Food Stamp Disaster Manual FSDM

II. DISASTER PREPARATION

PART II: DISASTER PREPARATION

Change #1-2009

October 1, 2009

II. DISASTER PREPARATION

The preparation phase is an ongoing process that continues until a disaster is imminent or when all or part of a county is adversely affected by a disaster.

A. Definition of a Disaster

A disaster is the occurrence of a storm, hurricane, fire, flood, or other catastrophe in which conditions are severe enough to:

1. Affect households to the degree that the ongoing Food and Nutrition Services Program is unable to respond to temporary food needs; and

2. Disrupt the commercial channel of food distribution.

NOTE: A Presidential Disaster Declaration does not automatically authorize a Disaster Food and Nutrition Services Program.

B. Disaster Feeding Options

When a disaster strikes and food assistance is needed, the United States Department of Agriculture (USDA) has three disaster feeding options:

1. Mass Feeding, also known as Congregate Feeding Sites;

2. Distribution of commodities; or

3. A Disaster Food and Nutrition Services Program.

NOTE: The term “Disaster Food and Nutrition Services Program” will be used throughout this guide when collectively referring to Disaster or Modified Food and Nutrition Services Programs.

C. Evaluating the Need for a Disaster Food and Nutrition Services Program

The State Division of Social Services, in cooperation with local departments of social services, will consider the following criteria when evaluating whether to operate a Disaster Food and Nutrition Services Program.

1. Is commercial food distribution affected by the disaster?

If yes, continue the evaluation – go to question #2.

If no, a Disaster Program cannot be operated.

2. Does the ongoing Food and Nutrition Services Program meet the need for food assistance?

If yes, consider requesting a waiver from USDA to extend the time frame for replacement of benefits to cover food lost due to the disaster.

If no, continue evaluation – go to question #3.

3. Are retail food stores operational? Will households be able to use an EBT card?

If yes, apply for a Disaster Food and Nutrition Services Program.

If no, consider congregate feeding sites or commodities distribution until stores are operational. Then apply for a Disaster Food and Nutrition Services Program.

D. Disaster Food and Nutrition Services Benefits

Disaster Food and Nutrition Services benefits are very beneficial to families adversely affected by a disaster. In order to receive Disaster Food and Nutrition Services benefits, applicant households must have been adversely affected by the disaster that occurred. Examples of adverse effects may include, but are not limited to, loss of income, loss of food, disaster-related expenses, and/or the limited availability of cash to meet the needs of the family.

E. Application and EBT Card Issuance Time Frames

The operation of a Disaster Food and Nutrition Services Program requires the taking and processing of applications and the issuance of EBT cards on consecutive days. The number of days applications are taken is determined by the size and scope of the disaster and may range from three to seven days. Disaster applications must be processed and allotments made available the same day when possible. This timeframe is usually determined by USDA.

F. EBT Card Issuance

Preparation for EBT card delivery must take place prior to a disaster. County departments of social services must make prior arrangements for the secure storage and delivery of EBT cards. Counties must arrange for secure storage at or nearby the EBT card issuance site(s) so that the movement of EBT cards is minimized. Security for EBT card issuance staff and EBT cards must also be addressed during business hours.

When a disaster occurs and preparation for operating a Disaster Food and Nutrition Services Program takes place, the Economic and Family Services Section will arrange EBT card delivery to a designated location within the affected counties. The Economic and Family Services Section and counties will determine the number of cards needed per county. EBT cards marked “DISASTER FOOD STAMP CARD,” PIN mailers, and training materials will be delivered to specified counties that may operate a Disaster Food and Nutrition Services Program.

EBT cards will be packaged in boxes containing 500 cards each. Counties may receive cards packaged in boxes containing 250 cards each. The dimensions of each box are 45”X10”X4.5.” Boxes of PIN mailers that correspond to the EBT card boxes will be delivered with the cards. The PIN mailer boxes are 4.25”X9.25”X4.25” in dimension. It is important to note the size of these boxes when planning an appropriate storage facility. All boxes will be clearly marked so EBT cards and PIN mailers can be matched by their identifying numbers. Each box will also contain a manifest. The county DSS must keep accurate records of EBT card receipt and delivery. The applicant must sign and date the manifest upon receipt of the EBT card. The employee who issues the EBT card must also sign and date the manifest.

