Section 1
INTRODUCTION
PURPOSE OF MANUAL
This manual is an effort by Grant Services to clarify program policies and regulations for
Distribution Recipient Agencies (RAs) and their food outlets (Food Pantries and Soup
Kitchens or Homeless Shelters). It is not anticipated that all agencies will operate the
required client choice food pantries in exactly the same way. There are a variety of ways
to operate acceptable client choice distribution programs and comply with the guidelines
established by both Grant Services and the United States Department of Agriculture
(USDA).
CONTENTS OF MANUAL
The Manual contains information about the policies, rules, regulations, reports, and forms
used in The Emergency Food Assistance Program (TEFAP). The Manual includes a
Table of Contents and Terms * Definitions * Acronyms. Each page can be updated by
removing a page(s) and inserting the update. The purpose of this style of manual is that
each RA and food outlet can use this as a guide to distribute both USDA products and
non-USDA products to the low-income citizens of Indiana. Additional help is always
available by calling program staff or contacting the staff electronically at:
Phyllis Lloyd, Project Coordinator
Email: plloyd@ocra.in.gov
Phone: 317-232-88353
Fax:
317-233-3597
Section 2
TERMS * DEFINITIONS * ACRONYMS
The following is a list of Federal, State and Local terms, acronyms and definitions
used throughout the Manual for program administration of The Emergency Food
Assistance Program (TEFAP) in Indiana.
FEDERAL
ADA – American Disabilities Act - Title III of the Americans with Disabilities Act
requires public accommodations to provide goods and services to people with disabilities
on an equal basis with the rest of the general public. The goal is to afford every
individual the opportunity to benefit from our country’s businesses and services and to
afford our businesses and services the opportunity to benefit from the patronage of all
Americans. To receive an ADA compliance checklist, contact you Disability and
Business Technical Assistance Center. To be automatically connected to your regional
center call 1-800-949-4ADA.
AMS – Agricultural Marketing Service - United States Department of
Agriculture agency responsible for purchasing food products such as meat, poultry, fruits
and vegetables.
ASCS – Agricultural Stabilization and Conservation Service - United
States Department of Agriculture agency responsible for purchasing food products such
as grains, dairy, peanut and oil products under price support activities.
CFR – Code of Federal Regulations - Contains the regulations governing all
federal programs. The Emergency Food Assistant Program is covered in Section 7 CFR
250 and 251.
Food products – dry, refrigerated and/or frozen food product (commodities) that are
made available for donation by the United States Department of Agriculture.
FNS – Food and Nutrition Service – A Division of the United States Department
of Agriculture responsible for the nationwide administration of several federal nutrition
programs; includes TEFAP.
FNSRO – Food and Nutrition Service Regional Office –The United States
is divided into seven regions. Indiana is in the Mid-West Region IV. Other states in the
Mid-West are Illinois, Michigan, Minnesota, Ohio, and Wisconsin.
GAO – General Accounting Office – A non-partisan support agency of the United
States Congress. Performs accounting, investigative and research duties for both the
House and Senate.
OMB – Office of Management and Budget - The agency within the Executive
Branch of the United States government that prepares and oversees the federal budgets.
TEFAP - The Emergency Food Assistance Program - The Federal title for
the distribution of USDA food products in the United States.
USDA – United States Department of Agriculture - Cabinet level agency
responsible for federal aspects of TEFAP and other federal agriculture and nutrition
programs.
STATE
DFR LOCAL OFFICE - The Division of Family Resources County
Office. This is the former county Welfare Office.
FY - Fiscal Year – A twelve-month period used for accounting and reporting
purposes. The Fiscal Year for TEFAP is October 1 to September 30.
Office of Lt. Governor – It is this agency’s responsibility for the administration of
TEFAP.
Grant Services – Is located within the Business Office of the Lt. Governor manages
TEFAP.
IDPH – Indiana Department of Public Health - The State agency responsible
for public health includes the establishment and enforcement of standards concerning the
warehousing and handling of food in Indiana.
LOCAL
CAA – Community Action Agency- A not-for profit social service organization
that assists low-income households. There are 24 CAAs in Indiana.
Client Choice – Allows clients to choose from all the food products and non-food
products that are available in a pantry. These choices may have limitations on particular
products and the number of allowable items may vary do to the availability of products.
Different forms of client choice are allowable due to space restrictions. However, clients
must always be allowed to choose pantry items and food packages cannot be prepacked. See Client Choice Manual that is within the TEFAP Policy and Procedures
Manual.
Domestic Violence Shelter – A facility that houses families that have been or are
victims of domestic violence. They offer room and board as well as the ancillary services.
Feeding Indiana’s Hungry (FIsH) – Is an organization that was formed to
address the vital concern of feeding Indiana’s residents.
FB - Food Bank - A non-for-profit organization that can be a member of America’s
Second Harvest, Subsidiary Distribution Organization (SDO) or an Independent that
distributes USDA food products and privately donated food within a designated service
area. Food Banks can charge maintenance fee for poundage of privately donated food
and non-food items. The Food Bank cannot require membership in order to receive
USDA food items or charge a maintenance fee for USDA food products.
Food Outlet – Is a facility that serves meals using USDA food products and/or a
facility that distributes USDA food products to individual households.
FP - Food Pantry - A non-profit organization that provides donated food in sufficient
variety and quantity in order to meet some of the nutritional needs for a family or
individual. The pantry maintains regularly scheduled hours. Food products and non-food
products must be available on a continuous basis and must be distributed with privately
donated food in addition to USDA food products. (USDA food might not always be
available). Privately donated items must be maintained at a 50% match of the USDA
items at any given time. Clients must be able to choose items in the pantry.
Homeless Shelter – A facility that the primary purpose is to provide temporary or
transitional shelter for the homeless in general or for specific populations of the
homeless.
HH - Household – A group of related or non-related individuals living as one
economic unit who buy and cook food together. It can also be a single individual living
alone.
Ineligible food outlets – Ineligible food outlets include: private pay or for-profit
institutions, State facilities, nursing homes, jails, hospitals, orphanages, residential
facilities for the aged or disabled, nutrition programs for the elderly, substance abuse
centers, group homes, halfway houses, private homes, homes that receive a per diem for
residents and day care centers.
Low-Income or Needy Persons – 1) persons who, because of their current
economic status, are in need of food assistance, 2) persons who, because of Acts of God
or man-made disasters, are in need of food assistance.
Food outlet – A physical location where food products and non-food products are
given to eligible recipient. A food outlet may be a food pantry, a soup kitchen or a
homeless shelter. A food outlet cannot be a private home.
Poverty Line – Base line established in 1955 by the United States Department of
Agriculture survey that showed an average family of 4 spent 1/3 of its net income for
food. USDA multiplies the cost of the Thrifty Food Plan by three sets, which determines
the poverty line for a family of four. Adjustments are made for different size families.
RA- Recipient Agency– An agency that has entered into an agreement with DFR to
administer the distribution of USDA food products and non-USDA products. In Indiana
this can be a Community Action Agency or a Food Bank.
SK - Soup Kitchen –a facility that is a clean, secure environment that offers prepared
meals free of charge to predominately needy people. Soup Kitchens serve prepared
nutritious meals in a congregate setting or take-home prepared meal(s) without charge,
for homeless persons, transient persons and/or others in need. Meals served in homeless
shelters, domestic violence shelters, and Kid’s Café’s are considered soup kitchens for
TEFAP purposes. The 50% match of USDA items must be maintained in Soup Kitchens.
TABLE OF CONTENTS
SECTION 1 Introduction
Purpose of Manual
Contents of Manual
SECTION 2 Terms * Definitions * Acronyms
SECTION 3 Administration of TEFAP
Federal Administration
State Administration
TEFAP Committee
Local Administration
Federal Allocation to the States
Grant Services Allocation of Food products to RAs
Shipment of Product from USDA to RA
Shipment of Product from State Warehouse
Grant Services Program Monitoring
Grant Services Monitoring Schedule – RAs/ food outlets
Grant Services Monitoring of food outlets
Grant Services Monitoring of RA
Grant Services Written Monitoring Report
Grant Services Training and Technical Assistance
SECTION 4 RA Responsibilities
Selection of food outlets
Agreement with food outlets
Method of Distribution
Schedule of Operating Hours for food outlets
Conduct and Implementation of Public Outreach
Accountability of Food products
Provide Access to Grant Services and Authorized Agents
Monitoring food outlets
Training and Technical Assistance
Maintain and Submit Records to Grant Services
Maintain Insurance Coverage
SECTION 5 Storage and Handling
Commodity Liability
General Principles of Food Storage
Storing Dry Food products
Storing Refrigerated and Frozen Food products
Food Bank Storage Guidelines for Stacking Food products
Maintenance of Storage Areas
Rotation of Inventory
Damaged and/or Out of Condition Product
Re-packaging Prohibited
SECTION 6 Food outlets
The Physical Distribution Site
Accepting and Unloading Trucks
Storage Requirements
Minimizing Losses
Reporting Losses
Allocation or Issuance Rate
SECTION 7 Food Pantries
Food Pantry
Food products are Supplemental
Eligibility Documentation
The Rural Initiative
Outreach
SECTION 8 Soup Kitchens
Soup Kitchen
Food products are Supplemental
Eligibility
Storage and Records
Food Handling and Meal Preparation
Outreach
SECTION 9 Eligibility Guidelines
Federal Regulations
Indiana Regulations
Homeless Clients
Posting Guidelines
What is Income?
Proxy Statement
SECTION 10 Client Choice
Client Choice Food Pantries: Models for Now and the Future
Overview of the Issues
Issues with Operations and Answers
Conclusion
Highlighted Agencies
SECTION 11 Prohibited Activities
Sale of Food products
Political Activity
Solicitation and Membership Required
Food products as Compensation
Discrimination
American with Disabilities Act (ADA)
SECTION 12 Records and Reports
RA Reports to Grant Services
Food outlets Reports to RA
Retention of Records
Explanation of Forms
SECTION 13 Exhibits
Exhibit A – Memorandum of Agreement for RA and Food Outlet
Exhibit B – Recipient Agency Directory
Exhibit C - Eligibility Certificate / English & Spanish
Exhibit D - RA Inventory Report
Exhibit E - Discrepancy Report
Exhibit F - Complaint Worksheet
Exhibit G - Warehousing Standards\
Exhibit H - Notice to Deliver
Exhibit I - Proxy Statement
Exhibit J - Food outlets by County and by RA
Exhibit K - RA Assessment Tool
Exhibit L - Soup Kitchen and or Food Pantry Review Tool
Exhibit M - Storage Facility Review Tool
Exhibit N - Unincorporated Church including Gray Areas
Exhibit O - Food outlet Summary Sheet
Exhibit P - Transfer of Product (USDA) between food outlets and counties
Exhibit Q - Map of TEFAP Recipient Agencies
Section 3
ADMINISTRATION OF TEFAP
FEDERAL ADMINISTRATION
The Welfare Reform Act of 1996 authorized The Emergency Food Assistance Program
(TEFAP) for all the states. The Food and Nutrition Services (FNS) of the United States
Department of Agriculture (USDA) has oversight of the program.
STATE ADMINISTRATION
The State of Indiana has designated the Office of the Lt. Governor Rebecca S. Skillman
as the State agency responsible for TEFAP administration. Within the Office of the Lt.
Governor, Grant Services manages the program. Grant Services can contract with private
and/or not-for-profit warehouse(s) to provide warehousing and transportation of food
products within the State of Indiana when direct shipping is not feasible.
