FEMA Individual Assistance Programs: An Overview

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FEMA Individual Assistance Programs:
~~April 7~~November 3, 2022 , 2022
An Overview
Elizabeth M. Webster
Following a presidential declaration of emergency or major disaster under the Robert T. Stafford Following a presidential declaration of emergency or major disaster under the Robert T. Stafford
Analyst in Emergency Analyst in Emergency
Disaster Relief and Emergency Assistance Act (Stafford Act; P.L. 93-288, as amended; 42 Disaster Relief and Emergency Assistance Act (Stafford Act; P.L. 93-288, as amended; 42
Management and Disaster Management and Disaster
U.S.C. §§5121 et seq.), the Federal Emergency Management Agency (FEMA) may provide three U.S.C. §§5121 et seq.), the Federal Emergency Management Agency (FEMA) may provide three
Recovery Recovery
primary forms of assistance: Individual Assistance (IA), Public Assistance (PA), and Hazard primary forms of assistance: Individual Assistance (IA), Public Assistance (PA), and Hazard

Mitigation Assistance (HMA). IA, which is the focus of this report, supports the disaster recovery Mitigation Assistance (HMA). IA, which is the focus of this report, supports the disaster recovery
of affected individuals and households. PA provides grants to local, state, territorial, and Indian of affected individuals and households. PA provides grants to local, state, territorial, and Indian

tribal governments, as well as certain private nonprofit organizations for emergency protective tribal governments, as well as certain private nonprofit organizations for emergency protective
measures, debris removal operations, and repair or replacement of damaged public infrastructure. HMA funds pay for measures, debris removal operations, and repair or replacement of damaged public infrastructure. HMA funds pay for
mitigation and resiliency projects and programs to reduce the threat or impacts of future disasters. mitigation and resiliency projects and programs to reduce the threat or impacts of future disasters.
This report provides brief descriptions of the IA categories: This report provides brief descriptions of the IA categories:
1. Crisis Counseling Assistance and Training Program; 1. Crisis Counseling Assistance and Training Program;
2. Disaster Case Management; 2. Disaster Case Management;
3. Disaster Legal Services; 3. Disaster Legal Services;
4. Disaster Unemployment Assistance; 4. Disaster Unemployment Assistance;
5. Individuals and Households Program; and 5. Individuals and Households Program; and
6. Mass Care and Emergency Assistance. 6. Mass Care and Emergency Assistance.
The Individuals and Households Program (IHP) is covered in greatest detail herein because it is the primary program for The Individuals and Households Program (IHP) is covered in greatest detail herein because it is the primary program for
providing financial and direct federal assistance to individuals and households following a presidential declaration of providing financial and direct federal assistance to individuals and households following a presidential declaration of
emergency or major disaster. The other forms of IA provide services to support the recovery of individuals and households, emergency or major disaster. The other forms of IA provide services to support the recovery of individuals and households,
when authorized pursuant to a major disaster declaration. when authorized pursuant to a major disaster declaration.
The IA program information included herein is based on the guidance that FEMA initially released in March 2019, and The IA program information included herein is based on the guidance that FEMA initially released in March 2019, and
subsequently updated. The current version of FEMA’s comprehensive IA program policy resource, the subsequently updated. The current version of FEMA’s comprehensive IA program policy resource, the Individual Assistance
Program and Policy Guide (IAPPG), was released in May 2021 and applies to emergencies and disasters declared on or after , was released in May 2021 and applies to emergencies and disasters declared on or after
May 26, 2021 (previous versions of the guidance apply to disasters declared prior to this date). May 26, 2021 (previous versions of the guidance apply to disasters declared prior to this date).
This report also briefly describes the IA factors considered when evaluating a governor or chief executive’s request for IA This report also briefly describes the IA factors considered when evaluating a governor or chief executive’s request for IA
pursuant to a major disaster declaration. State, territory, and Indian tribal governments do not automatically receive a pursuant to a major disaster declaration. State, territory, and Indian tribal governments do not automatically receive a
presidential Stafford Act declaration, nor do they automatically receive IA, when a disaster occurs. Instead, the governor or presidential Stafford Act declaration, nor do they automatically receive IA, when a disaster occurs. Instead, the governor or
tribal chief executive must request that the President declare an emergency or major disaster and that IA be authorized. tribal chief executive must request that the President declare an emergency or major disaster and that IA be authorized.
FEMA then evaluates the governor or chief executive’s request using set factors and provides a recommendation to the FEMA then evaluates the governor or chief executive’s request using set factors and provides a recommendation to the
President, who has sole discretion to authorize such a request. The evaluation of the IA factors, in addition to helping FEMA President, who has sole discretion to authorize such a request. The evaluation of the IA factors, in addition to helping FEMA
determine whether or not to recommend the President declare a major disaster, helps FEMA identify the determine whether or not to recommend the President declare a major disaster, helps FEMA identify the ~~types~~t ypes of IA that are of IA that are
needed. needed.
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FEMA Individual Assistance Programs: An Overview

Introduction
When a disaster occurs, the Federal Emergency Management Agency (FEMA) may assist When a disaster occurs, the Federal Emergency Management Agency (FEMA) may assist
individualsindividuals with their recovery when the Individual Assistance (IA) program is authorized with their recovery when the Individual Assistance (IA) program is authorized
pursuant to a presidential declaration of emergency or major disaster under the Robert T. Stafford pursuant to a presidential declaration of emergency or major disaster under the Robert T. Stafford
Disaster Relief and Emergency Assistance Act (Stafford Act; P.L. 93-288, as amended; 42 U.S.C. Disaster Relief and Emergency Assistance Act (Stafford Act; P.L. 93-288, as amended; 42 U.S.C.
§§5121 et seq.).1 This report provides brief descriptions of the IA categories authorized under the §§5121 et seq.).1 This report provides brief descriptions of the IA categories authorized under the
Stafford Act, including the Crisis Counseling Assistance and Training Program (CCP);2 Disaster Stafford Act, including the Crisis Counseling Assistance and Training Program (CCP);2 Disaster
Case Management (DCM),3 Disaster Legal Services (DLS);4 Disaster Unemployment Assistance Case Management (DCM),3 Disaster Legal Services (DLS);4 Disaster Unemployment Assistance
(DUA);5 and assistance for housing and/or other needs (referred to as other needs assistance or (DUA);5 and assistance for housing and/or other needs (referred to as other needs assistance or
ONA) through the Individuals and Households Program (IHP).6 Also included is a brief overview ONA) through the Individuals and Households Program (IHP).6 Also included is a brief overview
of Mass Care and Emergency Assistance (MC/EA).of Mass Care and Emergency Assistance (MC/EA).
~~All~~ Al forms of IA may be authorized pursuant to a major disaster declaration; however, only the forms of IA may be authorized pursuant to a major disaster declaration; however, only the
IHP may be authorized pursuant to either an emergency or major disaster declaration. The IHP is IHP may be authorized pursuant to either an emergency or major disaster declaration. The IHP is
also the only form of FEMA assistance that provides grants directly to individuals and households also the only form of FEMA assistance that provides grants directly to individuals and households
to support their disaster recovery by helping address their housing and other needs (FEMA may to support their disaster recovery by helping address their housing and other needs (FEMA may
also provide direct assistance for housing under the IHP). also provide direct assistance for housing under the IHP). ~~All~~ Al forms of IA are funded through the forms of IA are funded through the
Disaster Relief Fund (DRF), which is managed by FEMA.7 Disaster Relief Fund (DRF), which is managed by FEMA.7 ~~Additionally,~~ Additional y, the federal government the federal government
provides 100% of the funding for CCP, DCM, DLS, DUA, and IHP-Housing Assistance. IHP-provides 100% of the funding for CCP, DCM, DLS, DUA, and IHP-Housing Assistance. IHP-
ONA, however, is subject to a statutorily set 75% federal and 25% nonfederal cost share, borne ONA, however, is subject to a statutorily set 75% federal and 25% nonfederal cost share, borne
by the affected state, territory, or tribe. MC/EA services are funded under the Public Assistance by the affected state, territory, or tribe. MC/EA services are funded under the Public Assistance
program, and are subject to a cost share that program, and are subject to a cost share that ~~shall~~ shal be not less than 75% federal and 25% be not less than 75% federal and 25%
nonfederal, which may be adjusted.8 nonfederal, which may be adjusted.8

1 Disaster Relief1 Disaster Relief Act of 1974 (P.L. 93-288) (retitled the Robert TAct of 1974 (P.L. 93-288) (retitled the Robert T . Stafford Disaster Relief and Emergency Assistance . Stafford Disaster Relief and Emergency Assistance
Act—hereinafter Stafford ActAct—hereinafter Stafford Act —and codified, as amended, at 42 U.S.C.—and codified, as amended, at 42 U.S.C. §§5121§§5121 et seq.). et seq.). ~~The~~T he Federal Emergency Federal Emergency
Management Agency’s (FEMA’s) “Management Agency’s (FEMA’s) “ How a Disaster GetsHow a Disaster Gets Declared” webDeclared” web page, available at https://www.fema.gov/page, available at https://www.fema.gov/
disasters/how-declared,disasters/how-declared, provides additional information on the declaration process and the types of assistance that may provides additional information on the declaration process and the types of assistance that may
be authorized pursuant to a presidential declaration of emergency or major disasterbe authorized pursuant to a presidential declaration of emergency or major disaster (hereinafter FEMA, “(hereinafter FEMA, “ How a How a
Disaster Gets Declared”). Disaster Gets Declared”). ~~The~~T he Individual Assistance (IA) program is the focus of this Individual Assistance (IA) program is the focus of this ~~report~~rep ort. For information on . For information on
FEMA’s other disaster assistance programs, includingFEMA’s other disaster assistance programs, including the Public Assistance (PA) program, which may provide grants the Public Assistance (PA) program, which may provide grants
to sub-federalto sub-federal governments and certain private nonprofit organizations for emergency work following an emergency or governments and certain private nonprofit organizations for emergency work following an emergency or
major disaster declaration, and permanent work following a major disaster declaration, see CRSmajor disaster declaration, and permanent work following a major disaster declaration, see CRS In Focus IF11529, In Focus IF11529, A
Brief Overview of FEMA’s Public Assistance Program , by Erica A. Lee, and CRS, by Erica A. Lee, and CRS Report R46749, Report R46749, FEMA’s Public
Assistance Program : A Prim er~~: A Primer~~ and Considerations for Congress, by Erica A. Lee. For additional information on , by Erica A. Lee. For additional information on
FEMA’s Hazard Mitigation Assistance (HMA) fundsFEMA’s Hazard Mitigation Assistance (HMA) funds for mitigation and resiliency projects and programs to reducefor mitigation and resiliency projects and programs to reduce the the
threat or impacts of future disasters, see CRSthreat or impacts of future disasters, see CRS Insight IN11187, Insight IN11187, Federal ~~Emergency~~Em ergency Management Agency (FEMA)
Hazard Mitigation Assistance, by Diane P. Horn. , by Diane P. Horn.
2 Stafford Act Section 416, 42 U.S.C. 2 Stafford Act Section 416, 42 U.S.C. §5183. §5183.
3 Stafford Act Section 426, 42 U.S.C.3 Stafford Act Section 426, 42 U.S.C. §5189d. §5189d.
4 Stafford Act Section 415, 42 U.S.C.4 Stafford Act Section 415, 42 U.S.C. §5182. §5182.
5 Stafford Act Section 410, 42 U.S.C.5 Stafford Act Section 410, 42 U.S.C. §5177. §5177.
6 Stafford Act Section 408, 42 U.S.C.6 Stafford Act Section 408, 42 U.S.C. §5174. §5174.
7 FEMA publishes7 FEMA publishes monthly reports with information on the Disaster Relief Fundmonthly reports with information on the Disaster Relief Fund (DRF) and available funding.(DRF) and available funding. See See
FEMA, “Disaster Relief Fund:FEMA, “Disaster Relief Fund: Monthly Reports,” https://www.fema.gov/about/reports-and-data/disaster-relief-fund-Monthly Reports,” https://www.fema.gov/about/reports-and-data/disaster-relief-fund-
monthly-reports. For more information on the DRF and its history, see CRSmonthly-reports. For more information on the DRF and its history, see CRS Report R45484, Report R45484, The Disaster Relief Fund:
Overview and Issues, by William L. Painter. , by William L. Painter.
8 Stafford Act Section 403(b), 42 U.S.C. 8 Stafford Act Section 403(b), 42 U.S.C. §5170b(b). For additional information on the federal cost share for disaster §5170b(b). For additional information on the federal cost share for disaster
assistance, see CRSassistance, see CRS Report R41101, Report R41101, FEMA Disaster Cost-Shares: Evolution and Analysis, by Natalie Keegan and , by Natalie Keegan and
Elizabeth M. Webster. Elizabeth M. Webster.
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The program-related information included in this report is based on FEMA’s guidance, which The program-related information included in this report is based on FEMA’s guidance, which
was released in May 2021. The was released in May 2021. The Individual Assistance Program and Policy Guide (IAPPG) is is
FEMA’s comprehensive IA program policy resource; it applies to emergencies and disasters FEMA’s comprehensive IA program policy resource; it applies to emergencies and disasters
declared on or after May 26, 2021 (previous versions of the guidance apply to disasters declared declared on or after May 26, 2021 (previous versions of the guidance apply to disasters declared
prior to this date).9 FEMA has released additionalprior to this date).9 FEMA has released additional program guidance, including via memorandum, program guidance, including via memorandum,
which also is used with the which also is used with the IAPPG.10 .10
In addition to an overview of the IA programs, this report briefly describes the process for In addition to an overview of the IA programs, this report briefly describes the process for
authorizing IA, focusing primarily on the factors FEMA considers when evaluating a governor or authorizing IA, focusing primarily on the factors FEMA considers when evaluating a governor or
chief executive’s request for a major disaster declaration that authorizes IA. The factors FEMA chief executive’s request for a major disaster declaration that authorizes IA. The factors FEMA
considers when evaluating a governor’s request for IA were revised via rulemaking and went into considers when evaluating a governor’s request for IA were revised via rulemaking and went into
effect in June 2019, as required by Section 1109 of the Sandy Recovery Improvement Act of 2013 effect in June 2019, as required by Section 1109 of the Sandy Recovery Improvement Act of 2013
(SRIA, Division B of P.L. 113-2).11 The factors FEMA considers when evaluating a chief (SRIA, Division B of P.L. 113-2).11 The factors FEMA considers when evaluating a chief
executive’s request for a major disaster declaration were updated in January 2017 with FEMA’s executive’s request for a major disaster declaration were updated in January 2017 with FEMA’s
release of the release of the Tribal Declarations Pilot Guidance.12 .12
Individual Assistance Programs
Various types of FEMAVarious types of FEMA IA may be provided to disaster survivors.13 The available IA options IA may be provided to disaster survivors.13 The available IA options
depend on the type of Stafford Act declaration, and the type(s) of IA requested by the governor or depend on the type of Stafford Act declaration, and the type(s) of IA requested by the governor or
tribal chief executive. Brief descriptions of each form of IA are included below. tribal chief executive. Brief descriptions of each form of IA are included below.
Crisis Counseling Assistance and Training Program1414
FEMA provides Crisis Counseling Assistance and Training Program (CCP) grant funding to local, FEMA provides Crisis Counseling Assistance and Training Program (CCP) grant funding to local,
state, territory, and tribal governments to provide CCP services or contract with local mental state, territory, and tribal governments to provide CCP services or contract with local mental
health service providers for CCP services.15 The CCP supplements efforts to assist disaster health service providers for CCP services.15 The CCP supplements efforts to assist disaster

