Current Status of Unemployment Insurance
February 17, 2021
(UI) Benefits: Permanent-Law Programs and
Julie M. Whittaker
COVID-19 Pandemic Response
Specialist in Income
Security
The Unemployment Insurance (UI) system is constructed as a joint federal-state partnership, in

which the Unemployment Compensation (UC) program and the UC benefit are the foundation of
Katelin P. Isaacs
the UI system. The U.S. Department of Labor (DOL) provides oversight of state UC programs
Specialist in Income
and the state administration of federal UI benefits. Although there are broad requirements under
Security
federal law regarding UC benefits and financing, the specifics are set out under each state’s laws,

resulting in 53 different UC programs operated in the 50 states, the District of Columbia, Puerto
Rico, and the U.S. Virgin Islands. States operate their own UC programs and administer any

temporary, federal UI benefits. A state UC program determines the weekly benefit amount and
the number of weeks of UC available to unemployed workers. Most states provide up to 26 weeks of UC to eligible
individuals who become involuntarily unemployed for economic reasons and meet state-established eligibility rules.
The UI system’s two main objectives are to provide temporary and partial wage replacement to involuntarily unemployed
workers and to stabilize the economy during recessions. The two permanent-law UI benefits—UC and Extended Benefits
(EB)—are countercyclical, with spending and weekly benefit payments that increase automatically during a recession.
Congress often supplements these permanently authorized economic stabilization measures by enacting temporary UI benefit
expansions during recessions. In response to the recent recession caused by the Coronavirus Disease 2019 (COVID-19)
pandemic, Congress created several temporary UI programs through the Coronavirus Aid, Relief, and Economic Security
(CARES) Act (P.L. 116-136), and extended these programs through Division N, Title II, Subtitle A of the Consolidated
Appropriations Act, 2021 (P.L. 116-260; the Continued Assistance for Unemployed Workers Act of 2020, or “Continued
Assistance Act”):
 Federal Pandemic Unemployment Compensation (FPUC) provides a $300 per week supplement for all UI
benefits for weeks of unemployment beginning on or after December 27, 2020, and ending on or before
March 14, 2021. After March 14, 2021, no FPUC benefits are payable.
 Pandemic Emergency Unemployment Compensation (PEUC) provides a total of 24 additional weeks of
federally financed UI benefits for individuals who exhaust state and federal UI benefits and are able to
work, available for work, and actively seeking work, subject to COVID-19-related flexibilities, through
March 13, 2021 (March 14, 2021, in New York). A phaseout period is authorized for individuals who are
receiving PEUC at the end of the program on March 13, 2021 (March 14, 2021, in New York). If the
individuals have not exhausted available weeks of PEUC, and remain otherwise eligible, PEUC benefits are
payable until April 10, 2021 (April 11, 2021, in New York).
 Pandemic Unemployment Assistance (PUA) provides a total of 50 weeks of a temporary, federal UI
program for individuals who are (1) not otherwise eligible for UI benefits (e.g., self-employed, independent
contractors, gig economy workers); (2) unemployed, partially unemployed, or unable to work due to a
specific COVID-19-related reason; and (3) not able to telework and are not receiving any paid leave. The
PUA benefit is available until March 13, 2021 (March 14, 2021, in New York). A phaseout period is
authorized for individuals who are receiving PUA at the end of the program on March 13, 2021 (March 14,
2021, in New York). If these individuals have not exhausted available weeks of PUA, and remain otherwise
eligible, PUA benefits are payable until April 10, 2021 (April 11, 2021, in New York).
Additionally, the Continued Assistance Act authorized an additional, temporary UI benefit:
 Mixed Earner Unemployment Compensation (MEUC) provides, at state option, a $100 per week benefit
augmentation for unemployed workers with income from both wage-and-salary jobs and self-employment
who are not currently receiving PUA. MEUC is available in most states for weeks of unemployment
beginning on or after December 27, 2020, and ending on or before March 14, 2021. After March 13, 2021
(March 14, 2021, in New York), no MEUC benefits are payable.
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Current Unemployment Insurance (UI) Benefits During Covid-19 Recession

Unemployment Insurance: Wage Replacement and
Automatic Economic Stabilization
The Unemployment Insurance (UI) system is constructed as a joint federal-state partnership
providing temporary and partial wage replacement to involuntarily unemployed workers. The
Unemployment Compensation (UC) program and the UC benefit provide the foundation of the UI
system. Although there are broad requirements under federal law regarding UC benefits and
financing, the specifics are set out under each state’s laws, resulting in 53 different UC programs
operated in the 50 states, the District of Columbia, Puerto Rico, and the U.S. Virgin Islands. The
U.S. Department of Labor (DOL) provides oversight of state UC programs and state
administration of federal UI benefits. States operate their own permanent-law UC programs and
also administer any temporary, federal UI benefits. Each state’s UC laws determine the weekly
benefit amount and the number of weeks of UC available to an unemployed worker. Most states
provide up to 26 weeks of UC to eligible individuals who become involuntarily unemployed for
economic reasons and meet state-established eligibility rules.
The UI system’s main objectives are to provide temporary and partial wage replacement to
involuntarily unemployed workers and to stabilize the economy during recessions.1 The two
permanently authorized UI programs—UC and Extended Benefits (EB)—provide weekly,
countercyclical payments that increase automatical y during a recession. The intent to provide
economic stability is reflected in the UI system’s funding and benefit structure. During economic
expansions, states fund approximately 85%-90% of al UC expenditures—as almost al UC
benefits are state-financed by state unemployment taxes. In comparison, federal UC expenditures
are relatively smal during these expansions (approximately 10%-15%) and are primarily made to
the states via administrative grants financed by federal unemployment tax revenue.
When employment grows, state and federal UC tax revenues rise and spending on UC benefits
fal s because fewer workers are unemployed.2 In a recession, UC tax revenue decreases and UC
program spending increases as more workers lose their jobs and receive UC benefits. The
increased amount of UC payments to unemployed workers mitigates the economic impact of their
lost earnings by injecting additional funds into the economy.
To support the UC program’s economic stabilization efforts during higher unemployment periods,
federal law includes an automatic extension of the regular UC benefit through the permanently
authorized Extended Benefit (EB) program. The UI system is designed to supplement the weeks
of UC payments by automatical y triggering the availability of up to an additional 13 or 20 weeks
of EB payments. Triggering on to EB requires that a state meets certain unemployment thresholds
(the state also has options to adopt certain additional unemployment triggers). In practice, the
required EB trigger is set to such a high level of unemployment that the majority of states do not

