FEMA Hazard Mitigation: A First Step Toward Climate Adaptation

Changes from December 15, 2021 to February 22, 2022

This page shows textual changes in the document between the two versions indicated in the dates above. Textual matter removed in the later version is indicated with ~~red strikethrough~~ and textual matter added in the later version is indicated with blue.

FEMA Hazard Mitigation: A First Step ~~Towards~~ ~~December 15, 2021~~Toward February 22, 2022
Climate Adaptation
Diane P. Horn
With the increasing severity and frequency of natural disasters, attributed at least in part to With the increasing severity and frequency of natural disasters, attributed at least in part to
Analyst in Flood Insurance Analyst in Flood Insurance
climate change, policymakers often view mitigation funding as a way to control disaster-related climate change, policymakers often view mitigation funding as a way to control disaster-related
and Emergency and Emergency
spending. The importance of federal mitigation funding is illustrated by a recent study that spending. The importance of federal mitigation funding is illustrated by a recent study that
Management Management
looked at the impacts of 23 years of federal mitigation grants and found that for every $1 invested looked at the impacts of 23 years of federal mitigation grants and found that for every $1 invested

by federal grant programs, society as a whole saved $6 due to by federal grant programs, society as a whole saved $6 due to ~~redu ced~~reduced future losses. future losses.

FEMA has a lead role in guiding nationwide mitigation of extreme weather events, including FEMA has a lead role in guiding nationwide mitigation of extreme weather events, including
those resulting from the impacts of climate change. In particular, FEMA administers the federal government’s most those resulting from the impacts of climate change. In particular, FEMA administers the federal government’s most
significant grant programs for pre-and post-disaster mitigation. FEMA has identified hazard mitigation as one of the main significant grant programs for pre-and post-disaster mitigation. FEMA has identified hazard mitigation as one of the main
ways in which the agency will enhance resilience to the effects of climate change and lead federal climate change adaptation ways in which the agency will enhance resilience to the effects of climate change and lead federal climate change adaptation
efforts. efforts.
FEMA funds mitigation measures through a number of programs: FEMA funds mitigation measures through a number of programs:
 the Hazard Mitigation Grant Program (HMGP);  the Hazard Mitigation Grant Program (HMGP);
 the Building Resilient Infrastructure and Communities grant program (BRIC);  the Building Resilient Infrastructure and Communities grant program (BRIC);
 the Flood Mitigation Assistance grant program (FMA);  the Flood Mitigation Assistance grant program (FMA);
 the STORM Act State Revolving Loan Program for Hazard Mitigation; the STORM Act State Revolving Loan Program for Hazard Mitigation;
 Public Assistance (PA); and Public Assistance (PA); and
 Individual Assistance (IA). Individual Assistance (IA).
Three of these programs are available after a disaster (HMGP, PA, and IA), while the other three (BRIC, FMA, STORM Act) Three of these programs are available after a disaster (HMGP, PA, and IA), while the other three (BRIC, FMA, STORM Act)
provide pre-disaster mitigation funding for use before an event occurs or in anticipation of an incident. Historically, post-provide pre-disaster mitigation funding for use before an event occurs or in anticipation of an incident. Historically, post-
disaster mitigation has received significantly more funding than pre-disaster mitigation. Between 1996 and 2019, disaster mitigation has received significantly more funding than pre-disaster mitigation. Between 1996 and 2019,
approximately $1.86 billion was awarded for FMA grants, $1.92 billion was awarded for PDM grants (the predecessor to approximately $1.86 billion was awarded for FMA grants, $1.92 billion was awarded for PDM grants (the predecessor to
BRIC),BRIC), and $22.4 billion was awarded in HMGP funding. Funding for pre-disaster mitigation has increased recently through and $22.4 billion was awarded in HMGP funding. Funding for pre-disaster mitigation has increased recently through
the Disaster Recovery Reform Act of 2018 (P.L. 115-24) and the Infrastructure Investment and Jobs Act (P.L. 117-58). the Disaster Recovery Reform Act of 2018 (P.L. 115-24) and the Infrastructure Investment and Jobs Act (P.L. 117-58).
Increased funding for pre-disaster mitigation isIncreased funding for pre-disaster mitigation is more essential in the context of climate change, asmore essential in the context of climate change, as many projected climate many projected climate
impacts have yet to occur. impacts have yet to occur.
This report gives an overview of FEMA funding for mitigation, including issues related to equity, and suggests This report gives an overview of FEMA funding for mitigation, including issues related to equity, and suggests
considerations for Congress that may enhance FEMA’s support for hazard mitigation and climate adaptation. considerations for Congress that may enhance FEMA’s support for hazard mitigation and climate adaptation.

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FEMA Hazard Mitigation: A First Step Towards Climate Adaptation
Introduction
Communities across the country are already experiencing the impacts of climate change. Communities across the country are already experiencing the impacts of climate change.
~~Additional y,~~ Additionally, many extreme weather and climate-related events are expected to become more many extreme weather and climate-related events are expected to become more
frequent and more intense under climate change.1 The impacts of such events are estimated to frequent and more intense under climate change.1 The impacts of such events are estimated to
have already cost more than $1.0 have already cost more than $1.0 ~~tril ion~~trillion (in 2021 dollars) since 1980.2 (in 2021 dollars) since 1980.2
Catastrophic events pose a financial threat both to society as a whole and to the federal Catastrophic events pose a financial threat both to society as a whole and to the federal
government, which has government, which has ~~al ocated~~allocated increasing resources to disaster relief and recovery.3 In the increasing resources to disaster relief and recovery.3 In the
United States, as in many countries, this can be attributed to a combination of factors: rapid United States, as in many countries, this can be attributed to a combination of factors: rapid
expansion of population into areas that are susceptible to natural disasters, rising property values expansion of population into areas that are susceptible to natural disasters, rising property values
in hazardous areas, and climatological and environmental changes. Nearly one-third of the U.S. in hazardous areas, and climatological and environmental changes. Nearly one-third of the U.S.
housing stock (about 35 housing stock (about 35 ~~mil ion~~million homes) is considered to be at high risk of a natural disaster,4 and homes) is considered to be at high risk of a natural disaster,4 and
most homes in the United States have some risk of climate change-induced hazard events.5 For most homes in the United States have some risk of climate change-induced hazard events.5 For
example, in 2019, the Congressional Budget Office (CBO) estimated residential property losses example, in 2019, the Congressional Budget Office (CBO) estimated residential property losses
from hurricane and tropical storm-related flooding to be approximately $20 from hurricane and tropical storm-related flooding to be approximately $20 ~~bil ion~~ billion per year (in per year (in
2017 dollars).6 2017 dollars).6
The Government Accountability Office (GAO) has found that the rising number of natural The Government Accountability Office (GAO) has found that the rising number of natural
disasters and increasing reliance on the federal government for response and recovery assistance disasters and increasing reliance on the federal government for response and recovery assistance
is a key source of federal fiscal exposure.7 GAO has suggested in several reports that two related is a key source of federal fiscal exposure.7 GAO has suggested in several reports that two related
sets of actions—climate adaptation and pre-disaster mitigation—can enhance climate resilience sets of actions—climate adaptation and pre-disaster mitigation—can enhance climate resilience
by reducing risk.8 GAO has also suggested that enhancing resilience to climate change could by reducing risk.8 GAO has also suggested that enhancing resilience to climate change could
reduce future damages from climate-related events, and recommended adjustments to natural or reduce future damages from climate-related events, and recommended adjustments to natural or
human systems in response to actual and expected climate change, and through hazard mitigation human systems in response to actual and expected climate change, and through hazard mitigation
actions before a disaster.9actions before a disaster.9

1 D.R. Reidmiller,1 D.R. Reidmiller, et al., et al., Impacts, Risks, and Adaptation in the United States: Fourth National Climate Assessment, ,
U.S.U.S. ~~Global~~ Global Change Research Program, VolumeChange Research Program, Volume II, WashingtonII, Washington , DC, November 23, 2018, pp. 1-47, , DC, November 23, 2018, pp. 1-47,
https://nca2018.globalchange.gov/ (hereinafter https://nca2018.globalchange.gov/ (hereinafter Fourth National ~~Clim ate Assessm ent~~).
~~2 T he~~Climate Assessment). 2 The Public and Affordable Housing Public and Affordable Housing Research Corporation and the National Low Income Housing Coalition, Research Corporation and the National Low Income Housing Coalition, Taking
Stock: Natural Hazards and Federally Assisted ~~Housing~~ Housing, June 29, 2021, p. 4, https://preservationdatabase.org/wp-, June 29, 2021, p. 4, https://preservationdatabase.org/wp-
content/uploads/2021/06/Taking-Stock.pdf. content/uploads/2021/06/Taking-Stock.pdf.
3 See, 3 See, for example, U.S. Government Accountability Office, for example, U.S. Government Accountability Office, Federal Disaster Assistance: Federal Departments and
Agencies Obligated At Least $277.6 Billion During Fiscal Years 2005 Through 2014 , GAO-16-797, September 22, , GAO-16-797, September 22,
2016, https://www.gao.gov/assets/gao-16-797.pdf; and CRS2016, https://www.gao.gov/assets/gao-16-797.pdf; and CRS Report R45484, Report R45484, The Disaster Relief Fund: Overview and
Issues, by William L. Painter. , by William L. Painter.
4 CoreLogic, “4 CoreLogic, “ Risk Redefined:Risk Redefined: CoreLogic Climate Change Catastrophe Report Emphasizes Need to AddressCoreLogic Climate Change Catastrophe Report Emphasizes Need to Address Increasing Increasing
Frequency of HazardFrequency of Hazard Events,” January 27, 2021, https://www.corelogic.com/press-releases/risk-redefined-corelogic-Events,” January 27, 2021, https://www.corelogic.com/press-releases/risk-redefined-corelogic-
climate-change-catastrophe-report-emphasizes-need-to-address-increasing-frequency-of-hazard-events/. climate-change-catastrophe-report-emphasizes-need-to-address-increasing-frequency-of-hazard-events/.
5 Saumi 5 Saumi Shokraee et al., Shokraee et al., 2020 Climate Change Catastrophe Report, CoreLogic, January 28, 2021, , CoreLogic, January 28, 2021,
https://www.corelogic.com/downloadable-docs/2020-climate-change-catastrophe-report-17-ctr-0121-00.pdf. https://www.corelogic.com/downloadable-docs/2020-climate-change-catastrophe-report-17-ctr-0121-00.pdf.
6 Congressional Budget 6 Congressional Budget Office, Office, Expected Costs of Damage ~~From~~from Hurricane Winds and Storm -Related Flooding, CBO , CBO
Publication 55019, Washington, DC, April 2019, p. 3, https://www.cbo.gov/system/files/2019-04/55019-Publication 55019, Washington, DC, April 2019, p. 3, https://www.cbo.gov/system/files/2019-04/55019-
ExpectedCostsFromWindStorm.pdf. ExpectedCostsFromWindStorm.pdf.
7 GAO,7 GAO, Climate Change: A Climate Migration Pilot Program Could Enhance the Nation’s Resilience and Reduce
Federal Fiscal Exposure, GAO-20-488, July, GAO-20-488, July 6, 2020, pp. 1-2, https://www.gao.gov/assets/gao-20-488.pdf. 6, 2020, pp. 1-2, https://www.gao.gov/assets/gao-20-488.pdf.
8 Ibid., and GAO, 8 Ibid., and GAO, Climate Change: Selected Governments Have Approached Adaptation Through Laws and Long -
Term Plans, GAO-16-454, May 12, 2016, p. 4, https://www.gao.gov/assets/gao-16-454.pdf. , GAO-16-454, May 12, 2016, p. 4, https://www.gao.gov/assets/gao-16-454.pdf.
9 See,9 See, for example, GAO, for example, GAO, High-Risk Series: An Update, GAO-15-290, February 11, 2015, pp. 67-70, , GAO-15-290, February 11, 2015, pp. 67-70,
https://www.gao.gov/assets/gao-15-290.pdf; andhttps://www.gao.gov/assets/gao-15-290.pdf; and GAO, Climate~~GAO,~~ ~~Clim ate~~ Change: Selected ~~Governm ents~~Governments Have Approached
Adaptation Through Laws and Long-Term Plans, GAO-16-454, May 12, 2016, p. 4, https://www.gao.gov/assets/gao-, GAO-16-454, May 12, 2016, p. 4, https://www.gao.gov/assets/gao-
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link to page 7 link to page 7 FEMA Hazard Mitigation: A First Step Towards Climate Adaptation
FEMA administers several of the federal government’s primary hazard mitigation programs, FEMA administers several of the federal government’s primary hazard mitigation programs,
making the agency a central part of the nation’s climate change adaptation strategy. While the making the agency a central part of the nation’s climate change adaptation strategy. While the
agency lacks a statutory mission to combat change directly, many of FEMA’s mitigation activities agency lacks a statutory mission to combat change directly, many of FEMA’s mitigation activities
are intended to reduce the impact of natural disasters, including those that may be exacerbated by are intended to reduce the impact of natural disasters, including those that may be exacerbated by
climate change.10 FEMA has identified hazard mitigation as one of the main ways that the agency climate change.10 FEMA has identified hazard mitigation as one of the main ways that the agency
~~wil~~ will address climate change.11 According to the FEMA Administrator, “Climate change is the address climate change.11 According to the FEMA Administrator, “Climate change is the
crisis of this generation. Combating it requires mitigating future risks and reducing impacts.”12 crisis of this generation. Combating it requires mitigating future risks and reducing impacts.”12
Adaptation, Mitigation, and Resilience
As a relatively As a relatively new policy area, definitive terminologynew policy area, definitive terminology has yet to be established and definitions are not used has yet to be established and definitions are not used
uniformly acrossuniformly across federal agencies. For example,federal agencies. For example, FEMA’s use of the termFEMA’s use of the term mitigation,, or or hazard mitigation,, differs from differs from
the terminologythe terminology used by the U.S. Global Change Research Program (USGCRP).13 In general, the termused by the U.S. Global Change Research Program (USGCRP).13 In general, the term adaptation is is
used by climate change professionalsused by climate change professionals and and hazard mitigation is used by the emergencyis used by the emergency management community.14 management community.14
Hazard mitigation has Hazard mitigation has ~~traditional y relied~~ traditionally relied on analysis of historical events to characterize risk,on analysis of historical events to characterize risk, whereas climate whereas climate
adaptation employs predictionsadaptation employs predictions of future conditions, of future conditions, ~~usual y~~usually derived from global climate models, derived from global climate models, to characterize to characterize
risk. risk.
Adaptation:: adjustment in natural or human systemsadjustment in natural or human systems to a new or changing environment. to a new or changing environment.
Resilience: the capacity to anticipate, prepare for, respond to, and recoverthe capacity to anticipate, prepare for, respond to, and recover from significant multi-hazard threats from significant multi-hazard threats
with minimumwith minimum damage to social damage to social ~~wel~~ well-being,-being, health, the economy, and the environment. health, the economy, and the environment.
Mitigation (USGCRP):: ~~measures~~ measures to reduce the amount and speed of future climateto reduce the amount and speed of future climate change by reducing change by reducing
emissionsemissions of heat-trapping gases or removingof heat-trapping gases or removing carbon dioxide fromcarbon dioxide from the atmosphere.the atmosphere. This is also referredThis is also referred to as to as
greenhouse gas mitigation.greenhouse gas mitigation.
Mitigation (FEMA): any sustained action to reduce or eliminate any sustained action to reduce or eliminate long-termlong-term risk to people and property from risk to people and property from
natural hazards and their effects.15 natural hazards and their effects.15
Mitigation measures can be funded by several programs: (1) any of the FEMA Hazard Mitigation Mitigation measures can be funded by several programs: (1) any of the FEMA Hazard Mitigation
Assistance grant programs: the Hazard Mitigation Grant Program (HMGP), the Building Resilient Assistance grant programs: the Hazard Mitigation Grant Program (HMGP), the Building Resilient
Infrastructure and Communities grant program (BRIC), the Flood Mitigation Assistance grant Infrastructure and Communities grant program (BRIC), the Flood Mitigation Assistance grant
program (FMA), and the State Revolving Loan Program for Hazard Mitigation; (2) FEMAprogram (FMA), and the State Revolving Loan Program for Hazard Mitigation; (2) FEMA Public Public
Assistance (PA) funding under Stafford Act Section 406; and (3) FEMA Individual Assistance Assistance (PA) funding under Stafford Act Section 406; and (3) FEMA Individual Assistance
(IA) funding under Stafford Act Section 408 ((IA) funding under Stafford Act Section 408 (seesee Table 1)..
Although Although al all mitigation activities are mitigation activities are ~~essential y~~essentially preparation for the next disaster, FEMA preparation for the next disaster, FEMA
distinguishes between post-disaster mitigation funding, which is awarded after a specific incident, distinguishes between post-disaster mitigation funding, which is awarded after a specific incident,
and pre-disaster mitigation funding, which is awarded in order to reduce future damage from an and pre-disaster mitigation funding, which is awarded in order to reduce future damage from an
anticipated event. PA, IA, and HMGPanticipated event. PA, IA, and HMGP are post-disaster funding, and require a form of disaster are post-disaster funding, and require a form of disaster
declaration: an emergency declaration, a major disaster declaration16 from the President, or a Fire declaration: an emergency declaration, a major disaster declaration16 from the President, or a Fire

