in their area.
Participating Agency: A Lead or Sub Agency operating TEFAP.
Period of Performance: The timeframe when an eligible program expense may be incurred and includes additional time for fiscal close out of each fiscal year as defined in the written Agreement. It may include one or more budget periods.
Period of Use: The additional length of time beyond the period of performance for which equipment and capital improvements must be in use, per program requirements and procurement guidelines.
Program Review: Any planned, ongoing, or periodic activity that measures and ensures Lead Agency and Sub Agency compliance with the terms, conditions, and requirements of an Agreement. Monitoring for program reviews will be based on a risk assessment of the ability to deliver services and its performance in delivering those services under the terms of the Agreement. It could be on-site, virtual, or a desk review.
Proxy: Any person designated by a TEFAP client or by a client’s caretaker to obtain TEFAP USDA Foods on behalf of the client.
RCW: Revised Code of Washington.
Risk Assessment: The process of evaluating exposure to harm or loss that could arise from an activity associated with the Agreement. It consists of identifying and classifying risks based on certain characteristics and measuring and evaluating the consequences of those risks.
Sealed Bid: Bid that is publicly solicited, a firm fixed price contract (lump sum or unit price) is awarded to the responsible bidder whose bid, conforming with all the material terms and conditions of the invitation for the bids, is the lowest in price.
Single Audit: An organization-wide audit of an entity that expends $1,000,000 (for fiscal years beginning October 1, 2024 or later) or more of federal assistance (funds, grants, awards) as required by federal 2 CFR Part 200, Uniform Administrative Requirements, Cost Principals, and Audit Requirements for Federal Awards.
Split Shipment: A USDA truckload that has been split up and shipped to multiple destinations.
Sponsored Site: Any site or program used for distribution of food that the participating agency doesn't directly operate, manage, or maintain including any on-site food pantry, any off-site temporary distribution location, mobile food pantry, homebound delivery program, or meal program.
State: The state of Washington.
State Distributing Agency (SDA): The state-level agency that administers TEFAP for the State is WSDA.
State Prevailing Wage: State law requiring the payment of prevailing wage in certain contracts for the construction, alteration, or repair (including painting and decorating) of public buildings or public works.
Sub Agency:The entity that holds a written Agreement with a Lead Agency to implement the program at the local level. The term Subgrantee is used for state pass-through funded grants. The term Subawardee is used for federal pass-through funded subawards. The Agreement between the Lead Agency and Sub Agency for state pass-through is also referred to as a subgrant and the federal pass-through is also referred to as a sub-subaward.
TEFAP: The Emergency Food Assistance Program authorized by 7 USC §§7501-7516 and subject to 7 CFR Parts 250-251.
TEFAP Client: A TEFAP (food pantry) client is a person signing up for TEFAP USDA Foods on behalf of their household. A client is a person who is at or below the (approved) 400% of federal poverty level and is in need of emergency food; the term means the same as “Needy Person” under 7 CFR §250.3 and includes all such persons regardless of whether the person is currently obtaining services from any TEFAP participating agency. Also referred to as a beneficary.
TEFAP Household: The number of family members reported by the TEFAP food pantry client. A household refers to a group of related or non-related individuals, exclusive of boarders, who are not residents of an institution, but who are living as one economic unit and for whom food is customarily purchased and prepared in common. It also means a single individual living alone.
TEFAP Lead Agency Inventory Report: A form used by TEFAP Lead Agencies to track the receipt, issuance and inventory of TEFAP USDA Foods monthly; includes client data.
TEFAP Meal Program Client: A person receiving prepared meals from a meal program or congregate site, and is assumed to be predominately needy (no means testing is allowed). Also referred to as a beneficiary.
TEFAP State Plan: The required plan submitted by the state agency and approved by USDA FNS describing the manner in which the state agency will implement and operate all aspects of the program within its jurisdiction.
TEFAP Sub Agency Inventory Report: A form used by TEFAP Sub Agencies (food pantries and meal programs) to track the receipt, issuance and inventory of TEFAP USDA Foods monthly.
TEFAP USDA Foods: The foods purchased by USDA to supplement the diets of TEFAP clients. Also referred to as USDA Foods.
USDA: United States Department of Agriculture.
USDA Foods: The foods purchased by USDA to supplement the diets of TEFAP clients. Also referred to as TEFAP USDA Foods.
WAC: Washington Administrative Code.
