Economic Development Administration:
December 17, 2021
An Overview of Programs and Appropriations
Julie M. Lawhorn
(FY2011-FY2021)
Analyst in Economic
Development Policy
The Economic Development Administration (EDA), a bureau of the U.S. Department of

Commerce (DOC), is the only federal agency with economic development as its sole mission.
The agency was established pursuant to the enactment of the Public Works and Economic

Development Act (PWEDA) of 1965 (42 U.S.C. §3121 et seq.) to assist state and local
stakeholders with developing the conditions and amenities to grow businesses, create jobs, and expand investment in
economically distressed areas. Changing industry dynamics, global competition, technological developments, and other
events, conditions, and priorities have shifted EDA’s programs and priorities over time. During the agency’s first 30 years, its
programs focused on industrial growth and emphasized public works, roads, and infrastructure. Since then, Congress has
supported an expanded portfolio of EDA programs to also advance existing and emerging industry clusters, develop human
capital, strengthen supply chains, expand access to capital, build new types of in frastructure, and implement innovation and
technology strategies. Additionally, EDA has also taken on new roles in developing state and local capacity, resiliency,
disaster and economic recovery, as well as economic development integration across federal agencies.
Today, EDA administers nine core programs that fund a range of construction and non-construction activities in both urban
and rural areas—primarily through competitive processes that solicit community-directed proposals aligned with the
agency’s investment priorities. EDA administers both flexible and targeted programs focused on innovation, technical
assistance, and support for long-term, regional economic development planning. The major EDA programs include:
 Build to Scale (B2S),
 Economic Adjustment Assistance (EAA),
 Local Technical Assistance,
 Planning,
 Public Works,
 Research and National Technical Assistance (RNTA),
 Science Technology Engineering and Math (STEM) Apprenticeships,
 Trade Adjustment Assistance for Firms (TAAF), and
 University Centers.
Congress approves annual appropriations for EDA programs as well as administration expenses, and occasionally approves
supplemental appropriations for economic recovery purposes. Since FY2011, annual appropriations average approximately
$283 million. Annual appropriations decreased each year between FY2011 and FY2013, and have increased slightly each
year since FY2014. In FY2021, Congress approved $346 million in annual appropriations for the agency’s programs and
administration. In FY2020 and FY2021, Congress also provided a total of $4.5 billion in supplemental appropriations for
EDA programs in response to the economic impact of the Coronavirus Disease 2019 (COVID-19) pandemic.
For FY2022, the Biden Administration requested funding increases for several EDA programs and for salaries and expenses.
Under the Administration’s proposal, EDA would receive $433 million, an increase of $87 million, or 25%, over the amount
of FY2021 enacted appropriations, excluding the COVID-19 supplemental appropriations. The FY2022 budget request
included significant increases in funding for the following programs and expenses:
 Assistance to Coal Communities grants (through the EAA program), from $33.5 million to $80.5 million;
 EAA program, from $37.5 million to $48 million;
 Build to Scale grants, from $38 million to $45 million;
 the STEM Talent Challenge (“STEM Apprenticeships”), from $2 million to $10 million; and
 salaries and expenses, from $40.5 million to $50.6 million.
Congressional Research Service

Economic Development Administration: An Overview of Programs and Appropriations

Congress may wish to consider policies to change, expand, or focus the distribution of the agency’s funding and related
program requirements. Congress may also seek to adjust the overall role and authority of EDA and its programs in the
context of changing economic conditions, specific industry trends, innovation, and disaster economic recovery and resiliency
funding. Congress may consider the role of broad-based and/or targeted approaches to the allocation of economic
development resources. For instance, Congress has approved appropriations to address coal-impacted and nuclear closure
communities as well as demands for a STEM-capable workforce and innovation-ready regions. Congressional debate on
these and other EDA issues may be associated with or separate from discussions of the reauthorization of PWEDA.
PWEDA’s statutory authority lapsed on September 30, 2008.

Congressional Research Service

link to page 7 Economic Development Administration: An Overview of Programs and Appropriations

Introduction
The Economic Development Administration
(EDA), a bureau of the U.S. Department of
EDA’s Definition of Economic
Commerce (DOC), provides financial and
Development
technical assistance to support local y-driven,
The EDA defines economic development as creating
regional y-oriented economic development
“the conditions for economic growth and improved
strategies. The definitions of economic
quality of life by expanding the capacity of
individuals, firms, and communities to maximize the
development and the local scope of practice have
use of their talents and skil s to support innovation,
changed in response to shifts in regional and
lower transaction costs, and responsibly produce
global economies, advances in technology, and
and trade valuable goods and services.”1
other conditions and circumstances. EDA’s
programs, roles, and investment priorities have also shifted since the agency was created over 56
years ago. EDA’s programs continue to include support for infrastructure, public works, and
distressed areas, but now also include strategies focused on entrepreneurship, innovation, disaster
recovery, and facilitating state and local economic development capacity.2 In addition to
administering and monitoring grant programs, EDA roles have expanded to include research,
technical assistance, and economic development integration across agencies, among others.
Congress approves appropriations for EDA annual y and directs the agency to al ocate funding to
the major programs outlined in Figure 1. Congress occasional y approves supplemental funding
as wel . Supplemental funding in recent years has supported economic recovery assistance
following selected natural disasters and the Coronavirus Disease 2019 (COVID-19) pandemic.
Supplemental appropriations are general y administered through one of the agency’s most
flexible programs, the Economic Adjustment Assistance program.

1 EDA, “Key Definitions,” https://www.eda.gov/performance/key-definitions/. See also, Karl F Seidman, Economic
Development Finance (T housand Oaks, CA: Sage Publications, 2005), p. 5, International Economic Development
Council (IEDC), “ What Economic Development Does for a Community,” https://www.iedconline.org/clientuploads/
Downloads/IEDC_Why_and_Impact_Economic_Development.pdf ; Emil E. Malizia and Edward Feser, Understanding
Local Econom ic Developm ent (New Brunswick, NJ: Center for Urban Policy Research, Rutgers, 1999), pp. 12-13;
among others.
2 T estimony by Mr. Dennis Alvord, Acting Assistant Secretary of Commerce for EDA, U.S. House of Representatives,
Committee on T ransportation and Infrastructure, Subcommittee on Economic Development, Public Buildings and
Emergency Management , Investing in Am erica: Reauthorization of the Econom ic Developm ent Adm inistration , 117th
Cong., 1st sess., April 28, 2021, https://www.congress.gov/117/meeting/house/112512/witnesses/HHRG-117-PW13-
Wstate-AlvordD-20210428.pdf.
Congressional Research Service

