Emergency Support Function #11 Food Annex
In PDF format
||Department of Agriculture, Food and Nutrition Service
||Department of Defense
||Department of Health and Human Services
||American Red Cross
||Environmental Protection Agency
||Federal Emergency Management Agency
||General Services Administration
Updated: June 3, 1999
Emergency Support Function (ESF) #11 — Food identifies, secures, and arranges
for the transportation of food assistance to affected areas following a
major disaster or emergency or other event requiring Federal response.
To accomplish this function, activities will be undertaken to identify
food assistance needs in the aftermath of a major disaster or emergency.
These activities will include coordinating with State, local, and voluntary
organizations to determine food assistance needs; obtaining appropriate
food supplies; arranging for transportation of those food supplies to designated
staging areas within the disaster area; and authorizing disaster food stamp
- ESF #11 will be activated upon notification of occurrence of a potential
or actual major disaster or emergency.
- Actions undertaken by ESF #11 will be guided by and coordinated with
State and local disaster officials.
- Food supplies secured and delivered by ESF #11 will be suitable for either
household distribution or congregate meal service as appropriate.
- Transportation and distribution of food supplies within the affected
area will be arranged by Federal, State, local, and voluntary organizations.
- ESF #11 will coordinate with, and support as appropriate, agencies responsible
for ESF #6 — Mass Care involved in mass feeding.
- ESF #11 will encourage the use of congregate feeding arrangements as
the primary outlet for disaster food supplies.
- Priority will be given to moving critical supplies of food into areas
of acute need and then to areas of moderate need.
- ESF #11, upon notification that commercial channels of trade have been
restored, may authorize the use of disaster food stamp program procedures.
- Disaster Condition
A significant disaster or emergency may deprive substantial numbers of
people access to food or the means to prepare food. In addition to
substantial disruption to the commercial food supply and distribution network,
a major disaster may destroy, partially or totally, food products stored
in the affected area.
- Planning Assumptions
- Approval of requests from the Governor or disaster relief organizations
for release of State-controlled food may be given by telephone, radio,
or written communications, depending on circumstances, within 12 hours
of the disaster or emergency.
- Within the disaster area, the following conditions will exist:
- Fifty percent of the food processing and distribution capabilities
- Seventy-five percent of the water supply is unusable, requiring juices
or potable water supplies to be made available to the affected population.
(Note: Potable water will be supplied by ESF
#3 — Public Works and Engineering.); and
- There is a near-total disruption of energy sources (e.g., electricity
and gas). The only sources available are oil for generators and
propane tanks. Most commercial cold storage and freezer facilities
- On the fringes of the geographic areas affected will be schools and
small institutions having large inventories estimated to be sufficient
to feed up to 10,000 people for 3 days and supply their fluid needs for
1 day (i.e., a minimum of 1,800 calories and 3 gallons of liquid per day
- Concept of Operations
- Under the general coordination of the Food and Nutrition Service’s
(FNS’s) Disaster Task Force, ESF #11 will operate under existing Department
of Agriculture (USDA) authorities and regulations, as well as the Stafford
Act, to provide disaster food supplies to designated disaster staging
areas and/or authorize the issuance of disaster food stamps.
- At all times, requests for food, including types, amounts, and destination
locations, will be processed through FNS’s Disaster Task Force.
It is expected that the regional level of the Disaster Task Force will
be the point of contact for all State-initiated requests for food assistance.
- After initial State food assistance requests are forwarded to the ESF,
the Disaster Task Force will coordinate efforts to obtain and transport
foods and/or authorize disaster food stamps. During the first 72
hours following a notification of a major disaster or emergency, this
ESF will be staffed at least in FNS Headquarters and affected regional
offices around the clock. After this time, continuation of 24-hour
operations will be reconsidered by the Administrator of FNS and the FNS
Disaster Coordinator, who is the official point of contact within the
FNS Disaster Task Force for any matter pertaining to ESF #11.
- National-Level Response Support Structure
At the national level, FNS’s Disaster Task Force will assume primary responsibility
for all ESF activity. Since each support agency will be represented
on the Emergency Support Team at the Federal Emergency Management Agency
(FEMA) Headquarters and the Emergency Response Team at the Disaster Field
Office (DFO), the FNS Disaster Coordinator will maintain 24-hour contact
with those representatives as necessary at those locations for the duration
of the emergency response period. Support agency representatives will
have sufficient knowledge of the capabilities and resources of their agencies,
with appropriate authorities to commit resources to the response effort.
- Regional-Level Response Structure
- The FNS Regional Disaster Coordinator is the point of contact within
the Regional Office and will represent this ESF in its dealings with
the Federal Coordinating Officer.
- The regional level of the Disaster Task Force will have a representative
present or available for duty at the DFO on a 24-hour basis for the
duration of the emergency response period.
- The FEMA National Emergency Coordination Center will notify the USDA
Emergency Coordinator of implementation of the Federal Response Plan.
USDA then will notify the FNS Disaster Coordinator. The FNS Disaster
Coordinator will notify appropriate headquarters officials, regional office(s),
and ESF support agencies.