Washington Food Coalition (WFC): A nonprofit organization that advocates for the emergency food system and provides education and training to a statewide membership of food banks, food pantries, meal programs, state agencies and other partners. WFC also houses the FA Advisory Committee which acts as an advisory body to FA.
WSDA: Washington State Department of Agriculture.
Administrative Expenses: The expenses incurred in the overall operation and management of the organization that are direct billed. Salaries, wages, supplies, general expenses, and membership dues that are direct billed.
Agreement: A written agreement (Grant – state funding, Subaward – federal funding) between the Washington State Department of Agriculture (WSDA) Food Assistance (FA) and the Lead Agency identifying the rights and obligations of both parties governed by the Agreement, including the following of exhibits, attachments or other documents incorporated by reference.
Ancillary Charges: The expenses involved in the transaction, but not directly related or incidental. These expenses include items such as taxes, duty, transit insurance, freight, and installation may be included in the acquisition cost, in accordance with the participating organization’s accounting practices.
Assistance Listing Number: Assistance listings are detailed public descriptions of federal programs that provide grants, loans, scholarships, insurance, and other types of assistance awards. Previously known as the Catalog of Federal Domestic Assistance (CFDA).
Authorized Representative: For FA, the designee authorized in writing to act on the Director’s behalf; for the Lead Agency, the Authorized Signer.
Authorized Signature: Signature of the board president, tribal chairperson, agency director, or other official authorized to sign.
Backpack / Weekend Bags for Kids: Means clients (kids) who receive a food bag for one person. This is typically given to clients for the weekend and holidays when schools are closed.
Bill Of Lading (BOL): A document provided by the shipping/trucking agent or warehouse as a written record of program food shipped to or received by the Lead Agency or Sub Agency. The BOL details the types and amounts of food shipped or received.
Bonus Food: Food purchased that supports the market impacts based on agricultural surpluses and price support activities, to help American agriculture producers. These bonus foods are then offered to TEFAP as USDA Foods at no cost to entitlement dollars.
Bonus Redistribution Center: Responsible for receiving direct shipments of USDA “bonus” foods that cannot be direct shipped to Lead Agencies. Also responsible for redistributing these bonus foods to other Lead Agencies based on the allocation rate provided by FA.
Budget Period: The budget period (the timeframe to incur eligible expenses) for TEFAP
Capital Assets: Tangible or intangible assets used in operations having a useful life of more than one year which are capitalized in accordance with Generally Accepted Accounting Principles (GAAP). See Federal Guidance 2 CFR §200.1 and §200.465.
- Capital assets include land, buildings (facilities), equipment, equipment repair, and intellectual property (including software) whether acquired by purchase, construction, manufacture, lease-purchase, exchange, or through capital lease. FA funding is not to be utilized for the purchase of land or new buildings. Some exceptions may apply.
- Capital assets do not include intangible right-to-use assets and right-to-use operating lease assets. For example, capitalized assets that recognize a lessee's right to control the use of property and/or equipment for a period of time under a lease contract.
Capital Improvement Project: The actual additions, improvements, modifications, replacements, rearrangements, reinstallations, renovations, or alterations to property, infrastructure, or facilities that increase their value or useful life (not ordinary repairs and maintenance), has a per unit cost which equals or exceeds the lesser of the capitalization level established by the organization for financial statement purposes, of $10,000 (if procured October 1, 2024, or thereafter).
Capitalization Policy: The criteria used by an organization to determine which capital expenditure should be reported as a capital asset. Capital assets with a unit cost (including ancillary costs) of $10,000 or greater, or collections of capital assets with a total cost of $10,000 or greater, are capitalized, unless otherwise noted.
CFR: The Code of Federal Regulations. 7 CFR Parts 250 and 251 have TEFAP specific information.
Client Intake Forms: FA provided forms that are used by participating TEFAP agencies to track client information for clients receiving TEFAP USDA Foods. Alternate forms must be approved by FA.
Commodity Credit Corporation (CCC): TEFAP CCC funding helps emergency food organizations to deal with supply chain challenges and elevated food costs by supporting food purchases and TEFAP eligible recipient agencies’ operational costs for the storage and distribution of the additional CCC food purchases. CCC funds are in addition to TEFAP entitlement foods, bonus foods, and TEFAP administrative funds.
Contract: A written Agreement between FA and the Contractor/Vendor identifying the rights and obligations of both parties governed by the Contract, including the following of exhibits, attachments or other documents incorporated by reference.
