link to page 1 
August 23, 2019
A Brief Overview of FEMA’s Individual Assistance Program
This In Focus provides an overview of the Federal
Figure 1 shows the general timing for IA program delivery
Emergency Management Agency’s (FEMA’s) Individual
in a generic disaster context.
Assistance (IA) program, including brief descriptions of
each type of IA and the factors considered when
Figure 1. General Delivery Timing of Individual
determining whether to authorize IA.
Assistance Programs
IA Programs
IA provides various forms of aid to affected individuals and
households and may be available following a presidential
emergency or major disaster declaration. The President
determines whether to grant a declaration request, and the
FEMA Assistant Administrator for the Disaster Assistance
Directorate has the delegated authority to designate
assistance types, such as IA.
Mass Care and Emergency Assistance (MC/EA)
involves the provision of life-sustaining services to
disaster survivors prior to, during, and following an
incident through short-term recovery (e.g., sheltering).
Crisis Counseling Assistance and Training Program
(CCP) provides grant funding to local, state, territorial,
and Indian tribal governments, as well as
nongovernmental organizations, to supplement efforts to
assist individuals and communities through community-
based outreach and the provision of services.
Disaster Unemployment Assistance (DUA) provides
benefits to individuals who were previously employed
or self-employed, and were rendered jobless or whose
employment was interrupted as a direct result of a major
disaster and are ineligible for regular unemployment
insurance.
Disaster Legal Services (DLS) are provided free to
low-income individuals who need assistance securing
benefits or who have claims arising from a major
disaster.
Source: Developed by CRS based on “Figure 2: Timeline of
Individual Assistance Programs” from the FEMA, Individual Assistance
Disaster Case Management (DCM) partners case
Program and Policy Guide (IAPPG), FP 104-009-03, March 2019, p. 11,
managers with disaster survivors to develop and
https://www.fema.gov/media-library-data/1551713430046-
implement disaster recovery plans that address their
1abf12182d2d5e622d16accb37c4d163/IAPPG.pdf.
unmet needs.
Notes: MC/EA = Mass Care and Emergency Assistance; IHP =
Individuals and Households Program; TSA = Transitional Sheltering
Individuals and Households Program (IHP) provides
Assistance; STEP = Sheltering and Temporary Essential Power; PA =
financial and/or direct assistance, in the forms of
Public Assistance; ONA = Other Needs Assistance; CCP—ISP =
Housing Assistance and Other Needs Assistance (ONA),
Crisis Counseling Assistance and Training Program—Immediate
to eligible individuals and households who have
Services Program; CCP—RSP = Crisis Counseling Assistance and
uninsured or under-insured necessary expenses and
Training Program—Regular Services Program; DLS = Disaster Legal
serious needs, as a result of an emergency or major
Services; DCM = Disaster Case Management; DUA = Disaster
disaster, that cannot be met through other means or
Unemployment Assistance. The Operation Blue Roof, TSA, and STEP
forms of assistance. However, IHP is not a substitute for
programs are Public Assistance-funded, but are included because they
insurance and it cannot compensate disaster survivors
relate to the provision of FEMA housing assistance.
for all losses.
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A Brief Overview of FEMA’s Individual Assistance Program
Requesting and Authorizing IA
Casualties considers the number of individuals who are
State, territorial, and Indian tribal governments do not
missing, injured, or deceased as a result of a disaster.
automatically receive a presidential declaration or IA when
an emergency or major disaster occurs. Instead, the
Disaster Related Unemployment identifies the number
governor or tribal chief executive must request that the
of individuals who may have lost work or become
President declare an emergency or major disaster and that
unemployed as a result of the disaster and do not qualify
IA be authorized. Specific factors are considered when
for standard unemployment insurance.
evaluating the need for IA supplemental federal assistance,
and in addition to determining IA eligibility, these factors
Figure 2 depicts the declaration request process.
are used to identify the types of IA that will be made
available to the requesting government. However, no single
Figure 2. Declaration Request Process and Timing
factor is dispositive.
State Fiscal Capacity and Resource Availability
evaluates whether there are sufficient
local/state/territorial/Indian tribal government and
nongovernmental/private-sector resources based on two
subfactors: (1) Fiscal Capacity, which evaluates the
state’s ability to raise revenue for disaster response and
recovery using one of two variables: (a) state total
taxable resources (TTR); or (b) state gross domestic
product (GDP), and per capita personal income by local
area—other factors may also be considered; and (2)
Resource Availability, which evaluates whether the
disaster-caused needs can be met using non-Stafford Act
sources based on two variables: (a) resources and
services provided by local/state/territorial/Indian tribal
government and nongovernmental/private-sector
organizations; and (b) the cumulative effect of recent
disasters occurring in the previous 24-month period.
Uninsured Home and Personal Property Losses
considers the results of the Joint FEMA-State
Preliminary Damage Assessment (PDA) process to
evaluate the extent of damage and estimated cost of
assistance. It includes seven subfactors: (1) the “peril
that caused the disaster damage”; (2) the percentage of
affected applicants with insurance for such peril; (3) the
concentration of damages; (4) the number of homes
damaged and degree to which they are damaged; (5) the
estimated cost of assistance; (6) the estimated rate of
homeownership for the affected homes; and (7) other
relevant PDA data that may demonstrate a need for
CRS and FEMA IA Resources
supplemental federal assistance.
CRS Report R45238, FEMA and SBA Disaster Assistance
for Individuals and Households: Application Processes,
Disaster Impacted Population Profile evaluates the
Determinations, and Appeals, by Bruce R. Lindsay and
recovery challenges of the impacted population
Elizabeth M. Webster.
considering the affected community’s demographics as
compared with national averages.
FEMA, Individual Assistance Program and Policy Guide
(IAPPG), FP 104-009-03, March 2019,
Impact to Community Infrastructure evaluates the
https://www.fema.gov/media-library-data/1551713430046-
disaster’s impact by considering disruption, damage, or
1abf12182d2d5e622d16accb37c4d163/IAPPG.pdf.
destruction for more than 72 hours to any/all of the
following three subfactors: (1) Life-Saving and Life-
FEMA, “Individual Assistance Program Fact Sheet,” April
Sustaining Services that provide an “essential
2019, https://www.fema.gov/media-library-data/
community function that ... will affect public health and
1565194429982-5674cd81399feaeb00cc72ab7fc4d84f/
safety” (e.g., police, medical facilities, and water
FACTSHEETIndividualAssistanceProgram.pdf.
treatment services); (2) Essential Community Services
that improve quality of life (e.g., schools and social
services); and (3) Transportation Infrastructure and
Utilities that, for example, render housing uninhabitable
or inaccessible, or affect the delivery of services.
Elizabeth M. Webster, Analyst in Emergency
Management and Disaster Recovery
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A Brief Overview of FEMA’s Individual Assistance Program
IF11298
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