1 See, for example, President Franklin Roosevelt’s remarks at the signing of the Social Security Act on August 14,
1935: “ T his law, too, represents a cornerstone in a structure which is being built but is by no means complete. It is a
structure intended to lessen the force of possible future depressions. It will act as a protection to future Administrations
against the necessity of going deeply into debt to furnish relief to the needy. T he law will flatten out the peaks and
valleys of deflation and of inflation. It is, in short, a law that will take care of human needs and at the same time
provide the United States an economic structure of vastly greater soundness,” available at http://www.ssa.gov/history/
fdrstmts.html#signing.
2 For a description of federal and state unemployment taxes, see CRS Report R44527, Unemployment Compensation:
The Fundam entals of the Federal Unem ploym ent Tax (FUTA).
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trigger onto EB in most recessions.3 The weekly EB payment is the same as the underlying UC
benefit amount, and thus, it also varies by state.
Congress often supplements these UI system stabilization efforts by enacting temporary UI
benefit expansions—such as the benefits created under the Coronavirus Aid, Relief, and
Economic Security (CARES) Act (P.L. 116-136).
Temporary Federal Extensions of UI: Congressional Response to
Recessions
Since the creation of the UI program in 1935, Congress has acted nine times—1958, 1961, 1971,
1974, 1982, 1991, 2002, 2008, and 2020—to create temporary additional UI benefits.4 These
temporary benefits extended the number of weeks an individual might claim UC benefits (ranging
from an additional 6 weeks to 53 weeks) and included expiration dates for the additional benefits.
Congress often extended the authorization of these temporary benefits as wel as expanded and
contracted the benefits as the labor market recovered from the recession. Some weeks of
additional benefits were conditional on state economic conditions. 5 Temporary programs enacted
in 2020 in response to the COVID-19 pandemic are discussed in the “Temporary COVID-19
Pandemic UI Programs” section of this report.
During the COVID-19 pandemic-related recession, individuals may have received benefits under
multiple, temporarily and permanently authorized UI programs. Figure 1 at the end of this report
provides the flow of al available UI benefits from December 26, 2020, through March 13, 2021.
Permanently Authorized UI Programs: UC and EB
As noted, there are two permanently authorized benefit programs (UC and EB) in the UI system.
In general, when eligible workers lose their jobs, the joint federal-state UC program may provide
up to 26 weeks (in most states) of income support through weekly UC benefit payments. UC
benefits may be extended for up to 13 weeks or 20 weeks by the EB program, depending on state
economic conditions and state law options.6 For example, for the week of February 14, 2021, 17
jurisdictions were in a regular EB period.7 Additional y, three states were triggered on a high

3 Janet L. Norwood et al., Collected Findings and Recommendations: 1994-1996, Advisory Council on Unemployment
Compensation, Washington, DC, 1996, pp. 2 -4. For additional information on EB law changes over time, see T able A-
1 in CRS Report RL34340, Extending Unem ployment Com pensation Benefits During Recessions.
4 See CRS Report RL34340, Extending Unemployment Compensation Benefits During Recessions, for details of the
congressional response to recessions from 1980 through 2014. T he recession that began in January 1980 was the only
recession since 1958 that did not have a temporary, federal UI program; however, the EB program had a national
trigger at that time (which was removed, effective August 13, 1981, by P.L. 97-35, the Omnibus Budget Reconciliation
Act of 1981) and, thus, EB was available for all states.
5 Ibid, see “ T able A-1. Summary of Extended Unemployment Compensation Programs.”
6 Certain groups of workers may qualify for income support from additional UI programs, including T rade Adjustment
Assistance (T AA), Reemployment T rade Adjustment Assistance (RT AA), and Disaster Unemployment Assistance
(DUA). Workers who lose their jobs because of international competition may qualify for income support through the
T AA program or the RT AA (for certain workers aged 50 or older). Workers may be eligible to receive DUA benefits if
they are not eligible for regular UC and their unemployment may be directly attributed to a declared natural disaster .
For more information on the T AA and RT AA programs, see CRS In Focus IF10570, Trade Adjustm ent Assistance for
Workers (TAA).
7 Alaska, California, Connecticut, the District of Columbia, Hawaii, Illinois, Massachusetts, Michigan, Nevada, New
Mexico, North Carolina (scheduled to end February 20, 2021), Oregon (scheduled to end February 20, 2021),
Pennsylvania, Puerto Rico, T exas, the U.S. Virgin Islands, and Washington. For the current EB trigger notice, select
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unemployment period (HUP) where up to 20 weeks of EB payments are available.8 (For an
overview of EB, see the “Extended Benefits” section.)
Unemployment Compensation
The Social Security Act of 1935 (P.L. 74-271) authorizes the joint federal-state UC program to
provide weekly unemployment benefits. Most states provide up to a maximum of 26 weeks of UC
benefits.9 Although federal laws and regulations provide broad guidelines on UC benefit
coverage, eligibility, and determination, the specifics regarding UC benefits are determined by
each jurisdiction. This results in essential y 53 different programs.10
Eligibility
In general, UC eligibility is based on attaining qualified wages and employment in covered work
over a 12-month period (cal ed a base period) prior to unemployment. Al states require a worker
to have earned a certain amount of wages or to have worked for a certain period of time (or both)
within the base period to be eligible to receive UC benefits. The methods states use to determine
eligibility vary greatly. In addition, each state’s UC law requires individuals to have lost their jobs
through no fault of their own, and recipients must be able to work, available for work, and
actively seeking work.11 These eligibility requirements help ensure that UC benefits are directed
toward workers with recent labor market experience who are unemployed because of economic
conditions.12 Self-employed workers—potential y including independent contractors and gig
economy workers—are the largest group of workers general y excluded from eligibility for UC
benefits.13
Benefit Amount
UC benefit calculations are general y based on wages for covered work over the 12-month base
period. Most state benefit formulas replace half of a claimant’s average weekly wage up to a
weekly maximum. Al states disregard some earnings during unemployment as an incentive to