Coordinated Services: Making contact with and sharing information about other programs and establishing procedures for referring clients between food pantries and other services.
Current Fair Market Value: The value of equipment and supplies determined by selling them in a competitive market or by researching advertised prices for similar items on the used market.
Davis-Bacon Act: Federal law requiring the payment of prevailing wage in certain contracts (minimum threshold of $2,000.00) for the construction, alteration, or repair (including painting and decorating) of public buildings or public works supported with federal funding and required by the fund source. Exceptions may apply.
Debarment, Suspension, and Ineligibility: The act of being suspended or being declared ineligible by any state or federal agency from participating in any transactions with them. Also referred to as suspension and debarment.
- Lead Agencies certification is required in all written Agreements that indicates neither they nor their principals are not presently debarred, declared ineligible, or voluntarily excluded from participation in transactions by the state of Washington and, if federal funds are a source of funding, any Federal department or agency.
Emergency Food: Food that is given to clients who do not have the means to acquire that food themselves, so that they will not go hungry.
Entitlement Food: Allocated to states based on a poverty and unemployment rate which determines the entitlement funding allotted to the state TEFAP Distributing Agency. The TEFAP Distributing Agency orders their entitlement foods based on the USDA Foods available and USDA purchases food on behalf of the state.
Equipment: Tangible personal property (including information technology systems) that has a useful life of more than one year, is movable, and has a per-unit acquisition cost which equals or exceeds the lesser of the capitalization level established by the non-federal entity (organization) for financial statement purposes, or $10,000.
Equipment Repairs: Equipment repairs with a cost of $10,000 or more are considered a capital expenditure and should be capitalized when they prolong the useful life of the equipment being repaired. Equipment repair costs which equal or exceed the lesser of the capitalization level established by the non-Federal entity (organization) for financial statement purposes, or $10,000. Equipment repairs funded in part or entirely with FA funds must be pre-approved by FA.
Federal Award Uniform Guidance: 2 CFR Part 200, Uniform Administrative Requirements, Cost Principles, and Audit Requirements for Federal Awards, available at https://www.ecfr.gov/current/title-2/subtitle-A/chapter-II.
Federal Fiscal Year (FFY): The accounting period of the federal government. It begins on October 1 and ends on September 30 of the next calendar year.
First In, First Out (FIFO): An inventory control system to ensure that the USDA Foods received in “first” are also the “first” to be issued out. Typically, USDA Foods are to be stored so that the stock rotation of USDA Foods with the nearest expiration/Best If Used By dates are in front and used first, followed by USDA Foods with the oldest pack dates.
Food Assistance (FA): Washington State Department of Agriculture's (WSDA) Food Assistance (FA) and its programs.
Food Assistance Advisory Committee (FAAC): Part of the Washington Food Coalition (WFC) that makes recommendations to FA for program and policy improvements.
Food Bank: An organization that collects, warehouses, and distributes food, including perishable foods, or other products to hunger relief organizations on a regional, county, or statewide basis. Also referred to as a Provider.
Food and Nutrition Services (FNS): The section of the United States Department of Agriculture (USDA) that manages the majority of the federal food assistance programs.
Food Pantry: An eligible hunger relief organization that distributes unprepared food without charge to its clients and is selected to participate in TEFAP. The organization must provide direct client services, food storage, and distribution with consistency. Also referred to as a Provider.
Hunger Relief Organization: An eligible entity that provides low-income clients with any kind of emergency food including prepared meals.
In-Kind: The value of volunteer services or donated goods including staff time, rent, food, supplies, and transportation.
Income Eligibility: The client who falls within the Federal Poverty Income Guidelines set forth by the government. For TEFAP this is 400% of the Federal Poverty Income Guidelines and subject to USDA approval.
Indirect Expenses: The general overhead expenses of an organization that cannot be readily identified with a particular program.
Interested Party: Any eligible organization wishing to participate in TEFAP.
Lead Agency: The entity that holds a written Agreement with Washington State Department of Agriculture (WSDA) to implement the program at the local level and/or through its Sub Agencies. The term Grantee is used for state pass-through funded grants. The term Subrecipient is used for federal pass-through funded subawards. Also referred to as a Provider.
Meal Program: An emergency food assistance provider that provides predominately low-income clients prepared meals in a congregate setting.
