Programmatic Infrastructure Guide
FFP's IT infrastructure and system needs do not transfer one-to-one from USAID. USDA needs a framework to define programmatic infrastructure needs and a methodology to specify, procure, and stand up the systems that support FFP execution under USDA management.
Why It Matters
Infrastructure decisions made in the first six months of USDA's FFP tenure shape the program's operating efficiency for years. Infrastructure that is over-built ties up USDA resources; infrastructure that is under-built creates audit findings and operational drag.
Statutory & Regulatory Authority
The legal/regulatory instruments that bound this deliverable. HSG analysts cite these in every Section 4.1 deliverable submission.
22 CFR Part 211 (transitioning)
USAID commodity-donation rules — primary regulatory framework requiring USDA-equivalent mapping.
22 CFR Part 226 (transitioning)
USAID grant administration to PVOs — requires USDA-equivalent or 2 CFR Part 200 alignment.
22 CFR Part 228 (transitioning)
USAID-financed procurement source/origin — interacts with FAR Part 25 + Cargo Preference.
USAID Automated Directives System (ADS) Series 300
USAID operational substrate for FFP — requires USDA-authored equivalents for continuity.
OMB M-25-21 / M-25-22 (April 2025)
Federal AI acquisition guidance; binds all AI / automation infrastructure recommendations.
NIST AI RMF 1.0
AI risk-management framework — applies to AI infrastructure architecture.
Section 508 of the Rehabilitation Act (29 USC § 794d)
Accessibility requirement for all federal IT systems.
Operating Context
Anchored on the FY25 NOFO Reform 2 (strict accountability — every U.S. taxpayer dollar must be traceable) (Design Goal 2). Programmatic Infrastructure is the most under-discussed dimension of the FFP transition and arguably the most consequential — without USDA-internal regulatory equivalents to the USAID substrate, the operational machinery of Title II runs on inherited authority without an enforceable basis. The Guide articulates the operational architecture USDA needs across two parallel dimensions: (1) regulatory architecture — the 22 CFR → USDA-equivalent mapping; and (2) IT / data architecture — the FFP data systems USDA must inherit, replace, or re-architect. USAID's 22 CFR Parts 211 / 226 / 228 are not USDA-internal regulations — USDA's Title 7 doesn't directly govern these frameworks. The transition requires mapping the USAID regulatory framework to USDA-equivalent guidance (Title 7 commodity rules + FAR-AGAR procurement + USDA-internal grant administration under 2 CFR Part 200). The House 22 CFR → USDA Regulatory Crosswalk — HSG's proprietary per-section methodology with status flags (INHERITS UNCHANGED / INHERITS WITH MODIFICATION / REPLACES VIA USDA-EQUIVALENT / GAP) — is the analytical infrastructure. Similarly, ADS Series 300 — USAID's operational substrate for FFP — must have USDA-authored equivalents in place for continuity. The Food for Peace Information Bulletins (FFPIBs) constitute the de facto operating handbook accumulated since 2010; each must be inventoried, evaluated for continued applicability under USDA, and re-issued, modified, or sunset. Per Amendment 1 Q63, the FAR cybersecurity clauses (52.240-91 / 52.240-92 / 52.240-93) apply to systems transmitting or maintaining Government information; the Guide articulates the data-handling architecture for the nine NOFO standard indicators and the custom indicators measuring Reform 2 accountability. Per Amendment 1 Q96, USDA does not anticipate contractor CUI handling; the Guide is calibrated accordingly.
Inherited State — Quantitative Baseline
Real public-record figures HSG uses as the starting baseline for this deliverable. Every entry is sourced and dated.
