Attachment 8 7 CFR Part 251

Attachment 8- 7 CFR Part 251
ELECTRONIC CODE OF FEDERAL REGULATIONS
e-CFR data is current as of November 20, 2019
Title 7 → Subtitle B → Chapter II → Subchapter B → Part 251
Title 7: Agriculture
PART 251—THE EMERGENCY FOOD ASSISTANCE PROGRAM
Contents
§251.1 General purpose and scope.
§251.2 Administration.
§251.3 Definitions.
§251.4 Availability of commodities.
§251.5 Eligibility determinations.
§251.6 Distribution plan.
§251.7 Formula adjustments.§251.7 Formula adjustments.
§251.8 Payment of funds for administrative costs.
§251.9 Matching of funds.
§251.10 Miscellaneous provisions.
A

S

: 7 U.S.C. 7501-7516; 7 U.S.C. 2011-2036.

: 51 FR 12823, Apr. 16, 1986, unless otherwise noted.

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§251.1 General purpose and scope.
This part announces the policies and prescribes the regulations necessary to carry out certain provisions of the Emergency
Food Assistance Act of 1983, (7 U.S.C. 612c note).
[51 FR 12823, Apr. 16, 1986, as amended at 64 FR 72902, Dec. 29, 1999]

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§251.2 Administration.
(a) Food and Nutrition Service. Within the United States Department of Agriculture (the “Department”), the Food and
Nutrition Service (FNS) shall have responsibility for the distribution of food commodities and allocation of funds under the part.
(b) State agencies. Within the States, distribution to eligible recipient agencies and receipt of payments for storage and
distribution shall be the responsibility of the State agency which has: (1) Been designated for such responsibility by the
Governor or other appropriate State executive authority; and (2) entered into an agreement with the Department for such
distribution and receipt in accordance with paragraph (c) of this section.
(c) Agreements—(1) Agreements between Department and States. Each State agency that distributes donated foods to
eligible recipient agencies or receives payments for storage and distribution costs in accordance with §251.8 must perform
those functions pursuant to an agreement entered into with the Department. This agreement will be considered permanent, with
amendments initiated by State agencies, or submitted by them at the Department's request, all of which will be subject to
approval by the Department.
(2) Agreements between State agencies and eligible recipient agencies, and between eligible recipient agencies. Prior to
making donated foods or administrative funds available, State agencies must enter into a written agreement with eligible
recipient agencies to which they plan to distribute donated foods and/or administrative funds. State agencies must ensure that
eligible recipient agencies in turn enter into a written agreement with any eligible recipient agencies to which they plan to
distribute donated foods and/or administrative funds before donated foods or administrative funds are transferred between any
two eligible recipient agencies. All agreements entered into must contain the information specified in paragraph (d) of this
section, and be considered permanent, with amendments to be made as necessary, except that agreements must specify that
they may be terminated by either party upon 30 days' written notice. State agencies must ensure that eligible recipient agencies
provide, on a timely basis, by amendment to the agreement, or other written documents incorporated into the agreement by
reference if permitted under paragraph (d) of this section, any information on changes in program administration, including any
changes resulting from amendments to Federal regulations or policy.

(d) Contents of agreements between State agencies and eligible recipient agencies and between eligible recipient
agencies. (1) Agreements between State agencies and eligible recipient agencies and between eligible recipient agencies must
provide:
(i) That eligible recipient agencies agree to operate the program in accordance with the requirements of this part, and, as
applicable, part 250 of this chapter; and
(ii) The name and address of the eligible recipient agency receiving commodities and/or administrative funds under the
agreement.
(2) The following information must also be identified, either in the agreement or other written documents incorporated by
reference in the agreement:
(i) If the State agency delegates the responsibility for any aspect of the program to an eligible recipient agency, each
function for which the eligible recipient agency will be held responsible; except that in no case may State agencies delegate
responsibility for establishing eligibility criteria for organizations in accordance with §251.5(a), establishing eligibility criteria for
recipients in accordance with §251.5(b), or conducting reviews of eligible recipient agencies in accordance with §251.10(e);
(ii) If the receiving eligible recipient agency is to be allowed to further distribute TEFAP commodities and/or administrative
funds to other eligible recipient agencies, the specific terms and conditions for doing so, including, if applicable, a list of specific
organizations or types of organizations eligible to receive commodities or administrative funds;
(iii) If the use of administrative funds is restricted to certain types of expenses pursuant to §251.8(e)(2), the specific types
of administrative expenses eligible recipient agencies are permitted to incur;
(iv) Any other conditions set forth by the State agency.
[51 FR 12823, Apr. 16, 1986, as amended at 52 FR 17933, May 13, 1987; 59 FR 16974, Apr. 11, 1994; 62 FR 53731, Oct. 16, 1997; 64
FR 72902, 72903, Dec. 29, 1999]