Mobile Food Pantry: An eligible hunger relief organization that distributes unprepared food without charge to its clients and is selected to participate in TEFAP. The organization must provide direct client services, food storage, and distribution with consistency. A food distributor that travels to communities, oftentimes with a regular or semi-regular distribution schedule.
Modified Total Direct Cost (MTDC): All direct salaries and wages, applicable fringe benefits, materials and supplies, services, travel, and up to the first $50,000 of each subaward (regardless of the period of performance of the subawards under the award). MTDC excludes equipment, capital expenditures, rental costs, and the portion of each subaward in excess of $50,000.
Nonprofit: A private agency or organization with 501(c)(3) tax-exempt status under the Internal Revenue Code, or that has applied for 501(c)(3) tax-exempt status with the Internal Revenue Service.
Operational Expenses: Those costs that are identifiable with providing direct services to TEFAP clients and/or supporting distribution services in their area.
Participating Agency: A Lead or Sub Agency operating TEFAP.
Period of Performance: The timeframe when an eligible program expense may be incurred and includes additional time for fiscal close out of each fiscal year as defined in the written Agreement. It may include one or more budget periods.
Period of Use: The additional length of time beyond the period of performance for which equipment and capital improvements must be in use, per program requirements and procurement guidelines.
Program Review: Any planned, ongoing, or periodic activity that measures and ensures Lead Agency and Sub Agency compliance with the terms, conditions, and requirements of an Agreement. Monitoring for program reviews will be based on a risk assessment of the ability to deliver services and its performance in delivering those services under the terms of the Agreement. It could be on-site, virtual, or a desk review.
Proxy: Any person designated by a TEFAP client or by a client’s caretaker to obtain TEFAP USDA Foods on behalf of the client.
RCW: Revised Code of Washington.
Risk Assessment: The process of evaluating exposure to harm or loss that could arise from an activity associated with the Agreement. It consists of identifying and classifying risks based on certain characteristics and measuring and evaluating the consequences of those risks.
Sealed Bid: Bid that is publicly solicited, a firm fixed price contract (lump sum or unit price) is awarded to the responsible bidder whose bid, conforming with all the material terms and conditions of the invitation for the bids, is the lowest in price.
Single Audit: An organization-wide audit of an entity that expends $1,000,000 (for fiscal years beginning October 1, 2024 or later) or more of federal assistance (funds, grants, awards) as required by federal 2 CFR Part 200, Uniform Administrative Requirements, Cost Principals, and Audit Requirements for Federal Awards.
Split Shipment: A USDA truckload that has been split up and shipped to multiple destinations.
Sponsored Site: Any site or program used for distribution of food that the participating agency doesn't directly operate, manage, or maintain including any on-site food pantry, any off-site temporary distribution location, mobile food pantry, homebound delivery program, or meal program.
State: The state of Washington.
State Distributing Agency (SDA): The state-level agency that administers TEFAP for the State is WSDA.
State Prevailing Wage: State law requiring the payment of prevailing wage in certain contracts for the construction, alteration, or repair (including painting and decorating) of public buildings or public works.
Sub Agency:The entity that holds a written Agreement with a Lead Agency to implement the program at the local level. The term Subgrantee is used for state pass-through funded grants. The term Subawardee is used for federal pass-through funded subawards. The Agreement between the Lead Agency and Sub Agency for state pass-through is also referred to as a subgrant and the federal pass-through is also referred to as a sub-subaward.
TEFAP: The Emergency Food Assistance Program authorized by 7 USC §§7501-7516 and subject to 7 CFR Parts 250-251.
TEFAP Client: A TEFAP (food pantry) client is a person signing up for TEFAP USDA Foods on behalf of their household. A client is a person who is at or below the (approved) 400% of federal poverty level and is in need of emergency food; the term means the same as “Needy Person” under 7 CFR §250.3 and includes all such persons regardless of whether the person is currently obtaining services from any TEFAP participating agency. Also referred to as a beneficary.
TEFAP Household: The number of family members reported by the TEFAP food pantry client. A household refers to a group of related or non-related individuals, exclusive of boarders, who are not residents of an institution, but who are living as one economic unit and for whom food is customarily purchased and prepared in common. It also means a single individual living alone.
TEFAP Lead Agency Inventory Report: A form used by TEFAP Lead Agencies to track the receipt, issuance and inventory of TEFAP USDA Foods monthly; includes client data.
TEFAP Meal Program Client: A person receiving prepared meals from a meal program or congregate site, and is assumed to be predominately needy (no means testing is allowed). Also referred to as a beneficiary.