16-454.pdf. 16-454.pdf.
10 Congressional Budget 10 Congressional Budget Office, Office, Budgetary Effects of Climate Change and of Potential Legislative Responses to It, ,
Report 57175, April 2021, p. 1, https://www.cbo.gov/publication/57175. Report 57175, April 2021, p. 1, https://www.cbo.gov/publication/57175.
11 FEMA, 11 FEMA, “5 Ways FEMA 5 Ways FEMA ~~Is T ackling~~is Tackling the Climate Crisis the Climate Crisis,,” November 9, 2021, https://www.fema.gov/blog/5-ways- November 9, 2021, https://www.fema.gov/blog/5-ways-
fema-tackling-climate-crisis. fema-tackling-climate-crisis.
12 FEMA, 12 FEMA, FEMA Announces Initial Initiatives to Advance Climate Change Resilience, October 28, 2021, , October 28, 2021,
https://www.fema.gov/press-release/20211028/fema-announces-initial-initiatives-advance-climate-change-resilience. https://www.fema.gov/press-release/20211028/fema-announces-initial-initiatives-advance-climate-change-resilience.
13 U.S.13 U.S. ~~Global~~ Global Change Research Program, Change Research Program, Glossary, https://www.globalchange.gov/climate-change/glossary. , https://www.globalchange.gov/climate-change/glossary.
14 GAO,14 GAO, Climate Resilience: A Strategic Investment Approach for High -Priority Projects Could Help Target Federal
Resources, GAO-20-127, October 23, 2019, p. 2, https://www.gao.gov/assets/710/702236.pdf. , GAO-20-127, October 23, 2019, p. 2, https://www.gao.gov/assets/710/702236.pdf.
15 FEMA, 15 FEMA, Hazard Mitigation Assistance Guidance, Washington, DC, February 27, 2015, p. 1, https://www.fema.gov/, Washington, DC, February 27, 2015, p. 1, https://www.fema.gov/
sites/default/files/2020-07/fy15_HMA_Guidance.pdf. sites/default/files/2020-07/fy15_HMA_Guidance.pdf.
16 For more information about disaster declarations, see FEMA, 16 For more information about disaster declarations, see FEMA, How a Disaster Gets Declared, https://www.fema.gov/, https://www.fema.gov/
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FEMA Hazard Mitigation: A First Step Towards Climate Adaptation
Management Assistance Grant (FMAG) declaration.17 BRIC, FMA, and STORM Act funding Management Assistance Grant (FMAG) declaration.17 BRIC, FMA, and STORM Act funding
represent pre-disaster mitigation funding. Applicants can request funding from these programs to represent pre-disaster mitigation funding. Applicants can request funding from these programs to
reduce future risks without waiting for a disaster to occur. reduce future risks without waiting for a disaster to occur.
The Department of Housing and Urban Development (HUD) Community Development Block The Department of Housing and Urban Development (HUD) Community Development Block
Grant Disaster Recovery authorities for disaster recovery (CDBG-DR) and its mitigation variant Grant Disaster Recovery authorities for disaster recovery (CDBG-DR) and its mitigation variant
(CDBG-MIT)18 and the (CDBG-MIT)18 and the ~~Smal~~ Small Business Administration (SBA) Disaster Loan Program19 can also Business Administration (SBA) Disaster Loan Program19 can also
fund mitigation activities. These programs may work cooperatively with FEMA programs, but are fund mitigation activities. These programs may work cooperatively with FEMA programs, but are
outside the scope of this report. outside the scope of this report.
FEMA Hazard Mitigation Assistance
Climate impacts include events that present immediate, acute, physical danger, such as major Climate impacts include events that present immediate, acute, physical danger, such as major
storms and wildfires, or those causing incremental physical impacts over extended periods of storms and wildfires, or those causing incremental physical impacts over extended periods of
time, such as extreme heat, drought, and sea level rise (and associated coastal flooding.) Many time, such as extreme heat, drought, and sea level rise (and associated coastal flooding.) Many
places are subject to more than one climate-related impact, such as extreme places are subject to more than one climate-related impact, such as extreme ~~rainfal~~ rainfall combined combined
with coastal flooding, or extreme heat coupled with drought and wildfire. A growing body of with coastal flooding, or extreme heat coupled with drought and wildfire. A growing body of
evidence shows that the increasing frequency and intensity of weather-related disasters compound evidence shows that the increasing frequency and intensity of weather-related disasters compound
one another.20 The compounding effects of these impacts may result in increased risks. one another.20 The compounding effects of these impacts may result in increased risks.
Given the increasing severity and frequency of natural disasters, as Given the increasing severity and frequency of natural disasters, as ~~wel~~ well as their potential to as their potential to
increase cost and casualties, some policymakers have encouraged the use of mitigation funding in increase cost and casualties, some policymakers have encouraged the use of mitigation funding in
order to reduce disaster-related spending. The majority of federal funding for both pre- and post-order to reduce disaster-related spending. The majority of federal funding for both pre- and post-
disaster mitigation comes from FEMA through three programs: HMGP, BRIC, and FMA. disaster mitigation comes from FEMA through three programs: HMGP, BRIC, and FMA.
Together, these programs are collectively referred to as Hazard Mitigation Assistance (HMA). Together, these programs are collectively referred to as Hazard Mitigation Assistance (HMA).
EligibleEligible applicants include state and local governments and applicants include state and local governments and ~~federal y~~ federally-recognized tribes. recognized tribes.
Individuals and businesses may not apply for HMA funding, but they may benefit from a Individuals and businesses may not apply for HMA funding, but they may benefit from a
community application. Eligiblecommunity application. Eligible activities differ for the three programs.21 Applicants must have a activities differ for the three programs.21 Applicants must have a
FEMA-approved hazard mitigation plan at the time that HMAFEMA-approved hazard mitigation plan at the time that HMA funding is obligated.22 funding is obligated.22
The importance of federal mitigation funding is The importance of federal mitigation funding is ~~il ustrated~~illustrated by a recent study that looked at the by a recent study that looked at the
impacts of 23 years of federal mitigation grants provided by FEMA, the Economic Development impacts of 23 years of federal mitigation grants provided by FEMA, the Economic Development
Administration (EDA), and HUD, and found that for every $1 invested by federal grant programs, Administration (EDA), and HUD, and found that for every $1 invested by federal grant programs,
society as a whole saved $6 due to reduced future losses. This is an average across four natural society as a whole saved $6 due to reduced future losses. This is an average across four natural
hazards: riverine flooding (7:1), hurricane winds (5:1), earthquakes (3:1), and fires at the hazards: riverine flooding (7:1), hurricane winds (5:1), earthquakes (3:1), and fires at the

disaster/how-declared;disaster/how-declared; and CRSand CRS Report R43784, Report R43784, FEMA’s Disaster Declaration Process: A ~~Prim er~~Primer, by Bruce, by Bruce R. R.
Lindsay. Lindsay.
17 For more information on FMAG declarations, see 17 For more information on FMAG declarations, see FEMA, FEMA, Fire Mitigation Assistance Grants, https://www.fema.gov/, https://www.fema.gov/
assistance/public/fire-managementassistance/public/fire-management -assistance; and CRS-assistance; and CRS Report R43738, Report R43738, Fire ~~Managem ent~~Management Assistance Grants:
Frequently Asked Questions, by, by Diane P. Horn, Katie Hoover, and BruceDiane P. Horn, Katie Hoover, and Bruce R. LindsayR. Lindsay . .
18 For more information on CDBG-DR 18 For more information on CDBG-DR and CDBG-MITand CDBG-MIT , see CRS, see CRS Report R46475, Report R46475, The Community Development Block
Grant’s Disaster Recovery (CDBG-DR) Component: Background and Issues, by Joseph V. Jaroscak. , by Joseph V. Jaroscak.
19 For more information on SBA disaster loans, see19 For more information on SBA disaster loans, see ~~CRS~~ CRS Report R41309, Report R41309, The SBA Disaster Loan Program: Overview
and Possible Issues for Congress, by Bruce, by Bruce R. Lindsay. R. Lindsay.
20 Colin Raymond et al., “Understanding and Managing Connected Extreme Events,” 20 Colin Raymond et al., “Understanding and Managing Connected Extreme Events,” Nature Climate Change, vol. 10, , vol. 10,
no. 7 (June 2020), pp. 611-621. no. 7 (June 2020), pp. 611-621.
21 21 ~~Ibid., pp. 32-33.~~
FEMA, Hazard Mitigation Assistance Guidance, Washington, DC, February 27, 2015, p. 32-33, https://www.fema.gov/sites/default/files/2020-07/fy15_HMA_Guidance.pdf. 22 Ibid., pp. 45-47. See also FEMA, 22 Ibid., pp. 45-47. See also FEMA, Hazard Mitigation Planning, https://www.fema.gov/emergency-managers/risk-, https://www.fema.gov/emergency-managers/risk-
management/hazard-mitigation-planning. management/hazard-mitigation-planning.
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FEMA Hazard Mitigation: A First Step Towards Climate Adaptation
wildland-urban interface (WUI)23 (3:1).24 The study also estimated that the federal government wildland-urban interface (WUI)23 (3:1).24 The study also estimated that the federal government
spends an annual average of $10 spends an annual average of $10 ~~bil ion~~ billion on disasters through PA, IA, and other costs.25 on disasters through PA, IA, and other costs.25
Table 1. FEMA Hazard Mitigation Programs
Type
Program
Legislation
Funding
Post-disaster Post-disaster
HMGP HMGP
Stafford Act Section 404 Stafford Act Section 404
Disaster Disaster ~~Relief~~ Relief Fund (DRF) Fund (DRF)
Post-disaster Post-disaster
IA IA
Stafford Act Section 408 Stafford Act Section 408
DRF DRF
Post-disaster Post-disaster
PA PA
Stafford Act Section 406 Stafford Act Section 406
DRF DRF
Pre-disaster Pre-disaster
BRIC BRIC
DRRA Section 1234, Stafford DRRA Section 1234, Stafford
6% set-aside from 6% set-aside from DRF DRF
Act Section 203 Act Section 203
Pre-disaster Pre-disaster
FMA FMA
National Flood Insurance Act National Flood Insurance Act
NFIP policyholders, NFIP policyholders,
additional appropriation additional appropriation
from IIJA FY2022-FY2026 from IIJA FY2022-FY2026
Pre-disaster Pre-disaster
State Hazard State Hazard
STORM Act, Stafford Act STORM Act, Stafford Act
Appropriation from IIJA Appropriation from IIJA
Mitigation Revolving Mitigation Revolving
Section 205 Section 205
FY2022-FY2026 FY2022-FY2026
Loan Program Loan Program
~~Source:~~
~~a. Disaster Recovery Reform Act of 2018 (DRRA), P.L. 115-254.~~
b. Notes: Robert T. Stafford Disaster Relief and Emergency Assistance Act (P.L. 93-288, as amended); Disaster Recovery Reform Act of 2018 (DRRA, P.L. 117-58); Infrastructure Investment and Jobs Act (IIJA), P.L. 117-58Infrastructure Investment and Jobs Act (IIJA), P.L. 117-58.
c. ); Safeguarding TomorrowSafeguarding Tomorrow through Ongoing Risk Mitigation (STORM) Act of 2020, P.L. 116-284.through Ongoing Risk Mitigation (STORM) Act of 2020, P.L. 116-284.
Post-Disaster Mitigation
Hazard Mitigation Grant Program (HMGP)
The Hazard Mitigation Grant Program is authorized by the Robert T. Stafford Disaster Relief and The Hazard Mitigation Grant Program is authorized by the Robert T. Stafford Disaster Relief and
Emergency Assistance Act (hereinafter the Stafford Act)26 Section 404—Hazard Mitigation27 and Emergency Assistance Act (hereinafter the Stafford Act)26 Section 404—Hazard Mitigation27 and
is funded through the Disaster Relief Fund (DRF).28 HMGP’s key purpose is to ensure that the is funded through the Disaster Relief Fund (DRF).28 HMGP’s key purpose is to ensure that the
opportunity to take critical mitigation measures is not lost during the reconstruction process opportunity to take critical mitigation measures is not lost during the reconstruction process
following a disaster. HMGP funding is availablefollowing a disaster. HMGP funding is available ~~to al~~ to all areas of a state, territory, or tribal lands areas of a state, territory, or tribal lands
where it is requested by a governor or tribal chief executive following a major disaster declaration where it is requested by a governor or tribal chief executive following a major disaster declaration
or an FMAG declaration. or an FMAG declaration.

~~23 T he wildland-urban~~ The level of HMGP funding available for a given disaster is based on a percentage of the estimated total federal assistance under the Stafford Act for the declaration, awarded on a sliding scale as a percentage of the estimated amount of total federal assistance for the disaster: 23 The wildland-urban interface (WUI) is the zone where structures and other human development meet or intermingle interface (WUI) is the zone where structures and other human development meet or intermingle
with undeveloped wildlandwith undeveloped wildland or vegetative fuels. Seeor vegetative fuels. See U.S.U.S. Fire Administration, Fire Administration, “ Wildland Urban Interface (WUI)Wildland Urban Interface (WUI),,”
https://www.usfa.fema.gov/wui/. https://www.usfa.fema.gov/wui/.
24 National Institute of Building Sciences, 24 National Institute of Building Sciences, Natural Hazard Mitigation Saves: 2019 Report,, Washington, DC, 2019, p. Washington, DC, 2019, p.
37, https://www.nibs.org/files/pdfs/NIBS_MMC_MitigationSaves_2019.pdf.37, https://www.nibs.org/files/pdfs/NIBS_MMC_MitigationSaves_2019.pdf.
25 Multi-hazard Mitigation Council, National Institute of Building 25 Multi-hazard Mitigation Council, National Institute of Building Sciences,Sciences, Natural Hazard Mitigation Saves, 2019 , 2019
Report, Washington, DC, pp. 1-3, https://www.nibs.org/projects/natural-hazard-mitigation-saves-2019-report. Report, Washington, DC, pp. 1-3, https://www.nibs.org/projects/natural-hazard-mitigation-saves-2019-report.
26 42 U.S.C.26 42 U.S.C. §§5121 et seq. §§5121 et seq.
27 42 U.S.C.27 42 U.S.C. §5170c. §5170c.
28 For more information on the Disaster Relief Fund28 For more information on the Disaster Relief Fund (DRF), see CRS(DRF), see CRS Report R45484, Report R45484, The Disaster Relief Fund:
Overview and Issues, by William L. Painter. , by William L. Painter.
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~~The level of HMGP funding available for a given disaster is based on a percentage of the~~
~~estimated total federal assistance under the Stafford Act for the declaration, awarded on a sliding~~
~~scale as a percentage of the estimated amount of total federal assistance for the disaster:~~
~~ up to 15% of the first $2 bil ion~~  up to 15% of the first $2 billion of estimated aggregate amounts of disaster of estimated aggregate amounts of disaster
assistance; assistance;
 up to 10% of amounts between $2  up to 10% of amounts between $2 ~~bil ion~~billion and $10 and $10 ~~bil ion;~~
billion;  up to 7.5% of amounts between $10  up to 7.5% of amounts between $10 ~~bil ion~~billion and $35.333 and $35.333 ~~bil ion;~~ billion; and and
 20% for any state with an approved Enhanced State Mitigation Plan29 in effect  20% for any state with an approved Enhanced State Mitigation Plan29 in effect
before the disaster.30 before the disaster.30
HMGP funding HMGP funding ~~initial y~~ initially goes to a state. States can use HMGP funds for any eligible activity for goes to a state. States can use HMGP funds for any eligible activity for
any type of hazard and are not limited to the hazard or area for which the grant was awarded. For any type of hazard and are not limited to the hazard or area for which the grant was awarded. For
example, funding example, funding ~~al ocated~~allocated for flooding in one county could be used for wildfire mitigation in a for flooding in one county could be used for wildfire mitigation in a
different county, as long as the activity is eligible.different county, as long as the activity is eligible. The decision is made by the state where the The decision is made by the state where the
funding can best be used, and decisions about funding can best be used, and decisions about ~~al ocating~~allocating HMGP funds to subapplicants are made HMGP funds to subapplicants are made
by the state.31by the state.31
HMGP Funding for COVID-19 Disaster Declarations
FEMA announced in August 2021 that HMGP funding FEMA announced in August 2021 that HMGP funding ~~wil~~ will be availablebe available ~~to al~~ to all states, territories, states, territories,
and tribes that received a major disaster declaration for the COVID-19 pandemic for 4% of and tribes that received a major disaster declaration for the COVID-19 pandemic for 4% of
eligibleeligible relief costs (relief costs (seesee Figure 1).32 This funding is not restricted to pandemic-related mitigation. ).32 This funding is not restricted to pandemic-related mitigation.
Four percent is a lower percentage than is Four percent is a lower percentage than is ~~usual y~~usually awarded for HMPG, but the total funding of awarded for HMPG, but the total funding of
$3.46 $3.46 ~~bil ion~~ billion represents the largest amount of HMGP funding in a single fiscal year. (The largest represents the largest amount of HMGP funding in a single fiscal year. (The largest
amount previously was $2.29 amount previously was $2.29 ~~bil ion~~billion in FY2005.) in FY2005.)

29 44 C.F.R. §201.5. 29 44 C.F.R. §201.5.
30 42 U.S.C.30 42 U.S.C. §5170c(a) and 44 C.F.R. §206.432(b). §5170c(a) and 44 C.F.R. §206.432(b).
31 Eligible31 Eligible subapplicants includesubapplicants include state, territorial and local governments, federallystate, territorial and local governments, federally -recognized tribes or tribal recognized tribes or tribal
organizations, and certain nonprofit organizations. Additionally, certain nonprofit organizations may apply for HMGP organizations, and certain nonprofit organizations. Additionally, certain nonprofit organizations may apply for HMGP
funding.funding. State agencies andState agencies and ~~federally~~ federally-recognized tribes applying for HMGPrecognized tribes applying for HMGP ~~funding~~ funding must have a FEMA-approved State must have a FEMA-approved State
~~or T ribal~~or Tribal Mitigation Plan at the time of the presidential major disaster declaration and at the time the HMGP Mitigation Plan at the time of the presidential major disaster declaration and at the time the HMGP ~~funding is~~
funding is obligated. Allobligated. All subapplicants for HMGP must have a FEMA-approved Local or subapplicants for HMGP must have a FEMA-approved Local or ~~T ribal~~Tribal Mitigation Plan at the time of Mitigation Plan at the time of
obligation of grant funds. obligation of grant funds.
32 FEMA, 32 FEMA, COVID-19 Disaster Declarations, August, August 20, 2021, https://www.fema.gov/disaster/coronavirus/disaster-20, 2021, https://www.fema.gov/disaster/coronavirus/disaster-
declarations. declarations.
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Figure 1. Hazard Mitigation Grant Program Funding for Major Disaster Declarations
Related to the COVID-19 Pandemic

Source: FEMA, FEMA, Hazard Mitigation Grant Program ~~Al ocations~~ Allocations for COVID-19 Declarations,, August 20, 2021.August 20, 2021.
FEMA Public Assistance and Individual Assistance
Public Assistance
FEMA Public Assistance (PA) provides financial and direct assistance to subfederal governments FEMA Public Assistance (PA) provides financial and direct assistance to subfederal governments
and eligibleand eligible nonprofits when authorized following a Stafford Act emergency or major disaster nonprofits when authorized following a Stafford Act emergency or major disaster
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declaration.33 PA may provide assistance for urgent emergency response activities (emergency declaration.33 PA may provide assistance for urgent emergency response activities (emergency
work) as work) as ~~wel~~ well as long-term reconstruction (permanent work). On average, PA accounts for the as long-term reconstruction (permanent work). On average, PA accounts for the
single greatest source of expenditures from the DRF, which supports the administration and single greatest source of expenditures from the DRF, which supports the administration and
funding of Stafford Act assistance.34 Mitigation projects account for a fraction of these historical funding of Stafford Act assistance.34 Mitigation projects account for a fraction of these historical
obligations.35 obligations.35
Under current authorities, FEMA may provide PA for post-disaster mitigation measures on the Under current authorities, FEMA may provide PA for post-disaster mitigation measures on the
disaster-damaged components of eligible facilities, or when eligible, on the full extent of disaster-damaged components of eligible facilities, or when eligible, on the full extent of
replacement facilities (including alternate or improved projects that may significantly differ from replacement facilities (including alternate or improved projects that may significantly differ from
the original facility).36 In general, PA for mitigation can only fund measures affecting the the original facility).36 In general, PA for mitigation can only fund measures affecting the
damaged components of facilities, which may result in partial funding for projects like whole-damaged components of facilities, which may result in partial funding for projects like whole-
facility elevation. Per federal regulations and agency policy, FEMA facility elevation. Per federal regulations and agency policy, FEMA ~~wil~~ will only approve mitigation only approve mitigation
measures determined to be cost effective.37measures determined to be cost effective.37
~~Additional y,~~ Additionally, FEMA may provide PA for subfederal governments to rebuild eligibleFEMA may provide PA for subfederal governments to rebuild eligible facilities in facilities in
accordance with applicable building codes. The Disaster Recovery Reform Act of 2018 (DRRA)38 accordance with applicable building codes. The Disaster Recovery Reform Act of 2018 (DRRA)38
enhanced these authorities by authorizing FEMA to provide PA for the costs of reconstruction or enhanced these authorities by authorizing FEMA to provide PA for the costs of reconstruction or
replacement in accordance with “the latest published editions of relevant consensus-based codes, replacement in accordance with “the latest published editions of relevant consensus-based codes,
specifications, and standards that incorporate the latest hazard-resistant designs.”39 specifications, and standards that incorporate the latest hazard-resistant designs.”39
Individual Assistance—Individuals and Households Program
After a Stafford Act declaration, the President may authorize FEMA to provide various forms of After a Stafford Act declaration, the President may authorize FEMA to provide various forms of
assistance, including assistance through the Individuals and Households Program (IHP), a form of assistance, including assistance through the Individuals and Households Program (IHP), a form of
Individual Assistance (IA).40 The IHP is authorized under Stafford Act Section 408—Federal Individual Assistance (IA).40 The IHP is authorized under Stafford Act Section 408—Federal
Assistance to Individuals and Households.41 If approved, IHP assistance may provide financial Assistance to Individuals and Households.41 If approved, IHP assistance may provide financial
and/or direct assistance to eligible individuals and households. However, the IHP cannot and/or direct assistance to eligible individuals and households. However, the IHP cannot
~~compensate disaster survivors for al losses and it is not intended to make disaster survivors~~
~~whole again.42~~