NOTE: Only full boxes of EBT cards and PIN mailers can be returned to the State Office. Partial boxes of EBT cards and PIN mailers cannot be returned to the State Office, and the county is responsible for providing a secure storage area for those partial boxes. This should be considered when determining how many boxes of EBT cards to use during card distribution. Counties are not billed for EBT cards until an EBT account is created. At that point, charges are incurred per case per month. Partial boxes of EBT cards and PIN mailers can be destroyed by the county. DSS-8602, Disaster Electronic Benefit Transfer Card Destruction, must be completed and returned to the state office when EBT cards are destroyed.

Prior to operating a Disaster Food and Nutrition Services Program, the SLUI Screen in FSIS will be modified to enter the State Unique Identifier (SUI) and PAN number when approving a disaster application. County agencies will need to develop procedures for ensuring that the correct SUI and PAN numbers are entered in FSIS for the corresponding application, as this is how benefits are linked to the EBT card.

It is recommended that an individual take their application to a designated site to pick up their EBT card. The section of the PIN mailer that contains the SUI and PAN numbers should be stapled to the individual’s application when the EBT card is issued. This will assist staff with keying the SUI and PAN numbers correctly.

NOTE: In an effort to ensure that EBT cards and benefits are delivered as quickly as possible, all applicants will receive an EBT card. Applicants must be informed that benefits will not be available on the EBT card until the application is approved. Applicants should wait until the following business day before attempting to use their EBT card. Individuals whose applications are denied will not have any benefits placed on their EBT cards. FSIS will generate approval and denial notices that will be mailed to applicants.

G. County Staffing

Each county director or his/her designee identifies a contact person and backup for both policy and EBT issues. Their names and home telephone numbers are sent to the Division of Social Services where a list for all counties is maintained. This list is updated annually and as changes occur.

The county director/designee also coordinates disaster response within his/her county. This response includes assignment of county staff to work in:

• Shelter operations (where appropriate); and

• The Disaster Food and Nutrition Services Program and other relief programs the agency is assigned to administer.

Temporary assignments to assist in disaster activities in affected counties may be made from the following personnel sources:

• Division of Social Services;

• Surrounding unaffected counties within commuting distance; and

• Unaffected counties around the State.

Each county director/designee maintains a list of employees who volunteer to assist in other counties and a list of employees who volunteer to house employees from other counties. Procedures outlining how out-of-county employees are paid must be established, and employees should be advised of the procedure prior to beginning their disaster work assignment.

Counties can also send applications to other counties to be keyed. Affected counties must contact the State Office prior to sending applications to other counties for keying.

H. Economic and Family Services Section Staffing – Central Office

The Economic and Family Services Section ensures adequate staff to:

1. Provide the format for and collect data pertaining to damage assessment;

2. Complete the application process for the operation of a Disaster Food and Nutrition Services Program;

3. Provide a Policy Help Desk to answer questions from counties, citizens, etc., during the application process;

4. Provide policy, applications and handouts for the application process;

5. Maintain daily contact with USDA;

6. Provide daily reports to USDA;

7. Request updated information regarding contact persons, backups, and telephone numbers annually; and

8. Provide staff for the Division’s Emergency Command Center (ECC) to:

a. Answer questions from affected counties;

b. Secure and arrange supplies;

c. Collect data for daily reports to Food and Nutrition Services (FNS); and

d. Apprise affected counties of new information regarding the application process, etc.

I. Economic and Family Services - Local Support and Other Division Staff

Economic and Family Services Local Support staff and other Division staff, if needed, will be available to:

1. Maintain constant contact with affected counties;

2. Provide training to local agencies regarding the Disaster Food and Nutrition Services Program application process;

3. Maintain daily contact with the ECC to secure information, ask questions, and provide data relating to certification, issuance, and supplies;

4. Supervise the Disaster Food and Nutrition Services Program application process at the local level if needed; and

5. Provide assistance in updating the county contact roster annually and as changes occur.

J. Training

In a joint effort, county and State staff should work together to ensure that county staff is trained to the greatest extent possible on the following topics:

Topic	Specific Issues
Disaster Food and Nutrition Services Program Policy	How eligibility, verification, and issuance for the regular program differ from the Disaster Food and Nutrition Services Program.
Fraud Prevention and Program Integrity	Formal fraud control measures in place; fraud control strategies; duplicate participation checks; and special procedures for staff applications.
Public Relations	Who is authorized to issue statements?
Personnel Matters	Transportation to sites, hours, breaks, pay, safety, and stress issues for workers, and tips on communicating with disaster victims.