1

link to page 29 link to page 34

Economic Development Administration: An Overview of Programs and Appropriations

Figure 1. Major EDA Programs
Source: CRS, using EDA “EDA Programs,” https://eda.gov/programs/eda-programs/.
Notes: The figure highlights the key feature of major EDA programs. Programs may support multiple purposes and
activities. For instance, the EAA and University Centers programs may also promote innovation and entrepreneurship
and the EAA program may support planning or infrastructure activities.
In addition to providing appropriations, Congress performs oversight and conducts hearings on
EDA programs and administration. Recent hearings regarding the EDA have addressed agency
capacity, grant al ocations, grant requirements, disaster recovery, and reauthorization of the Public
Works and Economic Development Act (PWEDA) of 1965 (42 U.S.C. §3121 et seq.), among
other matters.
This report provides a broad overview of the EDA with a focus on its programs and
appropriations history since FY2011. Following an abbreviated history of the agency, the report
discusses investment priorities, structure, and performance metrics, and outlines the programs that
assist with state and local activities. The report includes an analysis of recent appropriations (see
Figure 5), including disaster and economic recovery assistance (see Figure 7), and concludes
with considerations for policymakers. For more information on the statutory history of the
agency, see CRS Report R41241, Economic Development Administration: A Review of Elements
of Its Statutory History, by Julie M. Lawhorn. The EDA’s Trade Adjustment Assistance for Firms
(TAAF) program is outside the scope of this report. For more information on TAAF, see CRS
Report RS20210, Trade Adjustment Assistance for Firms, by Rachel F. Fefer.
Agency Overview
EDA programs support the development of capacity for communities to address the conditions,
circumstances, and opportunities that are unique to their region. Some EDA programs (e.g.,
Public Works, and Economic Adjustment Assistance, among others) prioritize areas experiencing
economic distress. The programs are general y flexible and support economic adjustment,
Congressional Research Service

2

link to page 16 Economic Development Administration: An Overview of Programs and Appropriations

economic resiliency, infrastructure, workforce, disaster economic recovery, innovation, planning,
technical assistance, and related activities. In al ocating most of its economic development
assistance program funds, EDA solicits competitive proposals to align with the agency’s program
goals and its seven investment priorities (see “Investment Priorities, FY2011-Present” below).
EDA Mission and Origins
The EDA’s mission is to “lead the federal economic development agenda by promoting
innovation and competitiveness, preparing American regions for growth and success in the
worldwide economy.”3 It is the only federal agency with economic development as its exclusive
mission.4 The EDA was created by the Public Works and Economic Development Act (PWEDA)
of 1965 (P.L. 89-136, 42 U.S.C. §3121 et seq.) to support job creation, job retention, and
investment in economical y distressed areas.5 The findings section of PWEDA reflect the origins
of the agency’s approach to local y-driven economic development:
... while economic development is an inherently local process, the Federal Government
should work in partnership with public and private State, regional, tribal, and local
organizations to maximize the impact of existing resources and enable regions,
communities, and citizens to participate more fully in the American dream and national
prosperity.6
The agency continues to describe its approach as working “directly with local economic
development officials to support their bottom-up, regional y-owned economic development
initiatives”7 and helping communities “build capacity for economic development based on local
business conditions and needs.”8 For instance, EDA programs general y do not require applicants
to specialize in specific industries or strategies, and instead assist with local y-developed projects
to advance industries or strategies based on a region’s particular assets and chal enges.
Precursors to PWEDA and EDA Programs Since 1965
EDA programs focused on investments in infrastructure, public works, and basic services in the
agency’s first thirty years, along with support for planning and technical assistance.9 The

3 EDA, “Overview,” https://eda.gov/about/.
4 EDA, “EDA Informational Brochure,” https://eda.gov/pdf/about/EDA-trifold-2017.pdf.
5 For information on the agency’s statutory history, see CRS Report R41241, Economic Development Administration:
A Review of Elem ents of Its Statutory History, by Julie M. Lawhorn. See also EDA, “ History of EDA,”
https://www.eda.gov/archives/2016/50/history/; and Robert W. Lake, Robin Leichenko, and Amy Glasmeier, “ EDA
and U.S. Economic Distress 1965–2000,” EDA Research Report, 99-07-13812, July 2004, http://www.ipsr.ku.edu/
KUforKS/2004julyEDAandUSeconomicdistressreport.pdf.
6 42 U.S.C. §3121(a)(4). See also, Maryann Feldman et al., “T he Logic of Economic Development: A Definition and
Model for Investment,” Environment and Planning C: Governm ent and Policy, vol. 34, no. 1 (2016), pp. 5-21; also
available at https://www.eda.gov/files/tools/research-reports/investment -definition-model.pdf. T he report defines
economic development as “ the development of capacities that expand economic actors’ capabilities.”
7 DOC, EDA, FY2022 Congressional Budget Justification, p. 119, https://www.commerce.gov/sites/default/files/2021-
05/fy2022_eda_congressional_budget_justification.pdf.
8 EDA, “ 2020 Disaster Assistance Brochure: Leading Economic Recovery in Disaster -Impacted Communities,”
https://eda.gov/files/programs/disaster-recovery/EDA-Disaster-Brochure.pdf.
9 Robert W. Lake, Robin Leichenko, and Amy Glasmeier, “ EDA and U.S. Economic Distress 1965–2000,” EDA
Research Report, 99-07-13812, July 2004, p. 5, http://www.ipsr.ku.edu/KUforKS/
2004julyEDAandUSeconomicdistressreport.pdf.
Congressional Research Service

3

Economic Development Administration: An Overview of Programs and Appropriations

following milestones highlight precursors to EDA programs as wel as program and investment
directions since the 1960s:
 In 1961, prior to the enactment of PWEDA, Congress approved appropriations
for a set of loans and public works grants through the Area Redevelopment Act
(P.L. 87-27), which established the EDA’s predecessor agency, the Area
Redevelopment Administration (ARA).10 ARA programs were smal er in scope
and scale compared to later EDA programs, and expired just prior to the
enactment of PWEDA. Economic development assistance programs during this
time focused on commercial and industrial growth (often through investment in
infrastructure and public works, business loans, and planning grants) at the state
and local levels.11
 In August 1965, PWEDA (P.L. 89-136) was enacted. PWEDA authorized grant
and loan programs that continued support for industrial and commercial growth
in economical y depressed areas. Prior to PWEDA amendments in the late 1960s,
EDA programs focused assistance on rural areas experiencing economic distress.
Eligibility criteria for economic distress were later changed by statutory and
administrative changes through the 1970s.12
 In the 1970s, Congress authorized the Economic Adjustment Assistance (EAA)
and Trade Adjustment Assistance programs.13 Congress also began providing
appropriations for defense adjustment14 and disaster recovery through the EAA
program.15
 In the 1980s and 1990s, EDA initiated—and later expanded—the University
Center program. The agency also expanded its work on industry or regional