| Baseline metric | Value | Source | As of |
|---|---|---|---|
| 22 CFR Part 211 section count | 11 sections (§§ 211.1–211.11) | Electronic Code of Federal Regulations (ecfr.gov) | Current |
| 22 CFR Part 226 structure | 4 subparts (A General, B Pre-Award, C Post-Award, D After-the-Award) | Electronic Code of Federal Regulations | Current |
| 22 CFR Part 228 section count | Approximately 10 sections (228.01 Purpose → 228.40 Waivers) | Electronic Code of Federal Regulations | Current |
| USAID ADS Series 300 chapters (operational) | Approximately 20 chapters (ADS 302 → ADS 370) | USAID Automated Directives System archive | Pre-transition |
| USAID FFPIB cumulative count | Approximately 50+ bulletins (2010–2024) | USAID FFP / BHA Information Bulletin archive (reconstruction underway post-USAID dissolution) | 2024 archive cutoff |
| 2 CFR Part 200 (Uniform Guidance) coverage | Covers ~70–80% of legacy 22 CFR Part 226 subject matter | OMB Uniform Guidance + USDA grants policy crosswalk analysis | Current |
| AGAR (Agriculture Acquisition Regulation) location | 48 CFR Chapter 4 (Parts 401–470) | Electronic Code of Federal Regulations | Current |
| OMB M-25-21 (AI acquisition guidance) | Effective April 2025 | OMB Memorandum M-25-21 Accelerating Federal Use of AI through Innovative Acquisition | Apr 2025 |
| OMB M-25-22 (AI risk management) | Effective April 2025 | OMB Memorandum M-25-22 Driving Efficient Acquisition of Artificial Intelligence in Government | Apr 2025 |
| NIST AI RMF current version | AI RMF 1.0 (Generative AI Profile pub. Jul 2024) | NIST AI Risk Management Framework 1.0 + Generative AI Profile (NIST AI 600-1) | Jul 2024 |
| Section 508 standards baseline | WCAG 2.1 AA per 36 CFR Part 1194 | US Access Board Section 508 ICT Refresh (Jan 2018, current operative) | Jan 2018 |
| USDA Departmental Regulation (DR) series | USDA-internal directive framework already operational | USDA Departmental Regulations registry (usda.gov/directives) | Current |
| USAID BHA Washington office count and structure (peak) | 8 offices — 3 geographic (Africa; Asia, Latin America & Caribbean; MENA + Europe) + 5 technical (TPQ; Humanitarian Business & Management Operations; Global Policy/Partnerships/Programs/Communication; Response & Resilience; Humanitarian Operations) | CRS R45779 Transformation at USAID; USAID/BHA 2020 design materials | FY22–24 |
| BHA total staff at peak (FY22-24) | Approximately 1,000–1,300 worldwide (HQ + field across 45+ countries) | CSIS 2025 humanitarian-capability retrospective; USAID/BHA self-reporting | Pre-2025 |
| FFPMIS (Food For Peace Management Information System) | USAID-resident commodity tracking system; USDA must adopt or replicate | Catalog.data.gov FFPMIS registry entry | USAID-resident |
| Kansas City Commodity Office (KCCO) operating authority | Master Solicitation framework for commodity contracts; port-facility licensing via Form WA-50 | USDA FSA KCCO Master Solicitation (current versions); USDA AMS port-terminal info | Current |
| USDA AMS International Commodity Procurement Division (ICPD) | Operational division — "purchases and delivers US-produced food aid commodities to foreign countries" | USDA AMS Commodity Procurement program description | Current |
Inherited Document Inventory
The specific documents USDA inherits from USAID/BHA on this scope. Each must be re-issued, modified, or sunset under USDA authority.
Primary Regulatory Inheritance — 22 CFR (USAID)
USAID regulatory framework that does NOT directly transfer to USDA. Each requires USDA-equivalent rulemaking, AGAR amendment, or coverage determination under 2 CFR Part 200.
22 CFR Part 211Transfer of Food Commodities (Title II commodity donation)
11 sections governing all Title II commodity donations. NO direct USDA equivalent — new USDA-issued rule required (anticipated 7 CFR Part 3050). Operations continue under transitional authority during rulemaking.
22 CFR Part 226Administration of Assistance Awards to U.S. NGOs
4 subparts. 2 CFR Part 200 (Uniform Guidance) covers ~70–80%; FFP-specific supplemental USDA guidance required for the remainder.
22 CFR Part 228Rules on Source, Origin and Nationality
~10 sections covering procurement source/origin, Geographic Code 935, Cargo Preference interaction. Substantially covered by FAR Part 25 + AGAR Subpart 425; specialty rules require AGAR amendment.
USAID ADS Series 300 — Operational Substrate
USAID operational directives. Each must be evaluated for USDA Departmental Regulation drafting / AGAR-amendment / Departmental directive equivalent.
ADS 302Acquisition Planning
Substantial AGAR coverage; FFP-specific acquisition-planning template required.
ADS 303Grants and Cooperative Agreements
Primary DFSA / RFSA instrument framework. New USDA Departmental Regulation drafting required.
ADS 304Selecting the Appropriate A&A Instrument
Instrument-choice methodology. USDA Departmental adaptation required.
ADS 308Awards to Public International Organizations
USAID-WFP cooperative-agreement framework. USDA-WFP re-papering required.
ADS 312Eligibility of Commodities
USDA AMS Commodity Procurement Branch already operates parallel function; FFP-specific eligibility-refresh under USDA authority.