K. Selecting Application Sites

The county director of social services, with input from the Division of Social Services, must decide the number and location of Disaster Food and Nutrition Services application sites. The chosen site(s) must be logistically sufficient. The size of the building, security, and accessibility are factors that must be explored when choosing a location.

In any disaster, the county director of social services/designee works with the county emergency management center in determining needs and obtaining necessary supplies. County emergency management staff works with state emergency management staff who can in turn request assistance from FEMA in obtaining needed supplies. Areas for consideration are:

1. Crowd Control Issues;

2. Portable Toilets;

3. Ice and Water;

4. Emergency Generators; and

5. Shelter.

The factors in the following table should be considered when determining the number and placement of application sites.

Factor	Examples
Are public transportation and/or adequate parking available?	Shuttle service from other location(s), parking, possibly limited to handicap vehicles, large conference center type facility.
Is site accessible to trucks or other large vehicles?	Sanitation, medical services, delivery of food, water, supplies, etc.
Is space/facility adequate to address human comfort concerns?	Protection from the elements, space for portable toilets, food/water tent, etc.

Factor	Examples
Are facilities accessible to the elderly and disabled, or can they be made more accessible?	Wheelchair ramps, bathroom facilities, separate location/room for elderly and disabled, ample seating.
Are sites accessible to all affected segments of the community?	Sites spread geographically over the area, large centrally-located stadium with easy access, mobile vans for elderly/disabled centers.
Is adequate power available?	Electricity, generators, fuel.

NOTE: The local county director of social services should always consult with the State DSS when an application site will be located in a facility other than the normal place of business.

L. Disaster Operations Checklist

There are several areas of concern when preparing to operate a Disaster Food and Nutrition Services Program. Several of those concerns/issues are addressed in the following checklist.

1. Is application site logistically sufficient - size of building, security, and accessibility?

2. Is site well equipped with supplies – applications, eligibility checklists, worksheets, desktop supplies, handouts, telephones, copy and fax machines, etc.?

3. Is adequate staff available to handle crowd control, application taking, and processing?

4. Is bilingual staff available if needed?

5. Are human needs being met? Are the following available: water and cups, portable toilets, shaded areas for sunny weather, places for disabled/elderly to sit, and medical assistance if needed?

6. Has the public been informed of the following: site locations, hours of operation, eligibility information, and what to expect during the application process? Were appropriate press releases issued?

7. Is the issuance site a secure location?

8. Are there security personnel assigned to the issuance site?

9. Will the layout of the issuance area allow for proper traffic flow?

10. Are EBT cards, PIN mailers, and manifests being kept in a secure location when not in use?

11. Are EBT cards, PIN mailers, and manifests being kept out of the sight of applicants?

12. Are procedures in place for taking and processing employee applications?

M. Site Layout

The county director of social services/designee must immediately establish the layout of the application site and traffic flow through the facility. Develop a flow chart identifying the layout and traffic flow through the site and use it while setting up and managing the site. A flow chart will assist in spotting potential bottlenecks and other trouble spots, as well as identifying staffing, security, supply, and other administrative needs.

NOTE: Consult with police or other security personnel in developing or making changes to the layout and traffic flow within the site. In previous disasters, the layout of the application site, including the location of portable toilets, has been an issue because of reports of threatened robberies or violence.

Some suggested aids to address the layout and traffic flow issues are listed in the following table.

Use...	Example(s)
Ropes and Barriers	• Establish lines • Block or limit access to secure areas • Direct traffic flow through site
Signs	• IN/OUT • “There is a three-hour wait from here. Applications will be taken at this site until 7:00 p.m. every day through Friday.”
Checkpoints	• Set-up just outside the facility to provide applicants with a number giving the order they will be seen and to control who comes into the site. • Monitor applicants before they enter interview area ensuring the application is complete and maximize confidentiality of interviews.

N. Disaster Food and Nutrition Services Planning and Implementation

The following list includes several items that should be addressed prior to a disaster. This list can serve as a guide to help your agency stay prepared for a disaster throughout the year. Several of the items included can be stored indefinitely in a secure location. It is recommended that your agency prepare a “Disaster Kit” for use should a disaster strike.