GRANT SERVICES TEFAP COMMITTEE
The following will constitute the make up of the TEFAP Committee:
 Representative(s) of each contracted Recipient Agencies (RAs).
 A representative on the Safe Food for the Hungry Web Site
 A representative of the Indiana Health Center, Inc. (Migrant Services).
 Food Security Liaison appointed by USDA. (If available).
 Representative(s) from an organization that is serving food to the low income
This body will act as both a program advisory committee to Grant Services and as a
working committee for program administration. Policies, procedures, and issues
concerning the program are presented to the Committee for discussion and
recommendations. The group meets quarterly and operates through a consensus
methodology. However, the Office of the Lt. Governor, Grant Services reserves the right
for all final decisions.
RAs and their staff, pantry, soup kitchen and homeless shelter volunteers can address the
committee with any questions or concerns, they might have. Concerns are to be
submitted in writing to: TEFAP Committee
Attention, Marsha McGraw, TEFAP/CSFP Specialist
Office of the Lt. Governor
Grants Services
One North Capitol, Suite 600
Indianapolis, IN 46204
Staff and or volunteers can ask to be on the Agenda. These concerns can be mailed,
E-mailed, or faxed to the TEFAP Specialist and they will be addressed at the next TEFAP
Meeting. The TEFAP Meetings are held the third Wednesday in the months of January,
April, July and October at Gleaners Food Bank, 1102 East 16th St., Indianapolis, In
46202.
LOCAL ADMINISTRATION
Grant Services contracts with RAs throughout the State to administer the local
distribution of food products. Each RA subcontracts with food pantries, soup kitchens,
and homeless shelters to distribute food products. Only soup kitchens, homeless shelters
or food pantries may distribute food products. However, Township Trustees who have a
501 (c) 3 may distribute food products. However, Trustees also must provide 50% nonUSDA items or issue a food voucher that equals to 50% match of the food products and
be a client choice pantry. The clients’ must sign the Eligibility Certificate with the
Trustee following the TEFAP guidelines. Trustees must also sign a Memorandum of
Agreement with the RA that serves their area in order to receive USDA food products.
Only food outlets with a Memorandum of Agreement may receive and distribute USDA
food products. (Memorandum of Agreement, Exhibit A)
 Completed Grant Services Request for Application to the State for review.
 Be a local governmental agency or a non-profit organization that can submit a
copy of the 501-(c)-(3) tax-exempt status designation letter.
 Submit a copy of a current Certificate of Existence from the Secretary of State.
 Member Agency Agreement with a Food Bank for your service area requested.
 Copy of an Agreement with a Storage Facility (if applicable) in Agency files.
 The agency’s TEFAP contact must have an e-mail account with access to the
Internet and Microsoft Programs – Word and Excel - for receipt of information
electronically from Grant Services
 All contracts will be performance based as will payment.
 The Executive Director’s e-mail address needs to be available.
 Willing to assure that all the policies, rules and regulations are applied for the
administration and that the food outlets comply.
See Exhibit R for the state map of the current Recipient Agencies and their service area.
This process can be changed prior to the program year start date at the discretion of the
Office of the Lt. Governor.
FEDERAL ALLOCATION TO STATES
USDA notifies Grant Services when product is available and in what quantities. Grant
Services orders can be both monthly and a quarterly basis, and every effort is made by
FNS to fill the order as requested. Due to unforeseen circumstances, USDA will
occasionally eliminate or substitute products or change delivery times. Grant Services
orders product based on the entitlement allocation of dollars set by USDA. Bonus
product by trucks offered to each state is based on the federal allocation. Bonus products
can vary. Bonus product is free to the state and Indiana accepts whatever product is
offered. Some program years have more Bonus Products offered than other years;
however, Grant Services incurs some of the initial storage and transportation cost for
these products. There is no guarantee that TEFAP will always be re-authorized by
Congress.
ALLOCATION OF FOOD PRODUCTS TO RAs
USDA has developed a formula based on 60% poverty and 40% unemployment to
allocate product and funding to the states. Each state receives its fair share of the food
products and funds according to that formula.
Grant Services allocates product by applying a formula, which is 60% of the poverty
population and 40% of the unemployment population in the RA’s geographic service area
which includes both entitlement product and bonus product. Adjustments can be made
based on the amount utilized in each RA area and for crisis situations such as flooding
and tornadoes, if USDA food product is available.
Grant Services notifies each RA of the type and amount of food products allocated by EMailing an Allocation Work Sheet. The RA must be able to store excess food products
for all food outlets for at least thirty (30) days. Direct delivery notifications will be
transacted in the same manner. The RA must notify Grant Services within one week of
receiving the Allocation Spreadsheet of any changes. The RA will electronically submit
the inventory workbook until the food outlets have taken possession of all products.
SHIPMENT OF PRODUCT FROM USDA TO RA
USDA allows three drops per truck with a minimum of 25% product drop at each stop.
RA’s must receive an entire or a minimum of 25% of a truck shipment to receive a direct
delivery. Grant Services will notify the RA, with the shipping period, number of cases
and type of product. The shipper must make an appointment twenty-four hours in
advance of the delivery. Product may be refused without an appointment if it is being
delivered outside of the ship period. When the shipment is delivered the RA or its
designee must count the product, note any damage, overages and/or shortages of product,
if seal is intact or broken. The Bill of Lading must be signed and dated by the receiver.
Do not accept product that is so damaged it cannot be distributed. If there are problems,
Grant Services TEFAP Staff should be notified immediately. A Complaint Worksheet
(Exhibit F) for USDA donated commodities must be completed and faxed or email to
Grant Services TEFAP Staff. TEFAP staff should also be notified if there is damage or
shortages.
If the DO number, ND number or the name of the product is NOT on the Bill of Lading,
please supply as much information as possible before signing and dating. Make a copy
and fax to Grant Services within three (3) days of receipt. Information should include
number of cases, time truck in and time truck left, damaged, over and or underage of the
product. All trucks must have a form of a Bill of Lading when transporting product of
any kind.
SHIPMENT OF PRODUCT FROM THE STATE WAREHOUSE
In instances where a direct shipment is not possible, product is shipped to a statecontracted warehouse/shipper for distribution to RAs. Each RA makes shipping
arrangements with the appropriate warehouse dispatcher for its local delivery.
RA’s must accept receipt of USDA within the shipping period. If receipt is not taken
during this period of time, the RA will be charged all storage costs including handling
charges as set by the storage facility that has possession of such product. The state will
not be responsible for these costs.
The statewide storage and transportation contractor may sub-contract with another
storage facility. However, that sub-contractor will ship to other RA’s in full trucks.
Partial shipments will not be paid unless that is the entire product available for a different
location(s).
GRANT SERVICES PROGRAM MONITORING
The purpose of the monitoring process is to evaluate program operations, review record
keeping procedures, assurance of health and safety standards are maintained food pantries
are client choice with the integrating of all items available in the pantry and provide
technical assistance for program improvement. The monitoring visits also provide an
opportunity for the RA to ask questions, discuss concerns, and make suggestions about
the program. A minimum of twenty (20) on-site reviews of food outlets can be
unannounced. RAs should make RA staff and site volunteers aware of this policy and
instruct them to provide access to records and facilities to Grant Services staff and/or
USDA monitoring staff.
GRANT SERVICRES PROGRAM MONITORING SCHEDULE – RA’s/FOOD
OUTLETS
Grant Services will monitor a minimum of four (4) RAs and can choose to review the
RA’s subcontracted food outlets each fiscal year starting January 2nd with completion by
September 30th of each fiscal year. RAs are required to monitor a minimum of thirty
(30) food outlets each fiscal year and the balance of food outlets the following year. This
is repeated every two years. USDA’s monitoring schedule is every two years and Grant
Services may visit any RA and/or food outlet during this time frame.
GRANT SERVICES MONITORING OF DISTRIBUTION FOOD OUTLETS
Grant Services staff will monitor selected food outlets under contract with a RA. The
following items are checked during the compliance review of distribution food outlets
that assure:
 eligibility certificates are current and signed by client
 copy of current Memorandum of Agreement
 copy of the previous monitoring review completed by the RA (this can be a letter
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or a copy of the dated and completed tool
client choice must be in operation in each TEFAP pantry
USDA products supplemental to pantry
daily issue rates posted
proper storage of various foods maintained
have required signature sheets, signed by client at the food outlet for three years
plus current year available (total of 4 years)
proxy statements on file
health and safety standards are maintained
required posters in place
a temperature reading of dry, refrigerated, and frozen are taken a minimum of
once a week then recorded in a temperature log that is maintained on a continuum
basis
entrance marked and hours of operation posted outside for clients to see
NO DONATIONS OF GIFTS OR MONEY IS ALLOWED DURING
PANTRY HOURS.
all other contractual obligations being met
all product is First In / First Out (being rotated), including refrigerated and frozen
food outlet handicapped assessable or runners available
REPACKAGING OF FOOD PRODUCTS -- USDA AND/OR NON-USDA IS
NOT ALLOWED
no form or type of mass distribution is being done (pre packing of pantry items)
Food Stamp applications must be available
track of the amount of food either purchased or donated
GRANT SERVICES MONITORING OF RA
During Grant Services monitoring of a RA, the review will cover the following areas:
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public outreach activities for food outlet sites
current eligibility documentation
site selection process and area assessment
RA does the required monitoring of food outlets
product accountability
storage and warehousing practices (including refrigerators and freezers)
inventory controls
expenditures for claims
assurance that all food outlets maintain 50% match of non-USDA items
assurance that all food outlets are operating a form of client choice
allows no form of mass distribution
NO PRE-PACKING OF FOOD PACKAGES is allowed
food outlets can be flexible regarding the number of items offered as items should
be based on availability of all products in the pantry
 no money is ever collected from client for receipt food or non-food products
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other contractual and administrative requirements met
all food outlets have current signed Memorandum of Agreements
food outlets are in compliance with the rules and regulations of TEFAP
if food outlets are responsible for insurance on USDA product, then RA must
maintain a current Certificate of Insurance for each food outlet.
 food outlet training conducted every two (2) years with training agenda and sign
in attendance sheets available for viewing
TRAINING AND TECHNICAL ASSISTANCE
The TEFAP Specialist will provide training and technical assistance to the RA upon
request.
TRAINING OF FOOD OUTLETS
Training must be given to all food outlets every two (2) years. County Extension Offices
should be notified to offer Health and Safety Procedures and any other services
applicable for all food outlets. Local County Health Departments (Food Protection)
should also be invited to the training for food outlets. Training offered every year is most
beneficial to keep the food outlets current on policies and procedures.
The County Extension Educators staff can use USDA food products and other pantry
items to prepare different food dishes and the recipes for training purposes.
GRANT SERVICES WRITTEN MONITORING REPORT
A written monitoring report of the visit to the RA will include finding(s) and
recommendation(s) to the RA and/or their food outlets. The RA must submit a corrective
action plan in response to each finding within forty-five (45) of days from the receipt of
the monitoring letter. Grant Services will review and approve the corrective action plan.
The RA must implement the corrective action plan. Failure to implement the corrective
action may result in termination of the RA’s contract with Grant Services.
