Selected Federal Financial Assistance for
Emergency Response to Extreme Heat
August 9, 2021
Congressional Research Service
https://crsreports.congress.gov
R46873

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Selected Federal Financial Assistance for Emergency Response to Extreme Heat

Introduction
Summer 2021 has brought extreme heat to many areas of the United States,1 setting temperature
records in multiple states.2 Extreme heat is relative to each climate,3 but is defined by the Federal
Emergency Management Agency (FEMA) as a period of temperatures above 90 degrees and high
humidity for at least two to three days.4 Affected communities report excess deaths,5
overwhelmed healthcare systems,6 and power supply strains.7 Vulnerable populations, including
individuals with medical conditions and disabilities, as well as children, older adults, unhoused
persons, agricultural and other outdoor workers, and persons without air-conditioning, may be at
particular risk of heat-related illness or death.8 The Centers for Disease Control and Prevention
(CDC) reports that extreme heat is one of the leading weather-related causes of death in the
United States;9 the Environmental Protection Agency (EPA) states that “[s]ome statistical
approaches estimate that more than 1,300 deaths per year” in the United States are due to extreme
heat.10
CDC11 and EPA12 discuss response measures that state, local, tribal, territorial governments
(SLTTs) and communities may undertake to protect residents, including:
 developing heat health action plans;
 communicating risks to the public;13

1 Tom Di Liberto, NOAA, “Record-Breaking June 2021 Heatwave Impacts the U.S. West,” June 23, 2021,
https://www.climate.gov/news-features/event-tracker/record-breaking-june-2021-heatwave-impacts-us-west.
2 NOAA National Centers for Environmental Information, “U.S. Climate Summary for June 2021: Hottest June on
Record,” July 9, 2021, https://www.climate.gov/news-features/understanding-climate/us-climate-summary-june-2021-
hottest-june-record.
3 Centers for Disease Control and Prevention (CDC), “About Extreme Heat,” last reviewed June 19, 2017,
https://www.cdc.gov/disasters/extremeheat/heat_guide.html.
4 Ready.gov, “Extreme Heat,” last updated July 20, 2021, https://www.ready.gov/heat.
5 Serio Olmos, Winston Choi-Schagrin, and Shawn Hubler, “Heat-Related Death Toll Climbs to Nearly 100 in
Washington State and Oregon,” New York Times, last updated July 28, 2021, https://www.nytimes.com/2021/07/01/us/
heat-wave-deaths-oregon-canada-washington.html.
6 Orla, McCaffrey, Ian Lovett, and Paul Vieira, “Deadly Heat Wave in Pacific Northwest Overwhelmed Healthcare
System,” Wall Street Journal, July 5, 2021, https://www.wsj.com/articles/deadly-heat-wave-in-pacific-northwest-
overwhelmed-healthcare-system-11625493601.
7 Dan Murtaugh, Dan, Josh Saul, and Naureen S. Malik, “Global Power Grids Pushed to Breaking Point,” Bloomberg,
June 16, 2021, https://www.bloomberg.com/news/articles/2021-06-16/power-prices-rising-temperatures-risk-blackouts.
8 Jessica Abbinett, Paul J. Schramm, Stasia Widerynski, et al., CDC, “Heat Response Plans: Summary of Evidence and
Strategies for Collaboration and Implementation,” p. 11, https://www.cdc.gov/climateandhealth/docs/
HeatResponsePlans_508.pdf#page=11.
9 CDC, “CDC’s Tracking Network in Action: Extreme Heat,” last reviewed June 1, 2021, https://www.cdc.gov/nceh/
features/trackingheat/index.html.
10 Environmental Protection Agency (EPA), “Climate Change Indicators: Heat-Related Deaths,” last updated April
2021, https://www.epa.gov/climate-indicators/climate-change-indicators-heat-related-deaths.
11 Jessica, Abbinett, Paul J. Schramm, Stasia Widerynski, et al., CDC, “Heat Response Plans: Summary of Evidence
and Strategies for Collaboration and Implementation,” https://www.cdc.gov/climateandhealth/docs/
HeatResponsePlans_508.pdf.
12 EPA, “Excessive Heat Events Guidebook,” June 2006, https://www.epa.gov/sites/default/files/2016-03/documents/
eheguide_final.pdf#page=58.
13 CDC, “Climate Change and Extreme Heat Events.” https://www.cdc.gov/climateandhealth/pubs/
ClimateChangeandExtremeHeatEvents.pdf.
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 closing outdoor events;
 expanding surveillance of health effects;
 increasing emergency medical staff;
 expanding services and distributing water to vulnerable populations;14
 providing emergency energy assistance;15 and
 opening cooling centers.16
Federal Financial Assistance by Agency
This report identifies federal assistance potentially available through the Department of
Homeland Security (DHS), the Department of Health and Human Services (HHS), the
Department of Housing and Urban Development (HUD), the Department of Agriculture, and
other authorities for certain extreme heat response costs incurred by SLTTs and eligible
community organizations (e.g., hospitals). Given evolving and flexible program and grant
guidelines, the lists in this report may not be comprehensive. Program applicability to each
applicant or incident may vary.
Federal assistance for other costs related to extreme heat (e.g., preparedness, infrastructural
improvements, and assistance for individuals) are not detailed here, but may be available from the
Department of Energy, EPA (e.g., the Heat Islands Reduction Program17), and other agencies.
Department of Homeland Security
FEMA
FEMA’s response, recovery, and Hazard Mitigation Assistance (HMA) programs could
potentially provide funding for extreme heat.18 HMA guidance encourages mitigation projects
that address future effects of climate change and extreme heat, among other hazards.19
FEMA may provide assistance for heat-related response costs if the President issues an
emergency or major disaster declaration for extreme heat under the Robert T. Stafford Disaster
Relief and Emergency Assistance Act (the Stafford Act; P.L. 93-288, as amended).20 CRS could
not locate prior Stafford Act declarations for heat waves, though the President declared