“Extended Benefits T rigger Notice” at https://oui.doleta.gov/unemploy/claims_arch.asp.
8 New Jersey, New York, and Rhode Island (scheduled to end February 20, 2021) . For the current EB trigger notice,
select “Extended Benefits T rigger Notice” at https://oui.doleta.gov/unemploy/claims_arch.asp.
9 Former federal workers may be eligible for unemployment benefits through the Unemployment Compensation for
Federal Employees (UCFE) program, 5 U.S.C. §§8501-8508. Former U.S. military servicemembers may be eligible for
unemployment benefits through the Unemployment Compensation for Ex -Servicemembers (UCX) program, 5 U.S.C.
§§8521-8525. For more information on the Unemployment Compensation for Ex -Servicemembers (UCX) program, see
CRS Report RS22440, Unem ploym ent Com pensation (Insurance) and Military Service. Both UCFE and UCX benefit
and duration amounts are based upon the underlying state UC laws.
10 T he District of Columbia, Puerto Rico, and the U.S. Virgin Islands are considered states under federal UI law.
11 In some cases a worker may be eligible for benefits based upon quitting a job for a good cause reason. In all states,
individuals who leave their work voluntarily must meet the state’s good cause requirements if they are not to be
disqualified from receiving UC. In many states, good cause is explicitly restricted to reasons connected with the work,
attributable to the employer, or involving fault o n the part of the employer. (For those states, see T able 5.1 in U.S.
Department of Labor (DOL), 2020 Com parison of State Unem ployment Insurance Laws, available at
https://oui.doleta.gov/unemploy/pdf/uilawcompar/2020/nonmonetary.pdf.)
12 Summary details on various aspects of state UC programs, including eligibility requirements, are provided in DOL,
2020 Com parison of State Unem ploym ent Insurance Laws, available at https://oui.doleta.gov/unemploy/comparison/
2020-2029/comparison2020.asp.
13 For additional information on gig economy workers, see CRS Report R44365, What Does the Gig Economy Mean
for Workers?.
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take short-term or part-time work while searching for a permanent position. States also disregard
earnings in situations of partial unemployment, in which individuals have their work hours
reduced (rather than being laid off). General y, in partial unemployment situations, a worker’s net
UC payment equals the difference between the underlying UC weekly benefit amount and a
proportion of earnings (after a smal disregard).14
There is considerable variation by state in the weekly UC benefit amounts. As of July 2020, the
maximum weekly benefit amount ranged from $235 (Mississippi) to $823 (Massachusetts). In
states that provide dependents’ al owances, the maximum benefit was $1,234 (Massachusetts,
with 16 dependents).15 The 12-month average, national weekly benefit amount, as of December
2020, was $319.16
Benefit Duration
Until 2011, al state UC programs offered at least 26 weeks as the maximum duration available in
the state. Nothing in federal law requires states to set their UC benefit duration maximum at 26
weeks. Thus, states have the discretion to offer fewer than 26 weeks as the maximum or to set
their own higher UC benefit durations via their state UC laws.17 (Two states provide more than 26
weeks of UC benefits: Montana provides up to 28 weeks18 and Massachusetts provides up to 30
weeks, depending on local economic conditions.19) Currently, there are 10 states with decreased
maximum UC durations,20 but three of these states have temporarily restored their UC maximum
durations to 26 weeks in response to the COVID-19 pandemic:
 Alabama: 14 weeks21 (14-20 weeks, variable duration based on state
unemployment conditions);
 Arkansas: 16 weeks;
 Florida: 19 weeks22 (12-23 weeks, variable duration based on state
unemployment conditions);