9 Previous versions of FEMA’s9 Previous versions of FEMA’s IA guidanceIA guidance can becan be found in FEMA’s “found in FEMA’s “~~Individual~~ Individual Assistance Program and Policy Assistance Program and Policy
GuideGuide Archive,” availableArchive,” available at https://www.fema.gov/assistance/individual/policy-guidance-and-factat https://www.fema.gov/assistance/individual/policy-guidance-and-fact -sheets/archived--sheets/archived-
program-policy-guide. program-policy-guide.
10 FEMA’s 10 FEMA’s Individual Assistance Program and Policy Guide (IAPPG), v. 1.1, FP 104-009-03, May 2021, available at , v. 1.1, FP 104-009-03, May 2021, available at
https://www.fema.gov/sites/default/files/documents/fema_iappg-1.1.pdf (hereinafter FEMA, https://www.fema.gov/sites/default/files/documents/fema_iappg-1.1.pdf (hereinafter FEMA, IAPPG), and related ), and related
guidanceguidance can be found at FEMA, “can be found at FEMA, “ Policy, Guidance and Fact Sheets,” https://www.fema.gov/assistance/individual/Policy, Guidance and Fact Sheets,” https://www.fema.gov/assistance/individual/
policy-guidance-and-fact-sheets. policy-guidance-and-fact-sheets.
11 44 C.F.R. §206.48(b). 11 44 C.F.R. §206.48(b).
12 FEMA, 12 FEMA, Tribal Declarations Pilot Guidance, January 2017, pp. 36-38, https://www.fema.gov/sites/default/files/2020-, January 2017, pp. 36-38, https://www.fema.gov/sites/default/files/2020-
04/tribal-declaration-pilot-guidance.pdf (hereinafter FEMA, 04/tribal-declaration-pilot-guidance.pdf (hereinafter FEMA, Tribal Declarations Pilot Guidance). Section 1110 of the ). Section 1110 of the
SandySandy Recovery Improvement Act of 2013 (SRIA, Division BRecovery Improvement Act of 2013 (SRIA, Division B of P.L. 113-2) authorized tribal chief executives to of P.L. 113-2) authorized tribal chief executives to
request presidential Stafford Act declarations. request presidential Stafford Act declarations.
13 For a brief reference on FEMA’s IA programs, see CRS 13 For a brief reference on FEMA’s IA programs, see CRS In FocusIn Focus IF11298, IF11298, A Brief Overview of FEMA’s Individual
Assistance Program , by Elizabeth M. Webster; see also CRS, by Elizabeth M. Webster; see also CRS Infographic IG10024, Infographic IG10024, How FEMA Individual Assistance
Works,, by Elizabeth M. Webster. For additional information on FEMA’s IA programs, as wellby Elizabeth M. Webster. For additional information on FEMA’s IA programs, as well as other federal as other federal
assistance for disaster response and recovery, see CRSassistance for disaster response and recovery, see CRS Report RL31734, Report RL31734, Federal Disaster Assistance Response and
Recovery ~~Programs~~Program s: Brief ~~Summaries~~Sum m aries, by Maria Kreiser, Maura Mullins, and Jared, by Maria Kreiser, Maura Mullins, and Jared C. Nagel.C. Nagel.
14 42 U.S.C.14 42 U.S.C. §5183; 44 C.F.R.§5183; 44 C.F.R. §206.171; see also FEMA, §206.171; see also FEMA, IAPPG, pp. 203-233; Substance Abuse, pp. 203-233; Substance Abuse and Mental Health and Mental Health
ServicesServices Administration (SAMHSA),Administration (SAMHSA), “ “Crisis CounselingCrisis Counseling Assistance and Assistance and ~~Training~~T raining Program (CCP),” Program (CCP),”
https://www.samhsa.gov/dtac/ccp;https://www.samhsa.gov/dtac/ccp; SAMHSA,SAMHSA, “ “Crisis CounselingCrisis Counseling Assistance and Assistance and ~~Training~~T raining Program (CCP) Program (CCP) ~~Toolkit~~T oolkit ,” ,”
https://www.samhsa.gov/dtac/ccp-toolkithttps://www.samhsa.gov/dtac/ccp-toolkit ; and FEMA, ; and FEMA, Crisis Counseling Assistance and Training Program Guidance:
CCP Application Toolkit, Version 5.2, October 2021, https://www.samhsa.gov/sites/default/files/dtac/ccptoolkit/fema-, Version 5.2, October 2021, https://www.samhsa.gov/sites/default/files/dtac/ccptoolkit/fema-
ccp-guidance.pdf. ccp-guidance.pdf.
15 FEMA, 15 FEMA, IAPPG, p. 203. , p. 203.
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survivors and communities recovering from the effects of a disaster through community-based survivors and communities recovering from the effects of a disaster through community-based
outreach and the provision of services, such as crisis counseling, psycho-education, coping outreach and the provision of services, such as crisis counseling, psycho-education, coping ~~skills~~skil s
development, and linkingdevelopment, and linking disaster survivors with other resources, such as individuals and disaster survivors with other resources, such as individuals and
agencies that help survivors in the recovery process.16agencies that help survivors in the recovery process.16
As the program supplements state, territory, tribal, and local resources, the affected government’s CCP application must demonstrate that the need for CCP services exceeds the capacity of state, territory, tribal, and local resources.17 The CCP provides short- to intermediate-term assistance to support mental and emotional health The CCP provides short- to intermediate-term assistance to support mental and emotional health
needs. Two separate CCP programs provide assistance for different lengths of time:needs. Two separate CCP programs provide assistance for different lengths of time:1718
1. 1. Immediate Services Program (ISP) funding is provided for up to 60 days funding is provided for up to 60 days
following the approval of IA for a major disaster, and can continue for 60 following the approval of IA for a major disaster, and can continue for 60
additional days if an affected state/territory/tribe has submitted an application for additional days if an affected state/territory/tribe has submitted an application for
the Regular Services Program. the Regular Services Program.
2. 2. Regular Services Program (RSP) funding is provided for up to nine months funding is provided for up to nine months
following the date of the notice of award, and can be extended for up to 90 days following the date of the notice of award, and can be extended for up to 90 days
due to extraordinary circumstance or for more than 90 days if FEMA determines due to extraordinary circumstance or for more than 90 days if FEMA determines
such an extension of the period of performance is in the public interest. ISP such an extension of the period of performance is in the public interest. ISP
participation is not a prerequisite for the RSP. participation is not a prerequisite for the RSP.
The CCP regulations and guidance specify the application deadlines The CCP regulations and guidance specify the application deadlines (no later than 14 days following the major disaster declaration for the ISP, and no later than 60 days after the declaration for the RSP), and timing for the availability ~~and timing for the~~
~~availability~~ of the above-referenced program funding; however, as noted, funding time extensions of the above-referenced program funding; however, as noted, funding time extensions
may be approved if requested by the state, territory, or tribe and may be approved if requested by the state, territory, or tribe and approved by federal officials.approved by federal officials.
19 Disaster Case Management1820
FEMA provides Disaster Case Management (DCM) services or grants to local, state, territory, and FEMA provides Disaster Case Management (DCM) services or grants to local, state, territory, and
tribal governments or tribal governments or qualified private organizations to supplement existing case management to supplement existing case management
capabilities.21 FEMA may authorize DCM at the request of the governor of the affected state/territory, or chief executive of the affected tribe.22 The program partners case managers with disaster survivors to develop and implement disaster recovery plans that address the disaster survivors’ unmet needs, including by providing disaster 16 FEMA, IAPPG, p. 8. Figure 40 in FEMA’s IAPPG lists and describes the available Crisis Counseling Assistance and T raining Program (CCP)-funded services (see FEMA, IAPPG, p. 206). 17 FEMA, Disaster Operations Legal Reference, v. 4.0, September 25, 2020, p. 6-99 (hereinafter FEMA, Disaster Operations Legal Reference). 18 T he CCP Immediate Services Program (ISP) is described 44 C.F.R. §206.171(f) and FEMA, IAPPG, pp. 209-217. T he CCP Regular Services Program (RSP) is described 44 C.F.R. §206.171(g) and FEMA, IAPPG, pp. 218-225. 19 44 C.F.R. §206.171(f)(1) and (g)(1). 20 42 U.S.C. §5189d; see also FEMA, IAPPG, pp. 183-202; and FEMA, “Disaster Case Management T oolbox,” https://www.fema.gov/assistance/individual/disaster-survivors/disaster-case-management -toolbox. 21 DCM defines ~~capabilities.19 The program partners case managers with disaster survivors to develop and~~
~~implement disaster recovery plans that address the disaster survivors’ unmet needs, including by~~
~~providing disaster survivors with a single point of contact to access recovery resources.20~~
~~Two DCM programs provide assistance for different lengths of time:21~~
~~1. Immediate Disaster Case Management (IDCM) provides short-term services~~
~~to address immediate disaster-caused unmet needs, and refer disaster survivors to~~
~~resources. The period of performance of 90-180 days (when cases are transferred~~
~~to the Disaster Case Management program), unless an extension is authorized~~
~~due to extraordinary circumstances.~~

~~16 FEMA, IAPPG, p. 8. Figure 40 in FEMA’s IAPPG lists and describes the available Crisis Counseling Assistance and~~
~~Training Program (CCP)-funded services (see FEMA, IAPPG, p. 206).~~
~~17 The CCP Immediate Services Program (ISP) is described 44 C.F.R. §206.171(f) and FEMA, IAPPG, pp. 209-217.~~
~~The CCP Regular Services Program (RSP) is described 44 C.F.R. §206.171(g) and FEMA, IAPPG, pp. 218-225.~~
~~18 42 U.S.C. §5189d; see also FEMA, IAPPG, pp. 183-202; and FEMA, “Disaster Case Management Toolbox,”~~
~~https://www.fema.gov/assistance/individual/disaster-survivors/disaster-case-management-toolbox.~~
~~19 DCM defines~~ a a qualified private organization as “any non-governmental organization or entity that currently has an as “any non-governmental organization or entity that currently has an
effective ruling letter from the U.S. Internal Revenue Service, granting tax exemption under Sections 501(c) of Internal effective ruling letter from the U.S. Internal Revenue Service, granting tax exemption under Sections 501(c) of Internal
Revenue CodeRevenue Code of 1954, or satisfactory evidence from the state, territorial, or tribal government that the nonrevenue of 1954, or satisfactory evidence from the state, territorial, or tribal government that the nonrevenue
producing organization or entity is a nonprofit one producing organization or entity is a nonprofit one ~~organized~~organ ized or doing business or doing business under state, territorial, or tribal under state, territorial, or tribal
government law and that has experience providing case management services” (FEMA, government law and that has experience providing case management services” (FEMA, IAPPG, p. 183). , p. 183).
2022 FEMA, Disaster Operations Legal Reference, p. 6-96. Congressional Research Service 3 FEMA Individual Assistance Programs: An Overview survivors with a single point of contact to access recovery resources.23 Two DCM programs provide assistance for different lengths of time:24 1. Immediate Disaster Case Management (IDCM) provides short-term services to address immediate disaster-caused unmet needs, and refer disaster survivors to resources. The period of performance may be 90-180 days (when cases are transferred to the Disaster Case Management program), unless an extension is authorized due to extraordinary circumstances. ~~FEMA, IAPPG, p. 183.~~
~~21 The Immediate Disaster Case Management (IDCM) program is discussed in FEMA’s IAPPG from pages 186-187,~~
~~and the Disaster Case Management (DCM) program is discussed from pages 188-202.~~
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2. 2. Disaster Case Management (DCM) provides longer-term services, with a provides longer-term services, with a
period of performance of up to 24 months from the declaration date, which may period of performance of up to 24 months from the declaration date, which may
be extended for 90 days pursuant to a written request by the affected state, be extended for 90 days pursuant to a written request by the affected state,
territory, or tribe that is approved by FEMA. IDCM implementation is not a territory, or tribe that is approved by FEMA. IDCM implementation is not a
prerequisite for the DCM program. prerequisite for the DCM program.
FEMA directly implements, administers, and oversees the IDCM program, in coordination with FEMA directly implements, administers, and oversees the IDCM program, in coordination with
the affected state, territory, or tribal government.the affected state, territory, or tribal government.2225 The DCM program, however, is implemented The DCM program, however, is implemented
through a grant or cooperative agreement (when substantial FEMA involvement is anticipated).through a grant or cooperative agreement (when substantial FEMA involvement is anticipated).2326
Disaster Legal Services2427
Disaster Legal Services (DLS) are provided for free to low-income individuals who require them Disaster Legal Services (DLS) are provided for free to low-income individuals who require them
because of a major disaster.because of a major disaster.2528 DLS includes providing disaster survivors with legal advice, DLS includes providing disaster survivors with legal advice,
counseling, and representation in non-fee-generating cases.counseling, and representation in non-fee-generating cases.2629 Further, the provision of services is Further, the provision of services is
“confined to the securing of benefits under the [Stafford] Act and claims arising out of a major “confined to the securing of benefits under the [Stafford] Act and claims arising out of a major
disaster.”disaster.”2730 For example, assistance may include replacing disaster-destroyed legal documents, For example, assistance may include replacing disaster-destroyed legal documents,
help with home repair contracts and contractors, and appeals of FEMA decisions.help with home repair contracts and contractors, and appeals of FEMA decisions.2831 Disaster Legal Disaster Legal
Services are provided through an agreement FEMA has with the American Bar Association’s Services are provided through an agreement FEMA has with the American Bar Association’s
Young Lawyers Division, when requested by an affected local, state, territory, or tribal Young Lawyers Division, when requested by an affected local, state, territory, or tribal
government.government.2932 Assistance can be provided via a local toll-free hotline and through Disaster Assistance can be provided via a local toll-free hotline and through Disaster
Recovery Centers.Recovery Centers.3033 Disaster Legal Services are provided until they are no longer needed. Disaster Legal Services are provided until they are no longer needed.31
Disaster Unemployment Assistance32
~~Disaster Unemployment Assistance (DUA) provides temporary benefits for up to 26 weeks~~
~~following the declaration of a major disaster to individuals who were previously employed or~~
~~self-employed, were rendered jobless or whose employment was interrupted as a direct result of a~~
~~presidentially declared major disaster, and who are ineligible for regular unemployment~~
~~insurance.33 DUA may also provide re-employment assistance.34 The program is overseen by the~~
~~U.S. Department of Labor, and administered by the affected state or territory’s Unemployment~~
~~Insurance (UI) agency. FEMA provides the funding for DUA.~~