1. Supplies Needed for Taking Applications

a. General office supplies (staplers, pens, etc.).

b. Laptop computer and power source. Secure at least two battery packs.

c. Cellular phones if away from normal communications resources.

d. Copy machine, toner, and paper if using a facility other than DSS building.

e. Forms:

• DSS-1432 - Disaster Application

• Desk Reference Guide for the application

• DSS 8650 - Notice of Information Needed to Complete Your Application

• DSS 1688 - Authorized Representative Form

f. Handouts: EBT tip cards, EBT Handbooks in Spanish and English

g. Designate a County Contact Person. This person will receive information from the State Office and relay information to county staff. This person will also provide information to the State Office upon request, i.e., the number of applications taken each day.

2. Facilities to Consider Using for a Disaster Food and Nutrition Services Program

Consider whether the facility chosen has adequate parking, restrooms, telephones, tables, chairs, etc. Consider whether waiting applicants may be subjected to inclement weather conditions. If the disaster is pending, select an alternate site in case the primary site is unavailable for any reason. The following sites may be considered:

a. DSS;

b. Schools;

c. Churches;

d. Fire departments;

e. Community colleges;

f. Other county buildings;

g. Vacant storefront buildings; and

h. National Guard Armories.

3. Crowd Control Strategies

a. Utilize DSS staff;

b. National Guard personnel;

c. DSS agency security officers;

d. Police or deputy sheriffs if available; and

e. Determine how to provide special accommodations for elderly, handicapped, and sick applicants.

4. Procedures for Serving Large Numbers of Applicants Timely

a. Conduct group interviews. Assign staff to screen each completed application before the client leaves;

b. Train and use staff from other DSS units to interview applicants; and

c. Assign staff to orally present rights and responsibilities, penalty warning, and clarify basic eligibility requirements to applicants while they are waiting to be seen.

5. Divide Staff by Teams, Expertise, or Duties to Cover All Tasks Required

a. Divide staff to teams and assign a team leader to each group. Assign teams to:

• Log and screen applicants;

• Distribute informational pamphlets/brochures;

• Conduct interviews;

• Research and assign ID numbers;

• Process applications;

• Match up verifications received with pending applications;

• Key completed applications in FSIS;

• Set up and maintain files for each application;

• Distribute EBT cards; and

• Man telephones to receive disaster calls and questions about applications.

b. Contact the State Office to get assistance from other counties if needed. Be prepared to specify the type of workers needed and what their job will be.

6. Announcing the Availability of the Disaster Food and Nutrition Services Program

a. Local radio stations;

b. Local newspaper;

c. Director or County Manager communicate disaster program to the news media using press release information provided by the State Office; and

d. Produce and distribute flyers upon notification that you are a disaster county. Distribute in places that potential applicants may visit or will see and pick up a flyer, including grocery stores, courthouse, churches, laundromats, shelters, etc.

NOTE: The State’s Public Affairs Office will also issue press releases and be available to counties if needed.

7. Security Considerations for EBT Card Distribution

a. Identify secure storage site for EBT cards;

b. Prepare to have security personnel available to safeguard EBT cards during distribution; and

c. Allocate at least two persons to man EBT card distribution area at all times.

8. Providing EBT training:

Distribute EBT training materials when EBT cards and PIN mailers are issued. The training materials include EBT tip cards and EBT handbooks.

9. Record Keeping, Filing Systems, and Tracking Applications

a. Decide whether to track applications by head of household name, SSN, FSIS case number, date of application, or other criteria. Remember that staff will need to locate cases for many reasons during and after the disaster; therefore, keeping disaster applications separate from the Regular Food and Nutrition Services record is advisable.

b. Maintain a manual log of each applicant for disaster benefits. Keep a central log or have each interviewer maintain and submit a log each day. If courtesy applications are received from other counties, keep a separate log of courtesy applications received.

c. If applications go out to another county for keying, maintain a list or photocopy the front page of each application in order to track their location and ensure that all are returned.

d. Key completed applications in order based on the date of application. This helps track multiple applications made by the same household, especially if there are several application sites. This will also allow benefits to be placed in EBT accounts as timely as possible. Since the client will have the EBT card in his/her possession, this should reduce client benefit inquiries to DSS and Citibank.

e. Track separately Applications Pending Information. Assign staff to monitor verifications received and ensure that information is matched with its application. Keep in mind that this is a Disaster Food and Nutrition Services Program and normal verification procedures are often waived. A DSS Administrative Letter will always be issued with specific instructions for each disaster.