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§251.3 Definitions.
(a) The terms used in this part that are defined in part 250 of this chapter have the meanings ascribed to them therein,
unless a different meaning for such a term is defined herein.
(b) Charitable institution (which is defined differently in this part than in part 250 of this chapter) means an organization
which—
(1) Is public, or
(2) Is private, possessing tax exempt status pursuant to §251.5(a)(3); and
(3) Is not a penal institution (this exclusion also applies to correctional institutions which conduct rehabilitation programs);
and
(4) Provides food assistance to needy persons.
(c) Distribution site means a location where the eligible recipient agency actually distributes commodities to needy persons
for household consumption or serves prepared meals to needy persons under this part.
(d) Eligible recipient agency means an organization which—
(1) Is public, or
(2) Is private, possessing tax exempt status pursuant to §251.5(a)(3); and
(3) Is not a penal institution; and
(4) Provides food assistance—
(i) Exclusively to needy persons for household consumption, pursuant to a means test established pursuant to §251.5 (b),
or
(ii) Predominantly to needy persons in the form of prepared meals pursuant to §251.5(a)(2); and
(5) Has entered into an agreement with the designated State agency pursuant to §251.2(c) for the receipt of commodities
or administrative funds, or receives commodities or administrative funds under an agreement with another eligible recipient
agency which has signed such an agreement with the State agency or another eligible recipient agency within the State
pursuant to §251.2(c); and

(6) Falls into one of the following categories:
(i) Emergency feeding organizations (including food banks, food pantries and soup kitchens);
(ii) Charitable institutions (including hospitals and retirement homes);
(iii) Summer camps for children, or child nutrition programs providing food service;
(iv) Nutrition projects operating under the Older Americans Act of 1965 (Nutrition Program for the Elderly), including
projects that operate congregate Nutrition sites and projects that provide home-delivered meals; and
(v) Disaster relief programs.
(e) Emergency feeding organization means an eligible recipient agency which provides nutrition assistance to relieve
situations of emergency and distress through the provision of food to needy persons, including low-income and unemployed
persons. Emergency feeding organizations have priority over other eligible recipient agencies in the distribution of TEFAP
commodities pursuant to §251.4(h).
(f) Food bank means a public or charitable institution that maintains an established operation involving the provision of food
or edible commodities, or the products of food or edible commodities, to food pantries, soup kitchens, hunger relief centers, or
other food or feeding centers that, as an integral part of their normal activities, provide meals or food to feed needy persons on
a regular basis.
(g) Food pantry means a public or private nonprofit organization that distributes food to low-income and unemployed
households, including food from sources other than the Department of Agriculture, to relieve situations of emergency and
distress.
(h) Formula means the formula used by the Department to allocate among States the commodities and funding available
under this part. The amount of such commodities and funds to be provided to each State will be based on each State's
population of low-income and unemployed persons, as compared to national statistics. Each State's share of commodities and
funds shall be based 60 percent on the number of persons in households within the State having incomes below the poverty
level and 40 percent on the number of unemployed persons within the State. The surplus commodities will be allocated to
States on the basis of their weight (pounds), and the commodities purchased under section 214 of the Emergency Food
Assistance Act of 1983 will be allocated on the basis of their value (dollars). In instances in which a State determines that it will
not accept the full amount of its allocation of commodities purchased under section 214 of the Emergency Food Assistance Act
of 1983, the Department will reallocate the commodities to other States on the basis of the same formula used for the initial
allocation.
(i) State agency means the State government unit designated by the Governor or other appropriate State executive
authority which has entered into an agreement with the United States Department of Agriculture under §251.2(c).
(j) Soup kitchen means a public or charitable institution that, as an integral part of the normal activities of the institution,
maintains an established feeding operation to provide food to needy homeless persons on a regular basis.
(k) Value of commodities distributed means the Department's cost of acquiring commodities for distribution under this part.
[64 FR 72903, Dec. 29, 1999]

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§251.4 Availability of commodities.
(a) General. The Department shall make commodities available for distribution and use in accordance with the provisions
of this part and also in accordance with the terms and conditions of part 250 of this chapter to the extent that the part 250 terms
and conditions are not inconsistent with this part.
(b) Displacement. State agencies shall require that eligible recipient agencies receiving commodities under this part shall
not diminish their normal expenditures for food because of receipt of commodities. Additionally, the Secretary shall withhold
commodities from distribution if it is determined that the commodities would substitute for the same or a similar product that
would otherwise be purchased in the market.
(c) Allocations. (1) Allocations of commodities shall be made to State agencies on the basis of the formula defined in
§251.3(h).
(2) FNS shall promptly notify State agencies regarding their allocation of commodities to be made available under this part.
(3) State agencies shall notify the appropriate FNSRO of the amount of the commodities they will accept not later than 30
days prior to the beginning of the shipping period.
(4) FNS will make allocations of donated commodity or food funding available to State agencies for two fiscal years. States
will be allowed to carry over unexpended balances of donated food funding from one fiscal year into the next fiscal year.