ADS 313Procurement Source/Origin
Geographic Code 935 rules — FAR Part 25 + AGAR Subpart 425 cover substantially; geo-list adoption under USDA authority.
ADS 315Country and Geographic Codes
Country / geographic-area code framework — USDA inheritance + USDA-internal directive series.
ADS 317A&A Risk Management
Pre-award risk-classification framework. USDA-equivalent directive required; integrates with Enhanced Bellmon Tier 3.
ADS 320Branding and Marking
Country-by-country branding policy — links to Communications Strategy Guide. USDA Departmental policy required.
ADS 350OAA Approval Authorities
Contracting Officer / Agreement Officer approval authority framework. USDA Departmental delegation under FAS / OCFO.
USDA-Side Existing Regulatory Capability
USDA-internal regulatory instruments already in force; FFP inheritance integrates here with minimal additional rulemaking.
2 CFR Part 200Uniform Administrative Requirements (Uniform Guidance)
Federal-wide grants administration baseline; covers ~70–80% of legacy 22 CFR Part 226. Already in USDA force.
AGAR (48 CFR Ch. 4)Agriculture Acquisition Regulation
USDA-internal acquisition regulation supplementing FAR. Already in USDA force; FFP-specific amendments anticipated.
7 CFRUSDA general regulations
Anticipated 7 CFR Part 3050 (new) for commodity-donation rules replacing 22 CFR Part 211.
USDA Departmental Regulation seriesUSDA-internal directive framework
Substitute for USAID ADS Series 300 — already operational; FFP-specific Departmental Regulations to draft.
Cross-Cutting Federal Compliance Frameworks
Federal-wide frameworks binding FFP infrastructure under USDA management.
OMB M-25-21Accelerating Federal Use of AI through Innovative Acquisition (Apr 2025)
Binds AI / automation references in FFP infrastructure recommendations. HSG's AI-and-expert parallel-drafting methodology aligns to M-25-21.
OMB M-25-22Driving Efficient Acquisition of AI in Government (Apr 2025)
AI risk-management framework — NIST AI RMF integration required for AI infrastructure decisions.
NIST AI RMF 1.0AI Risk Management Framework (NIST)
AI risk-management methodology — applies to all AI infrastructure architecture under USDA FFP.
29 USC § 794d (Section 508)Section 508 of the Rehabilitation Act
Accessibility requirement for all federal IT and digital products. WCAG 2.1 AA per 36 CFR Part 1194.
36 CFR Part 1194Section 508 ICT implementing standards (US Access Board)
Detailed technical standards for accessibility compliance — web, video, document, software.
5 USC § 552aPrivacy Act of 1974
PII protection across all FFP IT systems; data architecture must include PII suppression / encryption layers.
44 USC § 3501 (PRA)Paperwork Reduction Act
OMB clearance required for new information-collection requests; binds DFSA / RFSA application templates + reporting forms.
Four-Phase Methodology
Phase 1 (Month 8) — Regulatory Crosswalk
Activity: 22 CFR 211 / 226 / 228 → USDA-equivalent mapping; ADS 300 inventory; gap analysis
Output: Crosswalk matrix v1
Phase 2 (Month 8–9) — FFPIB Inventory
Activity: Full FFPIB inventory; applicability evaluation under USDA; disposition recommendations
Output: FFPIB disposition framework
Phase 3 (Month 9) — Infrastructure Spec
Activity: FFP data architecture documentation; system-procurement framework; AI infrastructure recommendations consistent with OMB M-25-21/22 and NIST AI RMF
Output: Infrastructure spec
Phase 4 (Month 10 — accelerated)
Activity: Final formatting; Section 508 compliance; USDA staff training prep; deliverable production
Output: PWS Deliverable 10 (delivered 1 month ahead of PWS schedule)
HSG's Approach
- 1Map 22 CFR Parts 211 (USAID commodity-donation rules), 226 (USAID grant administration), and 228 (USAID-financed procurement) to USDA Title 7 / Title 22 / FAR-AGAR regulatory equivalents.
- 2Migrate USAID ADS Series 300 acquisition-and-assistance policies to USDA internal directive guidance equivalents.
- 3Inventory all historical Food for Peace Information Bulletins (FFPIBs); evaluate for continued applicability under USDA: re-issue, modify, or sunset.
- 4Build the IT infrastructure needs-assessment methodology — system requirements, data architecture, integration needs.
- 5Apply HSG's AI-and-expert parallel-drafting methodology consistent with OMB M-25-21 / M-25-22 and the NIST AI RMF; develop system-procurement framework aligned to USDA FAS / OCFO governance.