10. Using Reports Received/Disseminating Information

a. Consider placing daily reports identifying approved/denied applications in a specific area for easy reference to determine the status of completed applications.

b. Consider developing a team to receive disaster calls and answer questions about the status of disaster applications.

c. Consider developing a single message to enter on all voice mail messages regarding the status of the agency during the disaster period, freeing up staff from answering phones during this time.

11. Other Considerations or Special Circumstances

a. Designate a supervisor to take applications for all DSS employees and their immediate families.

b. When preparing for an impending disaster, consider that some staff may be involved in emergency shelter duty in addition to other tasks.

c. Remember that USDA defines the duration of a Disaster Food and Nutrition Services Program. Application taking may occur on a weekend. Decide what hours to take applications on weekend days, if applicable.

d. Determine a “Plan B” for as many aspects of disaster planning as possible.

O. Fraud Prevention

A comprehensive fraud prevention strategy includes controls within the program, at the application site and through public relations efforts. There are different types of fraud for which preventive measures should be taken at the application/issuance site:

1. Duplicate participation;

2. False information on application (e.g., household size, income); and

3. Employee fraud.

Work with your local Program Integrity Representative to develop strategies to combat fraud and to respond to issues as they develop during the disaster operation. Program Integrity and Quality Control staff will be available to ensure that program accuracy and fraud issues are addressed proactively and to reduce the likelihood of costly and time-consuming audits.

P. Public Relations

A comprehensive public relations strategy will be employed during the course of the disaster. This effort will include activities at the application site. All public relations strategies will be coordinated through the Department of Health and Human Services’ Public Information Office. Local departments of social services can ask the Division of Social Services for assistance with press releases and news conferences concerning disaster benefits if needed.

Q. Media Releases

Media releases should be issued by both the State and county and prepared from factual information obtained from everyone to include State Office staff, County Emergency Management staff, County Director, and Regional Office staff.

The content of the releases should contain information regarding the Who, What, When, and Where of the disaster situation. Information regarding fraud should be included in at least two media releases. Please refer to sample press releases that follow.

SAMPLE PRESS RELEASE

(Initial and Intermediate)

Federal and State officials have announced that Disaster Food and Nutrition Services benefits will be issued to eligible residents of (enter county name) county. Residents not usually eligible for Food and Nutrition Services may qualify temporarily if they have losses because of the (type of disaster). Eligibility depends on income, resources, and the amount of loss for the household. The income limit for a family of four is (enter amount). You can apply for Disaster Food and Nutrition Services benefits at (enter name and address/location) for (enter number of days) day period beginning (enter day/date) during the hours of (enter office hours).

When you apply for Disaster Food and Nutrition Services benefits, bring a photo ID or two other proofs of your identity. Other information you will need includes your home address and the names of all household members and their social security numbers. You will also need to provide income and resource information. If you currently receive Food and Nutrition Services benefits, you should (enter appropriate procedure).

It is very important that you give complete and accurate information during the application process. Your application is subject to review by State and/or federal personnel. If you break the Food and Nutrition Services Program rules, you will be required to repay the benefits. You may also be taken to court and fined, sent to prison, or both.

You will receive a Food and Nutrition Services Electronic Benefits Card when you apply for Disaster Food and Nutrition Services. If your application is approved, your card will be activated and you will receive an approval notice in the mail. If your application is denied you will receive a denial notice with the reason for the denial of benefits.

You should apply for Food and Nutrition Services benefits in the county where you live. For further information, contact the (enter county name) Food and Nutrition Services Office at (enter telephone number).

SAMPLE PRESS RELEASE

(Fraud)

The U.S. Department of Agriculture warns that it is illegal to apply more than once for Disaster Food and Nutrition Services related to losses suffered in the (name of disaster.)

The USDA began a Disaster Food and Nutrition Services program on (date) for (type of disaster) victims in (name of County).

To assure that only qualified applicants receive the help they need, North Carolina and USDA officials have installed a computer system to guard against duplicate applicants and will match reported income against records at the Employment Security Commission.

Those who knowingly obtain benefits to which they are not entitled will be required to repay them. Those who violate Food and Nutrition Services rules may be disqualified from future eligibility and could face criminal prosecution resulting in fines of up to $250,000 or prison terms of up to 20 years.

Anyone who knows of possible acts of fraud in the disaster issuance of Food and Nutrition Services is encouraged to report the fraud to the USDA toll-free hotline (1-800-10X-1010), or to the local Department of Social Services at (telephone number).

NOTE: This press release cannot be used without USDA’s approval since the notice appears to be issued by USDA.