14 For information on earnings disregards and partial unemployment, see T able 3.8 in DOL, 2020 Comparison of State
Unem ploym ent Insurance Laws, available at https://oui.doleta.gov/unemploy/pdf/uilawcompar/2020/monetary.pdf.
15 See DOL, Significant Provisions of State Unemployment Insurance Laws, Effective July 2020 , available at
https://oui.doleta.gov/unemploy/content/sigpros/2020-2029/July2020.pdf. Dependents’ allowances are amounts paid on
top of the weekly benefit amount in some states, using each state’s definition of “ dependent.”
16 DOL provides monthly state and national UC program data at https://oui.doleta.gov/unemploy/claimssum.asp.
17 In the early decades of the UC program, there was more variation in the maximum duration of UC benefits across
states, which also tended to be lower than 26 weeks. Yet since the 1960s—and until the 2011 state law changes—all
states had chosen to provide up to at least 26 weeks of UC benefits to eligible individuals. Puerto Rico is an exception
to this pattern of state convergence on 26 weeks as the maximum UC benefit duration in the 1960s. When it originally
entered the federal-state UC system in 1961, Puerto Rico provided a lower maximum UC benefit duration (i.e., up to 16
weeks in 1961 and then up to 20 weeks for most of the 1970 -1990 period). Puerto Rico did not provide up to 26 weeks
of UC benefits until 1991. For more information on state UC benefit duration, including changes over time, see DOL’s
report series on “ Significant Provisions of State UI Laws,” available at https://oui.doleta.gov/unemploy/
statelaws.asp#RecentSigProLaws.
18 When EB benefits are available in Montana, the total duration of UC and EB is capped at either 39 weeks (26 + 13)
or 46 weeks (26 + 20).
19 When EB benefits are available in Massachusetts, the maximum duration of UC benefits is capped at 26 weeks.
20 See DOL, “Maximum Potential Weeks of UI Benefits for New Claimants,” available at https://oui.doleta.gov/
unemploy/docs/potential_weeks_map.pdf.
21 Alabama also provides a five-week “training extension” for certain UC claimants; see https://labor.alabama.gov/
newsfeed/news_covid19/UC%20program%20flowchart%20graphic.pdf.
22 Beginning January 1, 2021, for new UC claims filed, the maximum duration is 19 weeks. Beneficiaries who began
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 Georgia: temporarily restored to 26 weeks due to the pandemic23 (14-20 weeks,
variable duration based on state unemployment conditions);
 Idaho: 22 weeks24 (20-26 weeks, variable duration based on state unemployment
conditions);
Kansas: temporarily restored to 26 weeks due to the pandemic25 (16-26 weeks,
variable duration based on state unemployment conditions);
 Michigan: temporarily restored to 26 weeks due to the pandemic26 (20 weeks);
 Missouri: 20 weeks;
 North Carolina: 16 weeks27 (12-20 weeks, variable duration based on state
unemployment conditions); and
 South Carolina: 20 weeks.
Financing
The UC program is financed by federal taxes under the Federal Unemployment Tax Act (FUTA)
and by state payroll taxes under the State Unemployment Tax Acts (SUTA).28 The 0.6% effective
net FUTA tax paid by employers on the first $7,000 of each employee’s earnings (no more than
$42 per worker per year) funds federal and state administrative costs, loans to insolvent state UC
accounts, the federal share (50%) of EB payments under permanent law, and state employment
services. States levy their own payroll taxes on employers to fund regular UC benefits and the
state share of the EB program under permanent law. Federal law requires that the SUTA tax rate
of an employer be based on the amount of UC benefits paid to former employees. General y, the
more UC benefits paid to its former employees, the higher the tax rate of the employer—up to a
maximum established by state law.
Extended Benefits
Federal law includes an automatic extension of the regular UC benefit with the permanently
authorized EB program if specific economic conditions exist at the state level. The EB program
was established by the Federal-State Extended Unemployment Compensation Act of 1970
(EUCA; P.L. 91-373; 26 U.S.C. §3304, note) and may provide up to 13 or 20 weeks of additional
weeks of UI benefits. As of February 14, 2021, 17 jurisdictions were in a regular EB period and

receiving UC in Florida prior to January 1, 2021, are limited to a total of 12 weeks of benefits. See
https://floridajobs.org/news-center/DEO-Press/2021/01/06/florida-department-of-economic-opportunity-provides-
weekly-reemployment -assistance-update—january-5.
23 See https://dol.georgia.gov/blog-post/2020-03-26/emergency-rules-adopted-03-26-20.
24 Current information on Idaho is from an email to CRS from the Idaho Department of Labor, November 9, 2020.
25 See https://www.dol.ks.gov/docs/default-source/home-page-news/2020/unemployment-insurance-benefits-
expansion-to-26-weeks.pdf?Status=T emp&sfvrsn=6c76881f_2.
26 See https://www.michigan.gov/coronavirus/0,9753,7-406-98158-521770—,00.html.
27 Beginning January 3, 2021 for new UC claims filed, the maximum duration is 16 weeks. Beneficiaries who began
receiving UC in North Carolina before January 3, 2021 are limited to a total of 12 weeks of benefits. See
https://des.nc.gov/need-help/covid-19-information/covid-19-information-individuals.
28 For information on FUT A, see CRS Report R44527, Unemployment Compensation: The Fundamentals of the
Federal Unem ploym ent Tax (FUTA).
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provided up to 13 weeks of EB.29 Additional y, three states were triggered on a high
unemployment period (HUP) where up to 20 weeks of EB payments are available.30
Extended Benefit Triggers
The EB program is active, or triggered on, when a state’s three-month general unemployment rate
(Total Unemployment Rate, TUR) or its programmatic Insured Unemployment Rate (IUR) meets
certain thresholds. 31 Under federal EB law, al states must pay up to 13 weeks of EB if the IUR
for the previous 13 weeks is at least 5%, and is 120% of the average of the rates for the same 13-
week period in each of the two previous years. Additional y, states may choose to enact up to two
other optional thresholds. (States may choose one, two, or none.) If the state chooses one or more
of the EB trigger options, it would provide the following:
 Option 1—based upon the IUR
 up to an additional 13 weeks of benefits if the state’s IUR is at least 6%,
regardless of previous years’ averages.
 Option 2—based upon the TUR
 up to an additional 13 weeks of benefits if the state’s TUR is at least 6.5%
and is at least 110% of the state’s average TUR for the same 13 weeks in
either of the previous two years;
 up to an additional 20 weeks of benefits if the state’s TUR is at least 8% and
is at least 110% of the state’s average TUR for the same 13 weeks in either of
the previous two years (this is designated as a HUP for EB).
When a state triggers off of an EB period, al EB benefit payments in the state cease immediately,
regardless of individual entitlement.32 That is, EB benefits are not phased out (grandfathered)
when a state triggers off the program.33