TEFAP State Plan: The required plan submitted by the state agency and approved by USDA FNS describing the manner in which the state agency will implement and operate all aspects of the program within its jurisdiction.
TEFAP Sub Agency Inventory Report: A form used by TEFAP Sub Agencies (food pantries and meal programs) to track the receipt, issuance and inventory of TEFAP USDA Foods monthly.
TEFAP USDA Foods: The foods purchased by USDA to supplement the diets of TEFAP clients. Also referred to as USDA Foods.
USDA: United States Department of Agriculture.
USDA Foods: The foods purchased by USDA to supplement the diets of TEFAP clients. Also referred to as TEFAP USDA Foods.
WAC: Washington Administrative Code.
Washington Food Coalition (WFC): A nonprofit organization that advocates for the emergency food system and provides education and training to a statewide membership of food banks, food pantries, meal programs, state agencies and other partners. WFC also houses the FA Advisory Committee which acts as an advisory body to FA.
WSDA: Washington State Department of Agriculture.
2.2 Program History
The Emergency Food Assistance Program (TEFAP)
In 1981, this federal United States Department of Agriculture (USDA) food distribution program was first authorized to distribute surplus USDA Foods, primarily cheese, under the Temporary Emergency Food Assistance Program (TEFAP) in order to help supplement the diets of low-income Americans, including seniors. In 1983, the Emergency Food Assistance Act stated that TEFAP would provide other types of surplus (bonus) foods such as butter, flour, cornmeal etc. In 1988, in response to the depletion of some of the surplus foods used by TEFAP, the Hunger Prevention Act appropriated funding specifically for the purchase (entitlement) of commodity foods (now called USDA Foods) for TEFAP. In 1990, the name of the program was officially changed to The Emergency Food Assistance Program (TEFAP) instead of the Temporary Food Assistance Program (TEFAP). The Personal Responsibility and Work Opportunity Reconciliation Act of 1996 changed TEFAP by (1) combining it with commodity distribution programs for charitable institutions and emergency feeding organizations (EFOs), (2) defining a formula for allocating TEFAP USDA Foods to States, and (3) requiring that a portion of Supplemental Nutrition Assistance Program (SNAP) (then known as the Food Stamp Program) appropriations be used for TEFAP USDA Food purchases.
TEFAP has evolved to include a focus on healthier foods, more variety in the types of foods being offered, and using commercial labels instead of just the USDA label. In addition, there has been an increase in the volume of TEFAP bonus and entitlement foods which helps to provide participating agencies with a stable source of critically needed food for their clients.
Since the pandemic, USDA has provided additional foods, including TEFAP Commodity Credit Corporation (CCC) foods and funding, there has also been a significant increase in the types of TEFAP USDA Foods available, including culturally familiar foods. In addition, Washington State Department of Agriculture (WSDA) Food Assistance (FA) manages the administration of TEFAP Farm to Food Bank and TEFAP Reach and Resiliency programming.
In Washington, FA manages the administration, ordering, storage and distribution of TEFAP USDA Foods and funding (ranges between $30 - $50 million) by entering into direct agreements with 19 Lead Agencies to provide statewide coverage in all 39 counties. FA initially passes through a minimum of 78 percent of the USDA funding directly to Lead Agencies. Depending upon funds available for reallocation at the end of the federal fiscal year, the final pass-through is historically closer to 90 percent. FA utilizes a distribution contractor to provide state-level storage and trucking for USDA Foods that cannot be direct shipped from USDA vendors to the Lead Agencies.
The Lead Agencies receive the TEFAP USDA Foods and administrative funding. Lead Agencies enter into agreements with eligible hunger relief organizations (Sub Agencies) within their region to assist in the distribution of food to eligible clients. The number of TEFAP distribution points has increased to over 528 and primarily consist of food pantries (including mobile food pantries), to provide food for household use, and meal programs that utilize the foods in the preparation of a “hot meal” on site. This program reaches over 1 million people each month.
TEFAP helps supplement the diets of low-income families, including elderly people, by providing them with emergency food assistance at no cost; and supports American agriculture by distributing high quality 100 percent American-grown TEFAP USDA Foods. It is administered at the federal level by USDA’s Food and Nutrition Service (FNS). State agencies receive the food, administrative funding, and provide for the overall management of the program within their state.