10 Peter K. Eisinger, The Rise of the Entrepreneurial State: State and Local Economic Development Policy in the
United States, Robert M. La Follette Institute of Public Affairs (Madison, WI: University of Wisconsin Press, 1988),
pp. 100-101. See also CRS Report R41241, Econom ic Development Administration: A Review of Elem ents of Its
Statutory History, by Julie M. Lawhorn.
11 ARA focused assistance on economically distressed areas impacted by chronic unemployment . In addition to ARA,
the two other laws considered precursors to PWEDA were the Public Works Acceleration Act of 1963 (PWAA; P.L.
87-658) and the Appalachian Regional Development Act of 1965 (ARDA; P.L. 89-4). T he PWAA authorized an
appropriation of $900 million for federal public works programs to address the 1960 -1961 recession and support areas
with high unemployment. ARDA authorized $1.1 billion for assistance to the Appalachian region. See CRS Report
R41241, Econom ic Developm ent Adm inistration: A Review of Elem ents of Its Statutory History , by Julie M. Lawhorn;
and Robert W. Lake, Robin Leichenko, and Amy Glasmeier, “ EDA and U.S. Economic Distress 1965–2000,” EDA
Research Report, 99-07-13812, July 2004, http://www.ipsr.ku.edu/KUforKS/
2004julyEDAandUSeconomicdistressreport.pdf.
12 For additional context, see CRS Report R41241, Economic Development Administration: A Review of Elements of Its
Statutory History, by Julie M. Lawhorn; and Peter K. Eisinger, The Rise of the Entrepreneurial State: State and Local
Econom ic Developm ent Policy in the United States, Robert M. La Follette Institute of Public Affairs (Madison, WI:
University of Wisconsin Press, 1988), pp. 100-101, 123-124.
13 EDA, “History of EDA,” https://www.eda.gov/archives/2016/50/history/.
14 Defense adjustment refers to activities that assist communities affected by base closures, reductions in defense
contract s, or reductions in Department of Energy defense-related funding. See Robert W. Lake, Robin Leich enko, and
Amy Glasmeier, “ EDA and U.S. Economic Distress 1965–2000,” EDA Research Report, 99-07-13812, July 2004, pp.
118-121, http://www.ipsr.ku.edu/KUforKS/2004julyEDAandUSeconomicdistressreport.pdf.
15 Robert W. Lake, Robin Leichenko, and Amy Glasmeier, “ EDA and U.S. Economic Distress 1965–2000,” EDA
Research Report, 99-07-13812, July 2004, p. 5, http://www.ipsr.ku.edu/KUforKS/
2004julyEDAandUSeconomicdistressreport.pdf.
Congressional Research Service

4

link to page 32 link to page 11 Economic Development Administration: An Overview of Programs and Appropriations

clusters,16 Economic Development Districts, and efforts to assist communities
with regional economic development plans.17
 Since the 2000s, Congress has supported various types of policies to promote
innovation and to prepare regions for expanded innovation- and technology-
based development. Among other innovation-related policies, Congress has
authorized programs to promote regional competitive advantages through
innovation clusters and similar programs administered by the EDA and other
agencies. During this time, Congress also has supported multiple rounds of
disaster recovery and COVID-19 economic recovery assistance (see
“Supplemental Appropriations” below for a summary of appropriations between
FY2011 and FY2021). EDA continues to lead select economic development
integration efforts at federal, regional, and local levels and has done so since the
U.S. Office of Management and Budget (OMB) identified this role for EDA in
the mid-2000s.18
As noted in subsequent sections, EDA programs continue to support investments in infrastructure
and public works and to assist communities experiencing economic distress.19 EDA’s activities
have shifted to also include programs that address changing industry dynamics, global
competition, technological developments, and other events, conditions, and priorities. Programs
are available to both urban and rural areas.20
EDA Structure
EDA locations include a headquarters office in Washington, DC, and six regional offices. EDA’s
organizational structure includes offices that administer programs at the headquarters and regional
levels as wel as offices for finance management and external affairs and communications (see
Figure 2).

16 EDA defines regional clusters as
geographic concentrations of firms, workers and industries that do business with each other and have common
needs for talent, technology, and infrastructure. Regional clusters are essentially networks of similar, synergistic,
or complementary entities that are engaged in or with a particular industry sector; have active channels for
business transactions and communication; share specialized infrastructure, labor markets, and services; and
leverage the region’s unique competitive strengths to stimulate innovation and create jobs. Regional clusters may
cross municipal, county, and other jurisdictional boundaries.
See EDA, “Key Definitions,” https://eda.gov/performance/key-definitions/.
17 EDA, “History of EDA,” https://www.eda.gov/archives/2016/50/history/.
18 EDA, “A Brief History of EDI,” https://eda.gov/integration/.
19 For additional analysis on infrastructure and the economy, see CRS Report R46826, Infrastructure and the Economy,
by Lida R. Weinstock.
20 EDA’s Informational Brochure (published 2017) notes that funds are awarded to both rural and urban communities
with approximately two-thirds of assistance awarded to rural communities. See EDA, “ EDA Informational Brochure,”
https://eda.gov/pdf/about/EDA-trifold-2017.pdf.
Congressional Research Service

5

link to page 11

Economic Development Administration: An Overview of Programs and Appropriations

Figure 2. EDA Organizational Chart

Source: CRS with data from DOC, EDA, FY2022Congressional Budget Justification, p. 7,
https://www.commerce.gov/sites/default/files/2021-05/fy2022_eda_congressional_budget_justification.pdf.
EDA’s four offices on national programs (see Figure 2) include:
 The Office of Performance, Research, and National Technical Assistance,
which administers research, evaluation, and national technical assistance
initiatives.21
 The Office of Innovation and Entrepreneurship (OIE), which was established
by the America COMPETES Reauthorization Act of 2010 (P.L. 111-358). OIE
facilitates EDA’s efforts to “empower communities so that entrepreneurs can
launch companies, scale technologies and create the jobs of tomorrow.” The OIE
administers programs (e.g., the Build to Scale, STEM Talent Chal enge, and
other programs), and coordinates inter-agency activities related to innovation,
commercialization, and entrepreneurship.22 For instance, OIE leads the National
Advisory Council on Innovation and Entrepreneurship (NACIE), which was
established in 2009 to “encourage the development and implementation of