29 Alaska, California, Connecticut, the District of Columbia, Hawaii, Illinois, Massachusetts, Michigan, Nevada, New
Mexico, North Carolina (scheduled to end February 20, 2021), Oregon (scheduled to end February 20, 2021),
Pennsylvania, Puerto Rico, T exas, the U.S. Virgin Islands, and Washington. For the current EB trigger notice, select
“Extended Benefits T rigger Notice” at https://oui.doleta.gov/unemploy/claims_arch.asp.
30 New Jersey, New York, and Rhode Island (scheduled to end February 20, 2021) . For the current EB trigger notice,
select “Extended Benefits T rigger Notice” at https://oui.doleta.gov/unemploy/claims_arch.asp.
31 T he total unemployment rate (T UR) is the three-month average of the ratio of unemployed workers to all workers
(employed and unemployed) in the labor market. T he T UR is essentially a three-month average version of the
unemployment rate published by the Bureau of Labor Statistics (BLS) and based on data from the BLS’s monthly
Current Population Survey (CPS). T he insured unemployment rate (IUR) is the ratio of UC claimants divided by
individuals in UC-covered jobs. T he IUR uses a different base of workers in its calculations than the T UR. T he IUR
excludes several groups used in T UR calculations: self-employed workers, unpaid family workers, workers in certain
not-for-profit organizations, and several other (primarily seasonal) categories of workers. In addition to those
unemployed workers whose last jobs were in the excluded employment category, the IUR excludes the following: those
who have exhausted their UC benefits (even if they are receiving EB benefits); new entrants or reentrants to the labor
force; disqualified workers whose unemployment is considered to have resulted from their own actions rather than from
economic conditions; and eligible unemployed persons who do not file for benefits. As a result, a state’s IUR is often
calculated to be much lower than its T UR.
32 EB benefits on interstate claims are limited to two extra weeks unless both the worker’s state of residence and the
worker’s state of previous employment are in an EB period.
33 T he Continued Assistance Act (P.L. 116-260) provided a temporary option for states that have triggered off an EB
period t o disregard the mandatory 13-week off period for weeks between November 1, 2020 , and December 31, 2021,
if state law allows.
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Eligibility and Benefit Amount
The EB benefit amount is equal to the eligible individual’s weekly regular UC benefit. The EB
program imposes federal restrictions on individual eligibility for EB beyond the state
requirements for regular UC. The EB program requires that a worker make a “systematic and
sustained” work search. Furthermore, the worker may not receive benefits if he or she refused an
offer of suitable work, which is defined as “any work within such individual’s capabilities.”34 In
addition, claimants must have worked at least 20 weeks of full-time insured employment (or the
equivalent as defined by the state) in insured wages during their base period.
EB Financing
Under permanent law, FUTA revenue finance 50% of the EB payments and 100% of EB
administrative costs. States fund the other half 50% of EB benefit costs, under permanent law,
through their SUTA revenue.
Temporary EB Financing Changes
Section 4105 of P.L. 116-127, the Families First Coronavirus Response Act (FFCRA), as
amended, temporarily provides 100% federal y financed EB (with the exception of state and local
employees) for states that receive both halves of the emergency administrative grants authorized
under FFCRA.35 The UI provisions in Division N, Title II, Subtitle A of the Consolidated
Appropriations Act, 2021 (P.L. 116-260; the Continued Assistance for Unemployed Workers Act
of 2020, or “Continued Assistance Act”) extended the authority for this 100% federal financing of
EB through March 13, 2021 (March 14, 2021, in New York).
Temporary Adoption of Optional EB Triggers Based Upon 100% Federal
Financing for EB
Some states have reacted to this temporary 100% federal financing by enacting temporary EB
trigger options that remain in place for the duration of the increased federal cost share. According
to DOL, 13 states have adopted the more responsive TUR trigger, but authorized a sunset for their
TUR triggers related to availability of the 100% federal funding of EB.36

34 State UC programs have their own definitions related to work search and refusal of suitable work. See T ables 5.16
and 5.18 in DOL, Employment and T raining Administration (ETA), 2020 Com parison of State Unem ployment
Insurance Laws, available at https://oui.doleta.gov/unemploy/pdf/uilawcompar/2020/nonmonetary.pdf.
35 Section 4102(a) of FFCRA provided up to a total of $1 billion in “emergency administrative grants” to states in
calendar year 2020. Half of each state’s share was available if the state met certain requirements related to UC
eligibility notifications and claims access. T he second half of each state’s share was available if a state qualified for the
first half and experienced at least a 10% increase in UC claims over the previous calendar year and met certain other
requirements related to easing UC eligibility requirements for individuals affected by COVID-19. Additionally, there
were reporting requirements to DOL and committees of jurisdiction within one y ear for states that receive these grants.
DOL published the state shares of these emergency administrative grants in UIPL No. 13 -20, “ Families First
Coronavirus Response Act, Division D Emergency Unemployment Insurance Stabilization and Access Act of 2020, ”
March 22, 2020, https://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=8634. As of June 11, 2020, according to DOL,
all states met the statistical criteria for receiving these FFCRA grants (see https://oui.doleta.gov/unemploy/pdf/
IC3MOmarch.pdf). All states requested their full allotment of these FFCRA grants by September 30, 2020.
36 According to DOL, these states are California, Colorado, Delaware, the District of Columbia, Georgia, Illinois,
Kentucky, Massachusetts, Michigan, Nevada, New York, Ohio, and T exas. Some states have cited the specific federal
law in their sunset date, while other states have used a specific date that aligns with an upcoming expiration of the
100% federal financing of EB. T exas’s EB T UR trigger statute requires that if 100% federal financing of EB is
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Temporary COVID-19 Pandemic UI Programs
The COVID-19 pandemic dramatical y disrupted the economy, as many businesses reduced
operations and consumer demand shifted away from in-person commerce. The sharp fal in
economic activity translated into massive and widespread employment loss. Recessions general y
are a difficult time to find work, and the increased workplace hazards created by the COVID-19
pandemic have further limited jobseekers’ options for employment.
Responding to the COVID-19 pandemic and the resulting economic recession, the 116th Congress
created several new temporary UI benefits for unemployed workers through the CARES Act (P.L.
116-136). These temporary CARES Act UI programs (1) augmented al UI benefits, (2) created
additional weeks of temporary benefits, and (3) expanded coverage to new groups of workers
through a new benefit. The Continued Assistance Act (P.L. 116-260) subsequently extended the
authorization of these programs. See Table 1 for the current expiration dates of temporary UI
programs under the Continued Assistance Act. Figure 1 displays the flow of al UI benefits
available under permanent law and the temporary UI benefits under the Continued Assistance
Act.
UI Benefit Augmentation: Federal Pandemic Unemployment
Compensation (FPUC; currently $300 a week)
Section 2104 of the CARES Act original y created a temporary, additional, federal y financed
$600-a-week FPUC benefit that augmented most weekly UI benefits, including UC, Pandemic
Unemployment Assistance (PUA), Pandemic Emergency Unemployment Compensation (PEUC),
EB, Disaster Unemployment Assistance (DUA), Short-Time Compensation (STC), Trade
Readjustment Al owance (TRA), and Self Employment Assistance (SEA).37 When the $600
weekly FPUC benefit was available, an eligible UI claimant would have received both the UI
benefit plus the $600 each week. Only one $600 FPUC benefit was payable to an eligible UI
claimant for any given week. That temporary $600 weekly augmentation of UI benefits
terminated the week ending July 25, 2020.
The Continued Assistance Act reauthorized and reestablished the temporary FPUC benefit at a
lower amount of $300 per week for weeks of unemployment beginning after December 26, 2020,
and ending on or before March 14, 2021. While the $300 weekly FPUC benefit is available, an
eligible UI claimant would receive both the UI benefit plus the $300 each week. Only one $300
FPUC benefit is payable to an eligible UI claimant for any given week. No FPUC benefits are
payable after March 13, 2021 (March 14, 2021, in New York).38 FPUC income is required to be
disregarded for the purposes of Medicaid and the Children’s Health Insurance Program (CHIP).
During the FPUC authorization period, states are prohibited from reducing the UC benefit amount
or duration.