14 Jessica Abbinett, Paul J. Schramm, Stasia Widerynski, et al., CDC, “Heat Response Plans: Summary of Evidence and
Strategies for Collaboration and Implementation,” p. 34, https://www.cdc.gov/climateandhealth/docs/
HeatResponsePlans_508.pdf#page=34.
15 Ibid., p. 36.
16 Ibid., p. 33.
17 EPA, “What EPA Is Doing to Reduce Heat Islands,” https://www.epa.gov/heatislands/what-epa-doing-reduce-heat-
islands.
18 Federal Emergency Management Agency (FEMA), “State Hazard Mitigation Officers,” last updated July 21, 2021,
https://www.fema.gov/grants/mitigation/state-contacts.
19 FEMA, “Hazard Mitigation Assistance Guidance,” February 27, 2015, https://www.fema.gov/sites/default/files/
2020-07/fy15_HMA_Guidance.pdf.
20 42 U.S.C. §§5121 et seq.
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emergencies for the 2003 power outages21 which may have been related to a heat wave.22 Extreme
heat could meet the statutory definition of an emergency, as it may qualify as:

Although extreme heat is not among the list of qualifying events in the statutory definition of
major disasters (see below), the major disaster declarations for the COVID-19 pandemic suggest
that natural catastrophes may include hazards not expressly named.