21 EDA, “Performance, Research and National T echnical Assistance Program,” https://eda.gov/programs/rnta/.
22 EDA, “About OIE,” https://eda.gov/oie/.
OIE administered the first round of the Regional Innovation P rogram competitions in September 2014 (see EDA, U.S.
Department of Commerce, “ Regional Innovation Program,” 82 Federal Register 3131-3137, January 11, 2017,
https://www.federalregister.gov/documents/2017/01/11/2017-00116/regional-innovation-program). OIE administered
the first round of the ST EM T alent Challenge (ST EM Apprenticeships) program in FY2020 (see EDA, “ ST EM T alent
Challenge,” https://www.eda.gov/oie/stem/). Additionally in FY2020, EDA administered the Accelerate R2 Network
competition in collaboration with the National Institute of Standards and T echnology (NIST ) and the First Responder
Network Authority (FirstNet) to develop a network of organizations wo rking to address disaster response and resiliency
(R2) challenges with innovative technologies (see EDA, “ Accelerate R2 Network Challenge,” https://eda.gov/oie/
accelerate-r2/).
Congressional Research Service

6

link to page 13 Economic Development Administration: An Overview of Programs and Appropriations

policies that cultivate technology commercialization.” NACIE was established by
Section 25(c) of the Stevenson-Wydler Technology Innovation Act of 1980, as
amended (15 U.S.C. §3720(c)).23
 The Office of Trade Adjustment Assistance for Firms (TAAF), which
administers the technical assistance grants that help trade-impacted U.S. firms to
become more competitive, expand markets, and increase profitability in
partnership with trade adjustment assistance centers and private consultants.24
 The Office of Economic Development Integration (EDI) and Disaster
Recovery, which promotes interagency coordination of resources and economic
recovery assistance. EDA leads integration activities designed to enhance
collaboration, increase access to resources, and reduce administrative burdens
across federal economic development programs across agencies.25 EDA is the
lead federal agency for economic recovery support and also administers program
funds for state and local entities to plan and implement disaster economic
recovery efforts.26
EDA Regional Offices
EDA’s regional offices review and process grant applications for economic development
assistance; monitor approved projects; and provide outreach and technical assistance services.27
Figure 3 il ustrates the six regions and locations of the regional offices.

23 EDA announced a solicitation for NACIE members in September 2021. See EDA, U.S. Department of Commerce,
“National Advisory Council on Innovation and Entrepreneurship (NACIE); Solicitation of Applications, ” 86 Federal
Register 50323-50324, September 8, 2021, https://www.federalregister.gov/documents/2021/09/08/2021-19169/
national-advisory-council-on-innovation-and-entrepreneurship-nacie-solicitation-of-applications. See also
https://www.eda.gov/oie/nacie/.
24 EDA, “T rade Adjustment Assistance for Firms,” https://eda.gov/pdf/about/T AAF-Program-1-Pager.pdf. For more
information on T AAF, see CRS Report RS20210, Trade Adjustm ent Assistance for Firm s, by Rachel F. Fefer.
25 EDA, “Economic Development Integration,” https://www.eda.gov/integration/, and “Disaster Recovery,”
https://eda.gov/disaster-recovery/. EDA also maintains a matrix of selected federal programs that can assist economic
development strategies on its EDI webpage at https://www.eda.gov/integration/.
26 EDA, “EDA and Disaster Recovery,” https://eda.gov/disaster-recovery/.
27 EDA, “About,” https://eda.gov/about/.
Congressional Research Service

7

link to page 15 link to page 56 link to page 34

Economic Development Administration: An Overview of Programs and Appropriations

Figure 3. EDA Regional Offices

Source: CRS using information from EDA, “Overview,” https://www.eda.gov/about/.
EDA Staff Levels
EDA staff levels ranged from 160 to 220 on-board employees between 2011 and 2019, and
increased to 261 in 2020. In June 2021, EDA had approximately 272 on-board employees.28
Figure 4 presents the number of on-board employees for 2011 to 2021. Table C-1 in the
Appendix provides additional on-board employment data since 2011.
EDA may continue to add staff to implement recent supplemental recovery appropriations and
manage related oversight and technical assistance activities. The supplemental Coronavirus Aid,
Relief, and Economic Security (CARES) Act (P.L. 116-136) funding for EDA was nearly five
times the amount of the agency’s FY2020 annual appropriation (P.L. 116-93), and the American
Rescue Plan (ARP) Act (P.L. 117-2) funding for EDA was over eight times the amount of the
agency’s FY2021 annual appropriation (P.L. 116-260)—see Figure 7. EDA hired additional
staff in FY2020 using direct hiring authority granted under the CARES Act,29 and the agency
plans to transition 50 staff hired under the CARES Act into permanent full-time equivalent (FTE)

28 Office of Personnel Management (OPM), FedScope, http://www.fedscope.opm.gov.
29 U.S. Department of Commerce, Office of Inspector General, EDA Was Effective in Implem enting the Requirements
for Awarding Funds Under the CARES Act, Final Report No. OIG-21-017-I, Washington, DC, January 5, 2021, p. 3,
https://www.oig.doc.gov/OIGPublications/OIG-21-017-I.pdf.
Congressional Research Service

8

Economic Development Administration: An Overview of Programs and Appropriations

positions in FY2022.30 According to testimony by Assistant Secretary Alejandra Castil o in
November 2021:
These new staff helped EDA obligate over two-thirds of the CARES Act funding within
one year of Congress enacting the CARES Act and, as of October 11, 2021, EDA has
obligated $1.385 billion of the $1.5 billion in CARES Act funding through 1,194 awards.
EDA also continues to evaluate 121 applications and expects that those selected for funding
will exhaust all of EDA’s CARES Act supplemental appropriation.31