~~33 See CRS~~ 33 See CRS Infographic IG10021, Infographic IG10021, How FEMA Public Assistance Works,, by Erica A. Lee. by Erica A. Lee.
34 For more information on PA, see CRS34 For more information on PA, see CRS Report R46749, Report R46749, FEMA’s Public Assistance Program: A Primer and
Considerations for Congress, by Erica A. Lee. , by Erica A. Lee.
35 Ibid., p. 23. 35 Ibid., p. 23.
36 See36 See ~~CRS~~ CRS Report R46749, Report R46749, FEMA’s Public Assistance Program: A Primer and Considerations for Congress, by Erica , by Erica
A. Lee. Definitions of alternate and improved facilities may beA. Lee. Definitions of alternate and improved facilities may be found at FEMA, Publicfound at FEMA, Public Assistance Program and Policy Assistance Program and Policy
GuideGuide ~~Version~~ Version 4.0 (PAPPG 2020), June 1, 2020, p. 163, https://www.fema.gov/sites/default/files/documents/4.0 (PAPPG 2020), June 1, 2020, p. 163, https://www.fema.gov/sites/default/files/documents/
fema_pappg-v4-updated-links_policy_6-1-2020.pdf. fema_pappg-v4-updated-links_policy_6-1-2020.pdf.
37 44 C.F.R. §206.226(e); FEMA, 37 44 C.F.R. §206.226(e); FEMA, PAPPG 2020, pp. 154-155, 242-246; FEMA, “Benefit-Cost Analysis,” , pp. 154-155, 242-246; FEMA, “Benefit-Cost Analysis,”
https://www.fema.gov/grants/ guidance-tools/benefithttps://www.fema.gov/grants/ guidance-tools/benefit -cost-analysis; and -cost-analysis; and ~~CRS~~ CRS Report R46749, Report R46749, FEMA’s Public
Assistance Program ~~: A Prim er~~: A Primer and Considerations for Congress, by Erica A. Lee. , by Erica A. Lee.
38 Division D of P.L. 115-254. 38 Division D of P.L. 115-254.
39 Section 1235(b) of DRRA,39 Section 1235(b) of DRRA, Division D of P.L. 115-254, as it amends §406(e)(1)(A) of the Stafford Act, P.L. 93-288, Division D of P.L. 115-254, as it amends §406(e)(1)(A) of the Stafford Act, P.L. 93-288,
as amended, 42 U.S.C.as amended, 42 U.S.C. §5172(e)(1)(A); and CRS§5172(e)(1)(A); and CRS Report R45819, Report R45819, The Disaster Recovery Reform Act of 2018 (DRRA):
A ~~Sum m ary~~Summary of Selected Statutory Provisions, coordinated by Elizabeth M. Webster and Bruce, coordinated by Elizabeth M. Webster and Bruce R. Lindsay, pp. 14-16. R. Lindsay, pp. 14-16.
40 42 U.S.C.40 42 U.S.C. §5174. See§5174. See also 44 C.F.R. §206.110(a); and FEMA, also 44 C.F.R. §206.110(a); and FEMA, Individual Assistance Program and Policy Guide
(IAPPG), v. 1.1, FP 104-009-03, May 2021, pp. 6, 41, https://www.fema.gov/sites/default/files/documents/fema_iappg-, v. 1.1, FP 104-009-03, May 2021, pp. 6, 41, https://www.fema.gov/sites/default/files/documents/fema_iappg-
1.1.pdf (hereinafter FEMA, 1.1.pdf (hereinafter FEMA, IAPPG). For additional information on FEMA’s Individual Assistance (IA) program, see ). For additional information on FEMA’s Individual Assistance (IA) program, see
CRSCRS In FocusIn Focus IF11298, IF11298, A Brief Overview of FEMA’s Individual Assistance Program , by Elizabeth M. Webster. , by Elizabeth M. Webster.
41 42 U.S.C. 41 42 U.S.C. ~~§5174.~~
42 42 U.S.C. §5174; 44 C.F.R. §§206.110-206.120; and FEMA, IAPPG~~, p. 41~~ §5174. .
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compensate disaster survivors for all losses and it is not intended to make disaster survivors whole again.42 Home Repair Assistance43 is one component of IHP assistance. The objective of Home Repair Home Repair Assistance43 is one component of IHP assistance. The objective of Home Repair
Assistance is to make the disaster survivors’ home “safe, sanitary, or functional,” not to return the Assistance is to make the disaster survivors’ home “safe, sanitary, or functional,” not to return the
home to its pre-disaster condition or to improve it.44 However, repairs may include hazard home to its pre-disaster condition or to improve it.44 However, repairs may include hazard
mitigation measures that make the housing more resilient.45 mitigation measures that make the housing more resilient.45 ~~Specifical y~~Specifically, reasonable hazard , reasonable hazard
mitigation measures may be permitted, even if they improve upon a component’s pre-disaster mitigation measures may be permitted, even if they improve upon a component’s pre-disaster
condition.46 condition.46
FEMA’s regulations and guidance impose limitations on the mitigation assistance that may be FEMA’s regulations and guidance impose limitations on the mitigation assistance that may be
provided, including that it may only be awarded for disaster-damaged real property components provided, including that it may only be awarded for disaster-damaged real property components
that existed and were functional prior to the declared disaster.47 Further, the amount of financial that existed and were functional prior to the declared disaster.47 Further, the amount of financial
assistance for housing—including mitigation measures—is capped in statute.48 Assistance for assistance for housing—including mitigation measures—is capped in statute.48 Assistance for
housing-related needs may not exceed $37,900 (FY2022; adjusted housing-related needs may not exceed $37,900 (FY2022; adjusted ~~annual y~~annually),49 and the approved ),49 and the approved
mitigation measures are subject to this cap. mitigation measures are subject to this cap.
On June 10, 2021, FEMA announced an expansion of the mitigation assistance provided under On June 10, 2021, FEMA announced an expansion of the mitigation assistance provided under
the IHP Home Repair Assistance program for disasters declared on or after May 26, 2021, to the IHP Home Repair Assistance program for disasters declared on or after May 26, 2021, to
““~~al ow~~allow eligible eligible homeowners ..homeowners .. . [to] repair or rebuild stronger, more durable homes.” Per the [to] repair or rebuild stronger, more durable homes.” Per the
agency’s announcement, FEMA’s IHP Home Repair Assistance agency’s announcement, FEMA’s IHP Home Repair Assistance ~~wil~~ will fund the following specific fund the following specific
mitigation measures: (1) roof repair to withstand higher winds and help prevent water infiltration; mitigation measures: (1) roof repair to withstand higher winds and help prevent water infiltration;
(2) elevating a water heater or furnace to avoid future flood damage; and (3) elevating or moving (2) elevating a water heater or furnace to avoid future flood damage; and (3) elevating or moving
an electrical panel to avoid future flood damage.50 an electrical panel to avoid future flood damage.50
~~Additional y,~~ Additionally, although hazard mitigation measures are intended to “reduce the likelihood of although hazard mitigation measures are intended to “reduce the likelihood of
future damage,” this assistance is not available until after a disaster has occurred and received a future damage,” this assistance is not available until after a disaster has occurred and received a
presidential Stafford Act declaration.51presidential Stafford Act declaration.51
Pre-Disaster Mitigation
Funding for pre-disaster mitigation is a relativelyFunding for pre-disaster mitigation is a relatively new practice. Before 1997, federal hazard new practice. Before 1997, federal hazard
mitigation funding was only availablemitigation funding was only available after a disaster, through HMGP and PA, and was intended after a disaster, through HMGP and PA, and was intended
to ensure that the reconstruction process following a disaster addressed opportunities to include to ensure that the reconstruction process following a disaster addressed opportunities to include
~~mitigation measures. Congress first appropriated funding for FEMA pre-disaster mitigation in~~
~~1997, and FEMA used this funding to establish a pilot project cal ed Project Impact.52 The~~

42 42 U.S.C. §5174; 44 C.F.R. §§206.110-206.120; and FEMA, IAPPG, p. 41. 43 FEMA, 43 FEMA, Assistance for Housing and Other Needs, September 2, 2021, https://www.fema.gov/assistance/individual/, September 2, 2021, https://www.fema.gov/assistance/individual/
housing. housing.
44 FEMA, 44 FEMA, IAPPG, p. 85. , p. 85.
45 FEMA, 45 FEMA, IAPPG, p. 86. , p. 86.
46 FEMA, 46 FEMA, IAPPG, p. 88. , p. 88.
47 44 C.F.R. §§206.111 and 206.117(a), (b)(2)(i), (b)(2)(iii), and (b)(2)(iv); and FEMA, 47 44 C.F.R. §§206.111 and 206.117(a), (b)(2)(i), (b)(2)(iii), and (b)(2)(iv); and FEMA, IAPPG, p. 87. , p. 87.
48 42 U.S.C.48 42 U.S.C. §5174(h)(1); and FEMA, §5174(h)(1); and FEMA, IAPPG, pp. 42, 85. For FY2022, the maximum amount of financial assistance , pp. 42, 85. For FY2022, the maximum amount of financial assistance
for housing isfor housing is $37,900 and the maximum amount of financial assistance for other needs is $37,900 (DHS/FEMA, $37,900 and the maximum amount of financial assistance for other needs is $37,900 (DHS/FEMA,
“Notice of Maximum Amount of Assistance Under the Individuals“Notice of Maximum Amount of Assistance Under the Individuals and Householdsand Households ~~Pr ogram~~ Program,” 86 ,” 86 Federal Register
63046, November 15, 2021, https://www.govinfo.gov/content/pkg/FR-2021-11-15/pdf/2021-24755.pdf (hereinafter 63046, November 15, 2021, https://www.govinfo.gov/content/pkg/FR-2021-11-15/pdf/2021-24755.pdf (hereinafter
FEMA, “Notice of Maximum Amount of IHP Assistance”). It is adjustedFEMA, “Notice of Maximum Amount of IHP Assistance”). It is adjusted annually to reflect changes in the Consumer annually to reflect changes in the Consumer
Price Index for All Urban ConsumersPrice Index for All Urban Consumers ~~published~~ published by the Department of Labor (42 U.S.C. §5174(h)(3)).by the Department of Labor (42 U.S.C. §5174(h)(3)).
49 42 U.S.C.49 42 U.S.C. §5174(h)(1); FEMA, “Notice of Maximum Amount of IHP Assistance.” §5174(h)(1); FEMA, “Notice of Maximum Amount of IHP Assistance.”
50 FEMA, 50 FEMA, Hazard Mitigation Under the Individuals and Households Program , June 10, 2021, https://www.fema.gov/, June 10, 2021, https://www.fema.gov/
fact-sheet/hazard-mitigation-under-individuals-and-households-program. fact-sheet/hazard-mitigation-under-individuals-and-households-program.
51 FEMA, 51 FEMA, IAPPG, pp. 85-86. , pp. 85-86.
~~52 FEMA, Building a Disaster Resistant Community, Project Impact Guidebook, 1997, https://training.fema.gov/hiedu/~~
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mitigation measures. Congress first appropriated funding for FEMA pre-disaster mitigation in 1997, and FEMA used this funding to establish a pilot project called Project Impact.52 The Disaster Mitigation Act of 200053 placed pre-disaster mitigation in the Stafford Act and created Disaster Mitigation Act of 200053 placed pre-disaster mitigation in the Stafford Act and created
the Pre-Disaster Mitigation Grant Program (PDM).54 In 2003, Congress further defined the PDM the Pre-Disaster Mitigation Grant Program (PDM).54 In 2003, Congress further defined the PDM
program to explicitlyprogram to explicitly require competitive grant awards, which represented the first time that require competitive grant awards, which represented the first time that
mitigation funding was awarded competitively.55 mitigation funding was awarded competitively.55
From FY1997 to FY2018, the funding available From FY1997 to FY2018, the funding available for pre-disaster mitigation was appropriated on for pre-disaster mitigation was appropriated on
an annual basis. The amount of funding requested in grant applications exceeded the amount of an annual basis. The amount of funding requested in grant applications exceeded the amount of
appropriated funds each year. For example, between 2003 and 2016, a total of $1.1 appropriated funds each year. For example, between 2003 and 2016, a total of $1.1 ~~bil ion~~billion in in
PDM funds was appropriated, while applicants requested a total of $3.2 PDM funds was appropriated, while applicants requested a total of $3.2 ~~bil ion~~billion.56 .56
Funding for pre-disaster mitigation changed significantly with the passage of DRRA. Section Funding for pre-disaster mitigation changed significantly with the passage of DRRA. Section
1234 of DRRA authorized a new source of funding for pre-disaster mitigation, the National 1234 of DRRA authorized a new source of funding for pre-disaster mitigation, the National
Public Infrastructure Pre-Disaster Mitigation Fund (NPIPDMF), which Public Infrastructure Pre-Disaster Mitigation Fund (NPIPDMF), which ~~al ows~~allows the President to set the President to set
aside from the DRF an amount equal to 6% of the estimated aggregate amount of funding aside from the DRF an amount equal to 6% of the estimated aggregate amount of funding
awarded under seven sections of the Stafford Act.57 The amount set aside in the NPIPDMF awarded under seven sections of the Stafford Act.57 The amount set aside in the NPIPDMF ~~shal~~
shall not reduce the amounts otherwise available for the relevant sections of the Stafford Act.58 not reduce the amounts otherwise available for the relevant sections of the Stafford Act.58
In FY2019, the PDM program was funded through the DRF as part of the transition to the new In FY2019, the PDM program was funded through the DRF as part of the transition to the new
funding model, and the BRIC program began in FYfunding model, and the BRIC program began in FY2020. Table 2 aand Figure 2 show funding show funding
levels for pre-disaster mitigation from FY1997 to FY2021. levels for pre-disaster mitigation from FY1997 to FY2021.
Table 2. Pre-Disaster Mitigation Funding, FY1997-FY2021
Amount Appropriated
~~Program~~
Fiscal Year
(in millions)
Program 1997 1997
$2 $2
Project Impact Project Impact
1998 1998
$30 $30
Project Impact Project Impact
1999 1999
$25 $25
Project Impact Project Impact
2000 2000
$25 $25
Project Impact Project Impact
2001 2001
$25 $25
Project Impact Project Impact
2002 2002
$25 $25
Project Impact Project Impact
2003 2003
$150 $150
PDM PDM
2004 2004
$150 $150
PDM PDM
2005 2005
$100 $100
PDM PDM
~~2006~~
~~$50~~
~~PDM~~
~~2007~~
~~$100~~
~~PDM~~

52 FEMA, Building a Disaster Resistant Community, Project Impact Guidebook, 1997, https://training.fema.gov/hiedu/docs/hazriskmanage/hazards%20risk%20mgmt%20-%20session%204%20-%20project%20impact%20guidebook.pdf. docs/hazriskmanage/hazards%20risk%20mgmt%20-%20session%204%20-%20project%20impact%20guidebook.pdf.
53 P.L. 106-390. 53 P.L. 106-390.
54 42 U.S.C.54 42 U.S.C. §5133. §5133.
55 GAO,55 GAO, The Status of FEMA’s FY03 Pre-Disaster Mitigation Program , GAO-04-717r, April 25, 2004, p. 6, , GAO-04-717r, April 25, 2004, p. 6,
https://www.gao.gov/assets/gao-04-727r.pdf. https://www.gao.gov/assets/gao-04-727r.pdf.
56 56 PDM Fiscal Year 2017 Report to Congress, p. 4., p. 4.
57 Stafford Act Sections 403 (essential assistance), 406 (repair, restoration and replacement of 57 Stafford Act Sections 403 (essential assistance), 406 (repair, restoration and replacement of ~~damage d~~damaged facilities), 407 facilities), 407
(debris(debris removal), 408 (federal assistance to individualsremoval), 408 (federal assistance to individuals and households), 410 (unemployment assistance), 416 (crisis and households), 410 (unemployment assistance), 416 (crisis
counselingcounseling assistance and training), and 428 (public assistance program alternative program procedures). Seeassistance and training), and 428 (public assistance program alternative program procedures). See CRS CRS
Report R45819, Report R45819, The Disaster Recovery Reform Act of 2018 (DRRA): A ~~Sum m ary~~Summary of Selected Statutory Provisions, for , for
further details. further details.
58 42 U.S.C.58 42 U.S.C. §5133(i)(3). §5133(i)(3).
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Amount Appropriated
~~Program~~
Fiscal Year
(in millions)
Program 2006 $50 PDM 2007 $100 PDM 2008 2008
$114 $114
PDM PDM
2009 2009
$90 $90
PDM PDM
2010 2010
$100 $100
PDM PDM
2011 2011
$49.9 $49.9
PDM PDM
2012 2012
$35.5 $35.5
PDM PDM
2013 2013
$25 $25
PDM PDM
2014 2014
$25 $25
PDM PDM
2015 2015
$25 $25
PDM PDM
2016 2016
$100 $100
PDM PDM
2017 2017
$90 $90
PDM PDM
2018 2018
$235 $235
PDM PDM
2019 2019
$250 $250
PDM PDM
2020 2020
$500 $500
BRIC BRIC
2021 2021
$1,000 $1,000
BRIC BRIC
Sources: CRS Report RL34537, CRS Report RL34537, FEMA’s Pre-Disaster Mitigation Program: Overview and Issues; FEMA, National Pre-; FEMA, National Pre-
DisasterDisaster Mitigation Fund, FiscalMitigation Fund, Fiscal Year 2017 Report to Congress,Year 2017 Report to Congress, September 1, 2017, p. 4, https://www.dhs.gov/September 1, 2017, p. 4, https://www.dhs.gov/
sites/default/files/publications/FEMA%20-%20National%20Pre-Disaster%20Mitigation%20Fund.pdf;sites/default/files/publications/FEMA%20-%20National%20Pre-Disaster%20Mitigation%20Fund.pdf; and FEMA and FEMA
Notices of Funding Opportunity for PDM and BRIC, FY2017 to FY2021. Notices of Funding Opportunity for PDM and BRIC, FY2017 to FY2021.
Figure 2. Funding for Pre-Disaster Mitigation, FY1997-FY2021