available, then T exas must promulgate a regulation to use it (based on DOL/ET A email communication with authors,
January 16, 2021).
37 For information on T RA, see CRS Report R44153, Trade Adjustment Assistance for Workers and the TAA
Reauthorization Act of 2015. For information on SEA, see CRS Report R41253, The Self-Em ploym ent Assistance
(SEA) Program .
38 For DOL guidance on the FPUC extension in the Continued Assistance Act, see DOL, ET A, “Continued Assistance
for Unemployed Workers (Continued Assistance) Act of 2020—Federal Pandemic Unemployment Compensation
(FPUC) Program Reauthorization and Modification and Mixed Earners Unemployment Compensation (MEUC)
Program Operating, Reporting, and Financial Instructions,” UIPL No. 15 -20, Change 3, January 5, 2021,
https://wdr.doleta.gov/directives/corr_doc.cfm?docn=6122.
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For an explanation of the previously authorized $600-a-week version of FPUC as wel as the
now-concluded $300 Lost Wages Assistance (LWA) program authorized by a Presidential
memorandum, see the Appendix.
Additional Weeks of UI: Pandemic Emergency Unemployment
Compensation (PEUC; currently 24 weeks)
PEUC provides additional weeks of federal y financed UI benefits for individuals who exhaust
state and federal UI benefits and are able to work, available for work, and actively seeking work,
subject to COVID-19-related flexibilities. PEUC was original y created as a 13-week UI
extension under the CARES Act and payable through weeks of unemployment ending December
26, 2020 (December 27, 2020, in New York). The Continued Assistance Act extended the
authorization for PEUC through weeks of unemployment ending on or before March 13, 2021
(March 14, 2021, in New York). In addition, the Continued Assistance Act authorized 11
additional weeks of PEUC benefits (not retroactive; only payable with respect to weeks of
unemployment beginning December 26, 2020; or December 27, 2020, in New York)—for a total
of 24 weeks of PEUC.
The Continued Assistance Act created a new requirement that individuals receiving EB must
exhaust any remaining EB eligibility prior to being eligible to receive the additional weeks of
PEUC authorized under the act. The Continued Assistance Act also created a phaseout period for
PEUC so that, for individuals who are receiving PEUC at the end of the program (March 13,
2021; March 14, 2021, in New York) who have not exhausted available weeks of PEUC and
remain otherwise eligible, PEUC benefits are payable until April 10, 2021 (April 11, 2021, in
New York).39
Expanded UI Coverage: Pandemic Unemployment Assistance
(PUA, currently 50 weeks)
PUA is a temporary federal UI program for individuals who are (1) not otherwise eligible for UI
benefits (e.g., self-employed, independent contractors, gig economy workers); (2) unemployed,
partial y unemployed, or unable to work due to a specific COVID-19-related reason; and (3) not
able to telework and are not receiving any paid leave. Under the CARES Act, PUA provided up to
39 weeks of benefits for weeks of unemployment ending December 26, 2020 (December 27,
2020, in New York). The Continued Assistance Act extended the authorization for PUA through
weeks of unemployment ending on or before March 13, 2021 (March 14, 2021, in New York).
The act also authorized 11 additional weeks of PUA benefits (not retroactive; only payable with
respect to weeks of unemployment beginning December 26, 2020; or December 27, 2020, in New
York)—for a total of 50 weeks of PUA. In addition, the Continued Assistance Act created a
phaseout period for PUA so that, for individuals who are receiving PUA at the end of the program
(March 13, 2021; March 14, 2021, in New York), have not exhausted available weeks of PUA,
and remain otherwise eligible, PUA benefits are payable until April 10, 2021 (April 11, 2021, in
New York).