30 DOC, EDA, FY2022 Congressional Budget Justification, pp. 121-124, https://www.commerce.gov/sites/default/files/
2021-05/fy2022_eda_congressional_budget_justification.pdf.
As noted in CRS Report R43590, Federal Workforce Statistics Sources: OPM and OMB:
T he term full-time equivalent employment (FT E) is used to quantify employment as a function of hours worked
rather than by the number of individual employees. One FT E is also known as one work year. T he number of
FT Es in an agency is calculated by determining the t otal number of regular straight time hours (i.e., not including
overtime or holiday hours) worked by employees and dividing that figure by the number of compensable hours
applicable to each fiscal year. One work year, or one FT E, is equivalent to 2,080 hours of work. (T he figure of
2,080 hours in the work year is derived as follows: 8 hours per day multiplied by 10 days (in a 2 -week pay period)
equals 80 hours; 80 hours multiplied by 26 pay periods (in a year) equals 2,080 work hours.)
and
FT E employment numbers are used by OMB to manage employment in departments and agencies. T he
requirements for reporting FT E employment in the President’s Budget are prescribed in Section 85 of OMB
Circular No. A-11 on “ Estimating Employment Levels and the Employment Summar y (Schedule Q).” (U.S.
Executive Office of the President, Office of Management and Budget, Preparation, Submission, and Execution of
the Budget (Washington: GPO, April 2021), available at https://www.whitehouse.gov/wp-content/uploads/2018/
06/a11.pdf. See Section 85.5(c) for a detailed explanation of how FT Es are calculated.)
31 U.S. Senate, Environment and Public Works Committee, Examining Programs at the Economic Development
Adm inistration, 117th Cong., 1st sess., Nov. 3, 2021, https://www.epw.senate.gov/public/index.cfm/hearings?ID=
256D08CE-44DC-47B4-9663-F9AC5AA8950E. See also t estimony by Mr. Dennis Alvord, Acting Assistant Secretary
of Commerce for EDA, U.S. House of Representatives, Committee on T ransportation and Infrastructure, Subcommittee
on Economic Development, Public Buildings and Emergency Management , April 28, 2021, https://ogc.commerce.gov/
sites/default/files/media/files/2021/04-28-21_final_eda_reauthorization_testimony_.pdf.
Congressional Research Service

9

Economic Development Administration: An Overview of Programs and Appropriations

Figure 4. EDA On-Board Employees, 2011-2021

Source: CRS using data from the U.S. Office of Personnel Management, FedScope database, Employment cubes,
https://www.fedscope.opm.gov/employment.asp.
Notes: Each total provides the number of on-board employees as of September each year, except for 2021,
which is as of June (most recent data available).
Economic Development Districts (EDDs)
Economic Development Districts (EDDs) are multi-jurisdictional entities designated by the EDA
that engage with the agency and local partners across multiple EDA programs and activity areas.
EDDs general y lead, coordinate, and convene partners for the Comprehensive Economic
Development Strategy (CEDS) process; assist with project development; and provide outreach,
technical assistance, and grant support to applicants and grantees.32 To be designated as an EDD,
the entity must have a CEDS and cover “at least one geographical area within the designated
service boundaries that meets EDA’s regional distress criteria.”33 According to the EDA, there are
approximately 390 EDDs; some regions of the United States are not served by an EDA-
designated EDD. Most EDD regions do not align with standard, federal y-defined regions, such
as metropolitan statistical areas, and some EDDs cover regions that cross state borders.34 EDDs
may receive financial assistance through Partnership Planning and other programs, and may
implement or manage projects.

32 See https://eda.gov/resources/directory/ for EDA’s directory of EDDs and other resources. For an analysis of EDDs
in the context of regional development organizations, see CRS In Focus IF11511, The Role of Regional Developm ent
Organizations (RDOs) in Econom ic Developm ent, by Julie M. Lawhorn.
33 EDA, “Economic Development Districts,” https://www.eda.gov/edd/. See also 42 U.S.C. §3171.
34 EDA, “CEDS Content,” https://www.eda.gov/archives/2021/ceds/content/summary.htm. Also, EDA supports the
CEDS Resource Library at StatsAmerica.org where applicants can determine whether their region is served by an EDD
and locate the most recent CEDS. See http://www.statsamerica.org/ceds/Default.aspx.
Congressional Research Service

10

Economic Development Administration: An Overview of Programs and Appropriations

Investment Priorities, FY2011-Present
EDA encourages grant applicants to align their proposals with its investment priorities.35 In April
2021, EDA announced new investment priorities to support with the Administration’s economic
development goals. The agency highlights innovation and regional collaboration as two key
economic drivers that inform the updated investment priorities.36
Table 1. Comparison of EDA Investment Priorities
FY2011-FY2016
FY2017-April 2021
April 2021-Present

Col aborative regional innovation

Recovery and resilience

Equity

Public private partnerships

Critical infrastructure

Recovery and resilience

National strategic priorities

Workforce development

Workforce development

and manufacturing

Global competitiveness

Manufacturing



Environmental y-sustainable

Exports and foreign

Technology-based economic
development
direct investment (FDI)
development



Economical y distressed and

Opportunity zones

Environmental y-sustainable
underserved communities
development

Exports and foreign direct
investment (FDI)
Sources: EDA, “Investment Priorities,” https://eda.gov/about/investment-priorities/; and FY2014 Congressional
Budget Justification, https://www.osec.doc.gov/bmi/budget/FY14CJ/EDA_FY_2014_CJ_Final_508_Compliant.pdf.
Recovery and Resiliency
EDA programs support state and local activities that facilitate long-term strategies to drive economic
diversification, promote sector and cluster development, or otherwise build a region’s capacity for economic
recovery and resilience. According to the EDA, “in the context of economic development, economic resilience
becomes inclusive of three primary attributes: the ability to recover quickly from a shock, the ability to withstand
a shock, and the ability to avoid the shock altogether.”37 Shocks may include national or global economic
downturns; regional industry downturns; or external events, such as a natural or man-made disaster. For example,
EDA projects may support resiliency goals by assisting with business continuity and preparedness efforts or by
facilitating long-term recovery from natural disasters and other economic shocks.38

Economic Development Integration (EDI) Role
Following a 2011 U.S. Government Accountability Office (GAO) report on fragmentation and
overlap of economic development programs, the Office of Management and Budget (OMB)
selected the EDA’s proposal for an economic development integration role.39 EDA now leads

35 EDA, “Investment Priorities,” https://eda.gov/about/investment-priorities/.
36 DOC, EDA, FY2022 Congressional Budget Justification, p. 10, https://www.commerce.gov/sites/default/files/2021-
05/fy2022_eda_congressional_budget_justification.pdf.
37 EDA, “CEDS Guidelines—Economic Resilience,” https://www.eda.gov/ceds/content/economic-resilience.htm.
38 EDA, “Investment Priorities,” https://www.eda.gov/about/investment-priorities/.
39 EDA, “A Brief History of EDI,” https://eda.gov/integration/; and GAO, “ Efficiency and Effectiveness of Fragmented
Economic Development Programs Are Unclear,” May 19, 2011, GAO-11-477R, https://www.gao.gov/products/gao-11-
477r.
Congressional Research Service