Source: CRS AnalysisCRS Analysis of data of data inin Table 2.
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FEMA’s expectation was that the NPIPDMF would receive $300-500 FEMA’s expectation was that the NPIPDMF would receive $300-500 ~~mil ion~~million per year on per year on
average, based on historical disaster expenditures.59 The disaster assistance associated with the average, based on historical disaster expenditures.59 The disaster assistance associated with the
COVID-19 major disaster declarations,60 however, has resulted in significant additional funding COVID-19 major disaster declarations,60 however, has resulted in significant additional funding
for pre-disaster mitigation. As of for pre-disaster mitigation. As of ~~October 31, 2021, $1.629 bil ion~~January 31, 2022, $1.817 billion was set aside in the DRF for was set aside in the DRF for
pre-disaster mitigation.61pre-disaster mitigation.61 ~~FEMA has not provided information on whether they wil use al of the~~
~~6% set-aside funds each year or keep some back for years with fewer disasters and thus less~~
~~funding.~~
Building Resilient Infrastructure and Communities (BRIC)
FEMA introduced a new program, Building Resilient Infrastructure and Communities (BRIC),62 FEMA introduced a new program, Building Resilient Infrastructure and Communities (BRIC),62
in FY2020 to replace the PDM program and award funding from the NPIPDMF. DRRA did not in FY2020 to replace the PDM program and award funding from the NPIPDMF. DRRA did not
require the creation of a new program. DRRA changed the funding mechanism for pre-disaster require the creation of a new program. DRRA changed the funding mechanism for pre-disaster
mitigation; however, the statutory changes introduced in DRRA could have been incorporated in mitigation; however, the statutory changes introduced in DRRA could have been incorporated in
the PDM program. The Association of State Floodplain Managers (ASFPM) adopted a resolution the PDM program. The Association of State Floodplain Managers (ASFPM) adopted a resolution
about BRIC in which they noted that FEMA created a program with a significantly different focus about BRIC in which they noted that FEMA created a program with a significantly different focus
and priorities from the PDM program, despite the fact that Congress did not establish new and priorities from the PDM program, despite the fact that Congress did not establish new
priorities for funding in DRRA.63 priorities for funding in DRRA.63
Any state that has had a major disaster declaration under the Stafford Act in the seven years prior Any state that has had a major disaster declaration under the Stafford Act in the seven years prior
to the application start date is eligibleto the application start date is eligible to apply for BRIC funding. Any to apply for BRIC funding. Any ~~federal y~~federally recognized tribe recognized tribe
that has had a major disaster declaration or is entirely or that has had a major disaster declaration or is entirely or ~~partial y~~partially located in a state or territory located in a state or territory
that has had a major disaster declaration in the seven years prior to the application start date is that has had a major disaster declaration in the seven years prior to the application start date is
also eligible. also eligible. Al All states, territories, and recognized tribal governments are eligiblestates, territories, and recognized tribal governments are eligible for BRIC at for BRIC at
least through FY2026 due to the COVID-19 pandemic disaster declarations.64least through FY2026 due to the COVID-19 pandemic disaster declarations.64
BRIC FY2020
FY2020 was the first year of operation for BRIC. A total of $500 FY2020 was the first year of operation for BRIC. A total of $500 ~~mil ion~~ million was available in was available in
FY2020 in three categories: (1) state/territory FY2020 in three categories: (1) state/territory ~~al ocation~~allocation: $33.6 : $33.6 ~~mil ion~~million; (2) tribal set-aside: $20 ; (2) tribal set-aside: $20
~~mil ion;~~ million; and (3) national competition: $446.4 and (3) national competition: $446.4 ~~mil ion~~million. Applicants in FY2020 were able to submit . Applicants in FY2020 were able to submit
an unlimitedan unlimited number of mitigation project applications in category (3), each valued up to $50 number of mitigation project applications in category (3), each valued up to $50
~~mil ion~~million. The $50 . The $50 ~~mil ion~~ million cap for an individualcap for an individual mitigation project in BRIC represents a significant mitigation project in BRIC represents a significant
increase in pre-disaster mitigation funding; the largest amount availableincrease in pre-disaster mitigation funding; the largest amount available to an individualto an individual ~~for PDM~~

~~59 U.S. Congress, House Committee on T ransportation~~ for PDM activities in FY2019 was $10 million. Since the PDM program was established, two projects have 59 U.S. Congress, House Committee on Transportation and Infrastructure, Subcommittee on Economic Development, and Infrastructure, Subcommittee on Economic Development,
PublicPublic Buildings,Buildings, and Emergency Management, and Emergency Management, Disaster Preparedness: DRRA ~~Im plem entation~~Implementation and FEMA Readiness, ,
SerialSerial No. 116-17 (House Hearing), 116th Cong., 1st sess., May 22, 2019, p. 90, https://www.congress.gov/116/chrg/No. 116-17 (House Hearing), 116th Cong., 1st sess., May 22, 2019, p. 90, https://www.congress.gov/116/chrg/
CHRG-116hhrg40590/CHRG-116hhrg40590.pdf. CHRG-116hhrg40590/CHRG-116hhrg40590.pdf.
60 FEMA, 60 FEMA, “COVID-19 Disaster DeclarationsCOVID-19 Disaster Declarations,,” https://www.fema.gov/disasters/coronavirus/disaster-declarations. https://www.fema.gov/disasters/coronavirus/disaster-declarations.
61 FEMA, 61 FEMA, Disaster Relief Fund: Monthly Report as of ~~October 31, 2021~~January 31, 2022, Fiscal Year , Fiscal Year ~~2021~~2022 Report to Congress, Report to Congress,
Washington DC, Washington DC, ~~November 10, 2021, p. 24~~February 7, 2022, p. 25, https://www.fema.gov/sites/default, https://www.fema.gov/sites/default /files/documents//files/documents/~~fema_disaster-~~fema_feb-2022-disaster-relief-relief-
~~fund-report_112021~~fund-report.pdf..pdf.
62 FEMA, 62 FEMA, Building Resilient Infrastructure and Communities (BRIC), https://www.fema.gov/grants/mitigation/, https://www.fema.gov/grants/mitigation/
building-resilientbuilding-resilient -infrastructure-communities. -infrastructure-communities.
63 Association of State Floodplain Managers, 63 Association of State Floodplain Managers, Resolution Regarding the FEMA Building Resilient Communities and
Infrastructure (BRIC) Grant Program ~~and Recom m ended~~ and Recommended Changes, December 1, 2021, p. 3, https://asfpm-, December 1, 2021, p. 3, https://asfpm-
library.s3.us-west-2.amazonaws.com/ASFPM_Pubs/ASFPM_BRIC_Resolution.pdflibrary.s3.us-west-2.amazonaws.com/ASFPM_Pubs/ASFPM_BRIC_Resolution.pdf (hereinafter (hereinafter ASFPM BRIC
Resolution). ).
64 Eligible 64 Eligible applicants for BRICapplicants for BRIC funding includefunding include states, the District of Columbia, U.S.states, the District of Columbia, U.S. territories, and federally territories, and federally
recognized Indian tribal governments. Local governments and federally recognized Indian tribal governments are recognized Indian tribal governments. Local governments and federally recognized Indian tribal governments are
eligibleeligible subapplicants. subapplicants.
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~~activities in FY2019 was $10 mil ion. Since the PDM program was established, two projects have~~
been awarded more than $4 been awarded more than $4 ~~mil ion~~million, and 280 projects (approximately 7%) have been awarded , and 280 projects (approximately 7%) have been awarded
more than $1 more than $1 ~~mil ion.65~~
million.65 FEMA has discretion to set priorities FEMA has discretion to set priorities ~~annual y~~annually for pre-disaster mitigation funding. The priorities for pre-disaster mitigation funding. The priorities
for FY2020 aimed to incentivize public infrastructure projects; projects that mitigate risk to one for FY2020 aimed to incentivize public infrastructure projects; projects that mitigate risk to one
or more lifelines;66 projects that incorporate nature-based solutions;67 and projects that encourage or more lifelines;66 projects that incorporate nature-based solutions;67 and projects that encourage
the adoption and enforcement of the latest published editions of building codes.68 the adoption and enforcement of the latest published editions of building codes.68
The most heavily weighted technical criteria in FY2020 related to building code activities, The most heavily weighted technical criteria in FY2020 related to building code activities,
reflecting FEMA’s emphasis on disaster resilience through strong building codes.69 Applications reflecting FEMA’s emphasis on disaster resilience through strong building codes.69 Applications
that included mandatory building code adoption requirements were scored more favorably. BRIC that included mandatory building code adoption requirements were scored more favorably. BRIC
priorities also included a focus on future conditions, with applications evaluated on how the priorities also included a focus on future conditions, with applications evaluated on how the
project would anticipate future conditions, such as population and demographicproject would anticipate future conditions, such as population and demographic changes, climate changes, climate
change, and sea level rise. BRIC’s project evaluation criteria also included a number of measures change, and sea level rise. BRIC’s project evaluation criteria also included a number of measures
to support underserved communities.70 to support underserved communities.70
A new form of assistance introduced in BRIC is the provision of non-financial Direct Technical A new form of assistance introduced in BRIC is the provision of non-financial Direct Technical
Assistance71 for communities to build capacity and develop applications to support underserved Assistance71 for communities to build capacity and develop applications to support underserved
populations.72 FEMA has suggested that Direct Technical Assistance is populations.72 FEMA has suggested that Direct Technical Assistance is ~~especial y~~especially important to important to
disadvantaged communities,73 and may help disadvantaged communities,73 and may help ~~smal~~ small jurisdictions in particular.74 In FY2020, FEMA jurisdictions in particular.74 In FY2020, FEMA
selected eight communities to receive non-financial Direct Technical Assistance, of which six are selected eight communities to receive non-financial Direct Technical Assistance, of which six are
~~smal~~ small and impoverished communities and three are tribes.75 and impoverished communities and three are tribes.75
FEMA received 991 applications for BRIC in FY2020, the highest number received to date for FEMA received 991 applications for BRIC in FY2020, the highest number received to date for
pre-disaster mitigation (pre-disaster mitigation (seesee Figure 3). Fifty-three states and territories requested over $3.6 ). Fifty-three states and territories requested over $3.6
~~bil ion,~~ billion, from the $500 from the $500 ~~mil ion~~million available. available. Tribes submitted 62 subapplications requesting $20.2 Tribes submitted 62 subapplications requesting $20.2
~~mil ion~~ million in funding. Five states submitted projects with over $200 in funding. Five states submitted projects with over $200 ~~mil ion~~million federal share each: federal share each:

~~65 CRS~~ 65 CRS analysis of OpenFEMA data set on Hazardanalysis of OpenFEMA data set on Hazard Mitigation Assistance ProjectsMitigation Assistance Projects— – v2, https://www.fema.gov/v2, https://www.fema.gov/
openfema-data-page/hazard-mitigation-assistance-projects-v2. Accessed November 21, 2021. openfema-data-page/hazard-mitigation-assistance-projects-v2. Accessed November 21, 2021.
66 Lifelines are the most fundamental services in a community that enable all other aspects of society to function. They 66 Lifelines are the most fundamental services in a community that enable all other aspects of society to function. They
includeinclude safety and security; food, water, and shelter; health and medical;safety and security; food, water, and shelter; health and medical; energy; communications; transportation; and energy; communications; transportation; and
hazardous hazardous ~~mat erial. See FEMA, “~~ material. See FEMA, Community LifelinesCommunity Lifelines,,” https://www.fema.gov/emergency-managers/practitioners/ https://www.fema.gov/emergency-managers/practitioners/
lifelines. lifelines.
67 FEMA, 67 FEMA, Building Community Resilience with Nature-Based Solutions, May 2021, https://www.fema.gov/sites/, May 2021, https://www.fema.gov/sites/
default/files/documents/fema_riskmap_nature-based-solutions-guide_2020.pdf. default/files/documents/fema_riskmap_nature-based-solutions-guide_2020.pdf.
68 FEMA, 68 FEMA, BRIC Building Code Activities, https://www.fema.gov/sites/default/files/documents/fema_fy21-bric-, https://www.fema.gov/sites/default/files/documents/fema_fy21-bric-
building-code-activities-psm.pdf. building-code-activities-psm.pdf.
69 See 69 See FEMA, FEMA, 2018-2022 Strategic Plan, Washington DC, March 15, 2018, p. 14, https://www.fema.gov/sites/default/, Washington DC, March 15, 2018, p. 14, https://www.fema.gov/sites/default/
files/2020-03/fema-strategic-plan_2018-2022.pdf. files/2020-03/fema-strategic-plan_2018-2022.pdf.
70 DHS, 70 DHS, Environmental Justice Annual Implementation Report FY2020, Washington DC, pp. 11-12, , Washington DC, pp. 11-12,
https://www.dhs.gov/sites/default/files/publications/dhs_fy20_ej_progress_report.pdf. https://www.dhs.gov/sites/default/files/publications/dhs_fy20_ej_progress_report.pdf.
71 FEMA, 71 FEMA, FEMA Program Support Material: BRIC Direct Technical Assistance, https://www.fema.gov/sites/default/, https://www.fema.gov/sites/default/
files/documents/fema_fy21-bric-directfiles/documents/fema_fy21-bric-direct -technical-assistance-psm.pdf. -technical-assistance-psm.pdf.
72 Department of Homeland Security (DHS), 72 Department of Homeland Security (DHS), Environmental Justice Annual Implementation Report FY2020 , ,
Washington DC, pp. 11-12, https://www.dhs.gov/sites/default/files/publications/dhs_fy20_ej_progress_report.pdf. Washington DC, pp. 11-12, https://www.dhs.gov/sites/default/files/publications/dhs_fy20_ej_progress_report.pdf.
73 FEMA, 73 FEMA, BRIC Direct Technical Assistance, https://www.fema.gov/sites/default/files/documents/fema_fy21-bric-, https://www.fema.gov/sites/default/files/documents/fema_fy21-bric-
direct-technical-assistance-psm.pdf. direct-technical-assistance-psm.pdf.
74 Leslie Kaufman, “Q&A: New 74 Leslie Kaufman, “Q&A: New Director CriswellDirector Criswell Prepares FEMA for a Hot, Chaotic Future,” Prepares FEMA for a Hot, Chaotic Future,” Insurance Journal, ,
September 24, 2021, https://www.insurancejournal.com/news/national/2021/09/24/633682.htm. September 24, 2021, https://www.insurancejournal.com/news/national/2021/09/24/633682.htm.
75 FEMA, “ 75 FEMA, “Building ~~Building~~ Resilient Infrastructure and Communities FY 2020 Subapplication Resilient Infrastructure and Communities FY 2020 Subapplication ~~Stat us~~Status,” https://www.fema.gov/,” https://www.fema.gov/
grants/mitigation/building-resilientgrants/mitigation/building-resilient -infrastructure-communities/fy2020-subapplication-status. -infrastructure-communities/fy2020-subapplication-status.
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California, New Jersey, New York, Texas, and Virginia; and 25 states submitted projects with $50 California, New Jersey, New York, Texas, and Virginia; and 25 states submitted projects with $50
~~mil ion~~ million or more federal share each.76or more federal share each.76
FEMA has not yet announced the funding awards for BRIC FY2020 but has selected 406 FEMA has not yet announced the funding awards for BRIC FY2020 but has selected 406
subapplications for further review,77 with 22 projects from 10 states selected for further review in subapplications for further review,77 with 22 projects from 10 states selected for further review in
the national competition (the national competition (seesee Table 3). Fifty-seven percent of the funding under review is in three . Fifty-seven percent of the funding under review is in three
states: California (25.27%), Washington (16.16%) and New Jersey (15.49%). states: California (25.27%), Washington (16.16%) and New Jersey (15.49%).
Of the 991 subapplications received for BRIC, 98 (9.89%) were from Of the 991 subapplications received for BRIC, 98 (9.89%) were from ~~smal~~ small and impoverished and impoverished
communities.78 Projects submitted by 46 communities.78 Projects submitted by 46 ~~smal~~ small and impoverished communities were selected for and impoverished communities were selected for
further review, amounting to $39.2 further review, amounting to $39.2 ~~mil ion~~million in total project costs,79 about 7.84% of the in total project costs,79 about 7.84% of the ~~overal~~
overall BRIC funding available. However, the majority of the projects submitted by BRIC funding available. However, the majority of the projects submitted by ~~smal~~ small and and
impoverished communities that FEMA selected were from the state and tribal impoverished communities that FEMA selected were from the state and tribal ~~al ocations (36~~
allocations (36 from the tribal set-aside and eight from the state from the tribal set-aside and eight from the state ~~al ocations~~allocations), where funding was ), where funding was ~~virtual y~~virtually
guaranteed for eligibleguaranteed for eligible projects. Only two projects from projects. Only two projects from ~~smal~~ small impoverished communities were impoverished communities were
selected for further review for competitively-awarded funding. This suggests that the selected for further review for competitively-awarded funding. This suggests that the ~~smal~~ small and and
impoverished communities that submitted subapplications were less successful than the total impoverished communities that submitted subapplications were less successful than the total
number would suggest, particularly in the competitive awards. number would suggest, particularly in the competitive awards.
ASFPM analyzed the projects that were selected for further review for BRIC FY2020 funding ASFPM analyzed the projects that were selected for further review for BRIC FY2020 funding
and concluded that more dollars and projects were selected for wealthier, greater-resourced and concluded that more dollars and projects were selected for wealthier, greater-resourced
communities than for less wealthy communities with fewer resources. They also found an award communities than for less wealthy communities with fewer resources. They also found an award
bias toward coastal communities vs. inland communities, with $474.6 bias toward coastal communities vs. inland communities, with $474.6 ~~mil ion~~million of projects selected of projects selected
for coastal communities and $27.3 for coastal communities and $27.3 ~~mil ion~~million for non-coastal projects. They noted that only one for non-coastal projects. They noted that only one
competitive project was selected from a non-coastal state, and no competitive applications were competitive project was selected from a non-coastal state, and no competitive applications were
selected from FEMA regions 5, 6, 7, or 8.80 selected from FEMA regions 5, 6, 7, or 8.80

76 FEMA, 76 FEMA, Hazard Mitigation Assistance (HMA) Annual Grant Cycle Submissions Summary, March 17, 2021, , March 17, 2021,
https://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-granthttps://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-grant -cycle-submissions-summary. -cycle-submissions-summary.
77 An application which is 77 An application which is listed as “identified for further review” is not a notification of award. listed as “identified for further review” is not a notification of award. ~~T his~~This means that a means that a
subapplication has met the requirements specified in the NOFO and the HMA Unified Guidance.subapplication has met the requirements specified in the NOFO and the HMA Unified Guidance. At this time, the At this time, the
applicants are requiredapplicants are required to work with a FEMA Regionalto work with a FEMA Regional Office to complete the preOffice to complete the pre -award activities for -award activities for
subapplications. Regional Offices willsubapplications. Regional Offices will also complete the Environmental and Historic Preservation (EHP) compliance also complete the Environmental and Historic Preservation (EHP) compliance
review for projects prior to award. Seereview for projects prior to award. See FEMA, FEMA, Subapplication Status Descriptions, , ~~htt ps~~https://www.fema.gov/grants/://www.fema.gov/grants/
mitigation/subapplication-status-descriptions. mitigation/subapplication-status-descriptions.
78 Note that from 2005 to 2019, small impoverished communities represented an average of about 6% of sub-78 Note that from 2005 to 2019, small impoverished communities represented an average of about 6% of sub-
applications each year, so this constitutes a slight increase. Seeapplications each year, so this constitutes a slight increase. See FEMA, “FEMA, “ Hazard Mitigation Assistance (HMA) Annual Hazard Mitigation Assistance (HMA) Annual
Grant Cycle SubmissionsGrant Cycle Submissions Summary,”Summary,” release, March 12, 2021, https://www.fema.gov/fact-sheet/hazard-mitigation-release, March 12, 2021, https://www.fema.gov/fact-sheet/hazard-mitigation-
assistance-hma-annual-grantassistance-hma-annual-grant -cycle-submissions-summary. -cycle-submissions-summary.
79 FEMA, 79 FEMA, Hazard Mitigation Assistance (HMA) Annual Grant Cycle Submissions Summary, March 17, 2021, , March 17, 2021,
https://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-granthttps://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-grant -cycle-submissions-summary. -cycle-submissions-summary.
80 FEMA Region 5 includes80 FEMA Region 5 includes Illinois, Indiana, Michigan, Minnesota, Ohio, and Wisconsin. FEMA Region 6 includes Illinois, Indiana, Michigan, Minnesota, Ohio, and Wisconsin. FEMA Region 6 includes
Arkansas, Louisiana, NewArkansas, Louisiana, New Mexico, Oklahoma, and Mexico, Oklahoma, and ~~T exas~~Texas. FEMA Region 7 includes. FEMA Region 7 includes Iowa, Kansas, Missouri,Iowa, Kansas, Missouri, and and
Nebraska. FEMA Region 8 includesNebraska. FEMA Region 8 includes Colorado, Montana, North Dakota, South Dakota, Utah, and Wyoming. See Colorado, Montana, North Dakota, South Dakota, Utah, and Wyoming. See
FEMA, FEMA, ~~“ Regions,”~~Regions, https://www.fema.gov/about/organization/regions. https://www.fema.gov/about/organization/regions.
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FEMA Hazard Mitigation: A First Step Towards Climate Adaptation
Figure 3. BRIC FY2020 Applications