39 For DOL guidance on the PEUC extension in the Continued Assistance Act, see DOL, ET A, “Continued Assistance
for Unemployed Workers Act of 2020 -Pandemic Emergency Unemployment Compensation (PEUC) Program:
Extension, T ransition Rule, Increase in T otal Benefits, and Coordination Rules,” UIPL No. 17 -20, Change 2, December
31, 2020, https://wdr.doleta.gov/directives/corr_doc.cfm?docn=9291.
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The Continued Assistance Act provided a new deadline for the backdating of PUA claims
(previously, PUA claims could be backdated to February 2, 2020): initial applications for PUA
filed after December 27, 2020, may not be backdated earlier than December 1, 2020.40
The Continued Assistance Act also included additional measures related to PUA, including (1)
authority for states to waive recovery of PUA overpayments in cases of non-fault and hardship
(retroactive for any PUA overpayment); (2) codification of the PUA appeals process to be
conducted by states; and (3) requirements for additional documentation from claimants and for
other PUA program integrity measures (as described in CRS Report R45478, Unemployment
Insurance: Legislative Issues in the 116th Congress).41
UC and EB Offset PUA
If an individual has exhausted al available entitlement to UC, PEUC, and EB, he or she may be
eligible to collect PUA if the underlying cause of unemployment is attributable to a PUA-covered
circumstance (e.g., specific COVID-19-related condition). However, the 50-week entitlement to
PUA is reduced by the weeks of UC and EB received. (PEUC does not reduce the number of
PUA weeks available.)
Additional UI Augmentation: Mixed Earner Unemployment
Compensation (MEUC; $100 a week)
The Continued Assistance Act also authorized a newly created $100-a-week MEUC payment (in
states that elect to participate in MEUC) in addition to the $300-a-week FPUC benefit.42 MEUC
addresses an issue raised by potential differences in benefits calculated under regular state UI
programs and those calculated under PUA. Specifical y, the PUA benefit was created with a
higher minimum benefit than each state’s UI minimum benefit (the minimum PUA benefit is 50%
of the average state UI benefit amount). Because PUA is not available to anyone who qualifies for
state UI (or any other federal UI benefit), there may be a concern related to perceived equity for
unemployed workers who would qualify for PUA with a higher weekly benefit if they were not
also eligible for regular state UI benefits. MEUC addresses this issue by increasing the amount of
state UI benefits for individuals in this situation. MEUC provides $100 weekly for individuals
who received at least $5,000 in self-employment income in the most recent tax year (i.e., ending
prior to the individual’s application for state UI benefits) and who receive a UI benefit other than
PUA. MEUC is payable only in states that opt to administer the benefit for weeks of

40 T he Continued Assistance Act included a hold harmless provision such that states may continue to pay PUA benefits
for up to four weeks of unemployment for individuals who had previously exhausted PEUC and are receiving PUA but
are eligible for the additional weeks of PEUC created under this act. After four weeks, states must move claimants
eligible for additional weeks of PEUC back to PUA. According to DOL guidance, “ recognizing the unique
circumstances states face and the number and complexity of UI programmatic changes that states must swiftly
implement, should a state determine that it will not be able to transition individuals from PUA back to PEU C in that
timeframe, the state must contact the appropriate ETA Regional Office to determine the earliest date that the state will
be able to implement this transition,” UIPL No. 9-21, p. 8.
41 For DOL guidance on the PUA extension and additional PUA measures in the Continued Assistance Act, see DOL,
ET A, “Continued Assistance to Unemployed Workers Act of 2020 —Pandemic Unemployment Assistance (PUA)
Program: Updated Operating Instructions and Reporting Changes,” UIPL No. 16 -20, Change 5, January 8, 2021,
https://wdr.doleta.gov/directives/corr_doc.cfm?DOCN=6973.
42 Other bills introduced in the 116th Congress (S. 4442, S. 4935, H.R. 925, and H.R. 7691) also included provisions for
increasing the regular UI benefits of mixed earners.
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unemployment beginning on or after December 27, 2020, and ending on or before March 13,
2021 (March 14, 2021, in New York).43
Coordination of UI Benefits
During a period of unemployment, individuals may be eligible for benefits under multiple,
currently authorized UI programs. Figure 1 provides the statutory order of the flow of UI benefits
from December 26, 2020, through March 13, 2021. This flow is contingent on an individual
meeting al eligibility criteria for the respective programs. It is also contingent on a state having
an agreement with DOL to administer the programs authorized under the CARES Act, as
amended by the Continued Assistance Act.

43 As of January 11, 2021, according to DOL, all states except South Dakota and Wyoming have opted to pay MEUC.
Mississippi signed an agreement later than other states and began administering MEUC for weeks of unemployment
beginning on or after January 3, 2021. For DOL guidance on the MEUC authority in the Continued Assistance Act, see
DOL, ET A, “Continued Assistance for Unemployed Workers (Continued Assistance) Act of 2020—Federal Pandemic
Unemployment Compensation (FPUC) Program Reauthorization and Modification and Mixed Earners Unemployment
Compensation (MEUC) Program Operating, Reporting, and Financial Instructions,” UIPL No. 15 -20, Change 3,
January 5, 2021, https://wdr.doleta.gov/directives/corr_doc.cfm?docn=6122.
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Figure 1. Current Coordination of the Flow of UI Benefits Under the Continued
Assistance Act
(December 27, 2020, through March 13, 2021)

Source: CRS analysis based on the Consolidated Appropriations Act, 2021 (P.L. 116-260), and DOL guidance.
The UI provisions, contained in Division N, Title II, Subtitle A, of P.L. 116-260, are titled the Continued
Assistance for Unemployed Workers Act of 2020 (“Continued Assistance Act”).
Notes:
This coordination flow is contingent on an individual meeting al eligibility criteria for the respective programs. It
is also contingent on a state having an agreement with DOL to administer each benefit.
UC benefit is the basis for the EB amount.
Transition rule: individuals who were receiving EB for the week ending December 26, 2020, must remain on EB
until those benefits are exhausted. Then, they may be eligible for additional PEUC if available.
PUA is the last payer. Al other UI benefits must be exhausted or unavailable. States have a temporary four-week
authorization to continue to pay PUA rather than PEUC if an individual was receiving PUA for the week ending
December 26, 2020.
FPUC, MEUC, PUA, and PEUC are authorized through March 13, 2021 (March 14, 2021 , for New York).
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Phaseout period for those with remaining entitlement to PEUC or PUA authorized through April 10, 2021 (April
11, 2021, for New York).
As of January 11, 2021, South Dakota and Wyoming do not offer MEUC.
Table 1. Temporary UI Benefit Expirations Under the Continued Assistance Act
Benefit
Expiration Date
Phaseout Date
Federal Pandemic Unemployment Compensation
March 13, 2021 (March
No phaseout
(FPUC)
14, 2021, in New York)
Pandemic Emergency Unemployment Compensation
March 13, 2021 (March
April 10, 2021 (April 11,
(PEUC)
14, 2021, in New York)
2021, in New York)
Pandemic Unemployment Assistance (PUA)
March 13, 2021 (March
April 10, 2021 (April 11,
14, 2021, in New York)
2021, in New York)
Mixed Earner Unemployment Compensation (MEUC)
March 13, 2021 (March
No phaseout
14, 2021, in New York)
Source: CRS analysis of P.L. 116-260 and related DOL guidance.
Notes: Phaseout: For individuals who are receiving the relevant UI benefit at the end of the program expiration
(March 13, 2021; March 14, 2021, in New York), have not exhausted available weeks of that benefit, and remain
otherwise eligible, those UI benefits remain payable until the phaseout date.