~~22 FEMA, IAPPG, p. 186.~~
~~23 FEMA, IAPPG, p. 188.~~
~~24 42 U.S.C. §5182; 44 C.F.R. §206.164; see also FEMA, IAPPG, pp. 235-237.~~
~~25 For the purposes of Disaster Legal Services~~ 34 23 FEMA, IAPPG, p. 183. 24 T he Immediate Disaster Case Management (IDCM) program is discussed in FEMA’s IAPPG from pages 186-187, and the Disaster Case Management (DCM) program is discussed from pages 188 -202. 25 FEMA, IAPPG, p. 186. 26 FEMA, IAPPG, p. 188. 27 42 U.S.C. §5182; 44 C.F.R. §206.164; see also FEMA, IAPPG, pp. 235-237. 28 For the purposes of Disaster Legal Services (DLS), (DLS), low-income disaster survivors are those “who have insufficient disaster survivors are those “who have insufficient
resources to secure adequateresources to secure adequate ~~legal~~ legal services, whether the insufficiency existed prior to or resulted from the major services, whether the insufficiency existed prior to or resulted from the major
disaster” (FEMA, disaster” (FEMA, IAPPG, p. 236). , p. 236).
2629 44 C.F.R. §206.164(a). 44 C.F.R. §206.164(a).
2730 44 C.F.R. §206.164(e). 44 C.F.R. §206.164(e).
2831 FEMA, FEMA, IAPPG, pp. 8 and 235. , pp. 8 and 235.
2932 FEMA, FEMA, IAPPG, p. 8. , p. 8.
3033 FEMA, FEMA, IAPPG, p. 237. , p. 237.
3134 FEMA, FEMA, IAPPG, p. 235. FEMA’s statute and regulations do not establish time limitation for Disaster Legal Services. , p. 235. FEMA’s statute and regulations do not establish time limitation for Disaster Legal Services.
~~32 42 U.S.C. §5177; 44 C.F.R. §206.141; see also FEMA, IAPPG, pp. 239-243.~~
~~33 FEMA, IAPPG, p. 239. For more information on DUA, see CRS Report RS22022,~~ ~~Disaster Unemployment~~
~~Assistance (DUA), by Julie M. Whittaker.~~
~~34 FEMA, IAPPG, p. 239.~~
~~Congressional Research Service~~

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~~link to page 8 link to page 9 link to page 9~~ ~~FEMA Individual Assistance Programs: An Overview~~

Individuals and Households Program35 Congressional Research Service 4 link to page 9 FEMA Individual Assistance Programs: An Overview Disaster Unemployment Assistance35 Disaster Unemployment Assistance (DUA) provides temporary benefits for up to 26 weeks following the declaration of a major disaster to individuals who were previously employed or self-employed, were rendered jobless or whose employment was interrupted as a direct result of a presidential y declared major disaster, and who are ineligible for regular unemployment insurance.36 DUA may also provide re-employment assistance.37 The program is overseen by the U.S. Department of Labor, and administered by the affected state or territory’s Unemployment Insurance (UI) agency. FEMA provides the funding for DUA. Individuals and Households Program38
When the Individuals and Households Program (IHP) is authorized, FEMA may provide financial When the Individuals and Households Program (IHP) is authorized, FEMA may provide financial
and/or direct assistance for housing and financial assistance for other needs (referred to as other and/or direct assistance for housing and financial assistance for other needs (referred to as other
needs assistance or ONA) to eligibleneeds assistance or ONA) to eligible individuals and households who, as a result of a disaster, individuals and households who, as a result of a disaster,
have uninsured or under-insured necessary expenses and serious needs that cannot be met through have uninsured or under-insured necessary expenses and serious needs that cannot be met through
other means or forms of assistance.other means or forms of assistance.3639 The IHP is intended to meet basic needs and support The IHP is intended to meet basic needs and support
recovery efforts, but it does not compensate disaster survivors for recovery efforts, but it does not compensate disaster survivors for ~~all~~ al losses and it is not intended losses and it is not intended
to be a substitute for insurance. There are additional limits on IHP assistance, including that some to be a substitute for insurance. There are additional limits on IHP assistance, including that some
forms of IHP assistance are subject to time-based limitations, and IHP awards for Financial forms of IHP assistance are subject to time-based limitations, and IHP awards for Financial
Housing Assistance and ONA are subject to statutory funding caps that limit the amount of Housing Assistance and ONA are subject to statutory funding caps that limit the amount of
financial assistance an individual or household may receive.financial assistance an individual or household may receive.~~37 Additionally,~~ 40 Additional y, IHP applicants must IHP applicants must
meet general eligibilitymeet general eligibility requirements,requirements,3841 and each type of IHP assistance also requires that and each type of IHP assistance also requires that
additional eligibilityadditional eligibility conditions be met, and may require additional documentation. The types of conditions be met, and may require additional documentation. The types of
IHP Housing Assistance and Other Needs Assistance (ONA) are listed in Table 1. 35 42 U.S.C. §5177; 44 C.F.R. §206.141; see also FEMA, IAPPG, pp. 239-243. 36 FEMA, IAPPG, p. 239. For more information on DUA, see CRS Report RS22022, Disaster Unemployment Assistance (DUA), by Julie M. Whittaker. 37 FEMA, IAPPG, p. 239. 38 42 U.S.C. §5174; 44 C.F.R. §§206.110-120; see also FEMA, IAPPG, pp. 41-182. For additional, detailed information on the Individuals and Households Program (IHP), see CRS Report R47015, FEMA’s Individuals and Households Program (IHP)—Im plementation and Considerations for Congress, by Elizabeth M. Webster; and for a brief overview of the IHP, see CRS In Focus IF12049, FEMA’s Individuals and Households Program (IHP) , by Elizabeth M. Webster. 39 FEMA, IAPPG, p. 41. 40 42 U.S.C. §5174(h). Assistance for housing-related needs may not exceed $41,000 (FY2023; adjusted annually), and assistance for other needs assistance (ONA) may not exceed $41,000 (FY2023; adjusted annually). Additionally, ONA may be somewhat limited because some ONA-eligible items and amounts available to be awarded ~~IHP Housing Assistance and Other Needs Assistance (ONA) are listed in Table 1.~~
~~Table 1. Types of Housing Assistance and Other Needs Assistance~~
~~Housing Assistance:~~
~~Housing Assistance:~~
~~ONA:~~
~~ONA:~~
~~Financial~~
~~Direct~~
~~SBA-Dependenta~~
~~Non-SBA-Dependentb~~
~~Lodging Expense~~
~~Multi-Family Lease and~~
~~Personal Property~~
~~Funeral Assistance~~
~~Reimbursement~~
~~Repair~~
~~Assistance~~
~~Medical and Dental~~
~~Rental Assistance~~
~~Transportable Temporary~~
~~Transportation Assistance Assistance~~
~~Home Repair Assistance~~
~~Housing Units~~
~~Group Flood Insurance~~
~~Childcare Assistance~~
~~Home Replacement~~
~~Direct Lease~~
~~Policy~~
~~Assistance for~~
~~Assistance~~
~~Permanent Housing~~
~~Miscellaneous Items~~
~~Construction~~
~~Moving and Storage~~
~~Assistance~~
~~Critical Needs Assistance~~
~~Clean and Sanitize~~
~~Assistance~~
Sources: CRS’s interpretation of “Figure 5: Housing Assistance” and “Figure 28: Other Needs Assistance, Non-
~~SBA-Dependent and SBA-Dependent” of the FEMA, Individual Assistance Program and Policy Guide (IAPPG), v. 1.1,~~
~~FP 104-009-03, May 2021, pp. 44 and 146, https://www.fema.gov/sites/default/files/documents/fema_iappg-1.1.pdf;~~
~~and Memorandum from Keith Turi, FEMA Assistant Administrator, Recovery Directorate to FEMA Regional~~
~~Administrators, “RE: Amendment to FP 104-009-03, Individual Assistance Program and Policy Guide, Version~~

~~35 42 U.S.C. §5174; 44 C.F.R. §§206.110-120; see also FEMA, IAPPG, pp. 41-182. For additional, detailed~~
~~information on the Individuals and Households Program (IHP), see CRS Report R47015,~~ ~~FEMA’s Individuals and~~
~~Households Program (IHP)—Implementation and Considerations for Congress, by Elizabeth M. Webster; and for a~~
~~brief overview of the IHP, see CRS In Focus IF12049, FEMA’s Individuals and Households Program (IHP), by~~
~~Elizabeth M. Webster.~~
~~36 FEMA, IAPPG, p. 41.~~
~~37 42 U.S.C. §5174(h). Assistance for housing-related needs may not exceed $37,900 (FY2022; adjusted annually), and~~
~~assistance for other needs assistance (ONA) may not exceed $37,900 (FY2022; adjusted annually). Additionally, ONA~~
~~may be somewhat limited because some ONA-eligible items and amounts available to be awarded~~ are predetermined are predetermined
by FEMA and the state, territorial, or Indian tribal government. Financial assistance to rent alternate housing by FEMA and the state, territorial, or Indian tribal government. Financial assistance to rent alternate housing
accommodations and financial assistance for accessibility-related real and personal property costs are not subject to the accommodations and financial assistance for accessibility-related real and personal property costs are not subject to the
cap. DHS/FEMA,cap. DHS/FEMA, “ “Notice of Maximum Amount of Assistance Under the IndividualsNotice of Maximum Amount of Assistance Under the Individuals and Householdsand Households Program,” Program,” 8687
Federal Register ~~63046, November 15, 2021~~ 64512, October 25, 2022, https://www.govinfo.gov/, https://www.govinfo.gov/~~content/pkg/FR-2021-11-15/pdf/2021-~~
~~24755.pdf.~~
38cont ent/pkg/FR-2022-10-25/pdf/2022-23162.pdf. 41 FEMA, FEMA, IAPPG, p. 46. , p. 46.
Congressional Research Service Congressional Research Service

5 5

link to page 9 link to page 9 FEMA Individual Assistance Programs: An Overview Table 1. Types of Housing Assistance and Other Needs Assistance Housing Assistance: Housing Assistance: ONA: ONA: Financial Direct SBA-Dependenta Non-SBA-Dependentb Lodging Expense Multi-Family Lease and Personal Property Funeral Assistance Reimbursement Repair Assistance Medical and Dental Rental Assistance Transportable Temporary Transportation Assistance Assistance Home Repair Assistance Housing Units Group Flood Insurance Childcare Assistance Home Replacement Direct Lease Policy Assistance for Assistance Permanent Housing Miscel aneous Items Construction Moving and Storage Assistance Critical Needs Assistance Clean and Sanitize Assistance Sources: CRS’s interpretation of “Figure 5: Housing Assistance” and “Figure 28: Other Needs Assistance, Non-SBA-Dependent and SBA-Dependent” of the FEMA, Individual Assistance Program and Policy Guide (IAPPG), v. 1.1, FP 104-009-03, May 2021, pp. 44 and 146, https://www.fema.gov/sites/default/files/documents/fema_iappg-1.1.pdf; and Memorandum from Keith Turi, FEMA Assistant Administrator, Recovery Directorate to FEMA Regional Administrators, “RE: Amendment to FP 104-009-03, Individual Assistance Program and Policy Guide, Version 1.1,” September ~~FEMA Individual Assistance Programs: An Overview~~

~~1.1,” September~~ 2, 2021, pp. 11-12, https://www.fema.gov/sites/default/files/documents/fema_iappg-policy-2, 2021, pp. 11-12, https://www.fema.gov/sites/default/files/documents/fema_iappg-policy-
amendments-memo.pdf. amendments-memo.pdf.
Notes: The different types of Housing AssistanceThe different types of Housing Assistance may constitute either financial or direct assistance; however, may constitute either financial or direct assistance; however,
~~all~~ al types of Other Needs Assistancetypes of Other Needs Assistance (ONA) are forms of financial assistance. The term “SBA” refers(ONA) are forms of financial assistance. The term “SBA” refers to the to the ~~Small~~
Smal BusinessBusiness Administration. Administration.
a. SBA-Dependent ONA is only available to individuals or households that do not qualify for an SBA disaster a. SBA-Dependent ONA is only available to individuals or households that do not qualify for an SBA disaster
loan or whose SBA disaster loan amount is insufficient. Eligibility loan or whose SBA disaster loan amount is insufficient. Eligibility for SBA-Dependent ONA is determined by for SBA-Dependent ONA is determined by
FEMA in col aboration with SBA (see 42 U.S.C.FEMA in col aboration with SBA (see 42 U.S.C. §5174(e); and 44 C.F.R. §206.119). §5174(e); and 44 C.F.R. §206.119).
b. Non-SBA-Dependent ONA may be awarded regardless b. Non-SBA-Dependent ONA may be awarded regardless of the individual or household’s SBA disasterof the individual or household’s SBA disaster loan loan
status (see 42 U.S.C. status (see 42 U.S.C. §5174(e); and 44 C.F.R. §206.119). §5174(e); and 44 C.F.R. §206.119).
Housing Assistance
FEMA has many different types of housing assistance that it can employ, depending on the FEMA has many different types of housing assistance that it can employ, depending on the
disaster-caused housing needs of affected individuals and households. Options may include disaster-caused housing needs of affected individuals and households. Options may include
Financial Housing Assistance (i.e., a grant of money) and/or Direct Housing Assistance (i.e., a Financial Housing Assistance (i.e., a grant of money) and/or Direct Housing Assistance (i.e., a
place to live temporarily). Per FEMA’s regulations and guidance, the appropriate type of housing place to live temporarily). Per FEMA’s regulations and guidance, the appropriate type of housing
assistance depends on considerations of “cost effectiveness, convenience to the individuals and assistance depends on considerations of “cost effectiveness, convenience to the individuals and
households and the suitability and availabilityhouseholds and the suitability and availability of the types of assistance.”of the types of assistance.”3942 Other relevant Other relevant
considerations relate to the individualconsiderations relate to the individual or household’s “disaster-caused losses, access to life-or household’s “disaster-caused losses, access to life-
sustaining services, cost-effectiveness, and other factors.”sustaining services, cost-effectiveness, and other factors.”4043 In addition, individuals and In addition, individuals and
households may require multiple types of housing assistance when a disaster affects their home’s households may require multiple types of housing assistance when a disaster affects their home’s
habitability.habitability.4144 The following two sections briefly describe each type of Housing Assistance, and The following two sections briefly describe each type of Housing Assistance, and
are organized by subcategory. 42 44 C.F.R. §206.110(c). 43 FEMA, IAPPG, p. 43. See ~~are organized by subcategory.~~
~~Financial Housing Assistance~~
~~Financial Housing Assistance is grant funding provided by FEMA directly to the eligible~~
~~individual or household.42 Home Repair and Home Replacement Assistance are subject to the~~
~~limit on the maximum amount of financial assistance an individual or household is eligible to~~
~~receive.43~~
~~ Lodging Expense Reimbursement (LER) provides eligible individuals with~~
~~funding for out-of-pocket short-term lodging costs and taxes when the applicant~~
~~is displaced from their primary residence because an emergency or major disaster~~
~~rendered it uninhabitable or inaccessible.44~~