Section 4
RA RESPONSIBILITY
RAs that have contracts with Grant Services vary in size and scope of operation, but they
are all required to meet certain obligations. Those obligations include:
SELECTION OF FOOD OUTLETS
RAs must develop a system for not-for-profit organizations to apply for participation as a
food outlet. RAs must consider the following criteria for a food outlet to receive USDA
food products:
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the food outlet has been established and in operation for a minimum of two years
RA is required to physically inspect and visit potential food outlet
have 501 © 3 status
operate a client choice pantry
ability to maintain a minimum of 50% non-USDA items
Rural Initiative can be implemented with prior approval from the TEFAP Staff
the physical site meets ADA requirements which includes ground level access
the need in the area be established where potential site will be located (not in the
proximity of other food outlets operating in the same area)
willingness to serve all eligible persons in need of food assistance that reside in
their established area
ability to properly store and distribute donated food
ability to store food in a locked area when food outlet is closed
have both refrigeration and freezer capacities
ability to maintain the required records and submit records to the RA on a timely
basis
take temperature reading of dry, refrigerated and frozen areas a minimum of once
per week and maintain a temperature log
USDA food products must be included with like items, not kept separate
current Eligibility Certificate for clients signatures
ability to serve clients a minimum of every thirty days, (every week is ideal)
no restrictions on how often recipients can receive USDA food products
agree to post on the outside of building day and hours that food outlet is open for
clients
have a minimum of 2 hours established operational hours per month based on
number of households serve (increase hours when needed)
evening hours and/or Saturday hours are strongly encouraged
RAs must conduct training for food outlets, a minimum of every other year
must be a public facility, never a private dwelling
under no circumstances conduct any type of mass distribution, NO prepackaging
no repackaging USDA/NON USDA food products
 never turning away a client regardless of where the client might reside on first
visit to food outlet
 willingness to serve client(s) in an emergency situation(s) (again weekly is ideal)
 no money can ever be exchanged for the receipt of USDA and/or non USDA
products or the appearance of an exchange
 soup kitchens must have someone connected or oversees the kitchen with a
current Food Handlers Certification
AGREEMENT WITH FOOD OUTLETS
Grant Services will issue the Memorandum of Agreement (MoA) to be used between the
RA and each food outlet. The RA may add addendum’s to the Agreement. However,
Grant Services must give prior approval for the additional addendum’s and/or
requirements. Both the RA and the food outlet must sign the MoA before any food outlet
can receive USDA food products. Shelters and Kids Café’s must each sign the same
MoA and are considered soup kitchens for agreement and program purposes. MoA
must be renewed at a minimum of every two years. By signing this MoA the food outlet
is agreeing to meet the criteria of TEFAP or will surrender any and all USDA food
products immediately upon request. Either party (including Grant Services) may
terminate the MoA upon a ten-day (10) written notice for any other reason but will
again surrender any and all USDA food products immediately.
USDA food products can never be given to an entity that does not have a current signed
MoA between the RA and the entity.
Each food outlet must maintain a copy of the MoA at the site.
METHOD OF DISTRIBUTION
It is at the discretion of the RA to determine how the distribution will take place within
its service area. A RA may maintain a warehouse where the food products are held until
the food outlets can pick-up their allocated product. RAs may also choose to deliver the
food products from their warehouse to individual food outlets, or to a central location in
each county in their service area or a combination of methods. The RA must keep in
mind that a decrease in delivery service may be detrimental to some food outlets.
RA’s that receive direct shipments may distribute product on an ongoing basis. Indiana’s
central storage can ship product several times each year. However, all shipments will
depend on the availability of product. The RA must accept all products being shipped for
distribution by central storage no later than the last day of the designated shipping period.
The same Bill of Lading rule applies when central storage ships product to a RA. Please
apply as much information as possible before signing and dating. Make a copy and fax to
Grant Services within three (3) days of receipt. Information should include number of
cases, time truck in and time truck left, damaged, over and or underage of the product.
All trucks must have a form of a Bill of Lading when transporting product of any kind
and this does include the states central storage or its sub-grantees. The Bill of Lading
should be copied and faxed to the central storage facility within three days of receipt of
product. The original should be maintained at the receiver’s facility for the current year
plus three (3) years.
RA’s must accept receipt of USDA within the shipping period. If receipt is not taken
during this period of time, the RA will be charged all storage costs including handling
charges as set by the storage facility that has possession of such product.
CONDUCT PUBLIC OUTREACH
The RA must publicize within it service area the regularly scheduled days and times of
operation of its food outlets. The posting of a sign at the physical location of the food
outlet, which identifies it as a food pantry or soup kitchen, is essential. The distribution
of posters, pamphlets, and newsletters throughout the designated geographic service area
is a recommended form of public outreach. Placing notices in local newspapers and free
local papers to make potential recipients aware of the availability of food products is
another acceptable method of public outreach. Public Service Announcements can be
provided to local radio and television stations. Activities by the local distribution sites do
not relieve the RA of responsibility for conducting public outreach activities. RAs should
notify county Offices of the Division of Family Resources or Child Services Offices, and
other social service agencies of the food outlet’s information that assist low income
citizens. Word of mouth may not be used as the sole or primary method of
conducting public outreach. Grant Services intends to begin monitoring the public
outreach as a top priority during the future contract fiscal years.
It is the responsibility of the RA to conduct appropriate outreach activities within its
service area. Publication of each food outlet’s name, address, and days and hours of
operation should be made available to the local newspapers, free papers, Help Lines,
county DFR offices, and any social service agency in the service areas. Examples of
those include: posters, pamphlets, newsletters, placing notices in local papers (including
the free publications and neighborhood papers) each county DFR Office, Child Services
Offices, Laundromats, churches, grocery stores, local Community Action Agencies and
Senior Centers.
SCHEDULE OF OPERATING HOURS FOR FOOD OUTLETS
RA must maintain a current list of number of meals or households served days and hours
of operation for each food outlet. The TEFAP Staff must also be kept current on all food
outlets.
ACCOUNTABILITY OF USDA FOOD PRODUCTS
Accurate records for USDA food products in the inventory report by e mailing to this
report back Grant Services. Counting and inspecting all food products upon receipt are
basic to inventory control. The RA must check every delivery for possible shortages,
overages and/or damage before the product is accepted. RAs may not accept damaged
product or sign the Bill of Lading until the RA count agrees with the number stated on
the Bill of Lading. Once, the Bill of Lading is signed, title is transferred to the RA. By
signing, the RA assumes liability and will be held financially responsible for the amount
of product shown on the Bill of Lading. Truck driver and RA must sign and date and
note any differences or concerns about the product on the Bill of Lading. All shipment
trucks must have a form of a Bill of Lading.
PROVIDE ACCESS TO GRANT SERVICES AND AUTHORIZED AGENTS
USDA requires monitoring of the RAs and food outlets receiving USDA food products.
Any RA or food outlet participating in the TEFAP must allow access to program records
and operations by Grant Services staff, USDA staff or any other authorized governmental
agents.
MONITORING FOOD OUTLETS
RAs are responsible for monitoring all food outlets that have signed agreements with
them at least once every two years. A minimum of thirty (30) food outlets must be
monitored each fiscal year if RA has thirty (30) food outlets or less. The balance of the
food outlets must be monitored during the next fiscal year for a 100% review. This will
be repeated every two years. RA monitoring must include, but is not limited to the
determination of the following:
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food outlets maintain 50% non USDA products
current eligibility guidelines followed
donated food stored properly and in a locked area
appropriate issue rates followed
adequate inventory maintained
eligibility certificates are signed by clients (food pantry only)
required informational posters in plain view of clients
sanitary conditions maintained
site open minimum of 2 hours per month
days and hours posted on the outside of the building
client choice pantry
household sizes posted for clients and volunteers
product on a first in / first out basis
thermometers in refrigerators, freezers, and non-air conditioned areas
temperature log maintained
check log readings
clients able to receive food a minimum of every thirty days (more often preferred)
food outlet is in public facility
food stamp pre-applications available for potential clients
TRAINING AND TECHNICAL ASSISTANCE
RAs must provide training and technical assistance to food outlet staff, at least once
every two years. This training must include, but is not limited to, the following areas:
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posting of required posters
specific requirements of the Memorandum of Agreement and it provisions
procedure for receiving USDA food products
why issue rates are posted
correct storage procedures
procedures for handling donated food
procedures for maintaining sanitary conditions
reports and record keeping
non-discrimination and political activity prohibition
current eligibility guidelines
understanding self-declaration of income
client choice of product
importance of refrigerators and freezers and the temperature log readings
public outreach for the days and hours for dispensing food or meals
dispensing of food at a minimum of every thirty days
treating clients with respect, so their dignity remains intact
civil right issues
contact the TEFAP Specialist for assistance with training.
MAINTAIN AND SUBMIT RECORDS TO GRANT SERVICES
All records are to be maintained for a period of three (3) years plus the current year. This
includes client signature sheets (Exhibit C). All records are subject for review and audit
by the Grant Services and USDA during normal business hours {or upon request, sent to
Grant Services and/or USDA}. The RA submits inventory report by E-Mailing no later
than the 8th of each month until the balance is zero for all products. Once zero products
have been submitted to Grant Services, this report is no longer required. The report is
submitted whenever product is in the RAs storage. The following documents and
information should be submitted:
The Community Service Inventory System (CSIS) report must be submitted (via EMail) no later than the 8th of the each month;
Information to be on the bill of lading:
 bill of lading or final notice to deliver requires two signatures: one of person
responsible for product and the truck driver.
 differences (short, over, damaged) and date must be written on the bill of
lading or notice to deliver
 copies should be made of the documents prior to faxing for clarity purposes;
 direct shipments: bill of lading and forwarding notice must be submitted
to Grant Services within three (3) days of receipt of product, do not wait
for additional deliveries.
 Food deliveries and/or grant reimbursement may be withheld, if the required
reporting is not submitted within the specified time frame.
MAINTAIN INSURANCE COVERAGE
Insurance should be involved when a loss occurs due to fire, theft, damage or another
cause. Liability is assigned to the RA that has a contract with DFR/Grant Services. If the
RA provides for liability, the amount of coverage must be at least equal to the value of
the amount of food products on hand. The number of cases on hand is usually taken at
the end of the month. Product that is not in the RA’s storage facility, but at the location
of each food outlet could be even less due to the average amount of product in the largest
food outlet. The cost of this required insurance is an allowable expense. If the RA
assigns the insurance coverage to the food outlets, a current Certificate of Insurance must
be on file at the RA for each food outlet. This must be stated in the Memorandum of
Agreement of (Exhibit A) which is signed by both the RA and the food outlet. The RA
must stay current with insurance, as it is ultimately the responsibility of the RA. It is the
decision of the RA which will carry the insurance.
Section 5
STORAGE AND HANDLING
USDA FOOD PRODUCT LIABILITY
When physical delivery of USDA food product is taken, the RA assumes responsibility
for the safekeeping of product. The RA also assumes liability for the value of the food
products should a loss occur due to negligence in storage, theft, and/or handling.
Although food products are provided without cost by USDA, there is a value assigned to
each product that includes USDA’s cost of purchasing, processing and distribution of the
food products to states. For current food product values and other product information,
refer to the allocation spreadsheet. In order to guarantee its quality and safety, each RA
and its food outlets are responsible for the proper storage and handling of USDA food
products. Premature deterioration of food products is often the result of improper storage
conditions and practices. Every effort must be made to reduce loss due to spoilage, pest
infestation and theft by following accepted warehousing methods. This action not only
ensures quality products being distributed but also protects the RA from claims action by
the State of Indiana or USDA to recover the value of the spoiled or lost product.