(5) A State's donated food funding allocation remaining at the end of the fiscal year after the fiscal year in which it was
initially appropriated will expire and will be unavailable to the State.
(d) Quantities requested. State agencies shall:
(1) Request commodities only in quantities which can be utilized without waste in providing food assistance to needy
persons under this part;
(2) Ensure that no eligible recipient agency receives commodities in excess of anticipated use, based on inventory records
and controls, or in excess of its ability to accept and store such commodities; and
(e) Initial processing and packaging. The Department will furnish commodities to be distributed to institutions and to needy
persons in households in forms and units suitable for institutional and home use.
(f) Bulk processing by States. Commodities may be made available to a State agency or, at the direction of the State
agency, directly to private companies for processing bulk commodities for use by eligible recipient agencies.
(1) The Department will reimburse the State agency at the current flat rate for such processing.
(2) Minimum yields and product specifications established by the Department shall be met by the processor.
(3) The State shall require the processor to meet State and local health standards.
(4) Processors and State agencies shall also meet the basic minimum requirements of §250.30.
(g) Distribution and control of donated commodities. The State agency must ensure that the distribution, control, and use of
donated commodities are in accordance with the requirements in this part, and with the requirements in 7 CFR part 250, to the
extent that requirements in 7 CFR part 250 are not inconsistent with the requirements in this part. Transfers of donated
commodities must comply with requirements in §§250.12(e) and 250.14(d), as applicable. In accordance with §250.16, the
State agency must ensure that restitution is made for the loss of donated commodities, or for the loss or improper use of funds
provided for, or obtained as an incidence of, the distribution of donated commodities. The State agency is also subject to claims
for such losses for which it is responsible, or for its failure to initiate or pursue claims against other parties responsible for such
losses.
(h) Distribution to eligible recipient agencies—priority system and advisory boards. (1) State agencies must distribute
commodities made available under this part to eligible recipient agencies in accordance with the following priorities:
(i) First priority. When a State agency cannot meet all eligible recipient agencies' requests for TEFAP commodities, the
State agency must give priority in the distribution of such commodities to emergency feeding organizations as defined under
§251.3(e). A State agency may, at its discretion, concentrate commodity resources upon a certain type or types of such
organizations, to the exclusion of others.
(ii) Second priority. After a State agency has distributed TEFAP commodities sufficient to meet the needs of all emergency
feeding organizations, the State agency must distribute any remaining program commodities to other eligible recipient agencies
which serve needy people, but do not relieve situations of emergency and distress. A State agency may, at its discretion,
concentrate commodity resources upon a certain type or types of such organizations, to the exclusion of others.
(2) Delegation. When a State agency has delegated to an eligible recipient agency the authority to select other eligible
recipient agencies, the eligible recipient agency exercising this authority must ensure that any TEFAP commodities are
distributed in accordance with the priority system set forth in paragraphs (h)(1)(i) and (h)(1)(ii) of this section. State agencies
and eligible recipient agencies will be deemed to be in compliance with the priority system when eligible recipient agencies
distribute TEFAP commodities to meet the needs of all emergency feeding organizations under their jurisdiction prior to making
commodities available to eligible recipient agencies which are not emergency feeding organizations.
(3) Existing networks. Subject to the constraints of paragraphs (h)(1)(i) and (h)(1)(ii) of this section, State agencies may
give priority in the distribution of TEFAP commodities to existing food bank networks and other organizations whose ongoing
primary function is to facilitate the distribution of food to low-income households, including food from sources other than the
Department.
(4) State advisory boards. Each State agency receiving TEFAP commodities is encouraged to establish a State advisory
board representing all types of entities in the State, both public and private, interested in the distribution of such commodities.
Such advisory boards can provide valuable advice on how resources should be allocated among various eligible outlet types,
what areas have the greatest need for food assistance, and other important issues that will help States to use their program
resources in the most efficient and effective manner possible. A State agency may expend TEFAP administrative funds to
support the activities of an advisory board in accordance with §251.8 of this part.
(i) Distribution of non-USDA foods. Eligible recipient agencies may incorporate the distribution of foods which have been
donated by charitable organizations or other entities with the distribution of USDA-donated commodities or distribute them
separately.

(j) Interstate cooperation. State agencies may enter into interagency cooperative agreements to provide jointly or to
transfer commodities to an eligible recipient agency that has signed an agreement with the respective State agencies when
such organization serves needy persons in a contiguous area which crosses States' borders.
(k) Distribution in rural areas. State agencies shall encourage eligible recipient agencies to implement or expand
commodity distribution activities to relieve situations of emergency and distress through the provision of commodities to needy
households in rural areas of the State.
(Approved by the Office of Management and Budget under control number 0584-0313 and 0584-0341)
[51 FR 12823, Apr. 16, 1986, as amended at 52 FR 17933, May 13, 1987; 52 FR 42634, Nov. 6, 1987; 59 FR 16974, Apr. 11, 1994; 64 FR
72904, Dec. 29, 1999; 81 FR 23115, Apr. 19, 2016]