11

Economic Development Administration: An Overview of Programs and Appropriations

integration activities across federal economic development programs in an effort to enhance
collaboration, increase access to resources, and to reduce administrative burdens. The agency’s
EDI activities occur at various levels—federal, state, regional, and local—and through various
types of partnership and coordination efforts. For instance:
 EDA’s regional offices work with Economic Development Districts (EDDs) to
facilitate connections among local, state, and federal contacts and programs—
often convening for planning purposes or post-disaster recovery initiatives.40
Regional offices have staff identified as regional integrators as wel .41
 EDA headquarters staff and its operations support EDI goals through interagency
planning and efforts to align administrative requirements.42
 Eligible EDA grant recipients are al owed to combine funding from other
agencies and nonfederal sources to facilitate economic development goals
because state and local economic development practices are often implemented
in connection with other programs.43
 EDA partners with other federal agencies that administer economic development
programs, including the U.S. Department of Agriculture, the Department of
Housing and Urban Development, and the Department of Labor, among others.44
Disaster Economic Recovery Role
EDA is the lead agency in the “Economic Recovery Support Function (ERSF)” under the
National Disaster Recovery Framework (NDRF).45 According to FEMA, “The NDRF
identifies Recovery Support Functions that provide a structure to facilitate problem solving,
improve access to resources, and foster coordination among state and federal agencies, tribes,
territories nongovernmental partners and stakeholders.”46 Within the NDRF, EDA’s role is to

40 EDA, “Economic Development Integration,” https://eda.gov/integration/. For a description of economic development
integration in disaster resiliency planning, see U.S. House of Representatives, Select Climate Crisis Committee,
“Creating a Climate Resilient America: Smart Finance for Strong Communities,” Serial No. 116–16, December 11,
2019, https://www.govinfo.gov/content/pkg/CHRG-116hhrg41272/pdf/CHRG-116hhrg41272.pdf.
41 EDA, “Regional Integrator Contacts,” https://eda.gov/integration/contact/. Regional integrators may help
stakeholders by convening meetings, building coalitions, ident ifying resources, and other activities to facilitate
coordinated responses to state and local economic development issues. For an example, see EDA, “EDA ’s Economic
Integrator Catalyzes Interagency Investments in San Diego,” https://eda.gov/success-stories/integration/stories/edi-san-
diego.htm.
42 EDA, “Economic Development Integration,” https://eda.gov/integration/.
43 Limitations may apply to the total amount of federal project funding, depending on the program, type of applicant,
and determination of special need. See 42 U.S.C. §3144. T he FY2020 Notice of Funding Opportunity (NOFO) for the
Public Works and Economic Adjustment Assistance programs noted that, “ Funds from other federal financial
assistance awards may be considered matching share funds only if authorized by statute, which may be determined by
EDA’s reasonable interpretation of the statute.” See EDA, “NOFO—2020 Public Works and Economic Adjustment
Assistance Programs,” EDA-PWEAA2020, https://www.grants.gov/web/grants/view-opportunity.html?oppId=321695,
and 13 C.F.R. §300.3 and 2 C.F.R. §200.306.
44 EDA, “Multi-Agency Initiatives,” https://eda.gov/programs/multi-agency/, and “Economic Development
Integration,” https://eda.gov/integration/. For an overview of federal resources for state and local economic
development, see CRS Report R46683, Federal Resources for State and Local Econom ic Developm ent, by Julie M.
Lawhorn.
45 EDA, “EDA and Disaster Recovery,” https://eda.gov/disaster-recovery/.
46 FEMA, “National Disaster Recovery Framework,” https://www.fema.gov/emergency-managers/national-
preparedness/frameworks/recovery.
Congressional Research Service

12

link to page 19 link to page 34 Economic Development Administration: An Overview of Programs and Appropriations

“facilitate the delivery of federal economic development assistance to support long-term
economic recovery planning and project implementation in communities across the nation.”47 As
a convener, EDA may bring together federal, state, and local stakeholders for post-disaster
regional resource exchange events. In some post-disaster scenarios, EDA supports or leads efforts
to assess regional assets and chal enges to facilitate long-term recovery.48 For instance,
 Following Hurricane Harvey (August 2017), EDA collaborated with FEMA and
state and local stakeholders to develop a Recovery Support Strategy (RSS). EDA
also led regional workshops in Texas and provided recovery grants to impacted
communities.49
 Through its ERSF, EDA deployed to Puerto Rico following Hurricanes Maria
and Irma (September 2017) to provide support, coordination, and additional
capacity to economic recovery efforts.50
 EDA coordinated a “Federal Interagency Resource Exchange” following
Hurricane Laura in August 2021.51
As a grant-making agency, the EDA also administers program funds for state and local entities to
plan and implement disaster economic recovery efforts through its EAA program.52 For example,
since 2017, EDA has invested over $111 mil ion in 34 grants to Puerto Rico following hurricanes
Maria and Irma.53 After flooding in 2019, EDA provided a grant to the City of Moberly, MO, to
improve water and wastewater infrastructure and prevent future damage to downtown
businesses.54 EDA administers recovery assistance grants through its Regional Offices.55
EDA Performance Metrics
EDA collects and measures performance according to two Government Performance and Results
Act (GPRA) goals. The first goal is connected to infrastructure investments and the second goal is
connected to non-infrastructure investments.56 By example, Public Works is an infrastructure
program and Build to Scale is general y classified as a non-infrastructure program. The agency’s
goals and associated metrics are detailed in Table 2.

47 EDA, “ Spotlight: EDA Investments Advance Economic Recovery in American Communities Impacted by Natural
Disasters,” https://www.eda.gov/news/blogs/2020/09/01/spotlight.htm.
48 EDA, “Recovering from Harvey: EDA Leads the Coordination of Federal Resources,” January 2021, https://eda.gov/
success-stories/disaster/stories/cog-hurricane-harvey.htm.
49 EDA, “T he Hurricane Harvey Long-T erm Economic Recovery Workshops—April 5, 2018-June 1, 2018,”
https://www.eda.gov/files/programs/disaster-recovery/Economic-Workshops-Report -Harvey.pdf.
50 EDA, “EDA Continues to Support the Caribbean Following the Devastating 2017 Hurricane Season,” September 20,
2021, https://eda.gov/news/blogs/2021/09/20/supporting-the-caribbean-following-devastating-2017-hurricane-
season.htm.
51 See EDA, “Where We Work,” https://eda.gov/disaster-recovery/where-we-work/#la.
52 See Figure 7 for a summary of supplemental disaster appropriations during the FY2011 -FY2021 time period.
53 EDA, “EDA Continues to Support the Caribbean Following the Devastating 2017 Hurricane Season,” September 20,
2021, https://eda.gov/news/blogs/2021/09/20/supporting-the-caribbean-following-devastating-2017-hurricane-
season.htm.
54 EDA “ After Reoccurring Flooding, Moberly, Missouri, Business Owners t o See Relief,” May 12, 2021,
https://eda.gov/success-stories/disaster/stories/moberly-mo.htm.
55 EDA, “Leading Economic Recovery Efforts in Disaster-Impacted Communities,” https://eda.gov/files/programs/
disaster-recovery/EDA-Disaster-Brochure.pdf.
56 EDA, “EDA Performance Measurement and Program Evaluation,” https://www.eda.gov/performance/.
Congressional Research Service