Source: FEMA, FEMA, Hazard Mitigation Assistance (HMA) Annual Grant Cycle Submissions Summary,, March 17, 2021, March 17, 2021,
https://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-grant-cycle-submissions-summary. https://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-grant-cycle-submissions-summary.
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BRIC FY2021
A total of $1 A total of $1 ~~bil ion~~ billion is availableis available for BRIC in FY2021 in three categories: (1) state/territory for BRIC in FY2021 in three categories: (1) state/territory
~~al ocation: $56 mil ion;~~ allocation: $56 million; (2) tribal set-aside: $25 (2) tribal set-aside: $25 ~~mil ion;~~ million; and (3) national competition: $919 and (3) national competition: $919
~~mil ion.~~ million. Each state, territory, and tribe is eligibleEach state, territory, and tribe is eligible for at least $1 for at least $1 ~~mil ion~~ million in categories (1) or (2). in categories (1) or (2).
Applicants are again able to submit an unlimited number of mitigation project applications in Applicants are again able to submit an unlimited number of mitigation project applications in
category (3), each valued up to $50 category (3), each valued up to $50 ~~mil ion~~million.81 BRIC priorities for FY2021 are: (1) natural hazard .81 BRIC priorities for FY2021 are: (1) natural hazard
risk reduction activities that mitigate risk to public infrastructure and disadvantaged communities; risk reduction activities that mitigate risk to public infrastructure and disadvantaged communities;
(2) projects that mitigate risk to one or more lifelines;(2) projects that mitigate risk to one or more lifelines; (3) projects that incorporate nature-based (3) projects that incorporate nature-based
solutions; (4) projects that enhance climate resilience; and (5) projects proposed by applicants solutions; (4) projects that enhance climate resilience; and (5) projects proposed by applicants
who adopt and enforce mandatory tribal, territorial, or state-wide building codes based on the who adopt and enforce mandatory tribal, territorial, or state-wide building codes based on the
latest published editions of buildinglatest published editions of building ~~codes.82~~
~~Infrastructure Funding for BRIC~~
codes.82 BRIC received 782 applications requesting $4.16 million, and all states and territories applied for BRIC funding in FY2021.83 Infrastructure Funding for BRIC The Infrastructure Investment and Jobs Act (IIJA)The Infrastructure Investment and Jobs Act (IIJA)8384 appropriated $1 appropriated $1 ~~bil ion~~billion for BRIC, with $200 for BRIC, with $200
~~mil ion~~ million for each of FY2022 to FY2026. This funding is in addition to the 6% set-aside.for each of FY2022 to FY2026. This funding is in addition to the 6% set-aside.

~~81 DHS,~~ 81 DHS, Notice of Funding Opportunity (NOFO), Fiscal Year 2021 Building Resilient Infrastructure and Communities, ,
pp. 6-7, https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-building-resilientpp. 6-7, https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-building-resilient --
infrastructure.pdf. infrastructure.pdf.
82 82 BRIC FY2021, p. 6. p. 6.
83 83 FEMA, FEMA Receives Record-Breaking Amount in Requested Funding for Mitigation Grant Programs, February 4, 2022, https://content.govdelivery.com/accounts/USDHSFEMA/bulletins/309b032. 84 P.L. 117-58. P.L. 117-58.
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Table 3. BRIC FY2020 Applications Selected for Further Review
National Competition National Competition
Number of Subapplications
~~Percentage~~ Type of Project Percentage of Total
Selected for Further
Applicant State
Federal Share
Federal Share
Review
~~Type of Project~~
California California
$95,448,982.38 $95,448,982.38
25.27% 25.27%
4 4
3 flood control, 3 flood control, 1 wildfire 1 wildfire
mitigation mitigation
Washington Washington
$61,041,509.98 $61,041,509.98
16.16% 16.16%
3 3
1 flood control, 1 flood control, 1 1
saferoom/shelter,saferoom/shelter, 1 relocation 1 relocation
New Jersey New Jersey
$58,517,000.00 $58,517,000.00
15.49% 15.49%
2 2
2 flood control 2 flood control
District District of Columbia of Columbia
$38,560,817.00 $38,560,817.00
10.21% 10.21%
2 2
1 flood control, 1 flood control, 1 utility and 1 utility and
infrastructure protection infrastructure protection
South Carolina South Carolina
$32,635,783.95 $32,635,783.95
8.64% 8.64%
1 1
utility and infrastructure utility and infrastructure
protection protection
Maryland Maryland
$31,924,193.00 $31,924,193.00
8.45% 8.45%
1 1
flood control flood control
North Carolina North Carolina
$23,692,990.54 $23,692,990.54
6.27% 6.27%
5 5
1 flood control, 1 flood control, 1 1
floodproofing, 1 elevation,floodproofing, 1 elevation, 1 1
relocation,relocation, 1 utility and 1 utility and
infrastructure protection infrastructure protection
New York New York
$20,872,058.06 $20,872,058.06
5.53% 5.53%
2 2
2 flood control 2 flood control
Kentucky Kentucky
$10,543,961.38 $10,543,961.38
2.79% 2.79%
1 1
flood control flood control
Massachusetts Massachusetts
$4,484,673.00 $4,484,673.00
1.19% 1.19%
1 1
utility and infrastructure utility and infrastructure
protection protection
Total
$377,721,964.29
100.00% 100.00%
22 22

Sources: CRS analysis of data provided by FEMA to CRS, July 28, 2021; and FEMA, CRS analysis of data provided by FEMA to CRS, July 28, 2021; and FEMA, Building Resilient Infrastructure and Communities FY 2020 Subapplication Status, ,
https://www.fema.gov/grants/mitigation/building-resilient-infrastructure-communities/fy2020-subapplication-status. https://www.fema.gov/grants/mitigation/building-resilient-infrastructure-communities/fy2020-subapplication-status.
Notes: The type of project was identified from The type of project was identified from ~~websites~~ web sites for individual projects. for individual projects.
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Flood Mitigation Assistance Grant Program (FMA)
The Flood Mitigation Assistance (FMA) grant program is another pre-disaster mitigation funding The Flood Mitigation Assistance (FMA) grant program is another pre-disaster mitigation funding
program operated by FEMA. The FMA program is funded entirely through revenue collected by program operated by FEMA. The FMA program is funded entirely through revenue collected by
the NFIP.the NFIP.8485 The FMA program awards grants for a number of purposes, including state and local The FMA program awards grants for a number of purposes, including state and local
mitigation planning; the elevation, relocation, demolition, or flood proofing of structures; the mitigation planning; the elevation, relocation, demolition, or flood proofing of structures; the
acquisition of properties; and other activities.acquisition of properties; and other activities.8586 FMA grants are only available FMA grants are only available to communities to communities
which participate in the NFIP, to assist in efforts to reduce or eliminate flood damage to buildings which participate in the NFIP, to assist in efforts to reduce or eliminate flood damage to buildings
and structures insurable under the NFIP, particularly repetitive and structures insurable under the NFIP, particularly repetitive ~~loss86~~loss87 and severe repetitive and severe repetitive ~~loss87~~
loss88 properties. Eligibleproperties. Eligible applicants for FMA funding include states, the District of Columbia, U.S. applicants for FMA funding include states, the District of Columbia, U.S.
territories, and territories, and ~~federal y~~federally recognized Indian tribal governments. Local governments and recognized Indian tribal governments. Local governments and ~~federal y~~
federally recognized Indian tribal governments are eligible subapplicants for FMA grants.recognized Indian tribal governments are eligible subapplicants for FMA grants.
A database of FMA grants that is available A database of FMA grants that is available from FEMA indicates that approximately $1.86 from FEMA indicates that approximately $1.86 ~~bil ion~~billion
in projects was approved between 1996 and 2019.in projects was approved between 1996 and 2019.8889 Demand for FMA grants has consistently Demand for FMA grants has consistently
exceeded availableexceeded available funds. For example, $200 funds. For example, $200 ~~mil ion~~million was available for FMA in FY2020. FEMA was available for FMA in FY2020. FEMA
received 236 applications from 30 states and territories, the highest number received to date. received 236 applications from 30 states and territories, the highest number received to date.
FEMA received requests with total proposed project costs exceeding $393 FEMA received requests with total proposed project costs exceeding $393 ~~mil ion (se~~emillion in FY2020 (see Figure 4)90 and requests for $534 million in FY2021. However, 26 states and territories did not apply for FMA funding in FY2020, and 31 states and territories did not apply in FY2021.91 FEMA has not yet announced the funding awards for FMA FY2020 but has selected 117 subapplications for further review; 49 eligible projects were not selected due to lack of available FMA funding.92 50% of the projects selected were for Louisiana and 27% for Texas.93 85 42 U.S.C. §4104c. 86 ~~Figure~~
~~4).89 The FMA program has $160 mil ion available for FY2021. FEMA plans to select~~
~~applications up to the available funding amount of $160 mil ion in the following order: (1) project~~
~~scoping; (2) community mitigation projects; (3) technical assistance; (4) flood hazard mitigation~~
~~planning; and (5) individual flood mitigation projects.90~~
~~Infrastructure Funding for FMA~~
~~The IIJA appropriated $3.5 bil ion for the FMA program, with $700 mil ion for each of FY2022~~
~~to FY2026. This represents a significant increase in the amount of funding available for flood~~
~~mitigation, and the first time that funding has been appropriated for the FMA program.~~

~~84 42 U.S.C. §4104c.~~
85 For additional information on the FMA Program, see 44 C.F.R. Part 78; FEMA’s website For additional information on the FMA Program, see 44 C.F.R. Part 78; FEMA’s website at https://www.fema.gov/at https://www.fema.gov/
grants/mitigation/floods; and CRSgrants/mitigation/floods; and CRS Report R44593, Report R44593, Introduction to the National Flood Insurance Program (NFIP) , by , by
Diane P. Horn and Baird Webel. Diane P. Horn and Baird Webel.
8687 42 U.S.C. 42 U.S.C. §4121(a)(7) defines repetitive loss structure as §4121(a)(7) defines repetitive loss structure as
a structure covered by a contract for flood insurance that a structure covered by a contract for flood insurance that —
(A) has incurred(A) has incurred flood-related damage on 2 occasions, in which the cost of repair, on the average, flood-related damage on 2 occasions, in which the cost of repair, on the average,
~~equaled~~ equaled or exceededor exceeded 25 percent of the value of the structure at the time of each such flood event; 25 percent of the value of the structure at the time of each such flood event;
~~and~~
and (B) at the time of the second incidence of flood-related damage,(B) at the time of the second incidence of flood-related damage, the contract for flood insurance the contract for flood insurance
contains increased cost of compliance coverage. contains increased cost of compliance coverage.
8788 Severe repetitive loss properties are those that have incurred four or more claim payments exceeding $5,000 each, Severe repetitive loss properties are those that have incurred four or more claim payments exceeding $5,000 each,
with a cumulative amount of suchwith a cumulative amount of such payments over $20,000; or at least two claims with a cumulative total exceeding the payments over $20,000; or at least two claims with a cumulative total exceeding the
value of the property. See 42 U.S.C.value of the property. See 42 U.S.C. §4014(h) and 44 C.F.R.§4014(h) and 44 C.F.R. §79.2(h). §79.2(h).
~~88 T his~~ 89 This figure represents the total amount of federal assistance, without subtracting the cost share, for the three flood figure represents the total amount of federal assistance, without subtracting the cost share, for the three flood
mitigation programs that existed during this time: the Severe Repetitive Loss (SRL)mitigation programs that existed during this time: the Severe Repetitive Loss (SRL) grant programgrant program , the Repetitive , the Repetitive
Flood Claim (RFC)Flood Claim (RFC) grant program, and the FMA grant program. Seegrant program, and the FMA grant program. See FEMA, OpenFEMA Data Sets, FEMA, OpenFEMA Data Sets,
https://www.fema.gov/openfema-data-page/hazard-mitigation-assistance-projects-v2, accessed November 1, 2021. https://www.fema.gov/openfema-data-page/hazard-mitigation-assistance-projects-v2, accessed November 1, 2021.
8990 FEMA, FEMA, Hazard Mitigation Assistance (HMA) Annual Grant Cycle Submissions Summary, March 17, 2021, , March 17, 2021,
https://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-granthttps://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-grant -cycle-submissions-summary. -cycle-submissions-summary.
~~90 See FEMA, Notice of Funding Opportunity (NOFO) Fiscal Year 2021 Flood Mitigation Assistance ,~~
~~https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-flood-mitigation-assistance-grants.pdf~~ 91 FEMA, FEMA Receives Record-Breaking Amount in Requested Funding for Mitigation Grant Programs, February 4, 2022, https://content.govdelivery.com/accounts/USDHSFEMA/bulletins/309b032. 92 FEMA, Flood Mitigation Assistance FY 2020 Subapplication Status, https://www.fema.gov/grants/mitigation/floods/previous-fiscal-year-subapplication-statuses/fy2020-subapplication-status. 93 Ibid. .
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FEMA Hazard Mitigation: A First Step ~~Towards~~Toward Climate Adaptation
Figure 4. FMA FY2020 Applications

Source: FEMA, FEMA, Hazard Mitigation Assistance (HMA) Annual Grant Cycle Submissions Summary,, March 17, 2021, March 17, 2021,
https://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-grant-cycle-submissions-summary. https://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-grant-cycle-submissions-summary.
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FEMA Hazard Mitigation: A First Step ~~Towards~~Toward Climate Adaptation The FMA program has $160 million available for FY2021. FEMA plans to select applications up to the available funding amount of $160 million in the following order: (1) project scoping; (2) community mitigation projects; (3) technical assistance; (4) flood hazard mitigation planning; and (5) individual flood mitigation projects.94 Infrastructure Funding for FMA The IIJA appropriated $3.5 billion for the FMA program, with $700 million for each of FY2022 to FY2026. This represents a significant increase in the amount of funding available for flood mitigation, and the first time that funding has been appropriated for the FMA program. ~~Climate Adaptation~~
STORM Act State Hazard Mitigation Revolving Loan Program
A new source of hazard mitigation funding A new source of hazard mitigation funding ~~wil~~ will be availablebe available in FY2022, through the Safeguarding in FY2022, through the Safeguarding
Tomorrow through Ongoing Risk Mitigation Act of 2020, or the STORM Act (P.L. 116-284). This Tomorrow through Ongoing Risk Mitigation Act of 2020, or the STORM Act (P.L. 116-284). This
law amends the Stafford Act by authorizing FEMA to enter into agreements with eligible entities law amends the Stafford Act by authorizing FEMA to enter into agreements with eligible entities
to establish hazard mitigation revolving loan funds.to establish hazard mitigation revolving loan funds.9195 Funds made available through the STORM Funds made available through the STORM
Act may be used to assist homeowners, businesses, certain Act may be used to assist homeowners, businesses, certain ~~non-profit~~nonprofit organizations, and organizations, and
communities to reduce risk in order to decrease the loss of life and property, the cost of flood communities to reduce risk in order to decrease the loss of life and property, the cost of flood
insurance, and federal disaster payments. The legislation is intended to provide states with insurance, and federal disaster payments. The legislation is intended to provide states with
funding that funding that ~~wil~~ will help them carry out their own hazard mitigation projects.help them carry out their own hazard mitigation projects.9296
A revolving loan fund (RLF) is a self-replenishing financial mechanism that starts with a base A revolving loan fund (RLF) is a self-replenishing financial mechanism that starts with a base
level of capital, often consisting of grants from the federal government or a state, or private level of capital, often consisting of grants from the federal government or a state, or private
investment. RLFs can make loans targeted to specific types of borrowers or for specific types of investment. RLFs can make loans targeted to specific types of borrowers or for specific types of
activities, and are designed to use loan repayments to recapitalize the fund and therefore make activities, and are designed to use loan repayments to recapitalize the fund and therefore make
additional loans.additional loans.9397 This may create an ongoing source of funding and This may create an ongoing source of funding and ~~potential y~~potentially reduce the need reduce the need
for annual appropriations. Revolving loan funds for states have been operating for many years for annual appropriations. Revolving loan funds for states have been operating for many years
through the Clean Water State Revolving Fund, established in 1987, and the Drinking Water State through the Clean Water State Revolving Fund, established in 1987, and the Drinking Water State
Revolving Fund, established in 1996.Revolving Fund, established in 1996.9498 However, the STORM Act represents the first time that However, the STORM Act represents the first time that
such a fund has been set up to fund hazard mitigation. such a fund has been set up to fund hazard mitigation.
Eligible Eligible entities include states, tribal governments that have received a major disaster declaration entities include states, tribal governments that have received a major disaster declaration
during a five-year period ending on the date of enactment of the STORM Act (January 1, 2021), during a five-year period ending on the date of enactment of the STORM Act (January 1, 2021),
and insular areas.and insular areas.~~95 Al~~ 99 All participating entities are required to provide matching funds from 94 See FEMA, Notice of Funding Opportunity (NOFO) Fiscal Year 2021 Flood Mitigation Assistance, https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-flood-mitigation-assistance-grants.pdf. 95 42 U.S.C. §5135. 96 Senate Committee on Homeland Security and ~~participating entities are required to provide matching funds from~~
~~nonfederal sources in an amount equal to 10% of the amount that they receive for the revolving~~
~~fund.96~~
~~In awarding capitalization grants, the STORM Act directs FEMA to give priority to:~~
~~ projects that increase resilience and reduce the risk of harm to natural and built~~
~~infrastructure;~~
~~ projects that involve a partnership between two or more eligible entities to carry~~
~~out a project or similar projects;~~
~~ projects that take into account regional impacts of hazards; and~~
~~ projects that increase resilience of major economic sectors or critical national~~
~~infrastructure, including ports, global commodity supply chain assets, power and~~