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§251.5 Eligibility determinations.
(a) Criteria for determining eligibility of organizations. Prior to making commodities or administrative funds available, State
agencies, or eligible recipient agencies to which the State agency has delegated responsibility for the distribution of TEFAP
commodities or administrative funds, must ensure that an organization applying for participation in the program meets the
definition of an “eligible recipient agency” under §251.3(d). In addition, applicant organizations must meet the following criteria:
(1) Agencies distributing to households. Organizations distributing commodities to households for home consumption must
limit the distribution of commodities provided under this part to those households which meet the eligibility criteria established
by the State agency in accordance with paragraph (b) of this section.
(2) Agencies providing prepared meals. Organizations providing prepared meals must demonstrate, to the satisfaction of
the State agency, or eligible recipient agency to which they have applied for the receipt of commodities or administrative funds,
that they serve predominantly needy persons. State agencies may establish a higher standard than “predominantly” and may
determine whether organizations meet the applicable standard by considering socioeconomic data of the area in which the
organization is located, or from which it draws its clientele. State agencies may not, however, require organizations to employ a
means test to determine that recipients are needy, or to keep records solely for the purpose of demonstrating that its recipients
are needy.
(3) Tax-exempt status. Private organizations must—
(i) Be currently operating another Federal program requiring tax-exempt status under the Internal Revenue Code (IRC), or
(ii) Possess documentation from the Internal Revenue Service (IRS) recognizing tax-exempt status under the IRC, or
(iii) If not in possession of such documentation, be automatically tax exempt as “organized or operated exclusively for
religious purposes” under the IRC, or
(iv) If not in possession of such documentation, but required to file an application under the IRC to obtain tax-exempt
status, have made application for recognition of such status and be moving toward compliance with the requirements for
recognition of tax-exempt status. If the IRS denies a participating organization's application for recognition of tax-exempt status,
the organization must immediately notify the State agency or the eligible recipient agency, whichever is appropriate, of such
denial, and that agency will terminate the organization's agreement and participation immediately upon receipt of such
notification. If documentation of IRS recognition of tax-exempt status has not been obtained and forwarded to the appropriate
agency within 180 days of the effective date of the organization's approval for participation in TEFAP, the State agency or
eligible recipient agency must terminate the organization's participation until such time as recognition of tax-exempt status is
actually obtained, except that the State agency or eligible recipient agency may grant a single extension not to exceed 90 days
if the organization can demonstrate, to the State agency's or eligible recipient agency's satisfaction, that its inability to obtain
tax-exempt status within the 180 day period is due to circumstances beyond its control. It is the responsibility of the organization
to document that it has complied with all IRS requirements and has provided all information requested by IRS in a timely
manner.
(b) Criteria for determining recipient eligibility. Each State agency must establish uniform Statewide criteria for determining
the eligibility of households to receive commodities provided under this part for home consumption. The criteria must:
(1) Enable the State agency to ensure that only households which are in need of food assistance because of inadequate
household income receive TEFAP commodities;
(2) Include income-based standards and the methods by which households may demonstrate eligibility under such
standards; and
(3) Include a requirement that the household reside in the geographic location served by the State agency at the time of
applying for assistance, but length of residency shall not be used as an eligibility criterion.
(c) Delegation of authority. A State agency may delegate to one or more eligible recipient agencies with which the State
agency enters into an agreement the responsibility for the distribution of commodities and administrative funds made available

under this part. State agencies may also delegate the authority for selecting eligible recipient agencies and for determining the
eligibility of such organizations to receive commodities and administrative funds. However, responsibility for establishing
eligibility criteria for organizations in accordance with paragraph (a) of this section, and for establishing recipient eligibility
criteria in accordance with paragraph (b) of this section, may not be delegated. In instances in which State agencies delegate
authority to eligible recipient agencies to determine the eligibility of organizations to receive commodities and administrative
funds, eligibility must be determined in accordance with the provisions contained in this part and the State plan. State agencies
will remain responsible for ensuring that commodities and administrative funds are distributed in accordance with the provisions
contained in this part.
[64 FR 72904, Dec. 29, 1999]

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§251.6 Distribution plan.
(a) Contents of the plan. The State agency must submit for approval by the appropriate FNS Regional Office a plan which
contains:
(1) A designation of the State agency responsible for distributing commodities and administrative funds provided under this
part, and the address of such agency;
(2) A plan of operation and administration to expeditiously distribute commodities received under this part;
(3) A description of the standards of eligibility for recipient agencies, including any subpriorities within the two-tier priority
system;
(4) A description of the criteria established in accordance with §251.5(b) which must be used by eligible recipient agencies
in determining the eligibility of households to receive the Emergency Food Assistance Program (TEFAP) commodities for home
consumption;
(5) At the option of the State agency, a plan of operation for one or more projects in partnership with one or more
emergency feeding organizations located in the State to harvest, process, package, or transport donated commodities received
under section 203D(d) of the Emergency Food Assistance Act of 1983. The plan must include all items listed in paragraphs (a)
(5)(i) through (iv) of this section:
(i) A list of emergency feeding organizations within the State that will operate the project in partnership with the State
agency.
(ii) A list of any State agencies that will operate the project as a part of a cooperative agreement.
(iii) A description of the purpose of the Farm to Food Bank Project that includes how the Project will:
(A) Reduce food waste at the agricultural production, processing, or distribution level through the donation of food;
(B) Provide food to individuals in need; and
(C) Build relationships between agricultural producers, processors, and distributors and emergency feeding organizations
through the donation of food.
(iv) The fiscal year in which the Project will begin operating; and
(6) A plan, which may include the use of a State advisory board established under §251.4(h)(4), that provides emergency
feeding organizations or eligible recipient agencies within the State an opportunity to provide input on the commodity
preferences and needs of the emergency feeding organization or eligible recipient agency.
(b) Plan submission and amendments. Once approved, State plans are permanent. State agencies must submit
amendments to the distribution plan when necessary to reflect any changes in program operations or administration as
described in the plan, or at the request of FNS, to the appropriate FNS Regional Office.
(c) Amendments. State agencies must submit amendments to the distribution plan to the extent that such amendments are
necessary to reflect any changes in program operations or administration as described in the plan, or at the request of FNS, to
the appropriate FNS Regional Office.
[64 FR 72905, Dec. 29, 1999, as amended at 74 FR 62474, Nov. 30, 2009; 84 FR 53002, Oct. 4, 2019]