Contact TEFAP Staff for procedures of replacement.
RAs and food outlets will not be held liable for product quality except in cases of
negligence on their part. RAs and food outlets will be held liable if they knowingly
distribute food products that are spoiled, especially if the spoilage occurred because of
negligence on their part.
GENERAL PRINCIPLES OF FOOD STORAGE
Food storage areas should provide protection from weather, fire, theft and pests. Aisles
between pallets should be wide enough to provide easy access for inspection, inventory
and pulling of product. All USDA food products are to be stored at the RA or at a
storage facility contracted by the RA. RAs and their food outlets must follow good
warehouse and storage practices (Refer to Warehousing Standards. Exhibit G). Those
practices include, but are not limited to:
 keep food 6” off floor, store on pallets, platforms or shelves.
 keep food 4 inches away from walls. This will allow good air circulation and for
pest control.
 USDA food product cannot remain in storage for a period longer than six (6)
months.
 keep non-food items separate from food. Toxic items (soap, bleach, cleaning
supplies, etc) must be kept away from food items.
 keep floors, pallets and shelving clean.
 keep doors, windows, and roofs well sealed to prevent pest entry and water
damage.
 maintain proper temperatures.
 maintain a good pest control system.
 have a qualified person on staff or contract with a licensed firm to handle pest
control management.
 maintain equipment; regularly check for leaky compressors in freezer and
refrigeration units; hydraulic forklift leaks, etc.
 thermometers must be kept in the freezer, and refrigeration units and dry storage
areas.
 maintain temperature logs.
 RAs must assure that all food outlets have thermometers in place and that freezer
and refrigeration units are operative.
 RA must assure that food outlets do not have any one item of USDA food
products longer than six (6) months.
STORING DRY FOOD PRODUCTS
Dry food products must be stored:
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35° to 75° F
away from direct sunlight
minimum of 6 inches off the floor for circulation
at least 4 inches away from walls for circulation
a two-foot ceiling clearance to avoid high temperatures at ceiling; and
storage area must be clean, secure and inspected regularly.
STORING REFRIGERATED AND FROZEN FOOD PRODUCTS
Food products requiring refrigeration must:
 temperatures between 35° to 40° degrees F;
 be stored to allow for proper air circulation; and be stored in a refrigeration unit
that is clean and inspected on a regular basis.
Frozen food products must:
 maintain a temperature 0º F or below;
 stored allowing for proper air circulation
 stored in a freezer unit that is clean and inspected on a regular basis.
FOOD BANK STORAGE GUIDELINES FOR STACKING FOOD PRODUCTS
The basic rules for stacking food products are:
limit the height of the stack so cases of food on the bottom layers will not be crushed;
cross-stack cases on pallets to ensure the stack will be sturdy and solid and will not tip
when being moved;
 shrink wrapping provides added stability;
 stack cases away from potential damage by heat, steam or water.
MAINTENANCE OF STORAGE AREA
 An ongoing system of pest control is required. Rodent controls such as traps and
glue board are recommended. Place traps along walls and near doorways, moving
the traps monthly.
 Poisons must not be used except by a licensed professional. Prevent rodent
infestation by thorough cleaning and maintenance of the warehouse.
 Ensure there is a cleaning schedule established listing the necessary frequency of
cleaning for each location. Floors, including under pallets, should be swept and
cleaned least monthly. Floors in high traffic areas require regular cleaning. Area
soiled by spillage or breakage must be cleaned immediately. Broken pallets
should be discarded and dirty pallets cleaned.
 Empty pallets should be stored apart from food products.
 Maintenance of the exterior of the warehouse must not be overlooked. The
building and grounds should be inspected regularly for signs of fire hazard, pest
infestation, security problems and needed repairs. Garbage, waste or rubbish
must be disposed of frequently and not allowed to become nesting areas for pests.
ROTATION OF STOCK
To help assure the quality and freshness of USDA food products, the practice of First In /
First Out (FIFO) must be followed. Food must be stored so cases with the oldest pack
dates are used first. All USDA food products have the pack date on the cases. Pack dates
or lot numbers are also printed, stamped or embossed on individual cans or containers.
Grant Services staff will routinely assess inventory levels to assure that supplies are
reasonable and appropriate for distribution activities
DAMAGED AND/OR OUT OF CONDITION PRODUCT
Out of condition product are those food products, which appear to have come from the
packer contaminated, deteriorated, spoiled, infested or having latent defects. All food
products must be inspected upon receipt. Bulging cans or cans with sharp dents and rust
on the seams are examples of out of condition products. SHOULD FOREIGN
MATTER SUCH AS GLASS OR METAL BE FOUND IN A PRODUCT, THE
SITUATUION SHOULD BE TREATED AS AN EMERGENCY. Grant Services
TEFAP STAFF SHOULD BE CALLED IMMEDIATELY FOR PROCEDURES.
All out-of-condition losses must be reported to Grant Services TEFAP Staff by phone
immediately. The information that is required:
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Recipient Agency Name
Recipient Agency Address
State Product Received
Contact Person
Title
Phone
Date of Complaint Filed
Commodity Name
Description of Problem / Complaint
Reason for Complaint
Contract Number, Delivery Order, N/D Number
Lot #, Box #, Can Codes #, Pack Date, Ship Date
Date Product Received, Amount Received, Amount on Hold,
 Vendor (if known)
 Is Product Under Warranty – Yes - No
This information should be completed on the Commodity Discrepancy Report (Exhibit E)
and the Complaint Worksheet (Exhibit F). As much information as possible concerning
the product should be gathered. Do not dispose of any out of condition food products
until advised to do so by Grant Services. In some instances, USDA will require samples
of the out-of-condition product. When conditions present a health hazard to food stored
nearby, (exploding cans, infestation of grain products, etc,) the out-of-condition product
must be isolated.
For additional information about warehousing food, contact you county or local health
department.
Grant Services Staff will notify the RAs within 24 hours via e-mail, after receiving a
FOOD SAFTEY ALERT. You must respond by e-mail to this office that the
notification was relayed to your individual food outlets.
If a RA has any questions regarding the correct procedures to follow, contact Marsha
McGraw, TEFAP Specialist at 1.800.246-7064 or 317.232.6997. E-mail Marsha at
mmcgraw@lg.IN.gov or Jade Luchauer, Project Coordinator at 1.800.246.7064 or
316.232.8908. E-mail Jade at jluchauer@lg.IN.gov
RE-PACKAGING PROHIBITED
USDA products may not be repackaged unless specific instructions to the contrary are
issued by Grant Services.
Section 6
FOOD OUTLETS
THE PHYSICAL DISTRIBUTION SITE
The distribution site is the location where donated food is actually distributed to needy
persons. Distribution sites for the TEFAP food products are food pantries, soup kitchens,
domestic violence, or homeless shelters. No private residential facilities or correctional
facilities can be used as food outlets for distribution of products.
ACCEPTING AND UNLOADING TRUCKS
Distribution sites in Indiana may receive their food products by various methods. Each
RA determines the method of delivery. The following are different and acceptable
examples:
 food outlet picks up the food products at the RA with a truck and personnel
furnished by the RA or with the food outlet personnel.
 RA’s personnel delivers product to the individual food outlet in trucks furnished
by the RA.
 RA can make a delivery for one or more food outlets at a designated place and
time to receive food products.
 RA can make a delivery to each county in their service area. This may or may not
include the county in which the RA resides.
RA’s must account for federal food products released to each site. The RA must use the
form (Notice to Deliver or Final Notice to Deliver Exhibit H) which records the signature
of the site representative receiving the site allocation. (RA can generate this form if they
follow the general design of the Food Outlet Receipt), however it must meet with Grant
Services approval. It also records the amount of each product received by the site and the
site name and address. RAs are responsible for the proper maintenance of records.
Food outlets (including migrant pantries) may use volunteers and/or paid staff to unload
the truck. Food outlets may have income-eligible recipients who are willing to volunteer
to help unload. However, unloading the truck can not be made a requirement to receive
the food products, nor can it be used as an in-kind agreement for volunteers to receive
more TEFAP products than they world normally receive. Arrangements may also be
made with the county DFR Offices, Township Trustees, or Police Departments for
volunteers doing Community Services. The various service sororities and school
organizations may be willing help unload trucks; help prepare meals and other types of
services.
Whoever unloads the product must be made aware of the importance of counting the
product as the shipment is received. Accurate accounting of USDA food products will be
impossible if an exact count is not made when the product is unloads. The necessity of
checking for damaged or spoiled product must also be stressed.
STORAGE REQUIREMENTS
All food outlets must provide proper storage facilities for the food products received from
a RA. All food outlets must comply with the same storage and handling regulation that
apply to RA. Those regulations include any directives from USDA, Grant Services,
Indiana Department of Public Health and the local public health department within the
jurisdiction where the food outlet is located. RAs and the food outlet will be held
financially liable for lost product due to damage, theft or spoilage due to improper
storage and handling. The contract signed with the food outlet does not relieve the RA of
its contractual obligations to Grant Services. The RA remains responsible for assuring
that the food outlets under contract provide proper handling, care and storage of USDA
food products and other donated food.
MINIMIZING LOSSES
Most food outlets in Indiana are staffed completely by volunteers. Insurance
responsibility is left up to the RA to make the determination if the food outlet or the RA
carries the insurance for USDA items. This responsibility will be stated in the
Agreement between the RA and food outlet. However, food outlets are still obligated to
conduct their operations in a responsible manner to keep losses at a minimum. The lead
volunteer must train other volunteers to carefully follow approved storage and handling
procedures. Distribution sites should use the First In / First Out (FI/FO) inventory
control system.
No USDA food product can be in a food outlet for more than six (6) months. Contact
RA for transferring product if it is not going to be used. (Product Transfer Form – Exhibit
R)
REPORTING LOSSES
The Grant Services requires that RA explain all losses, including those experienced by
their food outlets. RA must balance on a monthly basis with the amount of food products
they received and the amount distributed. Grant Services is required by federal
regulations to pursue recovery of the value of all food lost due to negligence is the value
of the food exceeds $100. The RA is financially responsible for all losses even when the
food outlet causes the loss. Losses under $100 will not be disregarded if there is
evidence of fraud or negligence. Grant Services should be contacted immediately by
telephone if any major loss occurs. USDA does not acknowledge shrink.
ALLOCATION OR ISSUANCE RATE
This chart provides only examples of the kinds of food that could be given to a client that
would provide food for meals for a 2-3 day period for families ranging in size from 1-10.
(Note that USDA does not count breakfast in its food guide, so the number of meals per
day for the examples provided above would need to be increased accordingly if the
pantry is providing food for 3 meals a day.) Pantries have the option of the number of
products a household could receive. Examples.
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household of 1-2 could receive 2 of each product available.
household of 3-4 could receive 4 of each product available.
household of 5-6 could receive 6 of each product available.
household of 7 or more could receive 8 of product available, also;
household of 1-3 could receive up to 15 items
household of 4 or more can receive up to 25 items.
households could receive “free items” that do not count in the number their
household size could receive. Examples: breads, non popular items, i.e. figs or
plums, over abundance of an item.
The RA or pantry has the flexibility to change the issuance rates for household sizes
based on the amount of product available (food products and non-USDA items)
USDA product should be mixed in with like product and never dispensed separately.
USDA product is a supplement to the other pantry items.