13

Economic Development Administration: An Overview of Programs and Appropriations

Table 2. EDA Performance Goals and Metrics
Performance Goal
Metric
Infrastructure investments that

Private sector dol ars invested in economical y distressed regions as a
promote private enterprise and
result of EDA’s investments.
job creation in economical y

distressed communities and

Jobs created or retained in economical y distressed regions as a result
of EDA’s investments.
regions.
Non-infrastructure investments

Percentage of Districts, Organizations, and Indian Tribes implementing
that build community capacity to
economic development initiatives from the Comprehensive Economic
achieve and sustain regional
Development Strategy (CEDS) process that lead to private investment
competitiveness and economic
and job creation and retention.
growth.

Percentage of sub-state jurisdiction members actively participating in
the Economic Development District (EDD) activities.

Percentage of University Center (UC) clients taking action as a result of
the assistance facilitated by the UC.

Percentage of those actions taken by UC clients that achieved the
expected results.

Percentage of Trade Adjustment Assistance Center (TAAC) clients
taking action as a result of the assistance facilitated by the TAAC.

Percentage of those actions taken by TAAC clients that achieved the
expected results.
Source: EDA, “EDA Performance Measurement and Program Evaluation,” https://www.eda.gov/performance/.
Notes: Additional performance data is col ected on local and regional economic development capacity for non -
infrastructure investments for the fol owing programs: Build to Scale, Local Technical Assistance, Partnership
Planning, and Research and National Technical Assistance. For more information, see “New Performance Data
Col ection Instruments and Processes,” https://eda.gov/performance/gpra/.
EDA Grant Programs
EDA grant programs, which are general y flexible, local y-based and regional y-oriented, are
designed to increase the capacity for state and local economic development.57 According to EDA,
between FY2012 and FY2019, the agency invested over $2.6 bil ion in 5,445 projects.58 The
agency’s grant programs and investment priorities broadly support local initiatives that “leverage
economic assets in facilitating regional economic prosperity and resiliency as wel as conditions
for business success.”59 Activities funded by EDA grant programs include infrastructure,
planning, workforce development, disaster economic recovery, and funding for business
assistance programs such as revolving loan funds, business technical assistance, innovation,
entrepreneurship, and business incubator programs,60 among others. Grant programs may also

57 Capacity is a central component of EDA’s definition of economic development . EDA defines economic development
as creating “ the conditions for economic growth and improved quality of life by expanding the capacity of individuals,
firms, and communities to maximize the use of their talents and skills t o support innovation, lower transaction costs,
and responsibly produce and trade valuable goods and services.” EDA further defines economic development capacity
building as “developing or improving community assets that businesses need to succeed. ” See EDA, “ Key
Definitions,” https://eda.gov/performance/key-definitions/.
58 EDA, “Performance Measurement and Program Evaluation,” https://www.eda.gov/performance/.
59 EDA, “Investment Priorities,” https://eda.gov/about/investment-priorities/.
60 Business incubator programs are defined as programs
designed to accelerate the development of entrepreneurial firms through an array of business support resources
and services, developed and/or orchestrated by incubator management, delivered both by incubation staff and
Congressional Research Service

14

link to page 20 link to page 45 link to page 45 Economic Development Administration: An Overview of Programs and Appropriations

support regional economic development goals by facilitating existing and emerging industry
clusters, developing human capital, strengthening supply chains, expanding access to capital, and
building innovation and technology strategies.61 No minimum or maximum project amount is
specified in law.62
Table 3 provides a summary of EDA programs. For detailed program information, see Appendix
A.63
Table 3. Summary of Major EDA Programs
Program Name
(CFDA No.)
Description
Project Examples
Public Works (11.300)
The Public Works program is designed to

Construction of a workforce
fund physical infrastructure projects such
training center.
as water and sewer systems improvements,

industrial parks, business incubator

Water and wastewater
improvements in connection
facilities, expansion of port and harbor
with the development of an
facilities, skil -training facilities, and
industrial park.
brownfields redevelopment.
Economic Adjustment
The EAA program assists communities and

Capitalization of a Revolving
Assistance (EAA) (11.307)
regions affected by natural disasters,
Loan Fund for underserved
natural resource depletion, mass layoffs,
regional businesses.
and other severe economic shocks caused

by structural impacts to regional

A study to evaluate how to
develop, sustain, and promote
economies. Revolving Loan Funds (RLFs)
businesses including retail,
are capitalized by EAA grants. See CRS In
restaurants, services, and
Focus IF11449, Economic Development
others in a downtown area.
Revolving Loan Funds (ED-RLFs), by Julie M.
Lawhorn.

Construction of a healthcare
simulation lab and telemedicine
space at a community col ege.

through its networks of outside service providers. Business incubation programs usually provide client firms
access to shared basic services and equipment, improved access to capital, and business management training.
See EDA, “Incubating Success,” David A. Lewis, Elsie Harper Anderson, and Lawrence A. Molnar,
http://edaincubatortool.org/pdf/NBIS%20Brochure-Incubating%20Success_NBIA_FINAL-3.pdf.
61 DOC, EDA, FY2022 Congressional Budget Justification, p. 120, https://www.commerce.gov/sites/default/files/2021-
05/fy2022_eda_congressional_budget_justification.pdf.
62 42 U.S.C. §3121 et seq.
63 T his report does not analyze EDA’s grant awards by program. For an analysis of EDA funding awarded by program
and other analysis, see Brett T heodos et al., “ T he Economic Development Administration’s Programs and Projects
T ypes - EDA Program Evaluation,” T he Urban Institute, October 2021, p. 6, https://www.urban.org/sites/default/files/
publication/105006/economic-development-administration-programs-and-project-types_1_0.pdf.