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§251.7 Formula adjustments.
§251.7 Formula adjustments.
(a) Commodity adjustments. The Department will make annual adjustments to the commodity allocation for each State,
based on updated unemployment statistics. These adjusted allocations will be effective for the entire fiscal year, subject to
reallocation or transfer in accordance with this part.
(b) Funds adjustments. The Department will make annual adjustments of the funds allocation for each State based on
updated unemployment statistics. These adjusted allocations will be effective for the entire fiscal year unless funds are
recovered, withheld, or reallocated by FNS in accordance with §251.8(f).
[64 FR 72905, Dec. 29, 1999]

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§251.8 Payment of funds for administrative costs.
(a) Availability and allocation of funds. Funds made available to the Department for State and local costs associated with
the distribution of commodities under this part shall, in any fiscal year, be distributed to each State agency on the basis of the
funding formula defined in §251.3(h).
(b) Uniform Federal Assistance regulations. Funds provided under this section shall be subject to the regulations issued
under 2 CFR part 200, and USDA implementing regulations at 2 CFR parts 400 and 416, as applicable.
(c) Payment to States. (1) Funds under this section shall be made available by means of letters of credit in favor of the
State agency. The State agency shall use any funds received without delay in accordance with paragraph (d) of this section.
(2) Upon notification by the FNS Regional Office that an agreement has been entered into in accordance with §251.2(c) of
this part, FNS shall issue a grant award pursuant to procedures established by FNS, and promptly make funds available to
each State agency within the State's allocation through issuance of a letter of credit. To the extent funds are available and
subject to the provisions of paragraph (f) of this section, funds will be made available to State agencies on an advance basis.
(3) Each State agency shall return to FNS any funds made available under this section either through the original allocation
or through subsequent reallocations which are unobligated as of the end of the fiscal year for which they were made available.
Such return shall be made as soon as practicable but in no event later than 30 days following demand made by FNS.
(d) Priority for eligible recipient agencies distributing USDA commodities. State agencies and eligible recipient agencies
distributing administrative funds must ensure that the administrative funding needs of eligible recipient agencies which receive
USDA commodities are met, relative to both USDA commodities and any non-USDA commodities they may receive, before
such funding is made available to eligible recipient agencies which distribute only non-USDA commodities.
(e) Use of funds—(1) Allowable administrative costs. State agencies and eligible recipient agencies may use funds made
available under this part to pay the direct expenses associated with the distribution of USDA commodities and commodities
secured from other sources to the extent that the commodities are ultimately distributed by eligible recipient agencies which
have entered into agreements in accordance with §251.2. Direct expenses include the following, regardless of whether they are
charged to TEFAP as direct or indirect costs:
(i) The intrastate and interstate transport, storing, handling, repackaging, processing, and distribution of commodities
(including donated wild game); except that for interstate expenditures to be allowable, the commodities must have been
specifically earmarked for the particular State or eligible recipient agency which incurs the cost;
(ii) Costs associated with determinations of eligibility, verification, and documentation;
(iii) Costs of providing information to persons receiving USDA commodities concerning the appropriate storage and
preparation of such commodities;
(iv) Costs involved in publishing announcements of times and locations of distribution; and
(v) Costs of recordkeeping, auditing, and other administrative procedures required for program participation.
(2) State restriction of administrative costs. A State agency may restrict the use of TEFAP administrative funds by eligible
recipient agencies by disallowing one or more types of expenses expressly allowed in paragraph (e)(1) of this section. If a State
agency so restricts the use of administrative funds, the specific types of expenses the State will allow eligible recipient agencies
to incur must be identified in the State agency's agreements with its eligible recipient agencies, or set forth by other written
notification, incorporated into such agreements by reference.
(3) Agreements. In order to be eligible for funds under paragraph (e)(1) of this section, eligible recipient agencies must
have entered into an agreement with the State agency or another eligible recipient agency pursuant to §251.2(c).