~~39 44 C.F.R. §206.110(c).~~
40 FEMA, IAPPG~~, p. 43. See~~ also 44 C.F.R. §206.117(b). With regard to other factors, for example, some forms of IHP also 44 C.F.R. §206.117(b). With regard to other factors, for example, some forms of IHP
assistance consider access to wrap-around services, which FEMA states in its guidanceassistance consider access to wrap-around services, which FEMA states in its guidance may includemay include “ “basic social basic social
services, access to transportation, police/fire protection, emergency/health care services, communications, utilities, services, access to transportation, police/fire protection, emergency/health care services, communications, utilities,
grocery stores, child care, and educational institutions” (FEMA, grocery stores, child care, and educational institutions” (FEMA, IAPPG, p. 117). , p. 117).
4144 42 U.S.C. 42 U.S.C. §5174(b) and (c); 44 C.F.R. §206.110(c); and FEMA, §5174(b) and (c); 44 C.F.R. §206.110(c); and FEMA, IAPPG, pp. 78 and 93. FEMA’s , pp. 78 and 93. FEMA’s IAPPG defines defines
~~“uninhabitable” as “a dwelling that is not safe, sanitary, or fit to occupy” (FEMA, IAPPG, p. 78).~~
~~42 FEMA, IAPPG, p. 43.~~
~~43 Assistance for housing-related needs may not exceed $37,900 (FY2022; adjusted annually). Financial assistance to~~
~~rent alternate housing accommodations and financial assistance for accessibility-related real property costs are not~~
~~subject to the cap. DHS/FEMA, “Notice of Maximum Amount of Assistance Under the Individuals and Households~~
~~Program,” 86 Federal Register 63046, November 15, 2021, https://www.govinfo.gov/content/pkg/FR-2021-11-15/pdf/~~
~~2021-24755.pdf.~~
~~44 FEMA, IAPPG, pp. 78-79.~~
~~Congressional Research Service~~

6

~~FEMA Individual Assistance Programs: An Overview~~
Congressional Research Service 6 FEMA Individual Assistance Programs: An Overview Financial Housing Assistance Financial Housing Assistance is grant funding provided by FEMA directly to the eligible individual or household.45 Home Repair and Home Replacement Assistance are subject to the limit on the maximum amount of financial assistance an individual or household is eligible to receive.46  Lodging Expense Reimbursement (LER) provides eligible individuals with funding for out-of-pocket short-term lodging costs and taxes when the applicant is displaced from their primary residence because an emergency or major disaster rendered it uninhabitable or inaccessible.47
  Rental Assistance (including Initial Rental Assistance and Continued
Temporary Housing Assistance) providesprovides eligible individuals witheligible individuals with funding to funding to
rent alternate housing accommodations, including funding for rent, essential rent alternate housing accommodations, including funding for rent, essential
utilities, and a security deposit, while the applicant is displaced from their utilities, and a security deposit, while the applicant is displaced from their
primary residence because it is uninhabitable, inaccessible, affected by a utility primary residence because it is uninhabitable, inaccessible, affected by a utility
outage, or unavailable.outage, or unavailable.4548 There are two types of Rental Assistance: There are two types of Rental Assistance:
  Initial Rental Assistance ~~allows~~al ows FEMA to provide up to two months of FEMA to provide up to two months of
assistance. assistance.
  Continued Temporary Housing Assistance ~~allows~~al ows FEMA to provide FEMA to provide
assistance for up to 18 months or until the end of the 18-mnoth period of assistance for up to 18 months or until the end of the 18-mnoth period of
assistance, whichever comes first (this includes the period of time during assistance, whichever comes first (this includes the period of time during
which Initial Rental Assistance was provided), plus a security deposit. The which Initial Rental Assistance was provided), plus a security deposit. The
period of assistance may be extended at the written request of the affected period of assistance may be extended at the written request of the affected
state, territory, or Indian tribal government.state, territory, or Indian tribal government.4649
  Home Repair Assistance providesprovides funding to eligible homeowners to repairfunding to eligible homeowners to repair an an
owner-occupied primary residence, utilities, and residential owner-occupied primary residence, utilities, and residential infrastructure (e.g., privately-owned access routes) to make the disaster survivors’ home “safe, “uninhabitable” as “a dwelling that is not safe, sanitary, or fit to occupy” (FEMA, IAPPG, p. 78). 45 FEMA, IAPPG, p. 43. 46 Assistance for housing-related needs may not exceed $41,000 (FY2023; adjusted annually). Financial assistance to rent alternate housing accommodations and financial assistance for accessibility-related real property costs are not subject to the cap. DHS/FEMA, “ Notice of Maximum Amount of Assistance Under the Individuals and Households Program,” 87 Federal Register 64512, October 25, 2022, https://www.govinfo.gov/content/pkg/FR-2022-10-25/pdf/2022-23162.pdf 47 FEMA, IAPPG, pp. 78-79. 48 FEMA, IAPPG, p. 80. T he FEMA IAPPG states that FEMA uses the applicable Fair Market Rent (FMR) rate, which is based on the housing unit’s location, number of bedrooms, and the fiscal year of the major disaster declaration (FEMA, IAPPG, p. 109 (see “ Fair Market Rent (FMR)” text box)). HUD’s Office of Policy Development and Research (PD&R) posts FMR information at https://www.huduser.gov/portal/datasets/fmr.html. 49 FEMA, IAPPG, p. 80. Congressional Research Service 7 FEMA Individual Assistance Programs: An Overview ~~infrastructure (e.g.,~~
~~privately-owned access routes) to make the disaster survivors’ home “safe,~~
sanitary, or functional.”sanitary, or functional.”4750 Home Repair Assistance may also provide funding for Home Repair Assistance may also provide funding for
selected mitigation measures that make the housing more resilient.selected mitigation measures that make the housing more resilient.4851
  Home Replacement Assistance providesprovides funding to eligible homeowners to help funding to eligible homeowners to help
replace a disaster-destroyed owner-occupied primary residence. The funding can replace a disaster-destroyed owner-occupied primary residence. The funding can
be applied toward the purchase of a new permanent residence that exceeds the be applied toward the purchase of a new permanent residence that exceeds the
maximum award amount.maximum award amount.4952
When FEMA’s Financial Housing Assistance programs are unable to meet the disaster-caused When FEMA’s Financial Housing Assistance programs are unable to meet the disaster-caused
housing needs of individuals and households, FEMA may authorize a state, territory, or Indian housing needs of individuals and households, FEMA may authorize a state, territory, or Indian
tribal government’s request for Direct Housing Assistance. tribal government’s request for Direct Housing Assistance.

~~45 FEMA, IAPPG, p. 80. The FEMA IAPPG states that FEMA uses the applicable Fair Market Rent (FMR) rate, which~~
~~is based on the housing unit’s location, number of bedrooms, and the fiscal year of the major disaster declaration~~
~~(FEMA, IAPPG, p. 109 (see “Fair Market Rent (FMR)” text box)). HUD’s Office of Policy Development and Research~~
~~(PD&R) posts FMR information at https://www.huduser.gov/portal/datasets/fmr.html.~~
~~46 FEMA, IAPPG, p. 80.~~
47 Direct Housing Assistance Direct Housing Assistance is housing provided to the individual or household by FEMA (or the state, territory, or Indian tribal government).53 Direct Housing Assistance is not subject to the limit on the maximum amount of financial assistance an individual or household is eligible to receive. However, FEMA may only provide Direct Housing Assistance when Rental Assistance (a type of IHP Financial Housing Assistance) is unavailable or is insufficient.54  Multifamily Lease and Repair (MLR) temporarily places eligible individuals in a FEMA-leased, currently existing, vacant multi-family housing unit (e.g., an apartment in a building that FEMA has leased; FEMA must have exclusive use of the property for temporary housing for a period of not less than 18 months from the declaration date) that FEMA has repaired or improved, if needed (e.g., to 50 FEMA, FEMA, IAPPG, p. 85. A nonexhaustive list of real property components that are eligible for repair is included, p. 85. A nonexhaustive list of real property components that are eligible for repair is included in the in the
FEMA FEMA IAPPG on page 86. It includes on page 86. It includes components such as the structural components of a home (e.g., foundation, components such as the structural components of a home (e.g., foundation,
exterior walls, and roof). Additionally, assistance to repair real property components impacted by disasterexterior walls, and roof). Additionally, assistance to repair real property components impacted by disaster -caused-caused mold mold
growth is eligiblegrowth is eligible for Home Repair Assistance (Memorandum from Keith for Home Repair Assistance (Memorandum from Keith ~~Turi~~T uri, FEMA Assistant Administrator, , FEMA Assistant Administrator,
Recovery Directorate to FEMA Regional Administrators, “RE: Amendment to FP 104-009-03, Individual Assistance Recovery Directorate to FEMA Regional Administrators, “RE: Amendment to FP 104-009-03, Individual Assistance
Program and Policy Guide,Program and Policy Guide, ~~Version~~ Version 1.1,” September 2, 2021, pp. 91.1,” September 2, 2021, pp. 9 -10, https://www.fema.gov/sites/default/files/-10, https://www.fema.gov/sites/default/files/
documents/fema_iappg-policy-amendments-memo.pdf (hereinafter Memorandum from Keith documents/fema_iappg-policy-amendments-memo.pdf (hereinafter Memorandum from Keith ~~Turi~~T uri RE: Amendment to RE: Amendment to
the IAPPG)). the IAPPG)).
4851 FEMA, “Hazard Mitigation Under the Individuals FEMA, “Hazard Mitigation Under the Individuals and Householdsand Households Program,” release, JuneProgram,” release, June 10, 2021, 10, 2021,
https://www.fema.gov/fact-sheet/hazard-mitigation-under-individuals-and-households-program. https://www.fema.gov/fact-sheet/hazard-mitigation-under-individuals-and-households-program.
4952 FEMA, FEMA, IAPPG, p. 91. FEMA calculates the award, p. 91. FEMA calculates the award amount usingamount using the consumer price index data forthe consumer price index data for the types of the types of
housing in the area where the damagehousing in the area where the damage occurred (the type of pre-disaster home could includeoccurred (the type of pre-disaster home could include ~~a “~~ a “ manufactured home, manufactured home,
travel trailer, houseboat, or residential construction (e.g., single-family home).” travel trailer, houseboat, or residential construction (e.g., single-family home).”
~~Congressional Research Service~~

7

~~FEMA Individual Assistance Programs: An Overview~~

~~Direct Housing Assistance~~
~~Direct Housing Assistance is housing provided to the individual or household by FEMA (or the~~
~~state, territory, or Indian tribal government).50 Direct Housing Assistance is not subject to the~~
~~limit on the maximum amount of financial assistance an individual or household is eligible to~~
~~receive. However, FEMA may only provide Direct Housing Assistance when Rental Assistance (a~~
~~type of IHP Financial Housing Assistance) is unavailable or is insufficient.51~~
~~ Multifamily Lease and Repair (MLR) temporarily places eligible individuals in~~
~~a FEMA-leased, currently existing, vacant multi-family housing unit (e.g., an~~
~~apartment in a building that FEMA has leased; FEMA must have exclusive use of~~
~~the property for temporary housing for a period of not less than 18 months from~~
~~the declaration date) that FEMA has repaired or improved, if needed (e.g., to~~
~~make a unit accessible).52~~53 On July 28, 2020, FEMA announced the publication of the State-Administered Direct Housing Grant Guide, available at https://www.fema.gov/sites/default/files/2020-07/fema_state-administered-direct -housing-grant -guide_DRRA1211_July2020.pdf, which made st ate, local, tribal and territory governments eligible to receive grants to provide Direct Housing Assistance for a limited period of time; this pilot grant program concluded on October 5, 2020. T he State-Adm inistered Direct Housing Grant Guide states that FEMA will implement a permanent grant program after issuing final regulations. As of December 2021, FEMA has not yet begun the rulemaking process (email correspondence from FEMA Congressional Affairs staff, December 6, 2021). 54 Direct Housing Assistance must be requested in writing by the affected state, territory, or tribal government, and is only available when: (1) Rental Assistance cannot be used due to insuf ficient available housing resources; (2) increasing the Rental Assistance rate to 125% of the HUD Fair Market Rent (FMR) will not be sufficient to meet the housing needs; and (3) assistance from other providers (e.g., government and voluntary organizations) is insufficient to meet the housing needs. FEMA, IAPPG, p. 94. Congressional Research Service 8 FEMA Individual Assistance Programs: An Overview make a unit accessible).55 MLR is not intended to make repairs or improvements MLR is not intended to make repairs or improvements
to multi-family housing units for the purpose of rehousing existing tenants.to multi-family housing units for the purpose of rehousing existing tenants.5356
  Transportable Temporary Housing Units (TTHUs) temporarily places eligible temporarily places eligible
individuals individuals in FEMA-purchased or leased temporary housing units (i.e., in FEMA-purchased or leased temporary housing units (i.e.,
Recreational Vehicles (RVs) or Manufactured Housing Units (MHUs)).Recreational Vehicles (RVs) or Manufactured Housing Units (MHUs)).5457 TTHU TTHU
sites must meet specific requirements that include (1) providing access to sites must meet specific requirements that include (1) providing access to
availableavailable and functional utilities;and functional utilities;5558 (2) complying with government ordinances; (2) complying with government ordinances;
and (3) satisfying federal floodplain management and Environmental Planning and (3) satisfying federal floodplain management and Environmental Planning
and Historic Preservation (EHP) compliance review requirements.and Historic Preservation (EHP) compliance review requirements.5659 FEMA’s FEMA’s
guidance states that “FEMA selects locations based on the cost-effectiveness, guidance states that “FEMA selects locations based on the cost-effectiveness,
timeliness, and suitability of each potential site.”timeliness, and suitability of each potential site.”57