Section 7
FOOD PANTRIES
FOOD PANTRY
Food pantries in Indiana operate in a variety of ways. Their hours vary widely,
depending upon the level of need in the area, where they are located and the resources
available to the organization operating the pantry. Food pantries must be government
agencies or non-profit organizations with 501 © 3 tax-exempt status or be an affiliate of a
church. The physical facility must be public, safe and appropriate for storing and
distributing donated food. The pantry must meet ADA standards. Larger pantries may
be open several hours a day, Sunday through Saturday or any combination of days and
hours. Some pantries operate in the evening and Saturdays/Sundays to serve clients
whose job prevents them from being served during the week. Small pantries, operating
on limited budgets, may operate only one afternoon or one evening a week (but must be
open a minimum of 2 hours per month, which should be increased). The facility must,
however, keep regular hours to be considered a pantry unless specifically approved by
Grant Services for an exemption under the rural initiative. If a food outlet has problems
maintaining volunteers, if might help by changing the operating hours to evening and/or
weekends. Also, it may benefit the food outlet and the recipients if the food outlet
connected with one or more other pantries in their general area. This affords a food outlet
the opportunity to draw additional volunteers and resources from a larger base. The food
outlet would then be available to be open evenings, Saturday, and hours during the week.
If pantry does not have hours convenient to clients who are working or homebound
clients they should have recipient use the Proxy Statement (Exhibit I).
A pantry must be open to the general community of its designated geographic service
area. The population served by a food pantry may not be restricted by factors other than
income eligibility and geographic service area. Pantries may not restrict an eligible client
access to food for more than 30 days from the last date the client-received food. The
pantry must offer clients a choice of products.
FAITH BASED FOOD PANTRY
The food pantry can ask recipients but not require them to participate in any type of
prayer or religious services prior or after receiving their food allocation. Religious
information or other materials that are always displayed in the dinning room or where
recipients congregate can remain. These materials cannot be displayed prior or just when
recipients are present. Pantry workers cannot ask any recipient about their beliefs or
church affiliations or complete an application requiring such information.
FOOD PRODUCTS ARE SUPPLEMENTAL
Whatever its size, the food pantry must have the resources to provide clients with food
orders by means other than government food products. USDA food products must be
used as a supplement to these foods, not the singular food supply for the pantry. Other
sources may include food received from Food Banks, privately donated food, food drives
or food purchased with monetary donations. All food products should be included with
like items.
All USDA food products must be distributed within six (6) months of receipt. If the
product cannot be distributed notify the RA immediately.
ELIGIBILITY DOCUMENTATION
The State of Indiana accepts self-declaration as a means of documenting eligibility. No
other documentation is needed to meet TEFAP requirements. Needy persons receiving
USDA food products from a food pantry must sign the appropriate signature sheet to
attest that they meet the Income Eligibility Guidelines. Income eligibility for TEFAP is
165% of the annual federal poverty guidelines based on household size. The only other
allowable factor of eligibility is residency in the State of Indiana (client must live in
Indiana at least one day). Signing the signature sheet places eligibility on the recipient
and relieves volunteers of both legal and programmatic liability.
Those pantries that serve the migrant worker must be open to facilitate the schedule when
the workers are able to come. The Eligibility Certificate (Exhibit C) can be furnished to
pantries in Spanish. Ask each Migrant family if they have refrigeration or freezer
capacity before giving them product that requires this type of storage.
THE RURAL INITIATIVE
Grant Services encourages the development of innovative designs to meet the emergency
needs of residents of rural areas. Special operating procedures and the elimination of
two-year existence may be approved to allow the effective provision of emergency food
in sparsely populated. They still must have set hours of operation.
RURAL AREAS
The RA must submit written rationale for a distribution site requesting exemption; this
could include the elimination of the 501 © 3.The exemption must be approved in writing
by Grant Services (this can be accomplished by E-Mail). This exemption does not
eliminate the need for refrigeration and freezing capabilities, nor 50% non-USDA
products. They must follow all other criteria as set forth by TEFAP.
OUTREACH EFFORTS
Food outlets should post their schedule of operation on the outside of the building. This
information can be, but is not limited to posters, pamphlets located in laundromats,
churches, and grocery stores in the geographic service area of the food outlet.
Section 8
SOUP KITCHENS
SOUP KITCHEN
Soup kitchens serve nutritious meals, without charge, to homeless, transient, and other
needy persons. The meals must be served on a regular basis in a clean, secure
environment as a regular part of services. A soup kitchen must be a governmental agency
or a not-for-profit organization with a 501©3 tax-exempt status or church affiliation. The
kitchen must have a person who has a current Food Handlers Certification Certificate
and/or has an association with that said kitchen. The physical facility must be safe and
appropriate for storing and distributing donated food. Soup kitchens that are not
homeless and/or domestic violence shelters must conduct public outreach and serve all
needy persons. Services may not be restricted to special population such as the elderly,
children or members. Residential treatment facilities and Senior Centers that serve
congregate meals do not qualify for TEFAP.
COMMODITES ARE SUPPLEMENTAL
Whatever its size, the soup kitchen must have the resources to provide clients with
prepared meals by means other than government food products. USDA food products
must be used as a supplement to these foods. Other sources may include food received
from Food Banks, privately donated food, food drives or food purchased with monetary
donations.
FAITH BASED SOUP KITCHEN
The soup kitchen can ask but not require recipients to participate in any type of prayer or
religious services prior to or after a meal. Religious information or other materials that
are always displayed in the dinning room or where recipients congregate can remain.
These materials cannot be displayed prior to serving a meal or just when recipients are
present. Site workers cannot ask any recipient questions regarding their religious beliefs.
ELIGIBILITY
It is assumed anyone eating at a soup kitchen is income eligible and no certification or
documentation of eligibility is required. The “And Justice for All” poster must be in
plain view of all participants. Serving hours and days should be posted on the outside of
building so that participants are aware of serving times.
STORAGE AND RECORDS
Soup kitchens must abide by the storage standards set by USDA, Grant Services, IDPH
and the local health department. Soup kitchens are not required to collect signatures or
household sizes from clients. Only the actual number of meals served by the soup
kitchen are required to be reported to the RA a least every 90 (ninety) days but preferably
every 30 (thirty) days. RAs may set more frequent reporting requirements to aid the
allocation process.
FOOD HANDLING AND MEAL PREPARATION
Special food handling requirements for soup kitchens include but are not limited to:
 use of non-porous countertops, preferably stainless steel;
 disinfecting all countertops and utensils. a cold water bleach solution may be
used;
 use of new or properly sanitized reusable food storage containers; plastic bags
may not be reused;
 all food handlers must wash hands, wear disposable plastic gloves and cover their
hair with hair nets;
 no smoking is allowed in food preparation area or the eating area;
 shirt pockets must be emptied and jewelry removed that could fall into the food,
must not be worn nor decorative hats; and
 area must be free of any type of insect or other foreign matter that could
contaminate the food.
 current inspection from local or State Board of Health (if applicable) must be
posted
The RA should contact local public health officials for more information on proper food
handling, preparation procedures and standards for soup kitchens.
Section 9
ELIGIBILITY GUIDELINES
FEDERAL REGULATIONS
USDA regulations require that states set standards for determining the eligibility of
households to receive USDA food products through TEFAP. The standards must be
based on income and household size. The federal regulations allow state standards to
include a requirement that the household live in the state, but the length of residency in
the state cannot be considered when determining eligibility.
INDIANA REQUIREMENTS
In Indiana, Grant Services has set the income eligibility standard for participation in
TEFAP at 165% of the federal poverty levels for households. The State of Indiana uses
self-declaration of income. If client says their income is at or below 165% of the federal
poverty level for their household, they are willing to sign the Eligibility Certificate, and
have lived in Indiana for one day, they are eligible for food. No other eligibility
requirements can be imposed on individuals seeking food assistance through TEFAP.
However, RAs may establish geographic service areas for its pantries. If a client comes
to a food outlet you must serve them once and explain to them where the pantry is located
in their service area of their home. After the initial contact, food pantries need only serve
clients within their geographically defined service area. Turning away hungry people
violates the basic intent of TEFAP. Client should be served and then informed of the
location and hours of the food outlet in area in which the client resides.
Clients cannot be required to disclose Social Security Numbers for anyone in the
household nor can driver licenses numbers be used for any purpose.
HOMELESS CLIENTS
Homeless people are presumed to be residents of the State and therefore are eligible to
receive a meal in a Soup Kitchen.
Homeless clients can use the address of the nearest DFR (Welfare) Office for accessing
food pantries.
POSTING GUIDELINES
RAs must ensure that Food Pantries display the following posters or signs:
 Income Eligibility Guidelines – The poster lists the maximum allowable
monthly income varying household sizes may receive and still be eligible to
receive food products. The Eligibility Certificate with the Income Guidelines on
 the individual sheet can substitute for an income poster
 Eligibility Guidelines increase each year and new guidelines are implemented
April 1 of each year
 “And Justice for All” – The poster instructs the recipient on the procedures to take
in case of discrimination.
 Household Sizes – The poster shall specify household size issuance rate for
product available on day of distribution.
 Soup Kitchens are only required to display “And Justice for All.”
WHAT IS INCOME?
Gross monthly household income must be at or below the standards listed on the Income
Eligibility Certificate (new Income Guidelines issued each year on April 1). All sources
of income for each and every member of the household must be included. Gross
household income includes all wages, pensions, Social Security, Supplemental Security
Income, Railroad Retirement, income from rental or leased property, interest or dividends
from savings, certificates of deposit, stocks, bonds and income from all other sources.
That may include, but is not limited to, strike benefits, unemployment compensation,
alimony, child support, veteran’s benefits and regular insurance or annuity payments.
PROXY STATEMENT
A Proxy Statement may allow a food outlet to serve Homebound and/or Handicapped
and/or Working Clients. (Exhibit I).
When a proxy is used, these rules must be followed:
 a proxy form or authorizing note must be signed by the client, designating the
presenter as his/her (client) proxy;
 by signing the proxy, the client is declaring eligibility;
 the presenter must show some form of ID to prove they are the designated person
to receive the food products for the client;
 the presenter must sign the signature sheet with the name of the recipient and the
designee’s name;
 a proxy form must be attached to the signature sheet;
 a note can only be used if the client has a signed proxy on file with the current
income guideline;
 a proxy form or note must be used for each issuance of food.
*Always take into consideration that some clients may not be able to read or write.
Be prepared to assist them in explaining the criteria and allowing them to sign with an
X, then verifying with the volunteer’s signature or initials.
Section 10
Client Choice Food Pantries:
Models for Now and the Future
Most of us take for granted the choices we make when we go to the grocery
store. We stroll down the aisles and pick from a wide variety of foods, some very
nutritious and some empty calories; but the point is we are in control of what
goes into the basket. This same concept can carry over into our pantries with a
little bit of planning.
During the 1980's food pantries were springing up around the United States
through a network of churches and community organizations. Food supplies were
tight, donor networks were not in place, and USDA commodities were in short
supply. The focus for pantries was on rules and restrictions and limiting the
amount of food distributed. As a result, many pantries fell into the practice of prebagging groceries1 for clients from a posted list.
The old models do not fit the lifestyles of clients today and as a result, new ways
of doing business have to be found. Here are a few examples of some problems
resulting from running a no choice pantry:
 A young Mom is given a box of powdered milk that she does not need or
want. No one asked her if she is on WIC.2
 A widowed man is given a sack of flour that he promptly tosses into the
alley behind the pantry. Is he ungrateful? No, he simply does not know
how to cook or use the flour and he was never given a choice about what
went into his food bag.