(4) Pass-through requirement-local support to emergency feeding organizations. (i) Not less than 40 percent of the Federal
Emergency Food Assistance Program administrative funds allocated to the State agency in accordance with paragraph (a) of
this section must be:
(A) Provided by the State agency to emergency feeding organizations that have signed an agreement with the State
agency as either reimbursement or advance payment for administrative costs incurred by emergency feeding organizations in
accordance with paragraph (e)(1) of this section, except that such emergency feeding organizations may retain advance
payments only to the extent that they actually incur such costs; or
(B) Directly expended by the State agency to cover administrative costs incurred by, or on behalf of, emergency feeding
organizations in accordance with paragraph (e)(1) of this section.
(ii) Any funds allocated to or expended by the State agency to cover costs incurred by eligible recipient agencies which are
not emergency feeding organizations shall not count toward meeting the pass-through requirement.
(iii) State agencies must not charge for commodities made available under this part to eligible recipient agencies.
(f) Recovery and reallocation. If, during the course of the fiscal year, the Department determines that a State agency is
unable to use all of the funds allocated to it during the fiscal year, the Department shall recover or withhold and reallocate such
unused funds among other States.
[51 FR 12823, Apr. 16, 1986, as amended at 59 FR 16974, Apr. 11, 1994; 64 FR 72906, Dec. 29, 1999; 74 FR 62474, Nov. 30, 2009; 81
FR 23115, Apr. 19, 2016]

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§251.9 Matching of funds.
(a) State matching requirement. The State must provide a cash or in-kind contribution equal to the amount of TEFAP
administrative funds received under §251.8 and retained by the State agency for State-level costs or made available by the
State agency directly to eligible recipient agencies that are not emergency feeding organizations as defined in §251.3(e). The
State agency will not be required to match any portion of the Federal grant passed through for administrative costs incurred by
emergency feeding organizations or directly expended by the State agency for such costs in accordance with §251.8(e)(4) of
this part.
(b) Exceptions. In accordance with the provisions of 48 U.S.C. 1469a, American Samoa, Guam, the Virgin Islands and the
Northern Mariana Islands shall be exempt from the matching requirements of paragraph (a) of this section if their respective
matching requirements are under $200,000.
(c) Applicable contributions. States shall meet the requirements of paragraph (a) of this section through cash or in-kind
contributions from sources other than Federal funds which are prohibited by law from being used to meet a Federally mandated
State matching requirement. Such contributions shall meet the requirements set forth in 2 CFR part 200, subpart D, and USDA
implementing regulations at 2 CFR part 400. In accordance with the aforementioned regulations, as applicable, the matching
requirement shall not be met by contributions for costs supported by another Federal grant, except as provided by Federal
statute. Allowable contributions are only those contributions for costs which would otherwise be allowable as State or local-level
administrative costs.
(1) Cash. An allowable cash contribution is any cash outlay of the State agency for a specifically identifiable allowable
State- or local-level administrative cost, including the outlay of money contributed to the State agency by other public agencies
and institutions, and private organizations and individuals. Examples of cash contributions include, but are not limited to,
expenditures for office supplies, storage space, transportation, loading facilities and equipment, employees' salaries, and other
goods and services specifically identifiable as State- or local-level administrative costs for which there has been a cash outlay
by the State agency.
(2) In-kind. (i) Allowable in-kind contributions are any contributions, which are non-cash outlays, of real property and nonexpendable personal property and the value of goods and services specifically identifiable with allowable State administrative
costs or, when contributed by the State agency to an eligible recipient agency, allowable local-level administrative costs.
Examples of in-kind contributions include, but are not limited to, the donation of office supplies, storage space, vehicles to
transport the commodities, loading facilities and equipment such as pallets and forklifts, and other non-cash goods or services
specifically identifiable with allowable State-level administrative costs or, when contributed by the State agency to an eligible
recipient agency, allowable local-level administrative costs. In-kind contributions shall be valued in accordance with 2 CFR part
200, subpart D, and USDA implementing regulations at 2 CFR part 400, as applicable.
(ii) In order for a third-party in-kind contribution to qualify as a State-level administrative cost for purposes of meeting the
match, all of the following criteria shall be met:
(A) In its administration of food assistance programs, the State has performed this type of function over a sustained period
of time in the past;
(B) The function was not previously performed by the State on behalf of eligible recipient agencies; and

(C) The State would normally perform the function as part of its responsibility in administering TEFAP or related food
assistance programs if it were not provided as an in-kind contribution.
(d) Assessment fees. States shall not assess any fees for the distribution of donated foods to eligible recipient agencies.
(e) Reporting requirements. State agencies shall identify their matching contribution on the FNS-667, Report of TEFAP
Administrative Costs, in accordance with §251.10(d).
(f) Failure to match. If, during the course of the fiscal year, the quarterly FNS-667 indicates that the State is or will be
unable to meet the matching requirements in whole or in part, the Department shall suspend or disallow the unmatched portion
of Federal funds subject to the provisions of paragraph (a) of this section. If, upon submission of the final FNS-667 for the fiscal
year, the Department determines that the State has not met the requirements of paragraph (a) of this section in whole or in part,
the unmatched portion of Federal funds subject to the requirements of paragraph (a) of this section shall be subject to
disallowance by FNS.
[52 FR 17934, May 13, 1987, as amended at 59 FR 16975, Apr. 11, 1994; 64 FR 72906, Dec. 29, 1999; 81 FR 23115, Apr. 19, 2016]