Public Assistance (PA)23
CRS Expert: Erica Lee
 Provides financial and direct assistance (e.g., personnel) to SLTTs and eligible
nonprofits when authorized by the President through a Stafford Act declaration.24
Subject to agency discretion, FEMA may provide reimbursement for emergency
protective measures, including “sheltering,” which could potentially include

21 See “Ohio Power Outage (EM-3187-OH),” “New Jersey Power Outage (EM-3188-NJ),” “Michigan Power Outage
(EM_3189-MI),” “New York Power Outage (EM-3186-NY),” at FEMA, “Declared Disasters,” https://www.fema.gov/
disaster/declarations?field_dv2_state_territory_tribal_value=All&field_year_value=2003&
field_dv2_declaration_type_value=All&field_dv2_incident_type_target_id_selective=49142.
22 Jeremy Dillon, and Edward Klump, “Heat Wave Slams the Grid. Here’s What to Know,” Politico Pro, July 22, 2019,
https://subscriber.politicopro.com/article/eenews/1060771407; and JR Minkel, “The 2003 Northeast Blackout—Five
Years Later,” Scientific American, August 13, 2008, https://www.scientificamerican.com/article/2003-blackout-five-
years-later/.
23 Federal Emergency Management Agency, “Assistance for Governments and Private Non-Profits After a Disaster,”
last updated August 7, 2020, https://www.fema.gov/assistance/public.
24 For more information, see CRS Report R46749, FEMA’s Public Assistance Program: A Primer and Considerations
for Congress, by Erica A. Lee.
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cooling centers, as well as emergency food, water, or medical care, and risk
communication.25
Hazard Mitigation Grant Program (HMGP)26
CRS Expert: Diane Horn
 Following a declaration of a Stafford Act major disaster27 or Fire Management
Assistance Grant (FMAG),28 HMGP is awarded as a formula grant to states based
on estimated federal assistance per declaration or FMAG, subject to a sliding
scale.29 Funds may be used for eligible activities irrespective of the hazard or
area for which the grant was awarded. For example, funding allocated following
a flooding incident in one county could be used for eligible mitigation measures
of extreme heat in another county.30
Building Resilient Infrastructure and Communities (BRIC)31
CRS Expert: Diane Horn
 Provides financial assistance to SLTTs undertaking mitigation activities to reduce
the threat of future losses of life and property. BRIC is awarded competitively on
an annual basis and independent of a declaration.
Department of Health and Human Services
CDC
Recipients of CDC grants may use some funds to prepare for or respond to extreme heat. These
funds are generally designed to increase public health preparedness capacity; however, in certain
circumstances, funds can be used for response costs. Depending on the grant, funded activities
can include emergency planning, health communication, data surveillance and analysis, and
efforts to identify and assist at-risk individuals.

25 FEMA, Public Assistance Program and Policy Guide V. 4.0, effective June 1, 2020, pp. 120-121,
https://www.fema.gov/sites/default/files/documents/fema_pappg-v4-updated-links_policy_6-1-2020.pdf#page=121.
26 FEMA, “Hazard Mitigation Grant Program,” last updated August 6, 2021, https://www.fema.gov/grants/mitigation/
hazard-mitigation. For more information, see CRS Insight IN11187, Federal Emergency Management Agency (FEMA)
Hazard Mitigation Assistance, by Diane P. Horn.
27 FEMA, “How a Disaster Gets Declared,” last updated May 24, 2021, https://www.fema.gov/disaster/how-declared.
28 FEMA, “Fire Management Assistance Grants,” last updated July 1, 2021, https://www.fema.gov/assistance/public/
fire-management-assistance.
29 42 U.S.C. §5170c.
30 FEMA, “Hazard Mitigation Assistance Guidance,” February 27, 2015, https://www.fema.gov/sites/default/files/
2020-07/fy15_HMA_Guidance.pdf.
31 FEMA, “Building Resilient Infrastructure and Communities (BRIC),” last updated August 10, 2021,
https://www.fema.gov/grants/mitigation/building-resilient-infrastructure-communities. For more information, see CRS
Insight IN11515, FEMA Pre-Disaster Mitigation: The Building Resilient Infrastructure and Communities (BRIC)
Program, by Diane P. Horn.
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Public Health Emergency Preparedness (PHEP) Cooperative Agreement32
CRS Expert: Hassan Z. Sheikh
 Provides assistance to state, local, and territorial public health departments to
strengthen public health response capacity.
Public Health Crisis Response Notice of Funding Opportunity (NOFO)33
CRS Expert: Sarah A. Lister
 Speeds CDC’s award of funds to SLTTs for public health emergency response by
using an “approved but unfunded” grantee list. Congress may provide for
supplemental appropriations to fund SLTTs under the NOFO.
Climate-Ready States & Cities Initiative34
CRS Expert: Taylor R. Wyatt
 Funds grantees’ efforts to identify local climate change effects, potential health
effects, at-risk populations, and potential mitigating interventions. Funds may be
used for climate-related emergency preparedness and response activities.
Preventive Health and Health Services (PHHS) Block Grant35
CRS Expert: Kavya Sekar
 Flexible block grant to 61 health jurisdictions allows grantees to address the
unique and emerging public health needs of their communities including those
related to extreme heat.36