The amount of TEFAP USDA Foods and funds a state receives is based on each state’s population of low-income and unemployed persons, as compared to the national statistics. States provide the food to local agencies (Lead Agencies) which in turn distribute the food to participating hunger relief organizations (Sub Agencies) who directly serve eligible clients.
In 1981, this federal United States Department of Agriculture (USDA) food distribution program was first authorized to distribute surplus USDA Foods, primarily cheese, under the Temporary Emergency Food Assistance Program (TEFAP) in order to help supplement the diets of low-income Americans, including seniors. In 1983, the Emergency Food Assistance Act stated that TEFAP would provide other types of surplus (bonus) foods such as butter, flour, cornmeal etc. In 1988, in response to the depletion of some of the surplus foods used by TEFAP, the Hunger Prevention Act appropriated funding specifically for the purchase (entitlement) of commodity foods (now called USDA Foods) for TEFAP. In 1990, the name of the program was officially changed to The Emergency Food Assistance Program (TEFAP) instead of the Temporary Food Assistance Program (TEFAP). The Personal Responsibility and Work Opportunity Reconciliation Act of 1996 changed TEFAP by (1) combining it with commodity distribution programs for charitable institutions and emergency feeding organizations (EFOs), (2) defining a formula for allocating TEFAP USDA Foods to States, and (3) requiring that a portion of Supplemental Nutrition Assistance Program (SNAP) (then known as the Food Stamp Program) appropriations be used for TEFAP USDA Food purchases.
TEFAP has evolved to include a focus on healthier foods, more variety in the types of foods being offered, and using commercial labels instead of just the USDA label. In addition, there has been an increase in the volume of TEFAP bonus and entitlement foods which helps to provide participating agencies with a stable source of critically needed food for their clients.
Since the pandemic, USDA has provided additional foods, including TEFAP Commodity Credit Corporation (CCC) foods and funding, there has also been a significant increase in the types of TEFAP USDA Foods available, including culturally familiar foods. In addition, Washington State Department of Agriculture (WSDA) Food Assistance (FA) manages the administration of TEFAP Farm to Food Bank and TEFAP Reach and Resiliency programming.
In Washington, FA manages the administration, ordering, storage and distribution of TEFAP USDA Foods and funding (ranges between $30 - $50 million) by entering into direct agreements with 19 Lead Agencies to provide statewide coverage in all 39 counties. FA initially passes through a minimum of 78 percent of the USDA funding directly to Lead Agencies. Depending upon funds available for reallocation at the end of the federal fiscal year, the final pass-through is historically closer to 90 percent. FA utilizes a distribution contractor to provide state-level storage and trucking for USDA Foods that cannot be direct shipped from USDA vendors to the Lead Agencies.
The Lead Agencies receive the TEFAP USDA Foods and administrative funding. Lead Agencies enter into agreements with eligible hunger relief organizations (Sub Agencies) within their region to assist in the distribution of food to eligible clients. The number of TEFAP distribution points has increased to over 528 and primarily consist of food pantries (including mobile food pantries), to provide food for household use, and meal programs that utilize the foods in the preparation of a “hot meal” on site. This program reaches over 1 million people each month.
TEFAP helps supplement the diets of low-income families, including elderly people, by providing them with emergency food assistance at no cost; and supports American agriculture by distributing high quality 100 percent American-grown TEFAP USDA Foods. It is administered at the federal level by USDA’s Food and Nutrition Service (FNS). State agencies receive the food, administrative funding, and provide for the overall management of the program within their state.
The amount of TEFAP USDA Foods and funds a state receives is based on each state’s population of low-income and unemployed persons, as compared to the national statistics. States provide the food to local agencies (Lead Agencies) which in turn distribute the food to participating hunger relief organizations (Sub Agencies) who directly serve eligible clients.
2.3 TEFAP Process and Allocations
- Availability of Funds and Allocations.
- The amounts of each agreement are based on the overall availability of funds and the following allocation formula:
- Initial Allocation: The initial allocation is comprised of a base per county amount and a county’s percentage of poverty rate. The current base for non-rural counties is $15,000 and $20,000 for rural counties. The remaining pass-through funding is then calculated based on each county’s percentage of people living at or below the federal poverty level, based on the 5-year American Community Survey (ACS) estimates.
- Allocation Adjustment: If there is a reduction or increase in the amount of program funds available, Food Assistance (FA) may reduce or increase the amount of a Lead Agency’s original award. However, there may be other causes prompting a change in funding.