Sample FrameworkReal Data
22 CFR → USDA Regulatory Crosswalk — Real Section-Level Mapping
| USAID Source | Subject | USDA Equivalent / Replacement | Mapping Status | Action Required |
|---|---|---|---|---|
| 22 CFR Part 211 (§§ 211.1–211.11) | Title II commodity donation rules | 7 CFR Part 3050 (anticipated) or new USDA-issued rule | New framework required | USDA rulemaking + Federal Register publication |
| 22 CFR Part 211.10 (Sale Proceeds) | Monetization revenue accounting | USDA-internal monetization guidance (anticipated) | New framework required | Departmental Regulation + GAAP-FASAB compliance |
| 22 CFR Part 226 Subparts A–D | PVO grant administration | 2 CFR Part 200 (Uniform Guidance) + USDA grants policy | Partial coverage | Supplemental USDA guidance for FFP-specific provisions |
| 22 CFR Part 228.11–228.14 | Source / origin / nationality + Geo Code 935 | FAR Part 25 + AGAR Subpart 425 + Geo-eligibility list | Substantial coverage | AGAR amendment for specialty-rule cases |
| 22 CFR Part 228.21–228.22 | Ocean shipping + air freight (Cargo Preference) | FAR + AGAR + 46 USC § 55305 direct | Substantial coverage | USDA-DOT MOU re-papering |
| ADS 302 (Acquisition Planning) | Pre-award acquisition planning | AGAR Subpart 407 + USDA acquisition directives | Substantial USDA coverage | FFP-specific acquisition-planning template |
| ADS 303 (Grants and Coop Agreements) | Grant policy / procedure | USDA Departmental Regulation series (anticipated) | New USDA-internal directives required | Departmental Regulation drafting + clearance |
| ADS 308 (Awards to PIOs) | Multilateral / WFP awards | USDA-WFP cooperative agreement re-papering | New framework required | USDA-WFP MOU negotiation |
| ADS 312 (Eligibility of Commodities) | Commodity eligibility per program | USDA AMS Commodity Procurement Branch guidance | USDA capability exists | FFP-specific commodity eligibility refresh |
| ADS 313 (Procurement Source/Origin) | Geographic Code 935 implementation | FAR Part 25 + AGAR Subpart 425 | Substantial USDA coverage | Geo-code list adoption under USDA authority |
| ADS 320 (Branding and Marking) | Country-by-country branding | USDA Departmental communications policy | USDA coverage; FFP-specific | USDA-branded FFP communications policy |
Crosswalk is the methodologically most consequential output of the Programmatic Infrastructure Guide. Section-level mapping above reflects real regulatory citations (verified against ecfr.gov current as of CY 2026); production HSG analysis runs full Part / Subpart / Section enumeration with USDA General Counsel review.
Performance Metrics
22 CFR → USDA crosswalk completeness
100% of subject matter mapped by Month 9
ADS 300 series migration recommendation
Gap analysis + USDA-equivalent recommendations by Month 9
FFPIB inventory disposition
100% disposition (re-issue / modify / sunset) by Month 10
AI infrastructure compliance
Consistent with OMB M-25-21 / M-25-22 and NIST AI RMF 1.0
Delivery acceleration
Deliverable 10 in Month 10 vs PWS Month 11
Risks & Mitigations
Risk
22 CFR → USDA mapping gaps create regulatory ambiguity
HSG Mitigation
Interim USDA-issued guidance memorandum authority; FAS General Counsel coordination.
Risk
ADS 300 migration disruption to in-flight programming
HSG Mitigation
Phased adoption with grandfather provisions for in-flight programming.
Risk
FFPIB applicability disputes
HSG Mitigation
Anchored on documented administration policy direction; FAS Office of Capacity Building review per FFPIB.
Precedent Cases — Direct Execution History
Specific prior work by the HSG senior bench that is structurally analogous to this scope. Each is verifiable through the team member's documented federal employment history.
Maurice W. House — Deputy Administrator (75 analysts under supervision)
2008–2010
USDA FAS Office of Global Analysis (OGA)
Direct prior leadership of a USDA FAS organizational unit at the scale FFP transition demands. Organizational-design, position-classification, and operating-substrate execution at the FAS-deputy level — the federal organizational-architecture lineage.
Audrey McGuire — CEO; HUD Office of Asset Sales Project Financial Advisor (27 years continuous)
1999–present
Emax Inc.
27 years of federal program infrastructure — platform-grade portfolio management on >$7B HUD OAS loan-sale volume. Direct precedent for federal IT-and-process infrastructure: data architecture, document-version control, bidder-facing systems, regulatory-compliance integration. The federal program-infrastructure lineage at scale.