32 CDC, “Public Health Emergency Preparedness (PHEP) Cooperative Agreement,” last reviewed June 24, 2021,
https://www.cdc.gov/cpr/readiness/phep.htm.
33 CDC, “Public Health Crisis Response NOFO,” last reviewed May 28, 2021, https://www.cdc.gov/cpr/readiness/
funding-crisis.htm.
34 CDC, “CDC’s Climate-Ready States and Cities Initiative,” last reviewed July 20, 2020, https://www.cdc.gov/
climateandhealth/climate_ready.htm.
35 CDC, “Public Health Professionals Gateway: Preventive Health and Health Services (PHHS) Block Grant,” last
reviewed December 9, 2019, https://www.cdc.gov/phhsblockgrant/index.htm.
36 CDC, “PHHS Block Grant Program Contacts,” last reviewed December 9, 2019, https://www.cdc.gov/
phhsblockgrant/phhscontacts.htm.
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Administration for Children and Families
CRS Expert: Libby Perl
Community Services Block Grant (CSBG)37
 Provides flexible funding to states, territories, and tribes for distribution to local
agencies to support community-based activities to reduce poverty.38 Funds may
be used for emergency assistance, which may include cooling center operations.
Low Income Home Energy Assistance Program (LIHEAP)39
 LIHEAP is a flexible block grant to states, tribes, and territories for operating
home energy assistance programs for low-income households.40 Grantees41 may
use funds to pay for heating and cooling costs, crisis assistance, weatherization
assistance, and services to reduce the need for energy assistance. An HHS
memorandum states that grantees may use funds to establish and operate cooling
centers and provide air-conditioning units to eligible households.42
Department of Housing and Urban Development
Community Development Block Grant Program (CDBG)43
CRS Experts: Joseph Jaroscak
 Provides flexible federal funding to states and localities to support economic
development, community development, and infrastructure.44 In some cases,
CDBG grantees could target or reprogram funds to prepare for or respond to
extreme heat events. In particular CDBG funds could support the development or