- The Disaster Coordinator will attend any meeting of the Catastrophic
Disaster Response Group (CDRG) and be available as necessary for the duration
of the initial response period.
- Response Actions
- Initial Actions
- Determine the critical needs of the affected population in terms
of numbers of people, their location, and usable food preparation facilities
for congregate feeding;
- Catalog available resources of food, transportation, equipment, storage,
and distribution facilities and be able to locate these resources geographically;
- Evaluate the adequacy of available resources relative to need on
a geographical basis;
- Ensure that all identified USDA food is fit for human consumption;
- Coordinate shipment of USDA food to staging areas within the disaster
- Initiate direct market procurement of critical food supplies not
available from existing inventories.
- Continuing Actions
- Expedite requests, if any, for emergency issuance of food stamps
after access to commercial food channels has been restored;
- Establish logistical links with organizations involved in long-term
congregate meal services; and
- Establish need for and effect replacement of food products transferred
from existing FNS program inventories.
- Primary Agency: Department of
- Determine the availability of USDA foods, including raw agricultural
commodities (wheat, corn, oats, rice, etc.) that could be used for human
consumption; assess damage to food supplies;
- Coordinate with State officials to determine food needs of the population
in the affected areas based on the following categories: acutely deficient,
moderately deficient, self-sufficient, and surplus supplies;
- At the discretion of the Secretary of Agriculture, and upon request
by the State, approve emergency issuance of food stamps for up to 30 days
to qualifying households within the affected area;
- At the discretion of the Secretary of Agriculture, make emergency food
supplies available to households for take-home consumption in lieu of
food stamps for qualifying households;
- Provide damage information to ESF #5 — Information
and Planning on a regular basis;
- Develop a plan of operation that will ensure timely distribution of
food in good condition to the proper location; and
- Ensure that the appropriate officials establish and maintain an information
flow to the national-level ESF. These designees will ensure that
requirements for food assistance are known and accomplished.
- Support Agencies
All agencies included in support roles are necessary to ensure that all
Federal sources of food are included, along with agencies necessary to ensure
logistical support and determine that the food is not a health hazard.
- Department of Defense
- Assess the availability of Department of Defense (DOD) food supplies
and storage facilities capable of storing dry, chilled, and frozen food;
- Assess the availability of DOD transportation equipment, material
handling equipment, and personnel for support. This responsibility
will be confined to the posts, camps, and stations within or adjacent
to the disaster area; and
- Arrange for the delivery and distribution of resources identified
in B.1.a and b to areas designated by the ESF.
- Department of Health and Human Services
- Determine which foods are fit for human consumption and identify
potential problems of contaminated foods (e.g., radiation, chemical,
bacterial, and viral); and
- Provide health education in the areas of food preparation and storage.
- American Red Cross
- Identify and assess the requirements for food and distribution services
on a two-phase basis: critical emergency needs immediately after the
disaster, and longer- term sustained needs after the emergency phase
is over; and
- Coordinate the food distribution efforts of other voluntary organizations.
- Environmental Protection Agency
Assist with determining the suitability of food resources for human consumption
and identify potential hazardous materials impacts on the food supply.
- Federal Emergency Management Agency
Provide demographic information about the disaster area and information
on State, local, and private sources of food. This information will
assist the ESF in determining types and quantities of food that FNS will
need to provide.
- General Services Administration
Lend support to FNS for any necessary procurement efforts to meet the needs
of the affected population.
- Resource Requirements
- Transportation Resources
Truck, rail, air, and sea resources for the transportation of food, including
refrigeration and cold storage capacity.
- Food Resources
- Food supplies in Federal, State, and local government-owned storage
- Food supplies available for immediate procurement.
- Mobilization/Staging Areas
Facilities and personnel to offload, store, allocate, and reload for shipments
to food preparation/distribution sites within the disaster area.
- 7 CFR 250, Food Distribution Regulations.
- 7 CFR 280, Food Stamp Regulations.
- FNS Instruction 708-2, Emergency Food Assistance.
- FNS Instruction 708-5, Disruption of Commercial Channels of Food Distribution
in Disaster Areas.
- FNS Instruction 708-6, Definition of Disaster Organizations.
- FNS Notice 86-43, FNS Disaster Task Forces.
- Terms and Definitions
Food and Nutrition Service (FNS) Disaster Task Force
The Food Security Act of 1985 (Public Law 99-198) requires the Secretary of
Agriculture to establish a Disaster Task Force to assist States in implementing
and operating various disaster food programs. The FNS Disaster Task Force
coordinates the FNS overall response to disasters and emergencies. It
operates under the general direction of the Administrator of FNS. The
FNS Disaster Task Force consists of the Administrator, Associate Administrator,
Disaster Coordinator, Deputy Administrator for Management, Deputy Administrator
for Governmental Affairs and Public Information, representatives from the food
stamp and special nutrition programs, and representatives from regional office(s)
affected by the disaster.
The FNS Disaster Task Force expedites approval of disaster designation requests
and policy clarifications. It also maintains liaison with FEMA Headquarters.