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§251.10 Miscellaneous provisions.
(a) Records—(1) Commodities. State agencies, subdistributing agencies (as defined in §250.3 of this chapter), and eligible
recipient agencies must maintain records to document the receipt, disposal, and inventory of commodities received under this
part that they, in turn, distribute to eligible recipient agencies. Such records must be maintained in accordance with the
requirements set forth in §250.16 of this chapter. Eligible recipient agencies must sign a receipt for program commodities which
they receive under this part for distribution to households or for use in preparing meals, and records of all such receipts must be
maintained.
(2) Administrative funds. In addition to maintaining financial records in accordance with 2 CFR part 200, subpart D, and
USDA implementing regulations at 2 CFR part 400, State agencies must maintain records to document the amount of funds
received under this part and paid to eligible recipient agencies for allowable administrative costs incurred by such eligible
recipient agencies. State agencies must also ensure that eligible recipient agencies maintain such records.
(3) Household information. Each distribution site must collect and maintain on record for each household receiving TEFAP
commodities for home consumption, the name of the household member receiving commodities, the address of the household
(to the extent practicable), the number of persons in the household, and the basis for determining that the household is eligible
to receive commodities for home consumption.
(4) Record retention. All records required by this section must be retained for a period of 3 years from the close of the
Federal Fiscal Year to which they pertain, or longer if related to an audit or investigation in progress. State agencies may take
physical possession of such records on behalf of their eligible recipient agencies. However, such records must be reasonably
accessible at all times for use during management evaluation reviews, audits or investigations.
(b) Commodities not income. In accordance with section 206 of Pub. L. 98-8, as amended, and notwithstanding any other
provision of law, commodities distributed for home consumption and meals prepared from commodities distributed under this
part shall not be considered income or resources for any purposes under any Federal, State, or local law.
(c) Nondiscrimination. There shall be no discrimination in the distribution of foods for home consumption or availability of
meals prepared from commodities donated under this part because of race, color, national origin, sex, age, or handicap.
(d) Reports—(1) Submission of Form FNS-667. Designated State agencies must identify funds obligated and disbursed to
cover the costs associated with the program at the State and local level. State and local costs must be identified separately. The
data must be identified on Form FNS-667, Report of Administrative Costs (TEFAP) and submitted to the appropriate FNS
Regional Office on a quarterly basis. The quarterly report must be submitted no later than 30 calendar days after the end of the
quarter to which it pertains. The final report must be submitted no later than 90 calendar days after the end of the fiscal year to
which it pertains.
(2) Reports of excessive inventory. Each State agency must complete and submit to the FNS Regional Office reports to
ensure that excessive inventories of donated foods are not maintained, in accordance with the requirements of §250.17(a) of
this chapter.
(e) State monitoring system. (1) Each State agency must monitor the operation of the program to ensure that it is being
administered in accordance with Federal and State requirements. State agencies may not delegate this responsibility.
(2) Unless specific exceptions are approved in writing by FNS, the State agency monitoring system must include:
(i) An annual review of at least 25 percent of all eligible recipient agencies which have signed an agreement with the State
agency pursuant to §251.2(c), provided that each such agency must be reviewed no less frequently than once every four years;
and

(ii) An annual review of one-tenth or 20, whichever is fewer, of all eligible recipient agencies which receive TEFAP
commodities and/or administrative funds pursuant to an agreement with another eligible recipient agency. Reviews must be
conducted, to the maximum extent feasible, simultaneously with actual distribution of commodities and/or meal service, and
eligibility determinations, if applicable. State agencies must develop a system for selecting eligible recipient agencies for review
that ensures deficiencies in program administration are detected and resolved in an effective and efficient manner.
(3) Each review must encompass, as applicable, eligibility determinations, food ordering procedures, storage and
warehousing practices, inventory controls, approval of distribution sites, reporting and recordkeeping requirements, and civil
rights.
(4) Upon concurrence by FNS, reviews of eligible recipient agencies which have been conducted by FNS Regional Office
personnel may be incorporated into the minimum coverage required by paragraph (e)(2) of this section.
(5) If deficiencies are disclosed through the review of an eligible recipient agency, the State agency must submit a report of
the review findings to the eligible recipient agency and ensure that corrective action is taken to eliminate the deficiencies
identified.
(f) Limitation on unrelated activities. (1) Activities unrelated to the distribution of TEFAP foods or meal service may be
conducted at distribution sites as long as:
(i) The person(s) conducting the activity makes clear that the activity is not part of TEFAP and is not endorsed by the
Department (impermissible activities include information not related to TEFAP placed in or printed on bags, boxes, or other
containers in which commodities are distributed). Recipes or information about commodities, dates of future distributions, hours
of operations, or other Federal, State, or local government programs or services for the needy may be distributed without a
clarification that the information is not endorsed by the Department;
(ii) The person(s) conducting the activity makes clear that cooperation is not a condition of the receipt of TEFAP
commodities for home consumption or prepared meals containing TEFAP commodities (cooperation includes contributing
money, signing petitions, or conversing with the person(s)); and
(iii) The activity is not conducted in a manner that disrupts the distribution of TEFAP commodities or meal service.
(2) Eligible recipient agencies and distribution sites shall ensure that activities unrelated to the distribution of TEFAP foods
or meal service are conducted in a manner consistent with paragraph (f)(1) of this section.
(3) Termination for violation. Except as provided in paragraph (f)(4) of this section, State agencies shall immediately
terminate from further participation in TEFAP operations any eligible recipient agency that distributes or permits distribution of
materials in a manner inconsistent with the provisions of paragraph (f)(1) of this section.
(4) Termination exception. The State agency may withhold termination of an eligible recipient agency's or distribution site's
TEFAP participation if the State agency cannot find another eligible recipient agency to operate the distribution in the area
served by the violating organization. In such circumstances, the State agency shall monitor the violating organization to ensure
that no further violations occur.
(g) Use of volunteer workers and non-USDA commodities. In the operation of the Emergency Food Assistance Program,
State agencies and eligible recipient agencies shall, to the maximum extent practicable, use volunteer workers and foods which
have been donated by charitable and other types of organizations.
(h) Maintenance of effort. The State may not reduce the expenditure of its own funds to provide commodities or services to
organizations receiving funds or services under the Emergency Food Assistance Act of 1983 below the level of such
expenditure existing in the fiscal year when the State first began administering TEFAP, or Fiscal Year 1988, which is the fiscal
year in which the maintenance-of-effort requirement became effective, whichever is later.
(i) Recruitment activities related to the Supplemental Nutrition Assistance Program (SNAP). Any entity that receives
donated foods identified in this section must adhere to regulations set forth under §277.4(b)(6) of this chapter.
(j) Projects to harvest, process, package, or transport donated commodities—(1) Definition of project. These projects, also
known as Farm to Food Bank Projects, are defined as the harvesting, processing, packaging, or transportation of unharvested,
unprocessed, or unpackaged commodities donated by agricultural producers, processors, or distributors for use by emergency
feeding organizations under section 203D of the Emergency Food Assistance Act of 1983.
(2) Availability and allocation of funds. Funds for the costs of carrying out a Farm to Food Bank Project will be allocated to
States as follows:
(i) Funds made available to the Department for Farm to Food Bank Projects will be distributed to States that have
submitted an approved State plan describing a plan of operation for a Farm to Food Bank Project.
(ii) Funds for Farm to Food Bank Projects will be distributed each fiscal year to State agencies with an approved State plan
for a project in that fiscal year using the funding formula defined in §251.3(h).