Jelani House — Engagement Manager + GovCert platform builder
Current
House Strategies Group, LLC
Active platform-build execution (GovCert.ai, multiple HSG client portals at scale). Modern federal-grade IT-and-process infrastructure execution — Section 508 WCAG 2.1 AA compliance baseline, AI integration consistent with OMB M-25-21/22 and NIST AI RMF. The day-to-day platform-execution lineage directly relevant to FFP infrastructure architecture under USDA.
Kevin Latner — Executive Director
2011–2014
Cotton Council International (FAS MAP/FMD cooperator)
Direct execution of FAS cooperator-program operational infrastructure — three UES submissions integrating with USDA FAS operational architecture. The cooperator-program-infrastructure substrate that supplies FFP's structural analog to USAID PVO Registration.
Maurice W. House — Co-chair, interagency global food-crisis task force
2007–2009
USDA / Interagency
Cross-agency infrastructure coordination during 2008 food crisis. Direct precedent for the cross-Departmental coordination architecture USDA needs to integrate FFP under FAS while interfacing with State, Treasury, USDA OCFO, USDA OBPA, USDA OCIO.
HSG Engagement Bench — Federal-grade IT-and-process infrastructure delivery
Various
Multiple federal-grade clients (HSG corporate)
HSG corporate engagement portfolio — GovCert.ai (Section 508 / AI-integrated), HUD OAS Transaction Specialist (federal asset-sale infrastructure), multiple state/local government portals. The institutional capability lineage that USDA gets when it hires HSG for FFP infrastructure.
Live Data Sources HSG Will Query
The real public-record data feeds HSG analysts will pull from during this engagement.
| Source | Access | Use Case |
|---|---|---|
| Electronic Code of Federal Regulations (eCFR) | ecfr.gov — public, authoritative, current | Authoritative source for 22 CFR / 7 CFR / 2 CFR / 36 CFR / 48 CFR Chapter 4 (AGAR) current text. Section-level crosswalk construction. |
| USAID Automated Directives System archive | usaid.gov/ads (transitioning); historical wayback captures | ADS Series 300 chapter inventory; operational substrate baseline for USDA-equivalent drafting. |
| USDA Departmental Regulations registry | usda.gov/directives — public | USDA-internal directive baseline; FFP-specific Departmental Regulation drafting reference framework. |
| OMB Memoranda archive | whitehouse.gov/omb; performance.gov — public | OMB M-25-21 / M-25-22 + M-22-09 + Circular A-123 + A-11 reference text; federal-wide framework integration. |
| NIST AI RMF documentation | nist.gov/itl/ai-risk-management-framework — public | AI RMF 1.0 + Generative AI Profile (NIST AI 600-1) — implementation framework for AI infrastructure under FFP. |
| Section 508.gov — US Access Board | section508.gov — public | Section 508 ICT Testing Baseline — compliance methodology for all FFP digital products. |
| USDA AMS Commodity Procurement Branch records | ams.usda.gov/selling-food-and-other-products-usda — public | USDA-existing commodity-procurement capability baseline; ADS 312 → AMS equivalent mapping. |
| USDA Office of Chief Information Officer (OCIO) policies | ocio.usda.gov — public + federal-restricted | USDA IT infrastructure governance baseline; FFP IT-system integration architecture. |
| USDA FAS-internal directive registry | fas.usda.gov + internal — partially public | FAS-specific operational directives that FFP integrates into. |
Expected Deliverables
- Programmatic Infrastructure Guide (PWS Deliverable 10) — month 10 (HSG-proposed acceleration from PWS month 11)
- 22 CFR Parts 211 / 226 / 228 → USDA Title 7 regulatory crosswalk
- USAID ADS Series 300 → USDA internal directive crosswalk
- FFPIB inventory and disposition framework (re-issue / modify / sunset)
- IT infrastructure needs-assessment methodology
- FFP data architecture documentation
- System-procurement framework aligned to USDA governance
Expected Outcome
USDA has a defensible methodology for FFP infrastructure decisions — and uses the methodology during the staff competency assessment in months 11–12 rather than after it.
References
- 22 CFR Parts 211, 226, 228 (USAID — historical archive)
- USAID ADS Series 300 archive
- 7 CFR (USDA general regulations)
- FAR / AGAR
- OMB M-25-21 / M-25-22 (April 2025)
- NIST AI RMF 1.0
- USAID Food for Peace Information Bulletins (FFPIBs, historical)