~~50 On July 28, 2020, FEMA announced the publication of the State-Administered Direct Housing Grant Guide,~~
~~available at https://www.fema.gov/sites/default/files/2020-07/fema_state-administered-direct-housing-grant-~~
~~guide_DRRA1211_July2020.pdf, which made state, local, tribal and territory governments eligible to receive grants to~~
~~provide Direct Housing Assistance for a limited period of time; this pilot grant program concluded on October 5, 2020.~~
~~The State-Administered Direct Housing Grant Guide states that FEMA will implement a permanent grant program~~
~~after issuing final regulations. As of December 2021, FEMA has not yet begun the rulemaking process (email~~
~~correspondence from FEMA Congressional Affairs staff, December 6, 2021).~~
~~51 Direct Housing Assistance must be requested in writing by the affected state, territory, or tribal government, and is~~
~~only available when: (1) Rental Assistance cannot be used due to insufficient available housing resources; (2)~~
~~increasing the Rental Assistance rate to 125% of the HUD Fair Market Rent (FMR) will not be sufficient to meet the~~
~~housing needs; and (3) assistance from other providers (e.g., government and voluntary organizations) is insufficient to~~
~~meet the housing needs. FEMA, IAPPG, p. 94.~~
~~52 FEMA, IAPPG, p. 107. Following Hurricane Sandy, Section 1103 of the Sandy Recovery Improvement Act of 2013~~
~~(Division B of P.L. 113-2) formalized FEMA’s Multi-Family Lease and Repair (MLR) program.~~
~~53 FEMA, IAPPG, p. 107.~~
~~54 The types of Transportable Temporary Housing Units (TTHUs) include Recreational Vehicles (RVs) or~~
~~Manufactured Housing Units (MHUs). MHUs are built to meet the construction and safety standards set forth by HUD~~
~~at 24 C.F.R. Part 3280. A manufactured home is defined in 24 C.F.R. §3280.2 as “... a structure, transportable in one or~~
~~more sections ... and which is built on a permanent chassis and designed to be used as a dwelling with or without a~~
~~permanent foundation when connected to the required utilities.... ” The IAPPG provides additional information on the~~
~~certification standards that FEMA-provided RVs~~ 60  Direct Lease temporarily places eligible individuals in leased residential properties that are not typical y available to the general public (e.g., a vacation rental).61  Permanent Housing Construction (PHC) is a last resort that is used to provide financial or direct assistance for permanent or semi-permanent housing, and can include repairs or new home construction.62 PHC is only available “in insular areas outside the continental U.S.” or “in other locations where no alternative housing resources are available and other types of Temporary Housing Assistance are unavailable, infeasible or not cost-effective.”63 55 FEMA, IAPPG, p. 107. Following Hurricane Sandy, Section 1103 of the Sandy Recovery Improvement Act of 2013 (Division B of P.L. 113-2) formalized FEMA’s Multi-Family Lease and Repair (MLR) program. 56 FEMA, IAPPG, p. 107. 57 T he types of T ransportable T emporary Housing Units (T T HUs) include Recreational Vehicles (RVs) or Manufactured Housing Units (MHUs). MHUs are built to meet the construction and safety standards set forth by HUD at 24 C.F.R. Part 3280. A manufactured home is defined in 24 C.F.R. §3280.2 as “ ... a structure, transportable in one or more sections ... and which is built on a permanent chassis and designed to be used as a dwelling with or without a permanent foundation when connected to the required utilities.... ” T he IAPPG provides additional information on the certification standards that FEMA-provided RVs and MHUs must meet (FEMA, and MHUs must meet (FEMA, IAPPG, pp. 112-113; see 24 C.F.R. , pp. 112-113; see 24 C.F.R.
§§3280 et seq. for the Manufactured Home Construction and Safety Standards). §§3280 et seq. for the Manufactured Home Construction and Safety Standards).
5558 FEMA, FEMA, IAPPG,, pp. 113-116. Utilities include available and functional sanitation, electrical service, and potable pp. 113-116. Utilities include available and functional sanitation, electrical service, and potable
water service. water service.
5659 FEMA, FEMA, IAPPG, p. 112. , p. 112.
5760 FEMA, IAPPG, p. 112. 61 FEMA, IAPPG, pp. 124-125. FEMA developed its Direct Lease program in 2017, and it has been implemented since 2018 as a form of Direct T emporary Housing Assistance (email correspondence from FEMA Congressional Affairs staff, March 9, 2019). T he ability to use stand-alone residential sites that are not typically available to the public distinguishes Direct Lease from MLR (e.g., FEMA may lease a vacation property when apartments are unavailable). 62 FEMA, IAPPG, p. 127. 63 FEMA, IAPPG, p. 127. According to the IAPPG, Guam, the Commonwealth of the Northern Mariana Islands, American Samoa, and the U.S. Virgin Islands are insular areas, and the Alaskan interior is an example of a remote area (FEMA, IAPPG, p. 76). Unavailable means temporary housing options are unavailable for a reasonable cost or in a reasonable amount of time. Infeasible means there are no available rental housing resources, or forms of Direct T emporary Housing Assistance cannot be used because of various challenges (e.g., distance, time delays), which FEMA cannot overcome with reasonable means. Not cost-effective means the provision of other forms of Direct T emporary Housing Assistance would cost more than providing PHC. Congressional Research Service 9 FEMA Individual Assistance Programs: An Overview Other Needs Assistance Other Needs Assistance (ONA) provides eligible ~~FEMA, IAPPG, p. 112.~~
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8

~~FEMA Individual Assistance Programs: An Overview~~

~~ Direct Lease temporarily places eligible individuals in leased residential~~
~~properties that are not typically available to the general public (e.g., a vacation~~
~~rental).58~~
~~ Permanent Housing Construction (PHC) is a last resort that is used to provide~~
~~financial or direct assistance for permanent or semi-permanent housing, and can~~
~~include repairs or new home construction.59 PHC is only available “in insular~~
~~areas outside the continental U.S.” or “in other locations where no alternative~~
~~housing resources are available and other types of Temporary Housing Assistance~~
~~are unavailable, infeasible or not cost-effective.”60~~
~~Other Needs Assistance~~
~~Other Needs Assistance (ONA) provides eligible~~ individuals with a grant of financial assistance individuals with a grant of financial assistance
for their other disaster-related necessary expenses and serious needs, and includes the for their other disaster-related necessary expenses and serious needs, and includes the
subcategories of SBA-Dependent ONA and Non-SBA-Dependent ONA (“SBA” refers to the subcategories of SBA-Dependent ONA and Non-SBA-Dependent ONA (“SBA” refers to the
~~Small~~ Smal Business Administration).Business Administration).6164 There are several limitations on the amount of ONA an There are several limitations on the amount of ONA an
~~individual~~ individual or household is eligibleor household is eligible to receive. Applicants may receive up to the maximum amount to receive. Applicants may receive up to the maximum amount
of financial assistance for ONA.of financial assistance for ONA.~~62 Additionally, available~~ 65 Additional y, available ONA assistance may be further limited ONA assistance may be further limited
by the affected state, territory, or Indian tribal government. This is because the affected state, by the affected state, territory, or Indian tribal government. This is because the affected state,
territory, or Indian tribal government predetermines some items that are eligible for ONA territory, or Indian tribal government predetermines some items that are eligible for ONA
assistance, and establishes the number of items that can be ONA-funded and/or the maximum assistance, and establishes the number of items that can be ONA-funded and/or the maximum
amount of ONA funding that can be provided for selected items.amount of ONA funding that can be provided for selected items.6366 The following sections provide The following sections provide
an overview of each type of ONA, and are organized by subcategory. SBA-Dependent ONA FEMA and the Smal Business Administration (SBA) collaborate to determine an applicant’s eligibility for some forms of ONA.67 This is because IHP assistance for Personal Property Assistance, Transportation Assistance, and Group Flood Insurance Policy assistance—the three forms of SBA-Dependent ONA—are forms of assistance that may also be addressed by an SBA disaster loan. To avoid the statutory prohibition on duplicative assistance,68 FEMA refers IHP applicants who meet the SBA’s minimum income test to first apply for a low-interest SBA disaster loan before they are eligible to receive SBA-Dependent ONA through the IHP.69 If the applicant does not qualify for an SBA disaster loan or their SBA disaster loan amount is 64 FEMA defines a necessary expense as “the cost associated with acquiring an item, obtaining a service, or paying for any other activity that meets a serious need,” and a serious ~~an overview of each type of ONA, and are organized by subcategory.~~

~~58 FEMA, IAPPG, pp. 124-125. FEMA developed its Direct Lease program in 2017, and it has been implemented since~~
~~2018 as a form of Direct Temporary Housing Assistance (email correspondence from FEMA Congressional Affairs~~
~~staff, March 9, 2019). The ability to use stand-alone residential sites that are not typically available to the public~~
~~distinguishes Direct Lease from MLR (e.g., FEMA may lease a vacation property when apartments are unavailable).~~
~~59 FEMA, IAPPG, p. 127.~~
~~60 FEMA, IAPPG, p. 127. According to the IAPPG, Guam, the Commonwealth of the Northern Mariana Islands,~~
~~American Samoa, and the U.S. Virgin Islands are insular areas, and the Alaskan interior is an example of a remote area~~
~~(FEMA, IAPPG, p. 76). Unavailable means temporary housing options are unavailable for a reasonable cost or in a~~
~~reasonable amount of time. Infeasible means there are no available rental housing resources, or forms of Direct~~
~~Temporary Housing Assistance cannot be used because of various challenges (e.g., distance, time delays), which~~
~~FEMA cannot overcome with reasonable means. Not cost-effective means the provision of other forms of Direct~~
~~Temporary Housing Assistance would cost more than providing PHC.~~
~~61 FEMA defines a necessary expense as “the cost associated with acquiring an item, obtaining a service, or paying for~~
~~any other activity that meets a serious need,” and a~~ ~~serious~~ need as “the requirement for an item or service that is as “the requirement for an item or service that is
essential to an applicant’s ability to prevent, mitigate, or overcome a disaster-caused hardship, injury, or adverse essential to an applicant’s ability to prevent, mitigate, or overcome a disaster-caused hardship, injury, or adverse
condition” (FEMA, condition” (FEMA, IAPPG, p. 145). , p. 145).
6265 Financial assistance for ONA may not exceed $ Financial assistance for ONA may not exceed $~~37,900 (FY2022~~41,000 (FY2023; adjusted annually); adjusted annually). (DHS/FEMA,DHS/FEMA, “Notice of “Notice of
Maximum Amount of Assistance Under the IndividualsMaximum Amount of Assistance Under the Individuals and Householdsand Households Program,” Program,” 8687 Federal Register ~~63046,~~
~~November 15, 2021~~ 64512, October 25, 2022, https://www.govinfo.gov/, https://www.govinfo.gov/~~content/pkg/FR-2021-11-15/pdf/2021-24755.pdf).~~
63cont ent/pkg/FR-2022-10-25/pdf/2022-23162.pdf. 66 FEMA, FEMA, IAPPG, p. 147. State, territory, and Indian tribal governments establish the maximum amount of assistance , p. 147. State, territory, and Indian tribal governments establish the maximum amount of assistance
that may be awardedthat may be awarded for some categories of ONA, includingfor some categories of ONA, including ~~Transportation~~ T ransportation Assistance for repair Assistance for repair oro r replacement, replacement,
Funeral Assistance, and ChildFuneral Assistance, and Child Care Assistance. Personal Property and Miscellaneous Items may also beCare Assistance. Personal Property and Miscellaneous Items may also be requested,requested, and and
the requesting state, territory, and Indian tribal government must list the additional items, maximum quantity, the requesting state, territory, and Indian tribal government must list the additional items, maximum quantity,
maximum awardmaximum award amount, and justification and situations for use. amount, and justification and situations for use. ~~This~~T his is submitted is submitted to FEMA annually via the “to FEMA annually via the “ ONA ONA
Administrative Option Selection Form” (FEMA, Administrative Option Selection Form” (FEMA, IAPPG, pp. 147, 149). However, the “ONA Administrative Option , pp. 147, 149). However, the “ONA Administrative Option
Selection Form” may be changedSelection Form” may be changed “during any non-disaster period or within three days of a major disaster declaration” “during any non-disaster period or within three days of a major disaster declaration”
(FEMA, (FEMA, IAPPG, p. 149). , p. 149).
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~~FEMA Individual Assistance Programs: An Overview~~

~~SBA-Dependent ONA~~
~~FEMA and the Small Business Administration (SBA) collaborate to determine an applicant’s~~
~~eligibility for some forms of ONA.64 This is because IHP assistance for Personal Property~~
~~Assistance, Transportation Assistance, and Group Flood Insurance Policy assistance—the three~~
~~forms of SBA-Dependent ONA—are forms of assistance that may also be addressed by an SBA~~
~~disaster loan. To avoid the statutory prohibition on duplicative assistance,65 FEMA refers IHP~~
~~applicants who meet the SBA’s minimum income test to first apply for a low-interest SBA~~
~~disaster loan before they are eligible to receive SBA-Dependent ONA through the IHP.66 If the~~
~~applicant does not qualify for an SBA disaster loan or their SBA disaster loan amount is~~
~~insufficient to meet their disaster-caused expenses or serious needs, then they can be referred~~
~~back to FEMA for consideration for IHP assistance—specifically for SBA-Dependent ONA.67~~
~~ Personal Property Assistance provides funding to eligible individuals to repair~~
~~or replace eligible personal property items damaged or destroyed as a result of a~~
~~declared emergency or major disaster.68 Assistance may be provided for ONA-~~
~~eligible personal property items set by the affected state/territory/tribe in its~~
~~“ONA Administrative Option Selection Form.”69~~
 Transportation Assistance ~~provides funding to eligible individuals~~ 67 Small Business Administration (SBA), “Computer Matching Agreement Between U.S. Small Business Administration and U.S. Department of Homeland Security, Federal Emergency Management Agency,” 84 Federal Register 2651, February 7, 2019, https://www.govinfo.gov/content/pkg/FR-2019-02-07/pdf/2019-01508.pdf (hereinafter SBA, “Computer Matching Agreement”); and FEMA, IAPPG, p. 145. Per the Computer Matching Agreement, “T he Computer Matching program seeks to ensure that applicants for SBA Disaster Loans and DHS/FEMA Individuals and Households Program (IHP) ... are eligible to receive benefits and do not receive a duplication of benefits for the same disaster. Additionally, [it] seeks to establish or verify initial eligibility for DHS/FEMA and SBA disaster assistance.... ” 68 42 U.S.C. §5155. 69 T he other forms of ONA may be awarded regardless of the individual’s or household’s SBA disaster loan status and are referred to as Non-SBA-Dependent ONA. Congressional Research Service 10 FEMA Individual Assistance Programs: An Overview insufficient to meet their disaster-caused expenses or serious needs, then they can be referred back to FEMA for consideration for IHP assistance—specifical y for SBA-Dependent ONA.70  Personal Property Assistance provides funding to eligible individuals to repair or replace eligible personal property items damaged or destroyed as a result of a declared emergency or major disaster.71 Assistance may be provided for ONA-eligible personal property items set by the affected state/territory/tribe in its “ONA Administrative Option Selection Form.”72  Transportation Assistance provides funding to eligible individuals to repair or to repair or
replace a vehicle damaged by a declared emergency or major disaster, up to the replace a vehicle damaged by a declared emergency or major disaster, up to the
maximum award amount set by the affected state/territory/tribe in its “ONA maximum award amount set by the affected state/territory/tribe in its “ONA
Administrative Option Selection Form.”Administrative Option Selection Form.”7073
  Group Flood Insurance Policy enables FEMA or the state, territory, or Indian enables FEMA or the state, territory, or Indian
tribal government to directly purchase a policy on an applicant’s behalf if the tribal government to directly purchase a policy on an applicant’s behalf if the
applicant is required to purchase and maintain flood insurance, but could not applicant is required to purchase and maintain flood insurance, but could not
otherwise purchase a policy.otherwise purchase a policy.7174 The premium for a three-year certificate of coverage costs $2,400,75 and it covers real and personal property equaling the maximum amount of financial assistance available for both Housing Assistance and ONA.76 Upon the group policy’s expiration, the applicant must purchase and maintain their own flood insurance; failure to do so may affect future IHP eligibility.77 Non-SBA-Dependent ONA The forms of Non-SBA-Dependent ONA may be awarded regardless of the individual or household’s SBA disaster loan status.78  Funeral Assistance provides funding to assist eligible individuals with eligible funeral expenses related to a death that is directly or indirectly attributable to a declared emergency or major disaster, up to the maximum award amount set by 70 For additional detailed information on the process for authorizing a disaster survivor’s request f or SBA-Dependent ONA, see the “SBA-Dependent ONA” section of CRS Report R47015, FEMA’s Individuals and Households Program (IHP)—Im plem entation and Considerations for Congress, by Elizabeth M. Webster. 71 ~~The premium for a three-year certificate of~~