~~91 42 U.S.C. §5135.~~
~~92 Senate Committee on Homeland Security and~~ Governmental Affairs, S.Rept. 116-249, August 10, 2020, p. 3, Governmental Affairs, S.Rept. 116-249, August 10, 2020, p. 3,
https://www.congress.gov/congressional-report/116th-congress/senate-report/249. https://www.congress.gov/congressional-report/116th-congress/senate-report/249.
9397 For additional information on revolving loan funds, see CRS For additional information on revolving loan funds, see CRS Report R46471, Report R46471, Federally Supported Projects and
~~Program s~~Programs for Wastewater, Drinking Water, and Water Supply Infrastructure, coordinated by Jonathan L. Ramseur; , coordinated by Jonathan L. Ramseur;
CRSCRS Report R45304, Report R45304, Drinking Water State Revolving Fund (DWSRF): Overview, Issues, and Legislation, by Mary , by Mary
~~T iemann~~Tiemann; and CRS; and CRS In FocusIn Focus IF11449, IF11449, ~~Econom ic~~Economic Development Revolving Loan Funds (ED-RLFs), by Julie, by Julie M. M.
Lawhorn. Lawhorn.
94 98 For additional information on the Clean Water State Revolving Fund and For additional information on the Clean Water State Revolving Fund and ~~th e~~the Drinking Water State Revolving Fund, Drinking Water State Revolving Fund,
see CRSsee CRS Report R46464, Report R46464, EPA Water Infrastructure Funding in the ~~Am erican~~American Recovery and ~~Reinvestm ent~~Reinvestment Act of 2009 , ,
by Jonathan L. Ramseur and Elena H. Humphreys. by Jonathan L. Ramseur and Elena H. Humphreys.
~~95 T he ST ORM~~99 The STORM Act defines the term “insular area” to mean Guam, Act defines the term “insular area” to mean Guam, American Samoa, the Commonwealth of the American Samoa, the Commonwealth of the
Northern Mariana Islands, and the United States VirginNorthern Mariana Islands, and the United States Virgin Islands.Islands. ~~See~~ See 42 U.S.C.42 U.S.C. §5135(m)(5). Congressional Research Service 19 FEMA Hazard Mitigation: A First Step Toward Climate Adaptation nonfederal sources in an amount equal to 10% of the amount that they receive for the revolving fund.100 In awarding capitalization grants, the STORM Act directs FEMA to give priority to:  projects that increase resilience and~~§5135(m)(5).~~
~~96 If the deposit from the entity is less than 10% of the amount of the capitalization grant, FEMA is required to~~ reduce reduce
~~the amount of the capitalization grant proportionately.~~
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the risk of harm to natural and built infrastructure;  projects that involve a partnership between two or more eligible entities to carry out a project or similar projects;  projects that take into account regional impacts of hazards; and  projects that increase resilience of major economic sectors or critical national infrastructure, including ports, global commodity supply chain assets, power and water production and distribution centers, and bridges and waterways essential to water production and distribution centers, and bridges and waterways essential to
interstate commerce.interstate commerce.97
101 Interest rates on the loans cannot exceed 1%. Annual principal and interest payments must start Interest rates on the loans cannot exceed 1%. Annual principal and interest payments must start
no later than one year after the completion of projects for which the loan was made and must be no later than one year after the completion of projects for which the loan was made and must be
fully paid within 20 years, except for loans provided to projects in low-income geographic fully paid within 20 years, except for loans provided to projects in low-income geographic
areas,areas,98102 which must be paid off not later than 30 years after the date on which the project is which must be paid off not later than 30 years after the date on which the project is
completed and not longer than the expected design life of the project. A participating entity may completed and not longer than the expected design life of the project. A participating entity may
not provide an amount equal to or more than $5 not provide an amount equal to or more than $5 ~~mil ion~~ million to a single hazard mitigation project. to a single hazard mitigation project.
Infrastructure Funding for the STORM Act
The STORM Act authorized the appropriation of $100 The STORM Act authorized the appropriation of $100 ~~mil ion annual y~~million annually for FY2022 and FY2023 for FY2022 and FY2023
to make grants to capitalize new revolving funds to be administered by states or insular areas. The to make grants to capitalize new revolving funds to be administered by states or insular areas. The
IIJA appropriated $500 IIJA appropriated $500 ~~mil ion~~ million for the revolving loan program, with $100 for the revolving loan program, with $100 ~~mil ion~~million for each of for each of
FY2022 to FY2026. FY2022 to FY2026.
Implementation of STORM Act State Hazard Mitigation ~~Revolving~~ Revolving Loan
Program
Following the appropriation of funding in the IJJA, FEMA is working on implementation of the Following the appropriation of funding in the IJJA, FEMA is working on implementation of the
STORM Act State Hazard MitigationSTORM Act State Hazard Mitigation Revolving Loan Program, beginning with program design Revolving Loan Program, beginning with program design
and options for stakeholder engagement. FEMA expects that it and options for stakeholder engagement. FEMA expects that it ~~wil~~ will take 18-24 months to stand up take 18-24 months to stand up
and implement the program, with the first Notice of Funding Opportunity (NOFO) in FY2023.and implement the program, with the first Notice of Funding Opportunity (NOFO) in FY2023.99
~~Considerations for Congress~~
~~Pre-Disaster vs. Post-Disaster Mitigation Funding~~
~~Historical y post-disaster mitigation has received significantly more funding than pre-disaster~~
~~mitigation. For example, GAO found that most of the hazard mitigation funding obligated by~~
~~FEMA from FY2010 though FY2018 was for post-disaster mitigation. Of the approximately~~
~~$11.3 bil ion obligated during that period, 88% was for post-disaster grants through HMGP and~~
~~PA ($10 bil ion). FEMA’s competitive pre-disaster grant programs, FMA and BRIC’s~~
~~predecessor, the Pre-Disaster Mitigation Grant Program (PDM), accounted for about 12% of the~~
~~total ($1.3 bil ion).100 GAO argued that this emphasis on the post-disaster environment can create~~
~~a reactionary approach where disasters determine where and for what purpose the federal~~
~~government invests in disaster resilience, which may limit states’ ability to plan and prioritize for~~
~~maximum risk reduction. Post-disaster funding, such as IA, PA, and HMGP, arrive after the~~

~~97 42 U.S.C. §5135 (d)(3).~~
~~98 T he ST ORM~~103 100 If the deposit from the entity is less than 10% of the amount of the capitalization grant, FEMA is required to reduce the amount of the capitalization grant proportionately. 101 42 U.S.C. §5135 (d)(3). 102 The STORM Act defines the term “low-income geographic area” to mean an area described Act defines the term “low-income geographic area” to mean an area described in paragraph (1) or (2) of in paragraph (1) or (2) of
section 301(a) of the Public Works and Economic Development Act of 1965 (42 U.S.C. §3161(a)). Paragraph (1) section 301(a) of the Public Works and Economic Development Act of 1965 (42 U.S.C. §3161(a)). Paragraph (1)
defines a defines a low per capita ~~incom e~~income as when as when the area has a per capita income of 80% or lessthe area has a per capita income of 80% or less of the national average. of the national average.
Paragraph (2) defines an Paragraph (2) defines an ~~unem ploym ent~~unemployment rate above national average as when an area has an unemployment rate that is, as when an area has an unemployment rate that is,
for the most recent 24-month period for which data are available, at least 1% greater than the national average for the most recent 24-month period for which data are available, at least 1% greater than the national average
unemployment rate. See https://www.govinfo.gov/content/pkg/COMPS-331/pdf/COMPS-331.pdf. unemployment rate. See https://www.govinfo.gov/content/pkg/COMPS-331/pdf/COMPS-331.pdf.
99103 FEMA briefing for House FEMA briefing for House and Senate Committee staff and CRS,and Senate Committee staff and CRS, November 22, 2021. Congressional Research Service 20 FEMA Hazard Mitigation: A First Step Toward Climate Adaptation Considerations for Congress Pre-Disaster vs. Post-Disaster Mitigation Funding Historically post-disaster mitigation has received significantly more funding than pre-disaster mitigation. For example, GAO found that most of the hazard mitigation funding obligated by FEMA from FY2010 though FY2018 was for post-disaster mitigation. Of the approximately $11.3 billion obligated during that period, 88% was for post-disaster grants through HMGP and PA ($10 billion). FEMA’s competitive pre-disaster grant programs, FMA and BRIC’s predecessor, the Pre-Disaster Mitigation Grant Program (PDM), accounted for about 12% of the total ($1.3 billion).104 GAO argued that this emphasis on the post-disaster environment can create a reactionary approach where disasters determine where and for what purpose the federal government invests in disaster resilience, which may limit states’ ability to plan and prioritize for maximum risk reduction. Post-disaster funding, such as IA, PA, and HMGP, arrive after the disaster incident and are only available ~~November 22, 2021.~~
~~100 GAO,~~ ~~Disaster Resilience: FEMA Should Take Additional Steps to Streamline Hazard Mitigation Grants and Assess~~
~~Program Effects, GAO-21-140, February 2, 2021, pp. 12-13, https://www.gao.gov/products/gao-21-140.~~
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~~FEMA Hazard Mitigation: A First Step Towards Climate Adaptation~~
~~disaster incident and are only available~~ to states that have suffered the impact of a disaster, and to states that have suffered the impact of a disaster, and
cannot be targeted at areas that might have a greater risk of a more cannot be targeted at areas that might have a greater risk of a more ~~costly~~damaging disaster that has not yet disaster that has not yet
occurred. occurred.
Despite the substantial increase in Despite the substantial increase in ~~overal~~ overall funding for pre-disaster mitigation that the 6% BRIC funding for pre-disaster mitigation that the 6% BRIC
set-aside and the additional funding appropriated in the IIJA represent, the post-disaster set-aside and the additional funding appropriated in the IIJA represent, the post-disaster
mitigation approach embodied in HMGP mitigation approach embodied in HMGP ~~stil~~ still receives more resources. FEMA’s open data sets receives more resources. FEMA’s open data sets
show that between 1996 and 2019, approximately $1.86 show that between 1996 and 2019, approximately $1.86 ~~bil ion~~billion was awarded for FMA grants, was awarded for FMA grants,
$1.92 $1.92 ~~bil ion~~ billion was awarded for PDM grants, and $22.4 was awarded for PDM grants, and $22.4 ~~bil ion~~billion was awarded in HMGP funding. was awarded in HMGP funding.~~101~~
105 In addition, according to FEMA, approximately $8.5 In addition, according to FEMA, approximately $8.5 ~~bil ion w as~~billion was obligated for PA mitigation obligated for PA mitigation
projects from 1999 to August 2020.projects from 1999 to August 2020.~~102~~106 The total amount of pre-disaster mitigation funding in this The total amount of pre-disaster mitigation funding in this
period (a total of $3.78 period (a total of $3.78 ~~bil ion~~billion, with an annual average of $80.9 , with an annual average of $80.9 ~~mil ion~~ million for FMA and an annual for FMA and an annual
average of $88.5 average of $88.5 ~~mil ion~~ million for PDM) is so much less than post-disaster funding (PA annual average for PDM) is so much less than post-disaster funding (PA annual average
$386.4 $386.4 ~~mil ion~~million, HMGP annual average $973.9 , HMGP annual average $973.9 ~~mil ion~~million) that even the large amounts of funding ) that even the large amounts of funding
from DRRA and the IIJA from DRRA and the IIJA ~~wil~~ will not end the disparity. not end the disparity.
Arguably, increased funding for pre-disaster mitigation is even more impactful in the context of Arguably, increased funding for pre-disaster mitigation is even more impactful in the context of
climate change, as many projected climate impacts may not have happened yet, or may occur climate change, as many projected climate impacts may not have happened yet, or may occur
with a higher magnitude or frequency under a changing climate. Congress could change the with a higher magnitude or frequency under a changing climate. Congress could change the
balance between pre- and post-disaster funding. For example, Congress could change the amount balance between pre- and post-disaster funding. For example, Congress could change the amount
of funding availableof funding available for pre-disaster mitigation, or include pre-disaster mitigation in the formula for pre-disaster mitigation, or include pre-disaster mitigation in the formula
funding availablefunding available after a disaster declaration, or change the 6% BRIC set-aside.after a disaster declaration, or change the 6% BRIC set-aside.
BRIC
Congress may wish to consider how FEMA should address the uncertainty in BRIC funding from Congress may wish to consider how FEMA should address the uncertainty in BRIC funding from
year to year, and the potential variabilityyear to year, and the potential variability in funding availablein funding available following ‘large’ and ‘following ‘large’ and ‘~~smal~~ small’ ’
disaster years. FEMA could be directed to consider whether there should be a required minimum disaster years. FEMA could be directed to consider whether there should be a required minimum
level of distribution. FEMA could also be directed to consider whether, if there is a year with a level of distribution. FEMA could also be directed to consider whether, if there is a year with a
~~high set-aside for pre-disaster mitigation, al of the funds should be distributed in that year, or~~
~~whether some funding should be held in reserve for low set-aside years.~~
~~In addition, Congress may wish to require FEMA to report on the types of projects funded under~~
~~BRIC. The ASPFM has identified this as a major area of concern, commenting that~~
~~Although ASFPM was cautiously optimistic that BRIC would routinely fund flood~~
~~mitigation efforts for buildings, like elevation, buyouts, and small floodproofing projects,~~
~~after the FY2020 grant winners 103 were announced, it was clear that this would not be the~~
~~case.104~~

~~101 T his~~ 104 GAO, Disaster Resilience: FEMA Should Take Additional Steps to Streamline Hazard Mitigation Grants and Assess Program Effects, GAO-21-140, February 2, 2021, pp. 12-13, https://www.gao.gov/products/gao-21-140. 105 This figure represents the total amount of federal assistance, without subtracting the cost share. See figure represents the total amount of federal assistance, without subtracting the cost share. See FEMA, FEMA,
OpenFEMA Data Sets,OpenFEMA Data Sets, https://www.fema.gov/openfema-data-page/hazard-mitigation-assistance-projects-v2, accessed https://www.fema.gov/openfema-data-page/hazard-mitigation-assistance-projects-v2, accessed
November 1, 2021November 1, 2021.
~~102 See CRS~~ 106 See p. 23, CRS Report R46749, Report R46749, FEMA’s Public Assistance Program: A Primer and Considerations for Congress, by Erica , by Erica
~~A. Lee, p. 23.~~
~~103 T he FY2020 grant winners have not been announced; it appears that the ASFPM was referring here to the projects~~
~~selected for further review, as in other places the resolution refers to projects selected.~~
~~104 ASFPM, “ASFPM Board Unanimously Approves BRIC Resolution,” News & Views, vol. 34, no. 6, December 1,~~
~~2021, p. 1, https://asfpm-library.s3.us-west-2.amazonaws.com/NewsViews/NewsVie ws_December2021_FINAL.pdf.~~
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~~FEMA Hazard Mitigation: A First Step Towards Climate Adaptation~~A. Lee. Congressional Research Service 21 FEMA Hazard Mitigation: A First Step Toward Climate Adaptation high set-aside for pre-disaster mitigation, all of the funds should be distributed in that year, or whether some funding should be held in reserve for low set-aside years. In addition, Congress may wish to require FEMA to report on the types of projects funded under BRIC. The ASPFM has identified this as a major area of concern, commenting that Although ASFPM was cautiously optimistic that BRIC would routinely fund flood mitigation efforts for buildings, like elevation, buyouts, and small floodproofing projects, after the FY2020 grant winners107 were announced, it was clear that this would not be the case.108
The ASFPM expressed concern that the heavy weighting of infrastructure and lifeline projects The ASFPM expressed concern that the heavy weighting of infrastructure and lifeline projects
greatly reduced the ability of traditional “incremental” flood mitigation projects to compete, greatly reduced the ability of traditional “incremental” flood mitigation projects to compete,
despite evidence that such projects are effective in reducing flood risk.despite evidence that such projects are effective in reducing flood risk.~~105~~109
Congress could consider requiring FEMA to develop procedures to ensure that Congress could consider requiring FEMA to develop procedures to ensure that ~~smal~~ small projects are projects are
not at a disadvantage for funding selection, or requiring FEMA to report on the balance of large not at a disadvantage for funding selection, or requiring FEMA to report on the balance of large
and and ~~smal~~ small projects selected for funding. Congress could appropriate additional funding for BRIC, projects selected for funding. Congress could appropriate additional funding for BRIC,
or for the older PDM program. BRIC could be used to provide seed funding to attract additional or for the older PDM program. BRIC could be used to provide seed funding to attract additional
funding for public-private partnerships (an approach used by Project Impact),funding for public-private partnerships (an approach used by Project Impact),~~106~~110 which could which could
~~potential y~~potentially be carried out as part of a time-limited pilot project. FEMA could introduce a new be carried out as part of a time-limited pilot project. FEMA could introduce a new
means-tested mitigation program; for example, the Build Back Better Act,means-tested mitigation program; for example, the Build Back Better Act,~~107~~111 as passed by the as passed by the
House on November 19, 2021, would appropriate funding for a means-tested affordability House on November 19, 2021, would appropriate funding for a means-tested affordability
program for the National Flood Insurance Program. program for the National Flood Insurance Program.
Individual Assistance
Congress may wish to consider whether the mitigation measures now provided for IHP Home Congress may wish to consider whether the mitigation measures now provided for IHP Home
Repair Assistance are sufficient, or if FEMA should increase the pace of program implementation Repair Assistance are sufficient, or if FEMA should increase the pace of program implementation
and expedite its consideration of other types of mitigation assistance and expedite its consideration of other types of mitigation assistance ~~potential y~~potentially supported under supported under
IHP for Home Repair Assistance. In addition, Congress could consider IHP for Home Repair Assistance. In addition, Congress could consider ~~al owing~~allowing mitigation mitigation
measures for real property components that did not exist or were not functional prior to the measures for real property components that did not exist or were not functional prior to the
declared disaster.declared disaster.
Currently, there is not a way for individuals to receive pre-disaster mitigation funding through the Currently, there is not a way for individuals to receive pre-disaster mitigation funding through the
IHP. Congress may wish to consider whether there is a need to expand eligibilityIHP. Congress may wish to consider whether there is a need to expand eligibility for, or programs for, or programs
that support, pre-disaster mitigation measures in IHP. If so, FEMA that support, pre-disaster mitigation measures in IHP. If so, FEMA ~~wil~~ will need to determine how to need to determine how to
provide grants of pre-disaster mitigation assistance to individuals. One consideration relates to provide grants of pre-disaster mitigation assistance to individuals. One consideration relates to
whether an individual could apply directly for funding, as is currently the case with HMA, or if whether an individual could apply directly for funding, as is currently the case with HMA, or if
~~they must have an eligible entity, such as a state, local, tribal, or territorial government, or a~~
~~private nonprofit organization, apply on their behalf.~~
~~Public Assistance~~
~~As noted earlier, a fraction of historical PA obligations have supported mitigation projects. If~~
~~Congress wishes to increase mitigation support through PA, Congress could consider a number of~~
~~measures.~~
~~First, Congress may wish to consider relaxing the restrictions around the use of PA for mitigation;~~
~~for example, enhancing FEMA’s authority under the PA program to provide additional assistance~~
~~for mitigation and/or building code compliance for entire facilities and/or on non-disaster~~
~~damaged components. Congress may wish to enhance FEMA’s authorities to provide PA to cover~~
~~the costs of rebuilding in compliance with the highest consensus-based codes for an entire~~