Al UI benefits are paid with respect to a week of unemployment, subsequent to the actual week of
unemployment. Thus, the expiration and phaseout dates refer to the end of the last payable week of
unemployment. Benefit payments for this last week of unemployment wil be issued to individuals after the
expiration and phaseout dates.

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Appendix. Expired Programs: $600 FPUC, $300 LWA
$600 Weekly Federal Pandemic Unemployment Compensation
Section 2104 of the CARES Act created a temporary, additional, federal y financed $600 benefit
that augmented weekly UI benefits, including UC, PUA, PEUC, EB, DUA, STC, TRA, and
SEA.44 This original FPUC was payable for weeks of unemployment beginning after a state
signed an agreement through weeks ending on or before July 31, 2020.45 When the $600 weekly
FPUC benefit was available, an eligible UI claimant would have received both the UI benefit plus
the $600 each week. Only one $600 FPUC benefit was payable to an eligible UI claimant for any
given week. For most states, this meant that FPUC payments under the CARES Act ended on
July 25, 2020 (July 26, 2020, in New York).
Shortly after the $600 weekly FPUC expired, LWA provided $300 in weekly benefits to some UI
beneficiaries through September 5, 2020 (September 6, 2020, in New York). See the section
below for details. Approximately four months later, the Continued Assistance Act reauthorized
FPUC at a lower $300 weekly amount. See the section “UI Benefit Augmentation: Federal
Pandemic Unemployment Compensation (FPUC; currently $300 a week)” for additional details
on this reauthorized FPUC benefit.
FPUC income was required to be disregarded for the purposes of Medicaid and CHIP.
$300 Weekly Lost Wages Assistance
On August 8, 2020, President Donald Trump issued a presidential memorandum authorizing other
needs assistance (ONA) under Section 408 of the Robert T. Stafford Disaster Relief and
Emergency Assistance Act (Stafford Act; P.L. 93-288, as amended; 42 U.S.C. §5174(e)(2)) for
lost wages.46 As described in Federal Emergency Management Agency (FEMA) guidance,47 this
LWA program provided grants to states to supplement the weekly benefits of certain eligible UI
claimants in participating states, subject to a cost-sharing requirement.48
LWA grants were paid as a $300-per-week supplement in entirely federal funds to individuals
with underlying weekly UI benefit amounts of at least $100, or, if a state chose to contribute an

44 For information on T RA, see CRS Report R44153, Trade Adjustment Assistance for Workers and the TAA
Reauthorization Act of 2015. For information on SEA, see CRS Report R41253, The Self-Em ploym ent Assistance
(SEA) Program .
45 A number of state laws have provisions for extending the potential duration of benefits during periods of high
unemployment for individuals in approved training who exhaust benefits, or for a variety of other reasons. Although
some state laws call these programs extended benefits, DOL uses the term additional benefits (AB) to avoid confusion
with the federal-state EB program. DOL has stated that FPUC is not payable to individuals receiving AB payments.
T he order of payment for AB within the context of the multiple programs described above is dependent on state law.
46 T he White House, “Memorandum on Authorizing the Other Needs Assistance Program for Major Disaster
Declarations Related to Coronavirus Disease 2019,” August 8, 2020, available at https://www.whitehouse.gov/
presidential-actions/memorandum-authorizing-needs-assistance-program-major-disaster-declarations-related-
coronavirus-disease-2019/.
47 FEMA, “Lost Wages Supplemental Payment Assistance Guidelines,” available at https://www.fema.gov/disasters/
coronavirus/governments/supplemental-payments-lost-wages-guidelines.
48 Section 262 of the Continued Assistance Act provided that states may waive overpayments under the LWA program
when an individual is not at fault for the overpayment and repayment would be contrary to equity and good conscience.
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additional $100 a week in state funds, the total supplement would have been $400 a week.49 LWA
was not available to those receiving DUA.
As constructed, LWA grants were potential y available for weeks of unemployment ending
between August 1, 2020, and December 27, 2020, but the program could have terminated earlier
if Congress had enacted supplemental COVID-19 pandemic-related unemployment compensation
(e.g., reestablished the FPUC authority, which did not occur in that period) or certain conditions
were met related to the balance of the Disaster Relief Fund (DRF). In practical terms, the first
week of unemployment covered by LWA began on August 26, 2020, and all states ended LWA
payments by September 6, 2020, as the amount of available funds in the DRF precluded
additional payments.50

Author Information

Julie M. Whittaker
Katelin P. Isaacs
Specialist in Income Security
Specialist in Income Security

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should n ot be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or
material from a third party, you may need to obtain the permission of the copyright holder if you wish to
copy or otherwise use copyrighted material.

49 South Dakota and American Samoa did not participate in LWA. Guam, Kentucky, and Montana supplemented LWA
with an additional $100 weekly payment . All jurisdictions participating in LWA provided up to six weeks of benefits
with the following exceptions: the Commonwealth of Northern Mariana Islands agreed to provide up to three weeks,
Florida provided up to four weeks, Idaho provided up to five week s, and the U.S. Virgin Islands provided up to three
weeks. (Email exchange between the authors of this report and FEMA, Office of External Affairs, February 6, 2021.)
50 Email exchange between the authors of this report and FEMA, Office of the Chief Financial Officer, November 9,
2020.
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