(iii) Funds will be available to State agencies for one year from the date of allocation.
(3) Purpose and use of funds. State agencies may only use funds made available under this paragraph (j) for the costs of
carrying out a Farm to Food Bank Project.
(i) Farm to Food Bank Projects must have a purpose of:
(A) Reducing food waste at the agricultural production, processing, or distribution level through the donation of food;
(B) Providing food to individuals in need; and
(C) Building relationships between agricultural producers, processors, and distributors and emergency feeding
organizations through the donation of food.
(ii) Project funds may only be used for costs associated with harvesting, processing, packaging, or transportation of
unharvested, unprocessed, or unpackaged commodities donated by agricultural producers, processors, or distributors for use
by emergency feeding organizations.
(iii) Project funds cannot be used to purchase foods or for agricultural production activities such as purchasing seeds or
planting crops.
(4) Matching of funds—(i) State matching requirement. The State must provide a cash or in-kind contribution at least equal
to the amount of funding received under this paragrpah (j) for a Farm to Food Bank Project.
(ii) Allowable contributions. States shall meet the match requirement in paragraph (a)(4) of this section by providing
allowable contributions as described at §251.9(c); contributions must only be for costs which would otherwise be allowable as a
Farm to Food Bank Project cost.
(iii) Emergency feeding organization contributions. Cash or in-kind contributions from emergency feeding organizations that
partner with the State agency to administer the Farm to Food Bank Project are allowable.
(iv) Food donations. Donations of foods, including the value of foods donated as a part of a Farm to Food Bank Project,
cannot count toward the match requirement in paragraph (j)(4) of this section.
(5) Reallocation of funds. If, during the course of the fiscal year, the Department determines that a State will not expend all
of the funds allocated to the State for a fiscal year under this paragraph (j), the Department shall reallocate the unexpended
funds to other States that have an approved State Plan describing a plan of operation for a Farm to Food Bank Project during
that fiscal year or the subsequent fiscal year.
(6) Reporting requirements. Each State agency to which Farm to Food Bank Project funds are allocated for a fiscal year
must submit a report describing use of the funds. The data must be identified on Form SF-425, Federal Financial Report, and
submitted to the appropriate FNS Regional Office on a semiannual basis. The report must be submitted no later than 30
calendar days after the end of the period to which it pertains. The final report must be submitted no later than 90 calendar days
after the end of the fiscal year to which it pertains.
(7) Cooperative agreements. State agencies that carry out a Farm to Food Bank Project may enter into cooperative
agreements with State agencies of other States to maximize the use of commodities donated under the project.
(Approved by the Office of Management and Budget under control number 0584-0313)
[51 FR 12823, Apr. 16, 1986. Redesignated and amended at 52 FR 17934, May 13, 1987; 53 FR 15357, Apr. 29, 1988; 59 FR 16975, Apr.
11, 1994; 62 FR 53731, Oct. 16, 1997; 64 FR 72907, Dec. 29, 1999; 72 FR 24184, May 2, 2007; 81 FR 23115, Apr. 19, 2016; 81 FR
92556, Dec. 20, 2016; 84 FR 53002, Oct. 4, 2019]

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