- With any increase or reduction in funding, FA sends the Lead Agency an Amendment specifying the amount of the reduction or increase.
- The Lead Agency must also amend the Agreements of all affected Sub Agencies indicating their budget changes, where applicable.
- Remaining Funds: Any remaining funds at year-end will be issued to Lead Agencies submitting documented claims in excess of their original allocations. These funds are allocated based on the same 5-year ACS poverty data as the initial allocation.
- The amounts of each agreement are based on the overall availability of funds and the following allocation formula:
- Food Allocation.
- TEFAP USDA Foods are allocated to Lead Agencies using the same per county formula as administrative funding with no base. TEFAP USDA Foods are ordered only in amounts that can be expeditiously distributed without waste.
- TEFAP USDA Foods shall be initially allocated by each Lead Agency as follows:
- 25 Percent to Meal Programs
- The Lead Agency is not required to distribute the entire 25 percent to meal programs if the meal programs are unable to fully utilize their allocation.
- When a Lead Agency doesn’t have any Meal Programs, it doesn’t have to allocate any of the food for that purpose.
- The remaining food can be reallocated to the food pantry programs.
- 75 Percent to Food Pantry Programs
- The Lead Agency does not need to notify FA of variances as long as the initial 25 percent was offered to the meal programs, and the meal programs took what they could use for the month it was offered.
- In addition, reallocation between programs may be necessary to meet USDA regulations in 7 CFR 250.14(d) and applicable Food and Nutrition Service (FNS) policy memoranda regarding inventory management which states that inventories may not exceed a six-month supply nor extend past the recommended shelf-life of any given product. However, FA requires that TEFAP inventories do not exceed a three-month supply.
- FA prepares USDA Direct Shipments Workbook (shipments coming directly from USDA vendors) for applicable Lead Agencies. Additionally, FA prepares Bills of Lading (BOL) for redistribution of cold, frozen, and dry shipments coming directly from Northwest Harvest (NWH) and/or Food Lifeline (FLL). FA staff will send an email to each Lead Agency, as applicable, to notify them of upcoming redistribution
- 25 Percent to Meal Programs
- Priority System.
- The priority system distributes TEFAP USDA Foods received under this program to first meet the needs in Category One, then in Category Two, and finally in Category Three. This priority system will be used by the Lead Agency to distribute TEFAP USDA Foods to Sub Agencies.
- Category One clients meet the direction provided to the State under the EFAP Act of 1983, to place highest priority on emergency and distress needs, including low-income and unemployed individuals/households. Category One includes both meal programs and food pantry programs.
- Examples of the three categories are:
| Category One - Emergency and Distress | |||
| Households (Food Pantry) | Meal Programs | Shelters | Transitional Housing |
| Category Two - Low-income | |
| Low Income Housing (Congregate Feeding) | Senior Programs |
| Category Three - All Remaining Applicants | |||
| Drug & Alcohol | Summer Camps | Hospitals | Adult Day Care |
| Group Homes | Retirement Centers | Nursing Homes | Boys/Girls Club |
| Mental Health | Foster Care | Job Corps | |
- Allocation Adjustments Due to Disasters and Situations of Distress.
- FA will participate in Emergency Support Functions #11 conference calls, conduct outreach to Lead Agencies and Sub Agencies in effected areas, assess additional need and shift resources to assist in disaster feeding as needed and as approved by USDA FNS. FA maintains an emergency contact list and maintains updated inventory records for each TEFAP Lead Agency.
- In a Presidentially Declared Disaster (PDD) or a situation of distress determined by the State, Lead Agencies may be required to transfer TEFAP USDA Foods to the area of crisis. FA must approve all transfers of this nature.
- In this situation:
- There will be no cost to the Lead Agency for the transfer.
- USDA may elect to replace the value of the TEFAP USDA Foods diverted to the area of crisis.
- There is no prohibition on the simultaneous provision of TEFAP USDA Foods and Disaster-SNAP (D-SNAP) during a disaster.
- Information regarding disasters and situations of distress can be accessed at the FNS Disaster Assistance website and in the USDA Foods Program Disaster Manual.