37 U.S. Department of Health and Human Services (HHS) Office of Community Services, “Community Services Block
Grant (CSBG),” last reviewed March 9, 2021, https://www.acf.hhs.gov/ocs/programs/community-services-block-grant-
csbg.
38 HHS Office of Community Services, “CSBG Contact Info State Officials and Program Coordinators,” July 16, 2021,
https://www.acf.hhs.gov/ocs/contact-information/csbg-contact-info-state-officials-and-program-coordinators.
39 UHHS Office of Community Services, “Low Income Home Energy Assistance Program (LIHEAP),” last reviewed
May 28, 2021, https://www.acf.hhs.gov/ocs/low-income-home-energy-assistance-program-liheap.
40 For more information on LIHEAP, see CRS Report RL31865, LIHEAP: Program and Funding, by Libby Perl.
41 HHS Office of Community Services, “LIHEAP Map State and Territory Contact Listing,” https://www.acf.hhs.gov/
ocs/map/liheap-map-state-and-territory-contact-listing.
42 HHS Office of Community Services, “LIHEAP IM-2021-01 Heat Stress Flexibilities and Resources,” July 1, 2021,
https://www.acf.hhs.gov/ocs/policy-guidance/liheap-im-2021-01-heat-stress-flexibilities-and-resources.
43 U.S. Department of Housing and Urban Development (HUD), “Community Development Block Grant Program,”
content current as of June 8, 2021, https://www.hud.gov/program_offices/comm_planning/cdbg.
44 HUD Exchange, “Community Development Block Grant Program,” https://www.hudexchange.info/programs/cdbg/.
For more information, see CRS Report R43520, Community Development Block Grants and Related Programs: A
Primer, by Joseph V. Jaroscak.
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rehabilitation of public facilities,45 or the provision of public services46 to meet
specific community needs related to heat events, if compliant with one of the
program’s three national objectives and all relevant requirements.47
CDBG—Disaster Recovery (CDBG-DR)48
CRS Experts: Michael Cecire and Joseph Jaroscak
 Congress has provided for supplemental appropriations using CDBG authorities
for disaster recovery (CDBG-DR), or in response to other emergency events.
Emergencies may potentially include extreme heat. Recently Congress dedicated
funds to mitigate against future disaster risk (CDBG-MIT) following some
incidents; this could serve as a model for extreme heat mitigation resilience.49
The Indian Community Development Block Grant (ICDBG)50
CRS Expert: Michael Cecire
 Provides economic development and urgent needs funding to federally
recognized tribal nations and Alaska Native villages. ICDBG funding is awarded
in two categories: (1) competitive community and economic development grants
allow for a variety of uses, including potentially extreme heat mitigation; and (2)
noncompetitive imminent threat grants address issues posing an urgent threat to
the public health or safety of tribal residents, which could also respond to
extreme heat incidents or their aftermath.
Federal Regional Commissions and Authorities51
CRS Expert: Michael Cecire
 There are seven authorized federal regional commissions and authorities in
statute: Appalachian Regional Commission (ARC);52 Delta Regional Authority

45 Department of Housing and Urban Development, Guide to National Objectives and Eligible Activities for CDBG
Entitlement Communities, “Chapter 2: Categories of Eligible Activities,” February 2001, pp. 2-11 through 2-12;
available at https://www.hudexchange.info/sites/onecpd/assets/File/CDBG-National-Objectives-Eligible-Activities-
Chapter-2.pdf.
46 Ibid., pp. 2-22.
47 HUD Exchange, “Guide to National Objectives and Eligible Activities for CDBG Entitlement Communities,”
February 2001, https://www.hudexchange.info/resource/89/community-development-block-grant-program-cdbg-guide-
to-national-objectives-and-eligible-activities-for-entitlement-communities/.
48 HUD Exchange, “Community Development Block Grant Disaster Recovery Program,”
https://www.hudexchange.info/programs/cdbg-dr/. For more information, see CRS Report R46475, The Community
Development Block Grant’s Disaster Recovery (CDBG-DR) Component: Background and Issues, by Michael H. Cecire
and Joseph V. Jaroscak.
49 HUD Exchange, “Community Development Block Grant Mitigation Program,” https://www.hudexchange.info/
programs/cdbg-mit/.
50 U.S. Department of Housing and Urban Development, “Indian Community Development Block Grant Program,”
https://www.hud.gov/program_offices/public_indian_housing/ih/grants/icdbg.
51 See CRS Report R45997, Federal Regional Commissions and Authorities: Structural Features and Function, by
Michael H. Cecire.
52 Appalachian Regional Commission, “Investing in Appalachia’s economic future,” https://www.arc.gov/.
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(DRA);53 Denali Commission;54 Northern Great Plains Regional Authority
(NGPRA); Northern Border Regional Commission (NBRC);55 Southeast
Crescent Regional Commission (SCRC);56 and Southwest Border Regional
Commission. As chartered federal-state partnerships, the federal regional
commissions are appropriated funds, which they sub-allocate for community and
economic development purposes in their respective service areas. These funds are
generally flexible, and can be used to address a variety of community and
economic development purposes, including pre- and post-disaster hazard
mitigation uses related to extreme heat or other climate-related issues. Previously,
grant funding has been used to respond to natural disasters and the COVID-19
pandemic.
Defense Production Act of 1950 (DPA)57
CRS Experts: Michael Cecire and Heidi Peters
 The DPA provides the President with the authority to mobilize the domestic
economy in service of the national defense, broadly defined, which may include
emergency management and disaster recovery purposes. The DPA generally does
not provide direct financial assistance to SLTTs. However, it does allow the
federal government to intervene in the civilian economy to facilitate the
provision, movement, and expanded production of critical goods, materials, and
services. During an extreme heat event, DPA authorities could be used to furnish
supplies or provide resources to SLTTs to mitigate adverse effects. For example,
the President could use DPA authorities to prioritize the production and
distribution of potable water to supplement SLTT emergency stocks. The
President could also use DPA authorities to investigate supply chain
vulnerabilities that might be strained in the event of an extreme heat event or to
create a professional reserve of subject matter experts to advise the government
prior to and during such emergency situations.58
Department of Agriculture
CRS Experts: Alyssa Casey and Lisa Benson
 For certain kinds of projects in qualifying rural areas, USDA Rural Development
is a potential resource for assistance.59 USDA Community Facilities Programs
(such as Community Facilities Direct Loans and Grants)60 assist with developing