~~105 ASFPM, ASFPM BRIC Resolution, pp. 1-3.~~
~~106 See,~~ 107 The FY2020 grant winners have not been announced; it appears that the ASFPM was referring here to the projects selected for further review, as in other places the resolution refers to projects selected. 108 ASFPM, ASFPM Board Unanimously Approves BRIC Resolution, News & Views, Vol. 34, No. 6, December 1, 2021, p. 1, https://asfpm-library.s3.us-west-2.amazonaws.com/NewsViews/NewsViews_December2021_FINAL.pdf. 109 ASFPM, ASFPM BRIC Resolution, pp. 1-3. 110 See, for example, Eric Holdeman and Ann Patton, “Project Impact Initiative for example, Eric Holdeman and Ann Patton, “Project Impact Initiative toTo Create Disaster-Resistant Create Disaster-Resistant
Communities Demonstrates Worth Communities Demonstrates Worth inIn Kansas Years Later,” Kansas Years Later,” ~~Governm ent~~Government Technology, July 9, 2009, , July 9, 2009,
https://www.govtech.com/em/safety/project-impact-initiative-to.html; Adam Rose et al., “https://www.govtech.com/em/safety/project-impact-initiative-to.html; Adam Rose et al., “ ~~Benefit~~ Benefit-Cost Analysis of -Cost Analysis of
FEMA Hazard Mitigation Grants,” FEMA Hazard Mitigation Grants,” Natural Hazards Review, vol. 8, no. 4, vol. 8, no. 4, (November 1, 2007November 1, 2007), p. 99; and U.S. , p. 99; and U.S.
Congress, HouseCongress, House Committee on Oversight and Reform, Subcommittee on Environment, Committee on Oversight and Reform, Subcommittee on Environment, ~~Testim ony of Jam es~~Testimony of James Lee Witt, ,
116th Cong., 1st sess., June116th Cong., 1st sess., June 25, 2019, https://docs.house.gov/meetings/GO/GO28/20190625/109630/HHRG-116-GO28-25, 2019, https://docs.house.gov/meetings/GO/GO28/20190625/109630/HHRG-116-GO28-
Wstate-WittJ-20190625.pdf. Wstate-WittJ-20190625.pdf.
~~107~~111 H.R. 5376. H.R. 5376.
Congressional Research Service Congressional Research Service

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FEMA Hazard Mitigation: A First Step ~~Towards~~Toward Climate Adaptation they must have an eligible entity, such as a state, local, tribal, or territorial government, or a private nonprofit organization, apply on their behalf. Public Assistance As noted earlier, a fraction of historical PA obligations have supported mitigation projects. If Congress wishes to increase mitigation support through PA, Congress could consider a number of measures. First, Congress may wish to consider relaxing the restrictions around the use of PA for mitigation; for example, enhancing FEMA’s authority under the PA program to provide additional assistance for mitigation and/or building code compliance for entire facilities and/or on non-disaster damaged components. Congress may wish to enhance FEMA’s authorities to provide PA to cover the costs of rebuilding in compliance with the highest consensus-based codes for an entire ~~Climate Adaptation~~
facility—even if only part of a facility is damaged—to ensure that federal funds promote resilient facility—even if only part of a facility is damaged—to ensure that federal funds promote resilient
rebuilding whenever possible. Congress may also wish to consider directing FEMA to relax rebuilding whenever possible. Congress may also wish to consider directing FEMA to relax
restrictions on cost-effectiveness that PA mitigation projects must meet in order to be approved so restrictions on cost-effectiveness that PA mitigation projects must meet in order to be approved so
as to promote more resilient PA projects,as to promote more resilient PA projects,~~108~~112 and to re-evaluate how cost effectiveness is measured, and to re-evaluate how cost effectiveness is measured,
in order to make PA mitigation funding criteria more comparable to HMAin order to make PA mitigation funding criteria more comparable to HMA mitigation funding mitigation funding
criteria.criteria.
FEMA has recently addressed concerns that communities with fewer resources, including low FEMA has recently addressed concerns that communities with fewer resources, including low --
income communities, tribal communities, and communities of color, may face barriers to income communities, tribal communities, and communities of color, may face barriers to
accessing FEMA grant resources.accessing FEMA grant resources.~~109~~113 If Congress wishes to improve access to PA for mitigation for If Congress wishes to improve access to PA for mitigation for
applicants with fewer financial and human resources, Congress could consider increasing the applicants with fewer financial and human resources, Congress could consider increasing the
federal cost-share for communities with fewer resources for certain PA activities (for example, for federal cost-share for communities with fewer resources for certain PA activities (for example, for
mitigation expenses) to acknowledge their reduced financial resources and to ensure that these mitigation expenses) to acknowledge their reduced financial resources and to ensure that these
communities may access mitigation funds.communities may access mitigation funds.~~110~~114 Congress could also increase support for technical Congress could also increase support for technical
assistance or embedded FEMA mitigation teams to ensure that communities facing capacity assistance or embedded FEMA mitigation teams to ensure that communities facing capacity
constraints are able to identify and complete mitigation projects through PA. constraints are able to identify and complete mitigation projects through PA.
STORM Act
The $500 The $500 ~~mil ion~~ million appropriated by the IIJA to fund the revolving loan funds under the STORM appropriated by the IIJA to fund the revolving loan funds under the STORM
Act is less than the amounts that established other revolving loan funds. For example, when the Act is less than the amounts that established other revolving loan funds. For example, when the
Drinking Water State Revolving Fund (DWSRF) was established, Congress authorized Drinking Water State Revolving Fund (DWSRF) was established, Congress authorized
appropriations at a level of $599 appropriations at a level of $599 ~~mil ion~~ million for FY1994 and $1 for FY1994 and $1 ~~bil ion annual y~~billion annually for each of FY1995 for each of FY1995
through FY2003.through FY2003.~~111~~115 Congress may wish to consider whether it should fund the new state 112 For further information on FEMA cost share requirements for PA, see p. 23 of CRS Report R46749, FEMA’s Public Assistance Program: A Primer and Considerations for Congress, by Erica A. Lee. 113 See, for example, FEMA, Equity, ~~Congress may wish to consider whether it should fund the new state~~
~~revolving loan funds for a longer period of time, and provide more funding, to give the program~~
~~additional time to become established.~~
~~Hazard Mitigation Assistance and Equity~~
~~Prioritizing Disadvantaged Communities~~
~~The Justice40 Initiative is a whole-of-government initiative to ensure that federal agencies work~~
~~with states and communities to deliver at least 40% of the overal benefits from federal~~
~~investments in climate and clean energy to disadvantaged communities.112 BRIC and FMA have~~
~~been selected as pilot programs for the Justice40 Initiative.113 For FY2021, FEMA intends to~~

~~108 For further information on FEMA cost share requirements for PA, see CRS Report R46749,~~ ~~FEMA’s Public~~
~~Assistance Program : A Prim er and Considerations for Congress, by Erica A. Lee, p. 23.~~
~~109 See, for example, FEMA, “Equity,”~~ September 21, 2021, https://www.fema.gov/emergency-managers/national- September 21, 2021, https://www.fema.gov/emergency-managers/national-
preparedness/equity, and National Low Income Housing Coalition, preparedness/equity, and National Low Income Housing Coalition, FEMA Holds Civil ~~Rights Sum m it~~ Rights Summit on Equity:
NLIHC Speaks on Panel of Leaders for Equitable Disaster Recovery, November 22, 2021, https://nlihc.org/resource/, November 22, 2021, https://nlihc.org/resource/
fema-holds-civil-rights-summitfema-holds-civil-rights-summit -equity-nlihc-speaks-panel-leaders-equitable-disaster. -equity-nlihc-speaks-panel-leaders-equitable-disaster.
~~110~~114 For discussion For discussion of these barriers, see Gavinof these barriers, see Gavin Smith and Olivia Villa,Smith and Olivia Villa, “ “A National Evaluation of State and A National Evaluation of State and ~~T erritory~~Territory
Roles in Hazard Mitigation: BuildingRoles in Hazard Mitigation: Building Local Capacity to Implement FEMA Hazard Mitigation Assistance Grants,” Local Capacity to Implement FEMA Hazard Mitigation Assistance Grants,”
Sustainability 2020, 12 (23), https://www.mdpi.com/2071-1050/12/23/10013/htm. 2020, 12 (23), https://www.mdpi.com/2071-1050/12/23/10013/htm.
~~111 See CRS~~ 115 See CRS Report R45304, Report R45304, Drinking Water State Revolving Fund (DWSRF): Overview, Issues, and Legislation , by , by
Mary Mary ~~T iemann.~~
~~112 T he White House, “T he Path to Achieving Justice40,” press release, July 20, 2021, https://www.whitehouse.gov/~~
~~omb/briefing-room/2021/07/20/the-path-to-achieving-justice40/.~~
~~113 Executive Office of the President Office of Management and Budget,~~ ~~Memorandum for the Heads of Departments~~
~~and Agencies, M-21-28, Washington, DC, July 20, 2021, p. 12, https://www.whitehouse.gov/wp-content/uploads/2021/~~
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~~FEMA Hazard Mitigation: A First Step Towards Climate Adaptation~~
~~promote equity in the delivery of funds as referenced in E.O. 14008114 by prioritizing 40% of the~~
~~benefits to disadvantaged communities in both BRIC and FMA.115~~Tiemann. Congressional Research Service 23 FEMA Hazard Mitigation: A First Step Toward Climate Adaptation revolving loan funds for a longer period of time, and provide more funding, to give the program additional time to become established. Hazard Mitigation Assistance and Equity Prioritizing Disadvantaged Communities The Justice40 Initiative is a whole-of-government initiative to ensure that federal agencies work with states and communities to deliver at least 40% of the overall benefits from federal investments in climate and clean energy to disadvantaged communities.116 BRIC and FMA have been selected as pilot programs for the Justice40 Initiative.117 For FY2021, FEMA intends to promote equity in the delivery of funds as referenced in E.O. 14008118 by prioritizing 40% of the benefits to disadvantaged communities in both BRIC and FMA.119
However, FEMA has set different criteria related to disadvantaged communities in the two However, FEMA has set different criteria related to disadvantaged communities in the two
programs. When scoring applications for FMA funding, FEMA programs. When scoring applications for FMA funding, FEMA ~~wil~~ will use the Centers for Disease use the Centers for Disease
Control and Prevention (CDC) Social VulnerabilityControl and Prevention (CDC) Social Vulnerability Index (SVI)Index (SVI)~~116~~120 at the census tract level at a at the census tract level at a
threshold of 0.7501 or greater as a priority scoring criterion.threshold of 0.7501 or greater as a priority scoring criterion.~~117~~121 Although the SVI Index was not Although the SVI Index was not
mentioned in the FMA FY2020 Notice of Funding Opportunity,mentioned in the FMA FY2020 Notice of Funding Opportunity,~~118~~122 FEMA used this criterion for FEMA used this criterion for
FY2020 submissions to measure the social vulnerability of communities. Of the projects selected, FY2020 submissions to measure the social vulnerability of communities. Of the projects selected,
the average CDC SVI score was 0.47,the average CDC SVI score was 0.47,~~119~~123 which correlates to a low to moderate level of which correlates to a low to moderate level of
vulnerability. The funding appropriated to FMA under the IIJA vulnerability. The funding appropriated to FMA under the IIJA ~~wil~~ will provide a 90% federal cost provide a 90% federal cost
~~share120~~share124 for a property that is (1) located in a census tract with a CDC SVI score of not less than for a property that is (1) located in a census tract with a CDC SVI score of not less than
0.5001; or (2) that serves as a primary residence for individuals with a household income of not 0.5001; or (2) that serves as a primary residence for individuals with a household income of not
~~more than 100% of the applicable area median income.~~
~~BRIC does not identify comparable criteria for prioritizing in FY2021, although four of the six~~
~~BRIC qualitative evaluation criteria for FY2021 subapplications do require explanation of how~~
~~the project wil benefit disadvantaged communities.121 In addition, FEMA wil reduce the~~
~~nonfederal cost share of BRIC from 25%122 to 10% for economical y disadvantaged rural~~
~~communities.123 This suggests that BRIC may prioritize a narrower range of communities than~~
~~FMA.~~

~~07/M-21-28.pdf.~~
114 Executive Order 14008, “Tackling the Climate Crisis at Home and Abroad,” 86 Federal Register more than 100% of the applicable area median income. 116 The White House, “The Path to Achieving Justice40,” press release, July 20, 2021, https://www.whitehouse.gov/omb/briefing-room/2021/07/20/the-path-to-achieving-justice40/. 117 Executive Office of the President Office of Management and Budget, Memorandum for the Heads of Departments and Agencies, M-21-28, Washington, DC, July 20, 2021, p. 12, https://www.whitehouse.gov/wp-content/uploads/2021/07/M-21-28.pdf. 118 Executive Order 14008, “Tackling the Climate Crisis at Home and Abroad,” 86 Federal Register 7619-7633, 7619-7633,
February 1, 2021, https://www.govinfo.gov/content/pkg/FR-2021-02-01/pdf/2021-02177.pdf. February 1, 2021, https://www.govinfo.gov/content/pkg/FR-2021-02-01/pdf/2021-02177.pdf.
~~115~~119 DHS, DHS, Notice of Funding Opportunity (NOFO), Fiscal Year 2021 Building Resilient Infrastructure and
~~Com m unities~~Communities, p. 15, https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-building-resilient-, p. 15, https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-building-resilient-
infrastructure.pdf. infrastructure.pdf.
~~116 T he~~120 The Centers for Disease Control/Agency for Centers for Disease Control/Agency for ~~T oxic~~Toxic Substances and Disease Substances and Disease Registry (CDC/Registry (CDC/~~AT SDR)~~ ATSDR) Social Social
VulnerabilityVulnerability Index (SVI)Index (SVI) ~~uses~~ uses United States CensusUnited States Census Data to determine the social vulnerability of every census tract, Data to determine the social vulnerability of every census tract,
ranked on 15 social factors. SVIranked on 15 social factors. SVI scores range from 0 to 1, with 1 representing the highest level of social vulnerability. scores range from 0 to 1, with 1 representing the highest level of social vulnerability.
For example, a SVIFor example, a SVI ranking of 0.75 means that 75% of census tracts in the nation are less vulnerable than the tract of ranking of 0.75 means that 75% of census tracts in the nation are less vulnerable than the tract of
interest. See interest. See CDC/ATSDR SVI Fact Sheet, https://www.atsdr.cdc.gov/placeandhealth/svi/fact_sheet/fact_sheet.html, , https://www.atsdr.cdc.gov/placeandhealth/svi/fact_sheet/fact_sheet.html,
and and CDC SVI 2018 ~~Docum entation~~Documentation, https://www.atsdr.cdc.gov/placeandhealth/svi/documentation/pdf/, https://www.atsdr.cdc.gov/placeandhealth/svi/documentation/pdf/
SVI2018Documentation-H.pdf. SVI2018Documentation-H.pdf.
~~117~~121 DHS, DHS, Notice of Funding Opportunity (NOFO), Fiscal Year 2021 Flood Mitigation Assistance ,, p. 4, p. 4,
https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-flood-mitigation-assistance-grants.pdf. https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-flood-mitigation-assistance-grants.pdf.
~~118~~122 DHS, DHS, Notice of Funding Opportunity (NOFO), Fiscal Year 2020 Flood Mitigation Assistance, ,
https://www.fema.gov/sites/default/files/2020-08/fema_fy-2020_fma-notice-of-funding-opportunity_0.pdf. https://www.fema.gov/sites/default/files/2020-08/fema_fy-2020_fma-notice-of-funding-opportunity_0.pdf.
~~119~~ 123 FEMA, FEMA, Flood Mitigation Assistance FY2020 Subapplication Status, https://www.fema.gov/grants/mitigation/floods/, https://www.fema.gov/grants/mitigation/floods/
fy2020-subapplication-status. fy2020-subapplication-status.
~~120 T he~~124 The cost share for FMA funding cost share for FMA funding is generally 75% federal and 25% nonfederal, but FEMA may contribute up to 90% is generally 75% federal and 25% nonfederal, but FEMA may contribute up to 90%
for repetitive loss properties and 100% for severe repetitive loss properties. for repetitive loss properties and 100% for severe repetitive loss properties.
~~121 FEMA, BRIC Qualitative Criteria, https://www.fema.gov/sites/default/files/documents/fema_fy21-bric-qualitative-~~
~~criteria-psm.pdf.~~
~~122 Generally, BRIC’s cost share is 75% federal and 25% nonfederal, but small, impoverished communities are eligible~~
~~for an increase in cost share up to 90% federal and 10% nonfederal. T he Stafford Act defines the term “small~~
~~impoverished community” to mean a community of 3,000 or fewer individuals that is economica lly disadvantaged, as~~
~~determined by the state in which the community is located and based on criteria established by the President” (42~~
~~U.S.C. §5133(a)).~~
~~123 FEMA defined economically disadvantaged rural communities as communities of 3,000 or fewer individuals with~~
~~residents having an average per capita annual income not exceeding 80% of national per capita income. See~~ ~~DHS~~
~~Notice of Funding Opportunity (NOFO), Fiscal Year 2021 Building Resilient Infrastructure and Co m m unities, p. 12,~~
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~~FEMA Hazard Mitigation: A First Step Towards Climate Adaptation~~
~~The ASFPM expressed their concern that FEMA’s definition of smal~~ Congressional Research Service 24 FEMA Hazard Mitigation: A First Step Toward Climate Adaptation BRIC does not identify comparable criteria for prioritizing in FY2021, although four of the six BRIC qualitative evaluation criteria for FY2021 subapplications do require explanation of how the project will benefit disadvantaged communities.125 In addition, FEMA will reduce the nonfederal cost share of BRIC from 25%126 to 10% for economically disadvantaged rural communities.127 This suggests that BRIC may prioritize a narrower range of communities than FMA. The ASFPM expressed their concern that FEMA’s definition of small and impoverished and impoverished
communities “does not include the disadvantaged communities that need FEMA mitigation grant communities “does not include the disadvantaged communities that need FEMA mitigation grant
assistance,” concluding that “a review of the grant projects that have been identified for further assistance,” concluding that “a review of the grant projects that have been identified for further
review demonstrates that FEMA did not prioritize vulnerable communities even though FEMA review demonstrates that FEMA did not prioritize vulnerable communities even though FEMA
expressed a desire to do so.”expressed a desire to do so.”~~124~~128
Congress may wish to consider requiring BRIC and FMA to use the same priority criteria for Congress may wish to consider requiring BRIC and FMA to use the same priority criteria for
identifying disadvantaged communities, and requiring FEMA to report on the outcomes of the identifying disadvantaged communities, and requiring FEMA to report on the outcomes of the
FY2021 funding round in order to compare funding awarded to disadvantaged communities in FY2021 funding round in order to compare funding awarded to disadvantaged communities in
BRIC and FMA. BRIC and FMA.
Capacity Constraints
In addition, some stakeholders have expressed concern that In addition, some stakeholders have expressed concern that ~~smal er~~smaller projects or funding for projects or funding for
planning may be less likelyplanning may be less likely to obtain support in BRIC,to obtain support in BRIC,~~125~~129 and that and that ~~smal~~ small, impoverished, rural, or , impoverished, rural, or
~~historical y~~historically disadvantaged communities may not have the capacity to apply for and administer the disadvantaged communities may not have the capacity to apply for and administer the
larger amounts which could be funded by BRIC.larger amounts which could be funded by BRIC.~~126~~130 The increase in funding for pre-disaster The increase in funding for pre-disaster
mitigation may also lead to mitigation may also lead to ~~chal enges~~challenges for some communities in meeting the nonfederal cost for some communities in meeting the nonfederal cost
share.share.
The ASFPM noted that mitigation planning projects and capacity building projects were limited The ASFPM noted that mitigation planning projects and capacity building projects were limited
to state set-aside funding only and were excluded from funding under the national competition. to state set-aside funding only and were excluded from funding under the national competition.
They argued that limiting mitigation planning to highly competitive state set-aside funding has They argued that limiting mitigation planning to highly competitive state set-aside funding has
negatively impacted mitigation planning efforts, negatively impacted mitigation planning efforts, ~~especial y~~especially in large states with many jurisdictions. in large states with many jurisdictions.
They expressed their opposition to FEMA using priorities to limit or give preference to certain They expressed their opposition to FEMA using priorities to limit or give preference to certain
~~types of mitigation projects, arguing that this is contrary to the stated priority of capacity~~
~~building.127~~
~~The ASFPM also criticized the BRIC application process, noting that “although FEMA’s stated~~
~~intent is to reduce the complexity of their programs and delivery, their actions in nearly every~~
~~area are the opposite.” They argued that the BRIC program specifical y focuses on large, complex~~
~~infrastructure projects that many underserved and disadvantaged communities do not have the~~
~~capacity to develop, apply for, manage, and maintain into the future. They also commented on the~~
~~complexity of the grant management system and the administration of grant management.128 The~~
~~ASFPM recommended that as part of streamlining the application and administrative processes,~~
~~FEMA should clearly define what they mean by disadvantaged communities so that al~~
~~communities, particularly those with limited resources who are disproportionately affected by~~
~~flooding and other disasters, can effectively participate.129~~