 A family could have used two bags of flour, but they were never asked and
received the standard one bag per family.
 A woman from another country is given flavored gelatin that she has never
seen before; her children eat the powder. She would have preferred a bag
of rice, but no one asked.
 An illiterate man could not read the word "corn" on a generic label. There
was no picture on the label, so he threw the can away.
 An older woman with high blood pressure, diabetes and no dentures is
given a bag with canned vegetables, heavy syrup fruit, and snacks she
cannot chew. Most of her food bag went to a neighbor.
1
Pre-bagging groceries is also referred to as prepackaging food packages.
The Special Supplemental Nutrition Program for Women, Infants and Children (WIC) administered by
USDA-FNS provides eligible participants milk, as well as other foods.
2
No matter what the income level, people need to be able to select their own
foods and have control over what they eat. For two decades pantry
administrators selected food they thought their clients needed in a healthy and
balanced diet. Here are some of the main issues associated with the pre-bagging
method:
 Often pre-bagged food is not the food most available from the food bank
that supplies the pantries.
 Greater numbers of empty calorie foods such as sugared drinks and chips
or other snack items are left unused at the food bank, unavailable to
pantry clients and eventually as part of a landfill.
 This practice adds to the operational cost of the food bank and is a
detriment to the environment.
 Food pantries are spending valuable resources to purchase foods that
clients may not want or need, given a choice.
 Pantry bags that are done in advance tend to be very much the same. All
the bags usually contain canned tuna fish, peanut butter, powdered milk, a
pound of pasta, one can of vegetables, and one can of fruit. No two
families have the same food needs or desires, so why should their bags
be identical?
Let's take a tour of our local pantries and see what the client sees…
Susan is a single mother with four children. She works a full time job where she
earns minimum wage. After rent and child care, there is not much money left.
Susan must visit the local pantry once a month out of necessity, not because of
miss-budgeting her money.
The pantry Susan visits is very traditional and only opens one afternoon a week.
Since she works during the day, coming to the pantry requires her to leave work
a half-hour early once a month to wait in line and receive food. This pantry allows
clients to come only once a month and every time Susan visits the pantry, she is
required to bring a social security card, proof of income, proof of residence,
children's birth certificates, and rental expenses.
When Susan arrives at the pantry, she must be cleared at the check-in desk, and
then quickly is shuttled into a line where she is handed two bags of groceries for
her family. After waiting in a 20-minute line, she is inside the pantry for about 3
minutes and her interaction with the pantry volunteers is nearly non-existent.
When she gets home, she finds the traditional items in her bag:
1 box of cereal
1 carton of dry milk
1 bag of rice
1 box of pasta
1 jar of spaghetti sauce
3 cans of tuna
1 can of peaches
1 jar of peanut butter
1 box of donuts
Susan is happy to receive some foods, but at the same time she wonders how
these two bags of groceries are supposed to feed her family for the month. She
also knows her children will not eat the tuna because they do not like the taste of
the oil packed brand she receives each month. Perhaps she can trade the cans
with her neighbor for something else her family likes.
Barbara is another single mother with several children and a low-paying job.
Barbara's story is very much like Susan's except Barbara has the advantage of
traveling to a "Client Choice" food pantry. At Barbara's food pantry, she can
come as often as she needs food. Some months she comes 2-3 times, other
months she will not come at all, and since the pantry is open a variety of days
and hours, she never has to worry that she cannot get to the pantry. As a TEFAP
choice pantry in Indiana, Barbara is only required to sign her name and selfdeclare her income eligibility. She indicates the number in the household when
she visits the pantry so workers know how much food she needs. After a quick
check-in, she is then given a couple of empty bags and escorted by a volunteer
through the aisles of food. Her options include tomato products, condiments,
soups, ice cream, bread, pastries, cake mixes, hair products, and cleaning
supplies. While choosing the food items, Barbara shares the children's school
pictures, as well as recipes, with the pantry volunteers. When Barbara comes
home, she realizes she wasn't expecting to come home with shampoo and salad
dressing, but now she knows she will be able to afford milk for the children's
cereal. Barbara has come to view her food pantry and the wonderful volunteers
almost as an extension of her family.
After reading the two women's stories, you might wonder why all pantries do not switch
over to client choice. In Indiana, all pantries that participate in TEFAP are required to offer
"Client Choice" pantries. Sadly, some pantries have chosen to discontinue use of TEFAP
items rather than make the changes needed to become a choice pantry.
Next, we will examine some of the barriers (real or perceived) to becoming a client choice
pantry. After reading some positive stories about making various changes, perhaps your
pantry will be able to use some of the ideas for improvement. Or your pantry may consider
forming a partnership with smaller pantries to strengthen your community in its fight
against hunger.
Overview of the Issues
What are the related issues connected with changing to a client choice
pantry?
 Will this change the hours of our pantry operation?
 How will the food pantry volunteer's role change?
 How will choice affect the nutrition quality of our food bags?
 Our pantry only has limited space, how can choice work for us?
 Why should we offer any choice for clients? Shouldn't they be grateful to
receive anything?
 How long will it take to process clients using choice?
 How does choice work when you also give away USDA commodities?
 How does choice help the client?
 How does choice help our pantry operation?
 What if we are giving away too much food too fast? We may run out and
not have enough food for later clients.
Is there anything special we can do for seniors using choice?
Issues with Operations and Answers
Learning from other food pantry operations: the issues that have been
raised and the solutions that have been found.
Hours of Operation
In the early 80's when many pantries were just getting started, hours of
operations tended to revolve around the availability of volunteers. Many workers
volunteering today are retired and want to work very limited hours during the day.
There may be limited days of the week and no weekend or evening hours of
operation for some food pantries. These hours may not meet the needs of
today's clients.
Today, most food pantries are serving more families or single working mothers.
The hours of operation become very important to the families using the pantry
because they may have to choose between coming to the pantry or losing
income by taking off work to come during traditional hours of operation.
Most pantries don't want to post hours of operation because it is such a struggle
to maintain consistent hours. Posting hours on the building is a requirement for
pantries using TEFAP items. This posting is usually accomplished, but more
could be done to make the surrounding community aware of the hours of
operation, such as publishing hours in the newspaper or as a free public
announcement on the radio. Even if pantries are only able to be open limited
hours or days, perhaps looking at late afternoon or early evening hours can help
clients out of the dilemma of losing food or income.
A review of operating times for pantries around Indiana reveals a disappointing
disproportion of pantries open only during morning hours during the week. This
strategy is fine for pantries working primarily with seniors, but not for working
families. This is an area all pantries should strive to improve. Here are three
pantries in the spotlight that have adjusted their hours to be "Family Friendly".
FORREST MANOR MULTI-SERVICE CENTER AND FOOD PANTRY
This food pantry located in Indianapolis is only able to open its pantry two days
per week, but one day is family friendly 10 am-8 pm and the other day is primarily
geared to seniors with morning am hours.
LA CASE DE AMSTED YOUTH COMMUNITY CENTER
This food pantry is located in South Bend and has very good hours to
accommodate those who need to come in early afternoon hours or those who
need later hours due to their work schedule. They are open two days per week
from 1-6:30 pm.
THE BRADY LANE CHURCH OF CHRIST
FOOD PANTRY
This food pantry is located in Lafayette
and as shown by their clearly printed
sign, they are open a morning and an
evening each month.
Hours of operation are influenced more by availability of volunteers rather than
using client choice. Since implementation of client choice has been shown to
improve morale of volunteers, the opportunity for enhanced hours may become
feasible.
The Role of the Volunteer
As a pantry changes to client choice, the role of the volunteer is sure to evolve as
well. Many pantries operating under a more traditional system use almost
"invisible" volunteers, meaning they have little-to-no-contact with the pantry
clients. There may be a special "bagging day" when the pantry is not open, but
the volunteers work to make up as many identical bags as possible.
There are the trips for other volunteers to the grocery store to buy needed items
for the identical bags and lots of food handling and sore backs at the end of the
day. Much of this type of food handling work is unnecessary using "client
choice", because the items don't have to be pre-bagged.
Volunteers can take on a much more personal role toward clients and spend their
time with such activities as helping someone with a physical disability through the
pantry, or helping someone who can't read to choose the foods they want. The
main volunteer role changes from packing food bags to host or hostess and the
friendly atmosphere of the pantry is more welcoming to the client.
Trips to a food pantry are painful experiences for most people. The feeling that
you are shopping rather than receiving a handout is not lost on the client and
choice helps ease their embarrassment of coming to a pantry.
The types of training offered to volunteers may change, as their roles become
more client centered. One suggestion offered by several pantries is for
volunteers to go through some type of sensitivity training or a "real life" exercise
looking at living on minimum wage in today's world.
Building a varied volunteer base is important to any successful pantry operation.
If volunteers don't come to you, look for them! Here are some ideas for building
your volunteer base:
 Many big companies have programs that allow employees to volunteer a
day or two a year at company expense. This may give you a year around
supply of one-day volunteers, although your training needs would be very
different.
 Purdue Cooperative Extension workers may be available to work with their
programs within the pantry setting. Workers in EFNEP (Expanded Food
and Nutrition Program) are often able to come and talk with pantry clients,
use pantry foods to prepare sample recipes and be available to answer
food related questions and sign up clients for in home nutrition education.
 Student groups often are looking for places to earn "service hours" they
need for school credit.
 The court system is another place to enlist people seeking a location to
serve community service sentences.
 Another idea is to offer clients a chance to give back to the pantry by
volunteering a day every month. This may give you enough additional
volunteers to allow the pantry to be open an extra evening or weekend
day.
SPOTLIGHT ON AN AGENCY
St. Vincent de Paul Client Choice Pantry of Indianapolis does a good job preparing
their volunteers for their client-centered role in the choice pantry.
Meet Jerry McKenan, volunteer St. Vincent de Paul Client Choice Pantry located on Spann
Avenue in Indianapolis. Jerry has volunteered for several years and states the main reason he
enjoys volunteering is because the operation runs smoothly and there is great volunteer
training. Here Mr. McKenan helps a client with a shopping cart.
How Long Will It Take To Serve Clients Using Choice?
Time seems to be one of the big drawbacks on the mind of people thinking about
switching to choice. Coordinators picture long lines of slow people taking hours to
choose a few items. The amount of people that can be served at one time does depend on
space and the way the operation is streamlined. Small pantries may only be able to let 3
people shop at one time. They may be able to help about 25 people in the usual two-hour
time frame they are open. In larger areas, 300 people can be helped in two hours.
At the St. Vincent de Paul Client Choice Pantry of Indianapolis the check-in can be
done quickly.
At this client choice pantry, clients are issued tickets based on family size for use in
the pantry. The tickets are for different food items. Tickets are redeemed at the
cashier stand.
The real saving of time is achieved when you consider the time usually spent in preparing
25 identical bags. This process, including shopping, may take volunteers 3-4 hours of
behind the scenes time that could be used to open the pantry another day to provide
choice. Most pantries find the pantry atmosphere to be much more relaxed when they use
their prep or bag time as open door choice time. The bonus is more time for friendly
interaction with clients rather than hurrying to just hand out bags and move to the next
person.
Nutrition Concerns
“How will client choice affect the nutrient quality of our food bags?”
This particular issue may be the single hardest change for most pantries. Almost
since the inception of food pantries, coordinators and volunteers both like the
concept of a nutritionally balanced food bag. The idea is if someone's resources
are limited, shouldn't they only be receiving the most nutrient dense items
available? Shouldn't every bag contain dried beans, and powdered milk?