2.4 Interested Parties
- Food Assistance (FA) is responsible for the selection of Lead Agencies. Existing TEFAP Lead Agencies are considered ongoing (permanent). If FA terminates a Lead Agency due to performance issues or a Lead Agency notifies FA that it no longer wishes to be the Lead Agency, then a new Lead Agency must be selected. Selection criteria and considerations include, but are not limited to, the following:
- Being able to meet Section 4.1, Eligibility Criteria for Lead Agencies and Section 4.2, Lead Agency Program Responsibilities and all requirements of the Lead Agency Agreement.
- Preference for a new Lead Agency may be given to existing FA Lead Agencies in close proximity to the county with the capacity to expand their service area(s).
- FA reserves the right to select Lead Agencies based on their performance as an existing Lead Agency or Sub Agency and/or their ability to improve the effectiveness and efficiency of TEFAP services.
- FA assesses the impact on other Lead Agencies implementing other FA programs.
- Prospective Lead Agencies are subject to an FA conducted site visit (in-person or virtual) to assess the eligibility of the organization.
- Note: If an existing Lead Agency is determined by FA to not be the most effective option then FA will make every effort to work with the impacted Sub Agencies to seek input on determining the most effective alternatives for filling the Lead Agency. However, FA reserves the right to select a new Lead Agency immediately to prevent any gap in service.
- Organizations Interested in Becoming a TEFAP Lead Agency.
- Any organization interested in becoming a TEFAP Lead Agency may submit a letter of interest to FA. The letter of interest must address the specific requirements of this section. FA will evaluate the letter of interest based on the criteria listed in the FA Interested Party Lead Agency Eligibility Verification Checklist (AGR-8007).
- FA will respond to the letter of interest within 60 days of receipt. The response will be to inform the requesting agency of their eligibility status only and is not a guarantee of participation in the program as a Lead Agency. FA will maintain a list of interested parties who submitted a letter of interest for future consideration.
- Prospective organizations and existing Lead Agencies interested in operating TEFAP must send a letter of interest (along with the completed FA Interested Party Lead Agency Eligibility Verification Checklist (AGR-8007)) to FA (foodassistance@agr.wa.gov) that addresses the criteria listed in the FA Interested Party Lead Agency Eligibility Verification Checklist (AGR-8007).
- The prospective Lead Agency must make apparent on the checklist that it:
- Meets minimum requirements.
- Has appropriate certification.
- Has management capabilities.
- Has contracting abilities.
- The prospective Lead Agency indicates their interest in being considered for any future Lead Agency vacancies or service area expansion.
- The letter of interest must include:
- Interested Party Contact information:
- Agency information:
- Agency Name.
- Business address.
- Primary operating county.
- Contact information:
- Name.
- Title.
- Phone number.
- Email address.
- County(ies) in which your organization seeks to provide TEFAP Lead Agency services.
- Business Information:
- Description.
- Qualifications.
- Experience managing agreements.
- The organization’s specific work related to hunger-relief:
- A description of how the interested organization would:
- Deliver TEFAP services.
- Operate the program in accordance with state and federal regulations.
- Identify any challenges or benefits this might have on the county’s current emergency food assistance system.
- A description of how the interested organization would:
- Agency information:
- Assurance that the interested party meets the eligibility criteria:
- IRS 501(c)(3), public agency, or federally recognized tribe.
- Active WA SOS Corporation registration.
- Active SAM.GOV registration.
- Board (or equivalent) support for this new role. This may be a vote to support the action, a letter of support, etc.
- Adequate facilities:
- Sufficient dry, cold, and frozen storage.
- Transportation capacity for TEFAP USDA Foods.
- Interested Party Contact information:
- Selecting A New Sub Agency.
- Lead Agencies are responsible for the selection of their Sub Agencies. Sub Agencies must meet the requirements of Section 4.3, Eligibility Criteria for Sub Agencies and Section 4.4, Sub Agency Responsibilities. The selection criteria may include, but are not limited to, the following:
- Lead Agencies may place limits on accepting any new Sub Agencies if service areas are already being served by other Sub Agencies.
- Lead Agencies may choose to have multiple Sub Agencies provide service to the same area, serving the needs of specific populations within the service area.
- Refer to Section 2.3.C, Priority System.
- Lead Agencies are responsible for the selection of their Sub Agencies. Sub Agencies must meet the requirements of Section 4.3, Eligibility Criteria for Sub Agencies and Section 4.4, Sub Agency Responsibilities. The selection criteria may include, but are not limited to, the following:
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| TEFAP Procedures Manual Table of Contents | |
| Section 1 | Section 3 |
| Revision History | |
| Section 2 Revision 2025-11-12 | |