~~64 Small Business Administration (SBA), “Computer Matching Agreement Between U.S. Small Business~~
~~Administration and U.S. Department of Homeland Security, Federal Emergency Management Agency,” 84~~ ~~Federal~~
~~Register~~ ~~2651, February 7, 2019, https://www.govinfo.gov/content/pkg/FR-2019-02-07/pdf/2019-01508.pdf~~
~~(hereinafter SBA, “Computer Matching Agreement”); and FEMA, IAPPG, p. 145. Per the Computer Matching~~
~~Agreement, “The Computer Matching program seeks to ensure that applicants for SBA Disaster Loans and~~
~~DHS/FEMA Individuals and Households Program (IHP) ... are eligible to receive benefits and do not receive a~~
~~duplication of benefits for the same disaster. Additionally, [it] seeks to establish or verify initial eligibility for~~
~~DHS/FEMA and SBA disaster assistance.... ”~~
~~65 42 U.S.C. §5155.~~
~~66 The other forms of ONA may be awarded regardless of the individual’s or household’s SBA disaster loan status and~~
~~are referred to as Non-SBA-Dependent ONA.~~
~~67 For additional detailed information on the process for authorizing a disaster survivor’s request for SBA-Dependent~~
~~ONA, see the “SBA-Dependent ONA” section of CRS Report R47015,~~ ~~FEMA’s Individuals and Households Program~~
~~(IHP)—Implementation and Considerations for Congress, by Elizabeth M. Webster.~~
68 FEMA, FEMA, IAPPG, pp. 166-169. Eligible Personal Property items include standard household appliances (and selected , pp. 166-169. Eligible Personal Property items include standard household appliances (and selected
accessibility items); essential clothing; standard furnishings; and essential, specializedaccessibility items); essential clothing; standard furnishings; and essential, specialized tools and equipment requiredtools and equipment required by by
an employer (essential equipment for self-employment is ineligible)an employer (essential equipment for self-employment is ineligible) or for education. or for education.
6972 FEMA, FEMA, IAPPG, p. 149. , p. 149. ~~The~~T he affected state, territory, or tribe may identify ONA-eligible personal property and affected state, territory, or tribe may identify ONA-eligible personal property and
miscellaneousmiscellaneous items, and can set a maximum number of items each eligibleitems, and can set a maximum number of items each eligible ~~individual~~ individual or household may receive. or household may receive.
7073 FEMA, FEMA, IAPPG, pp. 149, and 170-172. Eligible vehicles include, pp. 149, and 170-172. Eligible vehicles include cars, vans, sport utility vehicles (SUVs),cars, vans, sport utility vehicles (SUVs), and trucks, and trucks,
and may includeand may include motorcycles, boats, golf carts, etc. if specifiedmotorcycles, boats, golf carts, etc. if specified by by the affected state, territory, or Indian tribal the affected state, territory, or Indian tribal
government on their “ONA Administrative Option Selection Form.” government on their “ONA Administrative Option Selection Form.”
7174 FEMA, IAPPG, pp. 172-175. 75 Per 44 C.F.R. §61.17(b), the Group Flood Insurance Policy (GFIP) premium is a “flat fee of $600 per insured” and 44 C.F.R. §61.17(d) states that the term is for 36 months—or 3 years; however, the regulation notes that the premium may be adjusted “ to reflect NFIP [National Flood Insurance Program] loss experience and any adjustment of benefits under the IHP program” (FEMA, IAPPG, p. 172). 76 FEMA, IAPPG, p. 172. 77 FEMA, IAPPG, p. 174. 78 FEMA, IAPPG, p. 149. Congressional Research Service 11 FEMA Individual Assistance Programs: An Overview the affected state/territory/tribe in its “ONA Administrative Option Selection Form.”79 ~~FEMA, IAPPG, pp. 172-175.~~
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~~FEMA Individual Assistance Programs: An Overview~~

~~coverage costs $2,400,72 and it covers real and personal property equaling the~~
~~maximum amount of financial assistance available for both Housing Assistance~~
~~and ONA.73 Upon the group policy’s expiration, the applicant must purchase and~~
~~maintain their own flood insurance; failure to do so may affect future IHP~~
~~eligibility.74~~
~~Non-SBA-Dependent ONA~~
~~The forms of Non-SBA-Dependent ONA may be awarded regardless of the individual or~~
~~household’s SBA disaster loan status.75~~
~~ Funeral Assistance provides funding to assist eligible individuals with eligible~~
~~funeral expenses related to a death that is directly or indirectly attributable to a~~
~~declared emergency or major disaster, up to the maximum award amount set by~~
~~the affected state/territory/tribe in its “ONA Administrative Option Selection~~
~~Form.”76~~
  Medical and Dental Assistance provides funding to assist eligible individuals provides funding to assist eligible individuals
with eligible with eligible medical and dental expenses incurred as a direct result of a declared medical and dental expenses incurred as a direct result of a declared
emergency or major disaster.emergency or major disaster.7780
  Child Care Assistance provides funding to assist eligible individuals provides funding to assist eligible individuals with a with a
disaster-caused increased financial burden for childcare for children aged 13 and disaster-caused increased financial burden for childcare for children aged 13 and
under and/or children up to age 21 who have a disability and need assistance with under and/or children up to age 21 who have a disability and need assistance with
activities of daily living. Assistance is provided for up to eight cumulative weeks activities of daily living. Assistance is provided for up to eight cumulative weeks
of childcare and eligibleof childcare and eligible expenses or the maximum award amount set by the expenses or the maximum award amount set by the
affected state/territory/tribe in its “ONA Administrative Option Selection Form,” affected state/territory/tribe in its “ONA Administrative Option Selection Form,”
whichever is less.whichever is less.7881
  Moving and Storage Assistance provides funding to eligible individuals provides funding to eligible individuals to to
relocate and store essential personal property while repairs are made to the relocate and store essential personal property while repairs are made to the
applicant’s primary residence, and then return the property to the repaired applicant’s primary residence, and then return the property to the repaired
primary residence.primary residence.7982
  Miscellaneous Expenses provides funding to reimburse eligible individuals for provides funding to reimburse eligible individuals for
eligible eligible items purchased or rented after a disaster to assist with their recovery.items purchased or rented after a disaster to assist with their recovery.80

~~72 Per 44 C.F.R. §61.17(b), the Group Flood Insurance Policy (GFIP) premium is a “flat fee of $600 per insured” and~~
~~44 C.F.R. §61.17(d) states that the term is for 36 months—or 3 years; however, the regulation notes that the premium~~
~~may be adjusted “to reflect NFIP [National Flood Insurance Program] loss experience and any adjustment of benefits~~
~~under the IHP program” (FEMA, IAPPG, p. 172).~~
~~73 FEMA, IAPPG, p. 172.~~
~~74 FEMA, IAPPG, p. 174.~~
~~75 FEMA, IAPPG, p. 149.~~
76 FEMA, IAPPG~~, pp. 149-152. Examples of eligible funeral expenses include~~ 83 Assistance may be provided for ONA-eligible miscel aneous items set by the affected state/territory/tribe in its “ONA Administrative Option Selection Form.”84  Critical Needs Assistance (sometimes referred to as “Immediate Needs Assistance”) is provided to eligible individuals in the form of a one-time payment that is limited to $500 per eligible household when applicants are displaced from their pre-disaster primary residence or need to shelter elsewhere as a result of a declared emergency or major disaster.85  Clean and Sanitize Assistance (previously “Clean and Removal Assistance”) is provided to eligible individuals in the form of a one-time payment limited to 79 FEMA, IAPPG, pp. 149-152. Examples of eligible funeral expenses include interment or reinterment, funeral and interment or reinterment, funeral and
officiant services, and the cost of producing and certifying death certificates. officiant services, and the cost of producing and certifying death certificates.
7780 FEMA, FEMA, IAPPG, pp. 153-155. Examples of eligible medical and dental expenses include, pp. 153-155. Examples of eligible medical and dental expenses include costs associated with a costs associated with a
disaster-causeddisaster-caused illness or injury, replacing prescribedillness or injury, replacing prescribed medication or equipment, and insurance deductiblesmedication or equipment, and insurance deductibles and and
copayments, as wellcopayments, as well as loss or injury of a service animal. as loss or injury of a service animal.
7881 FEMA, FEMA, IAPPG, pp. 155-160. , pp. 155-160.
7982 FEMA, FEMA, IAPPG, pp. 162-164. Items may be relocated to a temporary housing unit if they will, pp. 162-164. Items may be relocated to a temporary housing unit if they will be returned to the be returned to the
repaired primary residence. Appliances and furniture, but not recreational items, are eligible to repaired primary residence. Appliances and furniture, but not recreational items, are eligible to ~~move~~mov e and store. and store.
8083 FEMA, FEMA, IAPPG, pp. 160-162. Miscellaneous items may assist disaster survivors with gaining access, pp. 160-162. Miscellaneous items may assist disaster survivors with gaining access to their property to their property
or assistingor assisting with cleaning efforts. Examples of eligiblewith cleaning efforts. Examples of eligible ~~miscellaneous~~ miscellaneous items may includeitems may include carbon monoxide and smoke detectors, and a dehumidifier or humidifier. Chainsaws and generators may be permitted under limited circumstances if certain conditions are met. 84 FEMA, IAPPG, p. 149. T he affected state, territory, or tribe may identify ONA-eligible personal property and miscellaneous items, and can set a maximum number of items each eligible individual or household may receive. 85 FEMA, IAPPG, pp. 164-165. FEMA’s IAPPG provides a nonexclusive list of life-saving and life-sustaining items including “water, food, first aid, prescriptions, infant formula, diapers, CMS [consumable medical supplies], DME [durable medical equipment], personal hygiene items, and fuel for transportation.” Congressional Research Service 12 FEMA Individual Assistance Programs: An Overview ~~carbon monoxide and smoke~~
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~~FEMA Individual Assistance Programs: An Overview~~

~~Assistance may be provided for ONA-eligible miscellaneous items set by the~~
~~affected state/territory/tribe in its “ONA Administrative Option Selection~~
~~Form.”81~~
~~ Critical Needs Assistance (sometimes referred to as “Immediate Needs~~
~~Assistance”) is provided to eligible individuals in the form of a one-time payment~~
~~that is limited to $500 per eligible household when applicants are displaced from~~
~~their pre-disaster primary residence or need to shelter elsewhere as a result of a~~
~~declared emergency or major disaster.82~~
~~ Clean and Sanitize Assistance (previously “Clean and Removal Assistance”) is~~
~~provided to eligible individuals in the form of a one-time payment limited to~~
$300 to “ensure minimal damage to the home is addressed in order to prevent $300 to “ensure minimal damage to the home is addressed in order to prevent
additional losses and potential health and safety concerns.”additional losses and potential health and safety concerns.”8386
Mass Care and Emergency Assistance8487
Mass Care and Emergency Assistance (MC/EA) involves federal coordination and support of Mass Care and Emergency Assistance (MC/EA) involves federal coordination and support of
state, local, tribal, and territorial government efforts to provide life-sustaining services to disaster state, local, tribal, and territorial government efforts to provide life-sustaining services to disaster
survivors prior to, during, and following an incident through short-term recovery.survivors prior to, during, and following an incident through short-term recovery.8588 Examples of Examples of
MC/EA include emergency feeding and sheltering. UnlikeMC/EA include emergency feeding and sheltering. Unlike the other forms of assistance discussed the other forms of assistance discussed
in this report, MC/EA is authorized and funded through FEMA’s Public Assistance—rather than in this report, MC/EA is authorized and funded through FEMA’s Public Assistance—rather than
Individual Assistance—program. Individual Assistance—program.
IA Factors for a Major Disaster Declaration
Federal assistance is intended to supplement—not supplant—the local, state, territory, or Indian Federal assistance is intended to supplement—not supplant—the local, state, territory, or Indian
tribal government’s response and recovery efforts.tribal government’s response and recovery efforts.8689 For this reason, state, territory, and Indian For this reason, state, territory, and Indian
tribal governments do not tribal governments do not ~~automatically~~automatical y receive a presidential declaration of emergency or major receive a presidential declaration of emergency or major
disaster, nor do they disaster, nor do they ~~automatically~~automatical y receive Individual Assistance (there is no threshold for authorizing IA).90 Instead, following an incident,91 the governor or chief executive must request that the President declare an emergency or major disaster authorizing IA.92 The governor or chief executive’s request must demonstrate that they are unable to effectively respond to the incident without federal assistance.93 To that end, the request must include information about the actions taken and resources that have been or wil be committed, and an estimate of the amount and severity of the disaster-caused damages, in addition to other required information.94 Using the information submitted by the governor or chief executive in their major disaster declaration request, FEMA evaluates specific factors to determine whether there is a need for supplemental 86 Memorandum from Keith T uri RE: Amendment to the IAPPG, pp. 11 -12. 87 FEMA, IAPPG, pp. 16-40. T he IAPPG chapter on Mass Care and Emergency Assistance (MC/EA) includes an overview of the program, as well as descriptions of assistance, including ~~receive Individual Assistance (there is no threshold for~~