Shouldn't every person learn to make biscuit mix from commodity flour to save
money?
In reality, very few families of any income level choose only nutrient dense foods
with each meal. Watching the checkout line at any grocery store for only a few
minutes will reveal how many highly processed, high fat, high sugar, high sodium
items go into the average American cart. It would seem very unlikely that the
client coming to a food pantry would select only nutrient dense foods if they were
given a choice.
Not all of these items top the list for high
nutrition, but families of all income levels
should be able to choose them as part of a
nutritious diet. The Position Paper of The
American Dietetic Association says it best, “It
is the position of the American Dietetic
Association that all foods can fit into a
healthful eating style. The ADA strives to
communicate healthful eating messages to
the public that emphasize the total diet, or
overall pattern of food eaten, rather than any
one food or meal.”
Giving a choice means developing a trust that the clients will choose a wide
variety of foods that are right for their families from all the food groups including
the Fats, Oils, and Sweets group. It may be hard at first to see sugared drinks
and fatty snack items go into a food bag, but the paradox is, these foods may
actually help the family's overall nutrition by freeing up other resources such as
food stamps for more nutrient dense items at the grocery store. Typically, snack
and drink items are some of the highest dollar items in retail, so getting these
items at little to no cost from the food pantry will boost the family's buying power
with the resources available.
Cooking methods have changed dramatically over the past 10-15 years. More
convenience items are the norm and should also be included as part of the foods
selection whenever they are available.
Picking up discarded items like the cans of waxed beans or sacks of flour from
the alley behind the pantry after distribution day should remove any doubt that
good nutrition cannot be forced upon a client. Instead, let’s look at what several
pantries have done to encourage client choice plus some gentle nutrition
education.
MOTHER HUBBARD'S CUPBOARD
Mother Hubbard's Cupboard in Bloomington, IN uses food label information right on
product shelves to let clients know if a food is a good source of vitamin A or iron for
example. They also point out items that are lower in sodium for those clients that have
special diet concerns. Mother Hubbard's Cupboard also offers healthy recipes and
sometimes samples of new or unusual items to encourage clients to taste and try healthy
foods. Mother Hubbard’s also has the advantage of nutrition students from the nearby
university. These volunteers are eager to assist clients and answer their nutrition
concerns.
Space Concerns
"Our pantry only has limited space, how can choice work for us?"
Space can be an issue for many pantries. At first glance, a client choice pantry
might appear to need bountiful space, but in reality, the space you currently use
to store and pre-bag food can easily be used for client choice. Here is an
example of a pantry that made good use of small space.
Meet Judy Dixon, pantry coordinator for the Pike County Outreach Council of
Churches, Inc, of Waverly, Ohio. Judy shares her experiences with managing a
pantry space just 10 X 15 feet!
"Our space is really small, but we have managed to still make room for
everything we need", says Judy. "About one third of the space is reserved for a
reception area. Generally, the intake is done in this area."
In the actual pantry area along the back wall, we have floor to ceiling shelving
units stocked with fruit and soup, beans, some odds and ends, and the
commodities. In the middle of the floor space, we have a refrigerator and two
freezers, loaves of bread, canned meat, and any fresh produce items. Along the
front wall, we have more shelving units stocked with vegetables, pastas, sauces,
drinks, and crackers, peanut butter and breakfast items.
Once the intake is completed, a volunteer escorts the client into the pantry area.
Items that will not be counted in the family’s monthly allotment are offered to the
client first. This saves some last minute switching around. Then, the client can
choose which (if any) foods they desire from each food group category. For
instance, they are offered any 4 cans of vegetables or they may decide to only
take one can this month, because they have plenty at home.
Judy states they have a basic number of items that everyone receives, the
number of items increases depending on the number of people in the family.
"We have a small table in the middle of the pantry where chosen food is placed.
The client is provided sacks to bag the groceries. Some older people bring in
their own two wheeled grocery cart, and a volunteer can help them push it
around the pantry to load up with chosen items." continues Judy.
"We do have a small storage area just off our pantry where we keep overflow
items. The shelves are stocked from the storage area as needed."
The choice pantry allows families the dignity of choosing their own food. Since
families choose what they like, they do not throw away good food. The clients do
not take items if they already have them so Judy notes the pantry saves money,
and it complements what the clients may have at home.
With just 10 X 15 feet of
space, Judy Dixon, pantry
coordinator for the Pike
County Outreach Council
of Churches, Inc., of
Waverly, OH, describes
their newly organized
client choice pantry,
“Space is tight, but we
manage!”
How Do We Offer Choice To Clients?
Choice does not mean the pantry doors are swung open and anyone can
take whatever they want. There is still the same limitation of volunteer
time and the amount of food that can be gathered for use in the pantry.
How to set up the pantry and get going with choice is a roadblock to many
pantries. It is often thought that choice will be much more work, more
expensive, and just too much trouble to make the switch. Once observed
in action, however opinions change in a hurry. Here are some nuts and
bolts examples of how to switch to choice.
THE POINT SYSTEM
The Point System is based on what the items would cost if you actually had
to buy them at the local grocery store. Items are colored coded for the
determined point value using inexpensive dot stickers in three different
colors. The point values are listed below



$.50-$1.00
$1.05- $2.00
$2.05- $3.00
1 point
2 points
3 points
Red sticker
Blue sticker
Yellow sticker
Then a total dollar amount for each family is determined by pricing a regular
pyramid food box in amounts that would have been bagged for that size family. If
a regular box of bagged food had a value of $40.00, then the family would be
able to spend 40 points in the pantry.
The point values may vary a little on products such as over-the-counter
medicines or personal care products that would be very expensive to buy. Some
pantries label these products as 1 point items, but set a limit of three to make
sure the bulk of points goes toward food.
Sample posting of a Point System from
the Pike County Outreach Council of
Churches, Inc, of Waverly, OH.
THE POUND SYSTEM
The pound system is very similar to the point method, but instead of price, food is
distributed by calculating the pounds in each food group category.
For example, a family of four would be allowed:
 2 pounds of meat of either fresh or canned, as available.
 1 pound of meat alternates such as peanut butter or eggs or beans.
 5 pounds of veggies and fruits (fresh, frozen or canned).
 4 pounds of bread group items such as cereal, rice, macaroni, or pasta.
 2 pounds from the fats, oils, and sweets group such as cooking oil, sugar,
snack items, sweet drinks, or baking extras such as chocolate chips.
 2 pounds of dairy products such as powdered milk, canned milk, or yogurt
(if available).
 Items that spoil easily such as refrigerated meat, produce, or bread are
given away without counting toward total pounds allowed. This helps to
reduce spoilage and keep dumpster costs down for the pantry.
 The family is allowed their choice of three non-food items such as
personal grooming items, diapers, or over-the-counter medicines. These
items do not count toward the total pounds allowed to the family.
This method allows for seasonal changes in food supply. If for example, meats are in
short supply, determine what each family receives by dividing what you have on hand by
the average number of families you serve. Scale back when necessary. The meat
allotment for this example might drop down to 1/2 pound per family instead of two pounds.
But, since every family will choose different things, you do not have to worry about having
200 containers of peanut butter because you serve 200 families. It is highly unlikely that
every family will want peanut butter.
THE TOTAL NUMBER OF ITEMS METHOD
This is a very easy method for pantries to use when they are first switching over
to choice. Each family is given a total number of items to choose. There are no
constraints except for the available amount of food. For instance, shelf tags may
read "No more than 3 meat items per family" in order to keep enough stock
available for the average number of families served by the pantry.
Here are some average item numbers offered by pantries using the total number
of items method
35 items to small family
50 items to a medium family
75 items to a large family
This method is uncomplicated for volunteers because they only have to count the
total number of items for the client to bag. Although clients have complete
freedom to choose the foods they want, this setting is ideal for volunteers to
provide nutrition education through gentle suggestions of food selection.
Often foods are not chosen because they are not familiar to the client, or they do
not know how to prepare them in a way their family will like. Samples of
prepared foods for tasting along with the recipes are great ways to get people to
try new foods. Most people really enjoy discussing recipes and food preparation.
New volunteers may find this is a great icebreaker or a way to get to know clients
better. Some clients may bring in family favorite recipes to copy and share at the
pantry. Those recipes can showcase both the volunteer and the product by
using samples or taste testing or naming the recipe after the volunteer, i.e.,
"Jenny's green beans".
Other sources for nutrition education include either FNP (Family Nutrition
Program) or EFNEP (the Expanded Food and Nutrition Education Program). An
educator from either program may be able to prepare food for demonstration and
also sign clients up for in-home classes on shopping and budgeting.
If a volunteer prepares food for demonstration, be sure to contact your local
health department for help with food safety issues and regulations.
CHOICE ON PAPER
The last method (and least preferred) method for moving to choice is to give
clients a list of items and let them choose on paper. The volunteer then pulls
these items off the shelf and bags them for the client.
There are several disadvantages to this method, especially if the client has
trouble reading or has English as a second language. Choice is designed to help
with a flow of many different kinds of food. If there is limited selection of items,
the list will surely often be out of date. If the client circles green beans and there
aren't any, then either the volunteer chooses an alternate for the client or extra
time is taken to ask what else they would like. Most people prefer to physically
touch and choose the foods they want rather than pick from a list.
SAMPLE LIST
Bread items
(Circle 3)
Protein items
(Circle 3)
Crackers
Tortillas
Cereal
Rice
Macaroni and Cheese
Chips or Popcorn
Spam
Chicken and noodles
Stew
Tuna
Peanut Butter
Eggs
Canned fruits/vegetables/juices
(Circle 4)
Free items
(Circle 3)
Green Beans
Orange juice
Grape juice
Tomato juice
Tomatoes
Beets
Peaches
Pears
Bread
Cold Medicine
Soap
Sweet or pastry
Snack items
(Diapers, if available)
Easy to read signs ensure that families are careful with limited items.
Client Choice and TEFAP
“How does client choice work when you also give away USDA
commodities?”
The management of TEFAP (The Emergency Food Assistance Program) has
changed in many ways since these programs were started in Indiana. Most
senior citizens of any income level remember the great food give away down at
the local fire station during the 1980's. The food used for this type of mass
distribution has instead evolved into an important food supply for pantries serving
Indiana's poorest families.
Commodity foods previously stood out with a trademark black and white USDA
label. Now producers are using regular food labels on USDA products, making
commodities identical to any other donated foods. The commodity foods should
not be stored separately. The only exception example is listed below:
 The pantry would regularly service people that would not qualify for
TEFAP (this would include those that refuse to sign a self -declaration
form) but would still be serviced by the pantry.
Client choice will also help USDA foods go further in the pantry setting. Many
families will not choose the foods, leaving them for others who do want them. It
is also helpful when very limited quantities of a particular item are available, but
there is not enough to go around for all the families.
Many pantries assign a point value to foods based on cost of the item. USDA
foods are not given a point value, and are given over and above the dollar
amount given to a family when they shop in the food pantry. This makes the
most of USDA items and helps them become a benefit to the client's choice of
foods.
How Does Choice Help The Client?
First and foremost, choice creates an atmosphere of dignity for the client.
Whether the trip to the pantry is a once a year or once a week occurrence, there
are food supply issues in the family. This most basic of needs causes worry and
embarrassment that can either be magnified or minimized depending on the style
of pantry operation.