53 Delta Regional Authority, “Delta Regional Authority,” https://dra.gov/.
54 Denali Commission, “Denali Commission,” https://www.denali.gov/.
55 Northern Border Regional Commission, “Northern Border Regional Commission,” https://www.nbrc.gov/.
56 Southeast Crescent Regional Commission, “A Federal Commission for the Southeastern United States,”
https://scrcc.org/.
57 FEMA, “Defense Production Act,” last updated July 6, 2021, https://www.fema.gov/disaster/defense-production-act.
58 For more information on the DPA, see CRS Report R43767, The Defense Production Act of 1950: History,
Authorities, and Considerations for Congress, by Michael H. Cecire and Heidi M. Peters.
59 U.S. Department of Agriculture, “Rural Development,” https://www.rd.usda.gov/.
60 U.S. Department of Agriculture, “Community Facilities Direct Loan & Grant Program,” https://www.rd.usda.gov/
programs-services/community-facilities/community-facilities-direct-loan-grant-program.
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 or improving essential public services and facilities; these funds might be used
for efforts related to community emergency shelters and cooling centers.61 The
USDA Disaster Resource Center also gives timely information on assistance to
communities affected by severe weather events and other disasters and
emergencies.62 See State Offices for contacts.63

Author Information

Erica A. Lee, Coordinator
Joseph V. Jaroscak
Analyst in Emergency Management and Disaster
Analyst in Economic Development Policy
Recovery

Taylor R. Wyatt, Coordinator
Maria Kreiser
Analyst in Public Health Emergency Management
Senior Research Librarian

Michael H. Cecire
Libby Perl
Analyst in Intergovernmental Relations and
Specialist in Housing Policy
Economic Development Policy

Diane P. Horn

Analyst in Flood Insurance and Emergency
Management

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 not 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.

61 U.S. Department of Agriculture, “Community Facilities Programs,” https://www.rd.usda.gov/programs-services/all-
programs/community-facilities-programs.
62 U.S. Department of Agriculture, “Disaster Resource Center,” https://www.usda.gov/topics/disaster-resource-center.
63 U.S. Department of Agriculture, “State Offices,” https://www.rd.usda.gov/about-rd/state-offices#.
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