INSIGHTi
Potential FEMA Emergency Sheltering
Options During the COVID-19 Pandemic
Updated September 1, 2021
Some hazards (e.g., hurricanes, wildfires) may result in evacuations and the displacement of disaster
survivors. According to the Federal Emergency Management Agency (FEMA), state, local, tribal, and
territorial governments (SLTTs) are responsible for conducting emergency sheltering operations. The
Centers for Disease Control and Prevention (CDC) and FEMA have provided SLTTs with guidance and
assistance to safely shelter disaster survivors during the ongoing Coronavirus Disease 2019 (COVID-19)
pandemic. This Insight discusses emergency sheltering models used by FEMA, FEMA’s pandemic-
modified emergency sheltering policies, pandemic-related emergency sheltering chal enges faced by
SLTTs, and policy considerations for Congress.
Emergency Sheltering Options
The federal government may provide assistance to SLTTs when the President declares an emergency or
major disaster under the Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act,
42 U.S.C. §§5121 et seq.). Emergency sheltering may be authorized under Stafford Act Section 502
following an emergency declaration and Stafford Act Section 403 following a major disaster declaration
or Fire Management Assistance Grant declaration. This assistance is commonly referred to as Public
Assistance (PA) Category B—Emergency Protective Measures. When PA is authorized, FEMA
reimburses SLTTs and eligible nonprofits (PA Applicants) for at least 75% of eligible costs incurred while
performing eligible work. FEMA’s regulations on emergency sheltering are limited, though additional
guidance may be issued.
The following sections describe select, PA-authorized emergency sheltering options used during recent
and past disasters as wel as FEMA’s interim emergency non-congregate sheltering policy, effective
during the COVID-19 pandemic. Sheltering options may vary depending on post-disaster needs and
shelter availability.
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Congregate Shelters
FEMA usual y supports emergency congregate shelters (i.e., facilities with large, open spaces, such as
schools and community centers) and may reimburse associated costs, including facility leasing and
utilities, eligible staffing, supplies including food and furnishings, and services including cleaning and
medical care.
FEMA has acknowledged the need to ensure compliance with CDC pandemic guidelines in congregate
shelters. As part of this effort, FEMA and the American Red Cross assembled “Pandemic Sheltering Kits”
with “privacy wal s, first aid kits, cleaning wipes, gloves, masks, thermometers, and other items to ensure
safety in shelters.” The kits are available for distribution to SLTTs upon request. To mitigate transmission
risk in congregate settings, FEMA recommends that SLTTs plan to implement protective measures at
congregate shelters, including health screening and masking, as wel as social distancing and isolation
areas.
Per agency guidance, FEMA wil reimburse SLTTs and eligible nonprofits for the costs of diagnostic
testing, screening, vaccination, and personal protective equipment offered at emergency shelters opened
for new declarations. FEMA wil reimburse 100% of eligible costs incurred while operating vaccination
programs that states may execute at the location of shelters that opened for hurricanes, wildfires, or other
incidents through December 31, 2020.
Non-Congregate Shelters
Due to the COVID-19 pandemic, FEMA has changed its typical policy to authorize non-congregate
sheltering (defined by FEMA as sheltering that affords privacy, such as separate dormitory, hotel, or motel
rooms for evacuees from different households) when necessary to reduce risk of viral exposure or
transmission among survivors. The policy is applicable for al Stafford Act declared incidents between
June 1 and November 30, 2021, beginning six days prior to and up to 30 days following an incident
(unless FEMA approves an extension). PA Applicants requesting reimbursement must provide sufficient
documentation, meet al PA eligibility requirements, and follow FEMA’s procurement policies.
Additional y, PA Applicants may not receive assistance that duplicates assistance from other sources or
federal agencies. For example, PA Applicants may not receive reimbursement for the costs of a temporary
care facility executed by the U.S. Army Corps of Engineers. As with congregate shelters, FEMA wil
reimburse certain costs associated with operating vaccination programs at non-congregate shelters.
The Transitional Sheltering Assistance (TSA) program is a non-congregate sheltering option that uses
hotels/motels to transition disaster survivors from emergency shelters to temporary or permanent housing
solutions. Due to the pandemic, FEMA issued updated interim TSA guidance, which is in effect until
action is taken to revise, rescind, or supersede it. While in effect, FEMA can authorize TSA at the written
request of an affected state/territory/tribe when there is a presidential Stafford Act declaration authorizing
assistance under the Individuals and Households Program and emergency sheltering and there is a
demonstrated need for non-congregate sheltering. TSA can be provided for 30-180 days from the date of
declaration. The interim TSA guidance also includes eligibility information for disaster survivors. Unlike
PA-reimbursable emergency sheltering, TSA is provided as Direct Federal Assistance, meaning FEMA
directly pays the lodging providers.
Emergency Sheltering Challenges During COVID-19
In 2020 and 2021, emergency managers sheltered disaster survivors in congregate and non-congregate
settings, including in the aftermath of wildfires in the western United States and Hurricane Ida.
Chal enges and considerations associated with SLTT emergency sheltering efforts include:
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reducing and controlling COVID-19 transmission among shelter residents,
establishing and enforcing mask recommendations and requirements/mandates,
isolating shelter residents who refuse to wear masks or test positive for COVID-19,
opening additional congregate shelters to support social distancing,
vaccination administration and questions around the separation of vaccinated and
unvaccinated populations,
staffing shortfal s in shelters for evacuated pets, and
individual reluctance to evacuate or go to a shelter due to risk of transmission.
Potential Policy Considerations for Congress
SLTTs bear significant responsibility for preparing for, responding to, and recovering from disasters.
Potential congressional considerations to support SLTT emergency sheltering efforts during the pandemic
include the following:
Evaluating the need for new residential eviction moratoria, similar to what was ordered
by the CDC director and recently rejected by the Supreme Court, which could al eviate
potential demand for emergency sheltering by eviction-displaced individuals. Some
Members of Congress have introduced legislation that would automatical y halt evictions
and foreclosures following federal y declared disasters.
Examining options to support SLTT emergency sheltering staff given pandemic-related
staffing shortages affecting adjacent social services and industries, including health care,
hospitality, and shelters for homeless populations. Direct federal staffing support could be
provided, balanced against potential federal personnel capacity constraints.
Author Information
Elizabeth M. Webster
Erica A. Lee
Analyst in Emergency Management and Disaster
Analyst in Emergency Management and Disaster
Recovery
Recovery
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
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