Individuals visiting a food pantry generally have little choice in many areas of
their life. Housing, transportation, clothing, and especially donated foods leave
little to the imagination. Add to this situation public criticism about using food
stamps to buy snack items or a birthday cake or the notion that everyone at a
pantry should be happy with a box of powdered milk for their children to drink.
How easy it is to create a little joy and self-confidence in the ability to choose
one's own foods by using a choice pantry.
Choice pantry shopping has the unique ability to create a practice shopping
experience for the client. Many people of all income levels waste precious food
dollars by not knowing how to comparison-shop. Even though the client is not
using actual dollars, he is using points, pounds, or items, and must budget them
in the same way as money. This allows the experience of choosing or putting
back selected items on the shelf, because it does not fit in the shopping budget.
This experience can translate to better use of money or food stamps in the
grocery store.
Allowing free access to food through the food pantry gives the client another type
of skill for choosing foods that complement those foods already at home. For
example, given choice, the client may think, "I already have a jar of spaghetti
sauce at home so I will pick a box of spaghetti to go with it." In a pre-prepared
sack, the bread item may have been oatmeal or cereal that the client did not
need nor want. The planning process to make the most of what you have at
home does not happen when you are not given a choice.
Having a steady food supply may help to control binge eating. This type of
behavior may take place when there are food insecurity problems in the
household, leading to overweight and obesity. If a family doesn’t know where
and when their next meal will come, they may overeat when food is available. If
families know that the pantry is always available, it may help them curtail this
survivor eating pattern.
Using a choice pantry gives the client a chance to try new foods without worry of
wasting money. They may not have tasted such foods as asparagus, pumpkin,
wheat crackers or soymilk. Shoppers with limited resources are reluctant to try
these new foods for fear their family won't like them, and feel they have thrown
money away.
Concerns About Keeping the Pantry Shelves Stocked
“What if we are giving away too much food too fast? We may run out and
not have enough food for all our clients.”
Generally speaking, pantry organizers love well-stocked shelves and constantly worry
about having enough food to cover the days when the pantry is open. If you are making
the change to a choice pantry, controlling the flow of the food supply is probably
uppermost in your mind. Free choice does not mean emptying out your shelves with
every food basket day. In fact, most pantry operators have found that choice does not
affect their budget or food supply at all. That is because they do not have to worry about
running to the grocery store and paying retail to buy those identical items for every
person.
The client choice pantry shelf above shows that client choice does not mean emptying out
your shelves with every food basket day. Most pantry operators have found that choice does
not negatively influence their budget or food supply. Much of this is due to not having to
worry about running to the grocery store and paying retail to buy those identical items for
every person’s pre-bagged sack. As nice as full shelves look, remember that food on the
shelves can not feed the hungry.
By tracking both the average number of clients and the average donated amount
of a given food (for example, meat products), you can easily determine the
amount each family can choose, e.g., a family of four can choose four meat or
meat alternates of their choice.
Another decision is whether to open your doors on the days you would have
normally had volunteers work to make up food bags. The additional day will help
the client flow so there won't be a huge crush of people on any one day. It will
also give the pantry a more relaxed atmosphere where there is time for the
clients to choose their foods without feeling rushed. More importantly, there will
be time for the volunteers to interact with clients on a more personal level,
establish relationships, and squeeze in a little nutrition education with casual
conversation.
Seniors and Choice
“Is there anything special we can do for seniors using choice?”
If you ask the average person on the street "Who do you think uses food
pantries?" the reply will most likely be "Welfare Moms who are not married with
lots of children". On the contrary, seniors are now the most likely group to use
pantries. Most pantries report over 30% of the users to be seniors (mainly older
women who have become widowed) and this follows the most recent population
counts that show seniors will soon be the largest demographic group in the
nation.
Other seniors using pantries are those assuming the financial responsibility for
their grandchildren. States one grandmother from Indianapolis, "I make $7.00 an
hour, and with all my bills and my car payments and food and clothes and
babysitter for my 2 young grandkids, and because I can't get food stamps, I
go to the food pantry."
Seniors may need some special consideration when planning a choice pantry. A
choice pantry can be especially helpful to someone trying to plan a special diet
around high blood pressure, cholesterol issues, or diabetes. In addition, extra
thought may need to go into the physical space at the pantry to make allowances
for physical impairments brought about by aging. Here are some examples of
typical problems:
 Items are placed too high on shelves for someone with limited range of
arm motion.
 Items are placed too low for someone with back problems or balance
issues.
 Baskets or carts may be needed, or at least a table to set items on while
choosing grocery selections.
 Special tools such as a grab claw may be useful for items placed high on
shelves.
 Frozen items may be preferred over canned items due to high sodium
content of canned items, and ease of opening the container. (Joint and
hand problems due to arthritis may make using a can opener difficult.)
 Frozen items also allow less food waste for a person living alone as a
single serving can be taken out of the package and the rest returned to the
freezer.
Seniors may need assistance to their car or just walking around the pantry.
 Single serving containers are preferred whenever possible to help prevent
food waste.
So many older Americans struggle monthly to make ends meet. States a woman
over age 65 years from Lafayette, Indiana, "Because we don't have the
money… food prices have gone up and the food pantry food is nice". Other
considerations for seniors struggling with finances include:
 Offering personal care products at no additional points such as denture
cleaner or hair-care products.
 Pet foods should be offered if at all possible since many seniors who live
alone will sacrifice valuable food dollars at the grocery store to make sure
a beloved pet receives the food it needs.
 Offering some over the counter medicines at one or no points to help
conserve grocery dollars for food.
Provide information to seniors at pantry sites about hot meal sites for seniors,
home delivered meals, and free or reduced priced prescription drug programs.
These are all excellent opportunities for the pantry volunteers to interact with the
seniors visiting the food pantry and form lasting relationships with the clients
while making a real difference in the quality of their lives.
Offering personal care items and over-the-counter medicines at no points for
seniors.
 Volunteers who make deliveries can easily have an extra box or cooler
along with alternate foods to quickly trade apple sauce for peaches, green
beans for corn, or a different canned meat. These small changes can
really boost the nutrition for an older person whose appetite is lagging or
certain foods do not taste good to them. It is best to carry along the extra
foods rather than try a paper and pencil method. Seniors, like most of us,
enjoy the ability to choose among actual foods.
Conclusion
After looking over all the issues connected with choice and reading about how other
pantries have solved their problems, perhaps you have gained some insight on how to
either make the change to choice or how to refine your existing operation to run more
smoothly. With a little effort, your pantry can be part of the solution of how to feed the
hungry and at the same time restore dignity to the human condition.
Highlighted Agencies
1.
2.
3.
4.
5.
6.
St. Vincent de Paul Client Choice Pantry, Indianapolis, Indiana
Brady Lane Church of Christ Food Pantry, Lafayette, Indiana
Forrest Manor Multi-Service Center Food Pantry, Indianapolis, Indiana
La Casa de Amsted Youth Community Center, South Bend, Indiana
Mother Hubbard's Cupboard, Bloomington, Indiana
Pike County Outreach Council of Churches, Waverly, Ohio
Section 11
PROHIBITED ACTIVITIES
SALE OF FOOD PRODUCTS
USDA requires agencies to give food products to eligible households at no charge.
Selling food products or trading food products for services is strictly prohibited.
Violators are subject to Federal and /or State prosecution.
POLITICAL ACTIVITY
Political activity in any form is prohibited during commodity distribution. Candidates
may not make political appearances during hours of operation or when recipients are at
the food outlet. Campaign literature and signs must not evident. Bags or boxes
advertising candidates or political causes may not be used to carry food products and staff
may not wear buttons or politically inspired apparel.
SOLICITATION AND MEMBERSHIP REQUIRED
Clients may not be solicited for contributions and may not be required to attend,
participate or join the organization distributing the food. Eligibility is based solely on
income eligibility and state residency.
FOOD PRODUCTS AS COMPENSATION
Volunteers and staff are entitled to USDA products only if they meet income eligibility
requirements. Eligible volunteers and staff may not be given extra food to encourage
their help. Issue rates established by the food outlet must not be exceeded.
DISCRIMINATION
Discrimination is prohibited. The “And Justice for All” poster must be posted in clear
view of all TEFAP clients. Reports of alleged discrimination should be mailed to the
USDA address listed on the poster. Grant Services may be assigned to investigate such
allegations on behalf of USDA.
AMERICANS DISABILITIES ACT
The potential impact the Americans with Disabilities Act (ADA) may have on not-forprofit organizations has been a concern for many agencies. Homeless shelters, soup
kitchens and food pantries are covered under Title III of the ADA as “places of public
accommodation” that lease or occupy donated space from a religious organization remain
subject to ADA. Accordingly, a distribution site that occupies leased or donated space in
a church, synagogue or temple or facilities owned by a church, synagogue or temple is
subject to the ADA and Section 504 of the Rehabilitation Act of 1973.
Removal of architectural and structural barriers such as stairs or narrow doorways in
existing buildings is required when such removal is “readily achievable”, that is when the
modifications can be easily accomplished without great difficulty or expense. A variety
of factors are considered in making this determination, including the overall financial
resources of the organization and the extent of the action required. Also included is the
impact of the action on the continued operation of the facility.
If the expense of removing the structural barriers will prove too costly for the distribution
site, other ways to comply with ADA still exist. The installation of a buzzer or intercom
at a stairway would still allow the client access to the services of the site. The
recruitment of additional volunteers to provide home delivery through use of the proxy
system is acceptable. The “readily achievable” removal of barriers might include
installing grab bars, ramping a few steps, adding Braille marking to existing signs,
rearranging tables or chairs, and making other modest adjustments.
All of the above can be accomplished with little or no expense to the site. The primary
goal should be allow access to the services provided by the site if access to the facilities
cannot be achieved. For information regarding a survey of your facilities and what could
be done to make a site more accessible, contact the Disability and Business Center at 1800-949-4ADA.
Section 12
RECORDS AND REPORTS
RA REPORTS TO GRANT SERVICES
The RA is responsible for reporting to Grant Services distribution activities. The
Distribution Workbook should be emailed as soon as allocations are finalized. Copies of
all delivery receipts must be mailed as soon as possible. The Inventory Workbook if
generated is due no later then the 8th of every month via E-Mail until all USDA foods are
allocated and in the possession of the food outlets.
All expenditures of TEFAP grant funds must be approved by Grant Services prior to
reimbursement. Budgets are no longer required. A claim must be submitted for $.25 per
pound of USDA food products distributed. The form listing each county must show the
individual expense per county in the RAs service area.
Failure to submit accurate and timely program and/or financial reports (including the
Financial Close Out for each fiscal year) may result in the withholding of USDA food
products and/or TEFAP grant funds. The Financial CloseOut is due 60 days from the end
of the fiscal year (September 30).
DISTRIBUTION SITE REPORTS TO THE RAs
Food outlets are responsible for reporting to the RA the number of households and meals
served each month. The individual food outlets must keep the completed client signature
sheets so that the RA, State Auditors, or Grant Services can review these items. It is the
decision of the RA where the household counts are stored for three years plus the current
year.
RETENTION OF RECORDS
All records must be kept for three (3) years from the close of the federal fiscal year to
which they pertain and the current year. The RA is responsible for the proper
maintenance and retention of all records required of the food outlets Records must be
available for inspection by USDA, Grant Services and/or their designees. Food pantries
may store only the Eligibility Certificates and the RA can store the Inventory Reports.