~~detectors, and a dehumidifier or humidifier. Chainsaws and generators may be permitted under limited circumstances if~~
~~certain conditions are met.~~
~~81 FEMA, IAPPG, p. 149. The affected state, territory, or tribe may identify ONA-eligible personal property and~~
~~miscellaneous items, and can set a maximum number of items each eligible individual or household may receive.~~
~~82 FEMA, IAPPG, pp. 164-165. FEMA’s IAPPG provides a nonexclusive list of life-saving and life-sustaining items~~
~~including “water, food, first aid, prescriptions, infant formula, diapers, CMS [consumable medical supplies], DME~~
~~[durable medical equipment], personal hygiene items, and fuel for transportation.”~~
~~83 Memorandum from Keith Turi RE: Amendment to the IAPPG, pp. 11-12.~~
~~84 FEMA, IAPPG, pp. 16-40. The IAPPG chapter on Mass Care and Emergency Assistance (MC/EA) includes an~~
~~overview of the program, as well as descriptions of assistance, including~~ support related to (1) sheltering; (2) feeding; support related to (1) sheltering; (2) feeding;
(3) the distribution of emergency supplies; (4) individuals(3) the distribution of emergency supplies; (4) individuals with disabilitieswith disabilities ~~and~~ and others with access and functional needs; others with access and functional needs;
(5) reunification; (6) pets, service animals, and assistance animals; (7) mass evacuees;(5) reunification; (6) pets, service animals, and assistance animals; (7) mass evacuees; ~~(8) Transitional~~ (8) T ransitional Sheltering Sheltering
Assistance (Assistance (~~TSA~~T SA); (9) Operation Blue Roof programs; and (10) the National Mass Care); (9) Operation Blue Roof programs; and (10) the National Mass Care Exercise. Exercise.
8588 FEMA, FEMA, IAPPG, p. 6. , p. 6.
~~86 The~~89 T he governor or chief executive’s request must document that the “situation is of such severity and magnitude governor or chief executive’s request must document that the “situation is of such severity and magnitude that that
effective response is beyond the capabilities of the State and affected local governments” and that supplemental federal effective response is beyond the capabilities of the State and affected local governments” and that supplemental federal
assistance is necessary (44 C.F.R. §§206.35 and 206.36). assistance is necessary (44 C.F.R. §§206.35 and 206.36). ToT o justify a declaration of emergency, supplemental federal justify a declaration of emergency, supplemental federal
assistance must beassistance must be ~~needed~~ needed to “save lives and to protect property, public health and safety, or to lessen or avert the threat to “save lives and to protect property, public health and safety, or to lessen or avert the threat
of a disaster” (44 C.F.R. §206.35). of a disaster” (44 C.F.R. §206.35). ToT o justify a declaration of major disaster, federal assistance must be needed justify a declaration of major disaster, federal assistance must be needed to to
“supplement the efforts and available resources of the State, local governments, disaster relief organizations, and “supplement the efforts and available resources of the State, local governments, disaster relief organizations, and
compensation by insurance for disaster-related losses” (44 C.F.R.compensation by insurance for disaster-related losses” (44 C.F.R. ~~§206.36).~~
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~~authorizing IA).87 Instead, following an incident,88 the governor or chief executive must request~~
~~that the President declare an emergency or major disaster authorizing IA.89 The governor or chief~~
~~executive’s request must demonstrate that they are unable to effectively respond to the incident~~
~~without federal assistance.90 To that end, the request must include information about the actions~~
~~taken and resources that have been or will be committed, and an estimate of the amount and~~
~~severity of the disaster-caused damages, in addition to other required information.91 Using the~~
~~information submitted by the governor or chief executive in their major disaster declaration~~
~~request, FEMA evaluates specific factors to determine whether there is a need for supplemental~~
~~federal assistance to individuals (i.e., IA).92~~ §206.36). 90 44 C.F.R. §§206.35-206.38, and 206.40(a); and FEMA, “ How a Disaster Gets Declared.” 91 An incident is defined as “[a]ny condition which meets the definition of major disaster or emergency as set forth in §206.2 which causes damage or hardship that may result in a P residential declaration of a major disaster or an emergency” (44 C.F.R. §206.32(e)). 92 42 U.S.C. §§5191 and 5170; 44 C.F.R. §§206.35, 206.36, 206.38, and 206.40(a); and FEMA, “How a Disaster Gets Declared.” It is possible for the President to unilaterally declare an emergency under Stafford Act Section 501(b) when the federal government has “ exclusive or preeminent responsibility and authority.” 93 44 C.F.R. §§206.35 and 206.36. 94 For a list and description of information requirements to accompany a governor or chief executive’s request for an emergency declaration and a major disaster declaration, see 44 C.F.R. §206.35 and 44 C.F.R. §206.36, respectively. Congressional Research Service 13 FEMA Individual Assistance Programs: An Overview federal assistance to individuals (i.e., IA).95 This includes information collected through the This includes information collected through the
Preliminary Damage Assessment (PDA) process, which is validated by local, state, territory, Preliminary Damage Assessment (PDA) process, which is validated by local, state, territory,
Indian tribal government, and federal authorities.Indian tribal government, and federal authorities.9396 FEMA then provides a recommendation to the FEMA then provides a recommendation to the
President.President.9497 The decision to grant an emergency or major disaster declaration request is at the The decision to grant an emergency or major disaster declaration request is at the
President’s sole discretion.President’s sole discretion.9598
FEMA issued a final rule updating the factors considered when evaluating a governor’s request FEMA issued a final rule updating the factors considered when evaluating a governor’s request
for IA on March 21, 2019, as required by Section 1109 of the Sandy Recovery Improvement Act for IA on March 21, 2019, as required by Section 1109 of the Sandy Recovery Improvement Act
of 2013 (SRIA, Division B of P.L. 113-2).of 2013 (SRIA, Division B of P.L. 113-2).9699 The factors were revised to establish what FEMA The factors were revised to establish what FEMA
characterized as “more objective” criteria for evaluating the need for assistance, clarify eligibility characterized as “more objective” criteria for evaluating the need for assistance, clarify eligibility
requirements, and expedite a presidential declaration determination. These factors became requirements, and expedite a presidential declaration determination. These factors became
effective June 1, 2019. FEMA also produced guidance for use by states and territories when effective June 1, 2019. FEMA also produced guidance for use by states and territories when
drafting requests for major disaster declarations authorizing IA.drafting requests for major disaster declarations authorizing IA.97100 Thus, there are six IA factors Thus, there are six IA factors
that are considered pursuant to a governor’s request for a major disaster declaration authorizing that are considered pursuant to a governor’s request for a major disaster declaration authorizing
IA.IA.98101 These factors are intended to help FEMA assess the “severity, magnitude, and impact of a These factors are intended to help FEMA assess the “severity, magnitude, and impact of a

~~87 44 C.F.R. §§206.35-206.38, and 206.40(a); and FEMA, “How a Disaster Gets Declared.”~~
~~88 An incident is defined as “[a]ny condition which meets the definition of major disaster or emergency as set forth in~~
~~§206.2 which causes damage or hardship that may result in a Presidential declaration of a major disaster or an~~
~~emergency” (44 C.F.R. §206.32(e)).~~
~~89 42 U.S.C. §§5191 and 5170; 44 C.F.R. §§206.35, 206.36, 206.38, and 206.40(a); and FEMA, “How a Disaster Gets~~
~~Declared.” It is possible for the President to unilaterally declare an emergency under Stafford Act Section 501(b) when~~
~~the federal government has “exclusive or preeminent responsibility and authority.”~~
~~90 44 C.F.R. §§206.35 and 206.36.~~
~~91 For a list and description of information requirements to accompany a governor or chief executive’s request for an~~
~~emergency declaration and~~ disaster,” as wel as the capabilities of the affected jurisdictions.102 The factors are also used to identify the appropriate types of IA to authorize (e.g., significant casualties could indicate the need for ONA for Funeral Assistance and Medical and Dental Assistance, and Crisis Counseling). FEMA uses a separate set of factors when evaluating a chief executive of an affected Indian tribal government’s request for a major disaster authorizing IA. Section 1110 of SRIA amended the Stafford Act to al ow chief executives to request an emergency or major disaster declaration (alternatively, the tribe may receive assistance through the state’s declaration).103 Initial y, FEMA used the same factors to evaluate a governor or chief executive’s request for a major disaster declaration, which al owed tribal governments to exercise this authority immediately upon 95~~a major disaster declaration, see 44 C.F.R. §206.35 and 44 C.F.R. §206.36, respectively.~~
92 44 C.F.R. §206.48(b); and FEMA, 44 C.F.R. §206.48(b); and FEMA, Tribal Declarations Pilot Guidance, pp. 36-38. , pp. 36-38.
9396 FEMA, FEMA, Preliminary Damage Assessment Guide, August, August 2021, p. 1, https://www.fema.gov/sites/default/files/2021, p. 1, https://www.fema.gov/sites/default/files/
documents/fema_2021-pda-guide.pdf (hereinafter FEMA, documents/fema_2021-pda-guide.pdf (hereinafter FEMA, ~~Preliminary Damage Assessment~~Prelim inary Dam age Assessm ent Guide). ).
9497 44 C.F.R. §206.37(c). 44 C.F.R. §206.37(c).
9598 44 C.F.R. §206.38. 44 C.F.R. §206.38.
9699 DHS/FEMA, DHS/FEMA, “Factors Considered When Evaluating a Governor’s Request“Factors Considered When Evaluating a Governor’s Request for Individualfor Individual Assistance for a Major Assistance for a Major
Disaster,” 84 Disaster,” 84 Federal Register 10632-10664, March 21, 2019, https://www.govinfo.gov/content/pkg/FR-2019-03-21/ 10632-10664, March 21, 2019, https://www.govinfo.gov/content/pkg/FR-2019-03-21/
pdf/2019-05388.pdf (hereinafter DHS/FEMA, “pdf/2019-05388.pdf (hereinafter DHS/FEMA, “ Factors Considered When Evaluating a RequestFactors Considered When Evaluating a Request for IA”)for IA”) ; 44 C.F.R. ; 44 C.F.R.
§206.48(b). §206.48(b).
97100 FEMA, FEMA, Individual Assistance Declarations Factors Guidance, June 2019, https://www.regulations.gov/document/, June 2019, https://www.regulations.gov/document/
FEMA-2014-0005-0071. FEMA-2014-0005-0071.
98101 According to FEMA, the same IA factors would According to FEMA, the same IA factors would be be considered in the event a state or territory requests IHP assistance considered in the event a state or territory requests IHP assistance
pursuant to an emergency declaration, and the pursuant to an emergency declaration, and the Individual Assistance Declarations Factors Guidance would be useful would be useful in in
evaluating the need for IHP assistance. As describedevaluating the need for IHP assistance. As described by FEMA, “by FEMA, “ [w]hile FEMA’s regulations in 44 CFR 206.48 only [w]hile FEMA’s regulations in 44 CFR 206.48 only
expressly apply to requests for major disasters, in the event that a state did request IHP under an emergency expressly apply to requests for major disasters, in the event that a state did request IHP under an emergency
declaration, the factors outlined in that provision would still be relevant to [assessing] whether the event declaration, the factors outlined in that provision would still be relevant to [assessing] whether the event ~~was~~ was beyond beyond
state and local capabilities asstate and local capabilities as it related to [the] IHP. Likewise, the it related to [the] IHP. Likewise, the Individual Assistance Declarations Factors
Guidance (June 2019) would (June 2019) would be relevant, in particular the discussionbe relevant, in particular the discussion of the Principal Factors for evaluating the of the Principal Factors for evaluating the need for IHP [italics added].” FEMA also noted that IHP authorization pursuant to an emergency declaration is “extremely rare” and stated that the agency would encourage a state that is considering requesting an emergency declaration authorizing IA—IHP to instead consider requesting a major disaster declaration, “ unless the event was a type that did not meet the major disaster definition,” because “[e]vents that have a significant enough impact on individuals and households to warrant IHP are likely to have the need for other types of Individual Assistance.... ” (email correspondence from FEMA Congressional Affairs staff, November 27, 2019). 102 DHS/FEMA, “Factors Considered When Evaluating a Request for IA,” 84 Federal Register 10633; and 44 C.F.R. §206.48(b). 103 Section 1110 of SRIA (P.L. 113-2). Congressional Research Service 14 link to page 18 link to page 19 link to page 19 FEMA Individual Assistance Programs: An Overview ~~need~~
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~~disaster,” as well as the capabilities of the affected jurisdictions.99 The factors are also used to~~
~~identify the appropriate types of IA to authorize (e.g., significant casualties could indicate the~~
~~need for ONA for Funeral Assistance and Medical and Dental Assistance, and Crisis Counseling).~~
~~FEMA uses a separate set of factors when evaluating a chief executive of an affected Indian tribal~~
~~government’s request for a major disaster authorizing IA. Section 1110 of SRIA amended the~~
~~Stafford Act to allow chief executives to request an emergency or major disaster declaration~~
~~(alternatively, the tribe may receive assistance through the state’s declaration).100 Initially, FEMA~~
~~used the same factors to evaluate a governor or chief executive’s request for a major disaster~~
~~declaration, which allowed tribal governments to exercise this authority immediately upon~~
SRIA’s enactment (using the previous IA factors—before they were revised and made effective in SRIA’s enactment (using the previous IA factors—before they were revised and made effective in
June 2019).June 2019).~~101~~104 However, FEMA’s release of the However, FEMA’s release of the Tribal Declarations Pilot Guidance in January in January
2017 made effective specific factors considered when evaluating a chief executive’s request for a 2017 made effective specific factors considered when evaluating a chief executive’s request for a
major disaster declaration.major disaster declaration.~~102~~105 When the pilot period concludes (no specific time has been set), When the pilot period concludes (no specific time has been set),
FEMA has stated that it FEMA has stated that it ~~will~~ wil develop regulations informed by the pilot.develop regulations informed by the pilot.~~103~~106 Thus, there are nine Thus, there are nine
factors considered when evaluating a chief executive’s request for a major disaster declaration factors considered when evaluating a chief executive’s request for a major disaster declaration
authorizing IA, which are intended to help FEMA evaluate whether an event has overwhelmed authorizing IA, which are intended to help FEMA evaluate whether an event has overwhelmed
the tribal government’s capabilities, making Stafford Act assistance necessary.the tribal government’s capabilities, making Stafford Act assistance necessary.~~104~~
107 No single factor is determinative; FEMA considers No single factor is determinative; FEMA considers ~~all~~ al relevant information submitted by the relevant information submitted by the
governor or chief executive as part of a declaration request, and the President has the sole governor or chief executive as part of a declaration request, and the President has the sole
discretion to approve a major disaster declaration request authorizing IA.discretion to approve a major disaster declaration request authorizing IA.~~105~~108
Brief descriptions of the factors FEMA evaluates when considering a governor’s request are Brief descriptions of the factors FEMA evaluates when considering a governor’s request are
included iincluded in Table 2, ~~and~~and Table 3 provides brief descriptions of the factors FEMA evaluates when provides brief descriptions of the factors FEMA evaluates when
considering a chief executive’s request. Table 2. IA Factors for a Governor’s Major Disaster Declaration Request Applies to Af ected States and Territories Supporting Information/ IA Factors Description Data Sources State Fiscal FEMA considers the availability of government and private-sector U.S. Department Capacity and resources, and the circumstances that contributed to the state/territory of the Treasury, Resource having insufficient resources, potential y necessitating supplemental federal Bureau of Availabilitya assistance. FEMA evaluates (1) Fiscal Capacity (a principal factor for Economic considering the need for the IHP), which indicates the state/territory’s Analysis, ability manage disaster response and recovery, by considering its ability to state/territory raise revenue for disaster response and recovery based on either total reported other taxable resources (TTR) or gross domestic product (GDP), as wel as per limits on a capita personal income by locality and other factors affecting the state/territory’s state/territory’s ability to col ect funds; and (2) Resource Availability, treasury or ability which indicates whether the disaster-caused needs can be met using non- to col ect funds Stafford Act sources. Also considered is the cumulative effect of recent and resource disasters occurring in the previous 24 months. availability 104 According to FEMA’s website “T ribal~~considering a chief executive’s request.~~