125 FEMA, BRIC Qualitative Criteria, https://www.fema.gov/sites/default/files/documents/fema_fy21-bric-qualitative-criteria-psm.pdf. 126 Generally, BRIC’s cost share is 75% federal and 25% nonfederal, but small, impoverished communities are eligible for an increase in cost share up to 90% federal and 10% nonfederal. The Stafford Act defines the term “small impoverished community” to mean a community of 3,000 or fewer individuals that is economically disadvantaged, as determined by the state in which the community is located and based on criteria established by the President” (42 U.S.C. §5133(a)). 127 FEMA defined economically disadvantaged rural communities as communities of 3,000 or fewer individuals with residents having an average per capita annual income not exceeding 80% of national per capita income. See DHS Notice of Funding Opportunity (NOFO), Fiscal Year 2021 Building Resilient Infrastructure and Communities, p. 12, https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-building-resilient-infrastructure.pdf. https://www.fema.gov/sites/default/files/documents/fema_nofo-fiscal-year-2021-building-resilient-infrastructure.pdf.
~~124~~ 128 ASFPM, ASFPM, ASFPM BRIC Resolution, p. 2. , p. 2.
~~125~~129 FEMA, FEMA, Summary of Stakeholder Feedback, Building Resilient Infrastructure and Communities (BRIC) , ,
Washington, DC, March 2020, https://www.fema.gov/sites/default/files/2020-06/fema_bric-summary-of-stakeholder-Washington, DC, March 2020, https://www.fema.gov/sites/default/files/2020-06/fema_bric-summary-of-stakeholder-
feedback-report.pdf. feedback-report.pdf.
~~126~~ 130 See, See, for example, for example, ~~T homas~~Thomas Frank, “FEMA Climate Grants Pose Challenge for Poor Communities,” Frank, “FEMA Climate Grants Pose Challenge for Poor Communities,” E&E News,, June June
1, 2021, https://www.eenews.net/climatewire/stories/1063733777/. 1, 2021, https://www.eenews.net/climatewire/stories/1063733777/.
~~127 ASFPM, ASFPM BRIC Resolution, pp. 1-3.~~
~~128 For example, the ASFPM stated that the administration of grant management costs to state partners, which used to~~
~~be a relatively simple calculation, now requires a seven -page memo describing multiple subapplications and reporting~~
~~requirements. See ASFPM, ASFPM BRIC Resolution, pp. 3-4.~~
~~129 ASFPM, ASFPM BRIC Resolution, p. 4.~~
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~~FEMA Hazard Mitigation: A First Step Towards Climate Adaptation~~
~~The application scores and ranking process FEMA used to decide which projects wil~~ Congressional Research Service 25 FEMA Hazard Mitigation: A First Step Toward Climate Adaptation types of mitigation projects, arguing that this is contrary to the stated priority of capacity building.131 The ASFPM also criticized the BRIC application process, noting that “although FEMA’s stated intent is to reduce the complexity of their programs and delivery, their actions in nearly every area are the opposite.” They argued that the BRIC program specifically focuses on large, complex infrastructure projects that many underserved and disadvantaged communities do not have the capacity to develop, apply for, manage, and maintain into the future. They also commented on the complexity of the grant management system and the administration of grant management.132 The ASFPM recommended that as part of streamlining the application and administrative processes, FEMA should clearly define what they mean by disadvantaged communities so that all communities, particularly those with limited resources who are disproportionately affected by flooding and other disasters, can effectively participate.133 The application scores and ranking process FEMA used to decide which projects will receive receive
funding were not made public by FEMA. The ASFPM argued that if communities do not know funding were not made public by FEMA. The ASFPM argued that if communities do not know
where they missed points in the scoring process or receive feedback on how applications could be where they missed points in the scoring process or receive feedback on how applications could be
improved for future funding rounds, not only do they get discouraged, but they cannot take improved for future funding rounds, not only do they get discouraged, but they cannot take
actions to correct those deficiencies and ensure that future applications are more competitive. actions to correct those deficiencies and ensure that future applications are more competitive.
Congress may wish to consider requiring FEMA to provide feedback to communities that were Congress may wish to consider requiring FEMA to provide feedback to communities that were
unsuccessful in order to help them better prepare for future applications. The number of non-unsuccessful in order to help them better prepare for future applications. The number of non-
financial Direct Technical Assistance awards could be increased, or some form of technical financial Direct Technical Assistance awards could be increased, or some form of technical
assistance could be made available assistance could be made available ~~automatical y for al~~ automatically for all communities without the capacity to communities without the capacity to
apply for, or administer, BRIC funding. apply for, or administer, BRIC funding.
U.S. Territories and Tribal Governments
Another area of equity concern is that states, territories, and communities that are, perhaps, most Another area of equity concern is that states, territories, and communities that are, perhaps, most
in need of pre-disaster mitigation funding did not apply for BRIC or FMA funding. Mississippi, in need of pre-disaster mitigation funding did not apply for BRIC or FMA funding. Mississippi,
Puerto Rico, and the United States Virgin Islands did not apply for BRIC funding in FY2020 and Puerto Rico, and the United States Virgin Islands did not apply for BRIC funding in FY2020 and
26 states did not submit FMA applications; no territories applied for FMA funding in FY2020.26 states did not submit FMA applications; no territories applied for FMA funding in FY2020.~~130~~
134 U.S. territories may also be at a disadvantage in applications for FMA funding. For example, the U.S. territories may also be at a disadvantage in applications for FMA funding. For example, the
CDC does not provide SVI data for any territories other than Puerto Rico because CDC does not provide SVI data for any territories other than Puerto Rico because
sociodemographic census variables for the other sociodemographic census variables for the other ~~territories131~~territories135 are unavailable or are not collected are unavailable or are not collected
at similar geographic resolutions as those required for the SVI.at similar geographic resolutions as those required for the SVI.~~132~~136 Congress may wish to direct Congress may wish to direct
FEMA to consider how to prioritize disadvantaged communities in the four territories not FEMA to consider how to prioritize disadvantaged communities in the four territories not
~~included in the SVI.~~
~~The STORM Act also makes less funding available to these four U.S. territories, as it designates~~
~~them as insular areas rather than states.133~~included in the SVI. 131 ASFPM, ASFPM BRIC Resolution, pp. 1-3. 132 For example, the ASFPM stated that the administration of grant management costs to state partners, which used to be a relatively simple calculation, now requires a seven-page memo describing multiple subapplications and reporting requirements. See ASFPM, ASFPM BRIC Resolution, pp. 3-4. 133 ASFPM, ASFPM BRIC Resolution, p. 4. 134 FEMA, Flood Mitigation Assistance FY2020 Subapplication Status, https://www.fema.gov/fact-sheet/hazard-mitigation-assistance-hma-annual-grant-cycle-submissions-summary#fma. 135 American Samoa, Guam, the Northern Mariana Islands, and the U.S. Virgin Islands. 136 Agency for Toxic Substances and Disease Registry, CDC/ATSDR SVI Frequently Asked Questions, https://www.atsdr.cdc.gov/placeandhealth/svi/faq_svi.html. Congressional Research Service 26 FEMA Hazard Mitigation: A First Step Toward Climate Adaptation The STORM Act also makes less funding available to these four U.S. territories, as it designates them as insular areas rather than states.137 FEMA is required to reserve no more than 2.5% of the FEMA is required to reserve no more than 2.5% of the
amount appropriated for FEMA’s administrative costs, technical assistance, and grants to insular amount appropriated for FEMA’s administrative costs, technical assistance, and grants to insular
areas. FEMA may make grants to insular areas from any amount remaining from the reserved areas. FEMA may make grants to insular areas from any amount remaining from the reserved
2.5%.2.5%.~~134~~138 As the IIJA appropriates $100 As the IIJA appropriates $100 ~~mil ion annual y~~million annually for FY2022 to FY2026, this means that for FY2022 to FY2026, this means that
no more than $2.5 no more than $2.5 ~~mil ion~~ million is availableis available each year for FEMA’s costs and each year for FEMA’s costs and al all grants to five insular grants to five insular
areas. In contrast, in FY2021 BRIC makes up to $1 areas. In contrast, in FY2021 BRIC makes up to $1 ~~mil ion available~~ million available for the five U.S. territories. for the five U.S. territories.
Congress may wish to consider whether additional funds should be made available to the four Congress may wish to consider whether additional funds should be made available to the four
territories designated as insular areas in the STORM Act. territories designated as insular areas in the STORM Act.
Also in contrast to BRIC, the STORM Act does not set aside any funding for tribal governments, Also in contrast to BRIC, the STORM Act does not set aside any funding for tribal governments,
and Congress may wish to direct FEMA to ensure that funding is prioritized or set aside for tribal and Congress may wish to direct FEMA to ensure that funding is prioritized or set aside for tribal
governments. FEMA could also be required to develop policies that would encourage and support governments. FEMA could also be required to develop policies that would encourage and support
states, territories, and tribes that have not applied for mitigation funding to do so in future funding states, territories, and tribes that have not applied for mitigation funding to do so in future funding
~~rounds.~~

~~130 FEMA, Flood Mitigation Assistance FY2020 Subapplication Status, https://www.fema.gov/fact-sheet/hazard-~~
~~mitigation-assistance-hma-annual-grant -cycle-submissions-summary#fma.~~
~~131 American Samoa, Guam, the Northern Mariana Islands, and the U.S. Virgin Islands.~~
~~132 Agency for T oxic Substances and Disease Registry, CDC/ATSDR SVI Frequently Asked Questions,~~
~~https://www.atsdr.cdc.gov/placeandhealth/svi/faq_svi.html.~~
~~133 T he Stafford Act generally includes insular areas in the definition of a state (42 U.S.C. §5122(4)), while the~~
~~ST ORM Act only includes the 50 states, the District of Columbia, and Puerto Rico (42 U.S.C. §5135(m)(10)).~~
~~134 42 U.S.C. §5135(d)(2)(C).~~
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~~FEMA Hazard Mitigation: A First Step Towards Climate Adaptation~~
rounds. Funding Allocations
The ASPFM expressed their concern about a proportionately significant reduction in the state set- The ASPFM expressed their concern about a proportionately significant reduction in the state set-
aside amount when considering the total funding available, and suggested that at least 49% of aside amount when considering the total funding available, and suggested that at least 49% of
availableavailable funds should funds should ~~al ocated~~allocated to the state and tribal set-aside. They also suggested that FEMA to the state and tribal set-aside. They also suggested that FEMA
should should ~~al ow~~allow states, communities, tribes, and territories to decide which projects are awarded. states, communities, tribes, and territories to decide which projects are awarded.
Another option would be to turn BRIC entirely into a block grant program.Another option would be to turn BRIC entirely into a block grant program.~~135~~139
The original pre-disaster mitigation program, Project Impact, provided funding directly to The original pre-disaster mitigation program, Project Impact, provided funding directly to
communities in every state, regardless of whether the state had experienced a disaster recently.communities in every state, regardless of whether the state had experienced a disaster recently.~~136~~
140 BRIC funding could be awarded to every state, either BRIC funding could be awarded to every state, either ~~automatical y~~automatically or with a minimal application or with a minimal application
process. The Stafford Act sets a minimum amount of funding guaranteed to states: the lessor of process. The Stafford Act sets a minimum amount of funding guaranteed to states: the lessor of
$575,000 or the amount that is equal to 1% of the total funds appropriated to carry out this section $575,000 or the amount that is equal to 1% of the total funds appropriated to carry out this section
for the fiscal year.for the fiscal year.~~137~~141 This minimum amount could be increased to This minimum amount could be increased to ~~al ow~~allow disadvantaged disadvantaged
communities to receive funding without the communities to receive funding without the ~~chal enges~~challenges associated with submitting a full associated with submitting a full
application. application.
Hazard Mitigation and Climate Adaptation
Congress may wish to consider targeting funding to specified communities or types of projects to Congress may wish to consider targeting funding to specified communities or types of projects to
encourage climate adaptation actions. For example, climate resilience projects or applications encourage climate adaptation actions. For example, climate resilience projects or applications
from communities which are particularly vulnerable to the impacts of climate change could be from communities which are particularly vulnerable to the impacts of climate change could be
awarded a higher federal cost share. Additional funding, or a proportion of the available funding awarded a higher federal cost share. Additional funding, or a proportion of the available funding
could be targeted at, or directed to, climate-vulnerable communities.could be targeted at, or directed to, climate-vulnerable communities.
Both BRIC and the STORM Act require applicants to have had a recent major disaster declaration Both BRIC and the STORM Act require applicants to have had a recent major disaster declaration
within a set period of time. For BRIC, this is seven years for within a set period of time. For BRIC, this is seven years for al all applicants; in the STORM Act, applicants; in the STORM Act,
this is five years for tribes only. There is no comparable requirement for states. this is five years for tribes only. There is no comparable requirement for states. ~~Al states,~~All states, 137 The Stafford Act generally includes insular areas in the definition of a state (42 U.S.C. §5122(4)), while the STORM Act only includes the 50 states, the District of Columbia, and Puerto Rico (42 U.S.C. §5135(m)(10)). 138 42 U.S.C. §5135(d)(2)(C). 139 ASFPM, ASFPM BRIC Resolution, p. 2. 140 GAO, Hazard Mitigation: Proposed Changes to FEMA’s Multihazard Mitigation Programs Present Challenges, GAO-02-1035, September 2002, p. 3, https://www.gao.gov/assets/gao-02-1035.pdf. 141 42 U.S.C. §5133(f)(2)(A). Congressional Research Service 27 FEMA Hazard Mitigation: A First Step Toward Climate Adaptation
territories, the District of Columbia, and three tribes are currently eligible for BRIC due to the territories, the District of Columbia, and three tribes are currently eligible for BRIC due to the
COVID-19 major disaster declarations. However, this COVID-19 major disaster declarations. However, this ~~wil~~ will not necessarily continue to be the case not necessarily continue to be the case
in the future, and the majority of tribes in the future, and the majority of tribes ~~wil~~ will not be able to apply for STORM Act loans. not be able to apply for STORM Act loans.
Restricting pre-disaster mitigation funding to communities which have experienced a disaster Restricting pre-disaster mitigation funding to communities which have experienced a disaster
recently could preclude communities with a clear risk under a changing climate from receiving recently could preclude communities with a clear risk under a changing climate from receiving
funding when that risk has not yet eventuated, and may make it more difficult for locations facing funding when that risk has not yet eventuated, and may make it more difficult for locations facing
major impacts of climate change to plan ahead. For this reason, Congress may wish to consider major impacts of climate change to plan ahead. For this reason, Congress may wish to consider
whether these requirements should be relaxed. Congress could choose to appropriate mitigation whether these requirements should be relaxed. Congress could choose to appropriate mitigation
funding funding ~~specifical y~~specifically for communities which are subject to damages from climate impacts, but for communities which are subject to damages from climate impacts, but
which do not receive a major disaster declaration.which do not receive a major disaster declaration.~~138~~142
Congress may also wish to direct FEMA to address climate change by requiring communities Congress may also wish to direct FEMA to address climate change by requiring communities
receiving mitigation funding to implement higher standards to prepare for climate-change related receiving mitigation funding to implement higher standards to prepare for climate-change related
impacts, or by requiring communities to restrict development in high-risk areas.impacts, or by requiring communities to restrict development in high-risk areas.

~~135 ASFPM, ASFPM BRIC Resolution, p. 2.~~
~~136 GAO, Hazard Mitigation: Proposed Changes to FEMA’s Multihazard Mitigation Programs Presen t Challenges,~~
~~GAO-02-1035, September 2002, p. 3, https://www.gao.gov/assets/gao-02-1035.pdf.~~
~~137 42 U.S.C. §5133(f)(2)(A).~~
~~138 See CRS Insight IN11696,~~ ~~Climate Change, Slow-Onset Disasters, and the Federal Emergency Management~~
~~Agency, by Diane P. Horn, Erica A. Lee, and Elizabeth M. Webster .~~
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Concluding Comments
As disasters become more frequent and more expensive, there is an increasing interest in reducing As disasters become more frequent and more expensive, there is an increasing interest in reducing
their impacts. The benefits of hazard mitigation—saving lives, protecting property, and reducing their impacts. The benefits of hazard mitigation—saving lives, protecting property, and reducing
damage from future disasters—are widely accepted. However, GAO has found that federal damage from future disasters—are widely accepted. However, GAO has found that federal
investments in resilience could be more effective if post-disaster hazard mitigation were balanced investments in resilience could be more effective if post-disaster hazard mitigation were balanced
with resources for pre-disaster hazard mitigation, as part of a comprehensive resilience with resources for pre-disaster hazard mitigation, as part of a comprehensive resilience
investment strategy.investment strategy.~~139~~143 The recent increases in funding for pre-disaster mitigation represent a The recent increases in funding for pre-disaster mitigation represent a
significant step towards changing the balance between and pre- and post-disaster funding. significant step towards changing the balance between and pre- and post-disaster funding.

Author Information

Diane P. Horn Diane P. Horn

Analyst in Flood Insurance and Emergency Analyst in Flood Insurance and Emergency
Management Management

142 See CRS Insight IN11696, Climate Change, Slow-Onset Disasters, and the Federal Emergency Management Agency, by Diane P. Horn, Erica A. Lee, and Elizabeth M. Webster. 143 GAO, High-Risk Series, GAO-21-119SP, March 2, 2021, p. 28, https://www.gao.gov/products/gao-21-119sp. Congressional Research Service 28 FEMA Hazard Mitigation: A First Step Toward Climate Adaptation

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
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than public understanding of information that has been provided by CRS to Members of Congress in than public understanding of information that has been provided by CRS to Members of Congress in
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~~139 GAO, High-Risk Series, GAO-21-119SP, March 2, 2021, p. 28, https://www.gao.gov/products/gao-21-119sp.~~
Congressional Research Service Congressional Research Service
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