~~for IHP [italics added].” FEMA also noted that IHP authorization pursuant to an emergency declaration is “extremely~~
~~rare” and stated that the agency would encourage a state that is considering requesting an emergency declaration~~
~~authorizing IA—IHP to instead consider requesting a major disaster declaration, “unless the event was a type that did~~
~~not meet the major disaster definition,” because “[e]vents that have a significant enough impact on individuals and~~
~~households to warrant IHP are likely to have the need for other types of Individual Assistance.... ” (email~~
~~correspondence from FEMA Congressional Affairs staff, November 27, 2019).~~
~~99 DHS/FEMA, “Factors Considered When Evaluating a Request for IA,” 84 Federal Register 10633; and 44 C.F.R.~~
~~§206.48(b).~~
~~100 Section 1110 of SRIA (P.L. 113-2).~~
~~101 According to FEMA’s website “Tribal~~ Declarations Pilot Guidance,” available at https://www.fema.gov/disasters/ Declarations Pilot Guidance,” available at https://www.fema.gov/disasters/
tribal-declarations, the period when Indian tribal governments could use the state/territory regulations ran from January tribal-declarations, the period when Indian tribal governments could use the state/territory regulations ran from January
29, 2013, when SRIA29, 2013, when SRIA ~~was~~ was enacted, through January 9, 2017, when FEMA releasedenacted, through January 9, 2017, when FEMA released its its Tribal Declarations Pilot
Guidance on January 10, 2017. on January 10, 2017.
~~102~~105 FEMA, FEMA, Tribal Declarations Pilot Guidance. .
~~103~~106 FEMA, FEMA, Tribal Declarations Pilot Guidance, p. 3; and FEMA, “, p. 3; and FEMA, “~~Tribal~~T ribal Declarations Pilot Guidance,” Declarations Pilot Guidance,”
https://www.fema.gov/disasters/tribal-declarations. https://www.fema.gov/disasters/tribal-declarations.
~~104~~107 FEMA, FEMA, Tribal Declarations Pilot Guidance, p. 34. “Appendix D; , p. 34. “Appendix D; ~~Tribal~~T ribal-Specific Considerations” of FEMA’s -Specific Considerations” of FEMA’s
~~Preliminary Damage Assessment~~Prelim inary Dam age Assessm ent Guide includes includes ~~useful~~ useful resources and uniqueresources and unique considerations for Indian tribal considerations for Indian tribal
governments during the Preliminary Damage Assessment process. governments during the Preliminary Damage Assessment process.
~~105~~108 Per FEMA’s regulation at 44 C.F.R. Per FEMA’s regulation at 44 C.F.R. §206.48(b), “State fiscal capacity (§206.48(b), “State fiscal capacity ( 44 CFR 206.48(b)(1)(i)) and uninsured 44 CFR 206.48(b)(1)(i)) and uninsured
home and personal property losses (44 C.F.R. 206.48(b)(2)) are the principal factors that FEMA will consider when home and personal property losses (44 C.F.R. 206.48(b)(2)) are the principal factors that FEMA will consider when
evaluating the need for supplemental Federalevaluating the need for supplemental Federal assistance underassistance under the Individualsthe Individuals and Householdsand Households Program but FEMAProgram but FEMA will will
alwaysalways consider all relevant information submitted as part of a declaration request. If the need for supplemental Federalconsider all relevant information submitted as part of a declaration request. If the need for supplemental Federal
assistance under the Individualsassistance under the Individuals and Householdsand Households Program is not clear from the evaluation of the principal factors, Program is not clear from the evaluation of the principal factors,
FEMA willFEMA will turn to the other factors to determine the level of need.... ”; and FEMA, turn to the other factors to determine the level of need.... ”; and FEMA, Tribal Declarations Pilot
Guidance, p. 34. , p. 34.
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~~Table 2. IA Factors for a Governor’s Major Disaster Declaration Request~~
~~Applies to Affected States and Territories~~
~~Supporting~~
~~Information/~~
~~IA Factors~~
~~Description~~
~~Data Sources~~
~~State Fiscal~~
~~FEMA considers the availability of government and private-sector~~
~~U.S. Department~~
~~Capacity and~~
~~resources, and the circumstances that contributed to the state/territory~~
~~of the Treasury,~~
~~Resource~~
~~having insufficient resources, potentially necessitating supplemental federal Bureau of~~
~~Availabilitya~~
~~assistance. FEMA evaluates (1) Fiscal Capacity (a principal factor for~~
~~Economic~~
~~considering the need for the IHP), which indicates the state/territory’s~~
~~Analysis,~~
~~ability manage disaster response and recovery, by considering its ability to~~
~~state/territory~~
~~raise revenue for disaster response and recovery based on either total~~
~~reported other~~
~~taxable resources (TTR) or gross domestic product (GDP), as well as per~~
~~limits on a~~
~~capita personal income by locality and other factors affecting the~~
~~state/territory’s~~
~~state/territory’s ability to col ect funds; and (2) Resource Availability,~~
~~treasury or ability~~
~~which indicates whether the disaster-caused needs can be met using non-~~
~~to col ect funds~~
~~Stafford Act sources. Also considered is the cumulative effect of recent~~
~~and resource~~
~~disasters occurring in the previous 24 months.~~
~~availability~~
~~Uninsured~~
~~FEMA considers the results of the FEMA-State Preliminary Damage~~
~~State/territory~~
~~Home and~~
~~Assessment~~ (PDA) process to examine the extent of damage and (PDA) process to examine the extent of damage and
reported reported
Personal Personal
estimated cost of IHP assistance (a principal IHP factor). An affected estimated cost of IHP assistance (a principal IHP factor). An affected
fol owing the fol owing the
Property Property
state/territory state/territory may provide data for consideration,may provide data for consideration, including (1) the including (1) the
Preliminary Preliminary
~~Lossesb~~Lossesb
damage-causing peril; (2) the percentage of affected applicants with damage-causing peril; (2) the percentage of affected applicants with
Damage Damage
insurance for such peril; (3) the concentration of damages; (4) the number Assessment insurance for such peril; (3) the concentration of damages; (4) the number Assessment
of homes damaged and degree of damage; (5) the estimated cost of of homes damaged and degree of damage; (5) the estimated cost of
assistance; (6) the estimatedassistance; (6) the estimated ~~homeownership~~ homeownership rate for the affected homes; rate for the affected homes;
and (7) other relevant PDA data that may demonstrateand (7) other relevant PDA data that may demonstrate a need for a need for
supplemental assistance. supplemental assistance.
Disaster Disaster
FEMA considers FEMA considers the affected community’s demographics as compared the affected community’s demographics as compared
U.S. Census U.S. Census
Impacted Impacted
with national averages (based on U.S. Census Bureau and other federal with national averages (based on U.S. Census Bureau and other federal
Bureau Bureau
Population Population
data), to evaluate whether there is an increased data), to evaluate whether there is an increased need for supplemental need for supplemental
(American (American
Profile Profile
federal assistance. federal assistance.
Community Community
Survey), other Survey), other
federal agencies federal agencies
Impact to Impact to
FEMA considers FEMA considers the disaster-caused disruption, damage, or destruction to the disaster-caused disruption, damage, or destruction to
State/territory State/territory
Community Community
community infrastructure components, which may make it difficult for community infrastructure components, which may make it difficult for
reported reported
Infrastructure Infrastructure
disaster survivors disaster survivors to resideto reside in the community and may hinder community in the community and may hinder community
recovery—recovery—~~specifically,~~ specifical y, disruption, damage, or destruction for more than disruption, damage, or destruction for more than
72 hours to any/72 hours to any/~~all~~ al of the fol owing:of the fol owing: (1) “Life-Saving and Life-Sustaining (1) “Life-Saving and Life-Sustaining
Services”Services” that provide an “essentialthat provide an “essential community function that .community function that . . wil affect . wil affect
public health and safety” (e.g., police,public health and safety” (e.g., police, medical facilities);medical facilities); (2) “Essential (2) “Essential
Community Services”Community Services” that improvethat improve quality of life (e.g., socialquality of life (e.g., social services); and services); and
(3) “Transportation Infrastructure and Utilities”(3) “Transportation Infrastructure and Utilities” that, for example,that, for example, render render
housing uninhabitable or inaccessible. housing uninhabitable or inaccessible.
Casualties Casualties
FEMA considers FEMA considers the number of individuals who are missing,the number of individuals who are missing, injured,injured, or or
State/territory State/territory
deceased as a result of a disaster, deceased as a result of a disaster, which indicateswhich indicates community trauma. community trauma.
reported reported
Disaster Disaster Related FEMA considersRelated FEMA considers the number of individuals who may have lost work or the number of individuals who may have lost work or
State/territory State/territory
Unemployment Unemployment
become unemployed as a result of the disaster become unemployed as a result of the disaster and who do not qualify for and who do not qualify for
reported reported
standard unemployment insurance. FEMA also considers impacts to major standard unemployment insurance. FEMA also considers impacts to major
employersemployers in the affected jurisdiction,in the affected jurisdiction, which could indicate the potential which could indicate the potential
for a prolonged recoveryfor a prolonged recovery process. process.
Sources: 44 C.F.R.44 C.F.R. §206.48(b); FEMA, §206.48(b); FEMA, Individual Assistance Declarations Factors Guidance,, June 2019, June 2019,
https://www.regulations.gov/document/FEMA-2014-0005-0071; FEMA, https://www.regulations.gov/document/FEMA-2014-0005-0071; FEMA, Preliminary Damage Assessment Guide, ,
August 2021, pp. 15 and 28-41, https://www.fema.gov/sites/default/files/documents/fema_2021-pda-guide.pdf. August 2021, pp. 15 and 28-41, https://www.fema.gov/sites/default/files/documents/fema_2021-pda-guide.pdf.
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~~Notes:~~ ~~44 C.F.R.~~ Notes: 44 C.F.R. §206.48(b). FEMA considers §206.48(b). FEMA considers ~~all~~ al relevant information submitted as part of a declaration request. relevant information submitted as part of a declaration request.
a. Fiscal Capacity is a principal factor for the IHP (44 C.F.R. §206.48(b)(1)(i)).a. Fiscal Capacity is a principal factor for the IHP (44 C.F.R. §206.48(b)(1)(i)).
b. Uninsured Homeb. Uninsured Home and Personal Property Lossesand Personal Property Losses is a principal factor for the IHP (44 C.F.R.is a principal factor for the IHP (44 C.F.R. §206.48(b)(2)). §206.48(b)(2)).
Table 3. IA Factors for a Chief Executive’s Major Disaster Declaration Request
Applies to Affected Applies to Affected ~~Federally~~Federal y Recognized Tribes Recognized Tribes
Supporting
Information/
IA Factors
Description
Data Sources
Uninsured Uninsured
FEMA evaluates the damage to the primary FEMA evaluates the damage to the primary ~~residences~~ residences of enrol edof enrol ed tribal tribal
Tribe reported Tribe reported
Home Home and and
members members and, if requested and approved, nonenrol edand, if requested and approved, nonenrol ed ~~members~~ members of the of the
fol owing the fol owing the
Personal Personal
tribal community, by categorizing homes tribal community, by categorizing homes based on damage and assessing based on damage and assessing
Preliminary Preliminary
Property Property
the magnitude of the disaster and concentration of damages. the magnitude of the disaster and concentration of damages.
Damage Damage
~~Lossesa~~Lossesa
Assessment Assessment
~~Availability of~~
~~FEMA considers the availability of accessible~~ Congressional Research Service 16 FEMA Individual Assistance Programs: An Overview Supporting Information/ IA Factors Description Data Sources Availability of FEMA considers the availability of accessible temporary housing temporary housing
Tribe reported Tribe reported
Housing Housing
resources. resources.
Resources Resources
Casualties Casualties
FEMA considers FEMA considers disaster-caused “deaths or injuriesdisaster-caused “deaths or injuries [including] of[including] of cultural, cultural,
Tribe reported Tribe reported
religious, religious, and government leaders.” and government leaders.”
Impact to Impact to
FEMA considers FEMA considers the disaster’sthe disaster’s impacts that may adverselyimpacts that may adversely affect the affect the
Tribe reported Tribe reported
Community Community
“population’s ability to safely and securely “population’s ability to safely and securely reside within the community,” reside within the community,”
Infrastructure Infrastructure
including the large-scale disruption of community functions and services; including the large-scale disruption of community functions and services;
impacts to cultural and spiritual facilities;impacts to cultural and spiritual facilities; and emergencyand emergency needs. needs.
Disaster Disaster
FEMA considers FEMA considers the affected community’s demographics,the affected community’s demographics, including including
U.S. Census U.S. Census
Impacted Impacted
populations that may have a greater need for recovery populations that may have a greater need for recovery support. support.
Bureau, tribe Bureau, tribe
Population Population
reported unique reported unique
Profile Profile
considerations considerations
not reflected in not reflected in
U.S. Census U.S. Census
Bureau data Bureau data
Voluntary Voluntary
FEMA considers FEMA considers the extent to which disasterthe extent to which disaster survivors’survivors’ needs can be met needs can be met
Tribe reported Tribe reported
Agency and Agency and
by voluntary agencies, and the local and state governments. by voluntary agencies, and the local and state governments.
Other Other
Assistance Assistance
Tribal Tribal
FEMA considers FEMA considers the tribal government’sthe tribal government’s efforts that have or wil be made efforts that have or wil be made
Tribe reported Tribe reported
Government Government
and the resources and the resources that have or wilthat have or wil be committed. be committed.
Resources Resources
Unique Unique
FEMA considers FEMA considers the tribe’s unique needs and the conditions that are the tribe’s unique needs and the conditions that are
Tribe reported Tribe reported
Conditions that Conditions that
unique to the tribal community unique to the tribal community (e.g., needs associated with remote (e.g., needs associated with remote
Affect Tribal Affect Tribal
locations or the impact on the tribal government’s locations or the impact on the tribal government’s economy). economy).
Governments Governments
Other Relevant Other Relevant
Other relevant information provided by the tribe. Other relevant information provided by the tribe.
Tribe reported Tribe reported
Information Information
Sources: FEMA, FEMA, Tribal Declarations Pilot Guidance,, January 2017, pp. 36-38, https://www.fema.gov/sites/default/January 2017, pp. 36-38, https://www.fema.gov/sites/default/
files/2020-04/tribal-declaration-pilot-guidance.pdf; FEMA, files/2020-04/tribal-declaration-pilot-guidance.pdf; FEMA, Preliminary Damage Assessment Guide, August 2021, pp. , August 2021, pp.
15 and D1-D9, https://www.fema.gov/sites/default/files/documents/fema_2021-pda-guide.pdf. 15 and D1-D9, https://www.fema.gov/sites/default/files/documents/fema_2021-pda-guide.pdf.
Notes:
a. The “disaster-relateda. The “disaster-related impacts to homes and personal property are the principal factors FEMA and the impacts to homes and personal property are the principal factors FEMA and the
President use to determine President use to determine if the [tribe’s] request [for a presidential majorif the [tribe’s] request [for a presidential major ~~disaster~~ disaster declaration including IA] declaration including IA]
should be approved” (FEMA, should be approved” (FEMA, Preliminary Damage Assessment Guide, p. D-5). , p. D-5).
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~~FEMA Individual Assistance Programs: An Overview~~

Author Information

Elizabeth M. Webster Elizabeth M. Webster

Analyst in Emergency Management and Disaster Analyst in Emergency Management and Disaster
Recovery Recovery

Congressional Research Service 17 FEMA Individual Assistance Programs: An Overview

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