Congressional Research Service

15

Economic Development Administration: An Overview of Programs and Appropriations

Program Name
(CFDA No.)
Description
Project Examples
EAA—Assistance to
The ACC and NCC initiatives support

A broadband mapping project
Coal Communities
communities and regions that have been
to address current business
(ACC), Assistance to
negatively impacted by changes in the coal
access, an assessment of future
Nuclear Closure
economy or by nuclear plant closures,
needs, and regulatory matters
Communities (NCC)
respectively. In addition to ongoing annual
for a coal-impacted
initiatives, and Disaster
appropriations for the discretionary EAA
community.
Economic Recovery
grant program, Congress has authorized

Development of a post-
programs (11.307)
supplemental appropriations for EAA ACC
disaster roadmap to improve
and NCC initiatives as wel as for post-
regional economic resiliency.
disaster economic recovery and COVID-19
economic recovery efforts. EDA makes

Storm water upgrades to
ACC and NCC funding available through
minimize flooding hazards in a
the Notice of Funding Opportunity
commercial y zoned area in
(NOFO) for the Public Works and EAA
order to support job creation
programs, usual y on an annual basis.
and economic resiliency goals.
Partnership
The Partnership Planning program supports 
Funds to support the
Planning (11.302)
a national network of EDA-designated
development and
Economic Development Districts (EDDs)
implementation of the CEDS
as wel as local organizations (Indian Tribes
planning process.
and other eligible recipients) with long-
term strategic economic development
planning efforts, and helps communities
undertake focused, project-specific
planning activities.
Local Technical
The Local Technical Assistance program

A feasibility study for a
Assistance (11.303)
provides grants for management and
proposed, regional
technical services, including feasibility
entrepreneurship center.
studies or impact analyses.
University Centers
Institutions of higher education operate

Operational support for a UC
(UCs) (11.303)
University Centers that provide technical
that assists local communities
assistance to public and private sector
with an asset-based planning
organizations with the goal of enhancing
process to expand economic
local economic development.
development opportunities in
partnership with the state
agencies and regional EDDs.

Operational support for a UC
to help firms with technology
transfer and
commercialization.
Research and National
The RNTA program funds research,

A program evaluation of
Technical Assistance
evaluation, and national technical assistance
infrastructure and non-
(RNTA) (11.312 and
projects that promote competitiveness and
infrastructure EDA grants.
11.303)
innovation in distressed rural and urban

regions.

A grant to national
organizations to provide
technical assistance and
disseminate promising
strategies among coal-
impacted and nuclear closure
communities.
Congressional Research Service

16

Economic Development Administration: An Overview of Programs and Appropriations

Program Name
(CFDA No.)
Description
Project Examples
Build to Scale (Section
The Build to Scale program funds efforts to

Implementing regional
27) (11.020)
facilitate innovation and entrepreneurship
strategies that support
and increase access to risk capital. B2S is
entrepreneurship, technology
composed of the Venture Chal enge and
development,
the Capital Chal enge. The Venture
commercialization, and
Chal enge supports entrepreneurship
increased access to capital for
support programs and other models to
biomedical products,
accelerate high-growth entrepreneurship
agricultural technologies,
activities. The Capital Chal enge provides
advanced manufacturing, and
operational support to help organizations
other technology- and
and regions expand access to risk capital.
innovation-based industries.
EDA’s OIE administers the B2S program,

Operational support for a
which is authorized under Section 27 of
Prototype-to-Production
the Stevenson-Wydler Technology Act of
Hardware Accelerator
1980 (15 U.S.C. §3722).
program to help entrepreneurs
scale their business and
manufacture their products.
STEM Talent Challenge/
The STEM Talent Chal enge program funds

Development of a virtual smart
STEM Apprenticeships
efforts that expand career pathways and
factory environment to build
(Section 28) (11.023)
meet employers’ needs for a STEM capable
advanced manufacturing skil s
workforce. EDA’s OIE administers
and facilitate workforce
the STEM Talent Chal enge program, which
development.
is authorized under Section 28 of the
Stevenson-Wydler Technology Act of 1980
(15 U.S.C. §3723).
Trade Adjustment
EDA partners with nonprofit or university-

Technical assistance for
Assistance for Firms
affiliated Trade Adjustment Assistance
import-impacted companies to
(TAAF) (11.313)
Centers (TAACs) to provide technical
develop business recovery
assistance to import-impacted U.S.
plans and strategies such as
manufacturing, production and service
new product lines, updated
firms. TAAF is authorized under the Trade
information systems, and
Act of 1974, as amended (19 U.S.C. §2341
revised marketing campaigns.
et seq.).
Sources: EDA, “Programs,” https://eda.gov/programs/eda-programs/; “Annual Reports,” https://eda.gov/annual-
reports; “Funding Opportunities,” https://eda.gov/funding-opportunities/; and “Press Releases” https://eda.gov/
news/press-releases/.
Notes: CFDA No. refers to the Catalog of Federal Domestic Assistance, a searchable database of federal
domestic assistance programs (https://beta.sam.gov). Each program is identified by name and a five-digit number.
Programs are authorized by PWEDA, except where otherwise noted. Project examples provided below are for
il ustrative purposes only and do not represent al potential uses of funds.
How to Apply
Application guidance for EDA’s competitive grant programs is outlined in the agency’s Notices
of Funding Opportunities (NOFOs), which are explanations of available grant funding and
procedures.64 Applicants may also contact Economic Development Districts (EDDs) or EDA state
and regional representatives for assistance. EDA maintains an online directory, organized by state,
of EDDs and other resources and agency contacts.65

64 Information on EDA grant competitions is available at https://eda.gov/funding-opportunities/ and
http://www.grants.gov.
65 EDA, “Economic Development Directory,” https://eda.gov/resources/directory/.
Congressional Research Service

17

Economic Development Administration: An Overview of Programs and Appropriations

Select Grant Requirements
In order to receive EDA grant assistance, applicants must meet program criteria related to types of
eligible applicants, cost sharing, and other requirements.66 Requirements vary by program,
authorizing statute, and agency regulations.67
Eligible Recipients
For an entity to be eligible for EDA assistance for programs authorized by PWEDA (42 U.S.C.
§3121 et seq.), the recipient must be:
 an economic development district (EDD);
 an Indian tribe or a consortium of Indian tribes and for-profit entities that is
wholly owned by and established for the benefit of a tribe;68
 a state;69
 a city or other political subdivision of a state, including a special purpose unit of
a state or local government engaged in economic or infrastructure development
activities, or a consortium of political subdivisions;
 an institution of higher education or a consortium of institutions of higher
education; or
 a public or private nonprofit organization or association acting in cooperation
with officials of a political subdivision of a state.70
Businesses are not eligible for most grants authorized by PWEDA, but may be eligible for
Training, Research, and Technical Assistance grants.71

66 Recipients of EDA awards follow the Uniform Administrative Requirements, Cost Principles, and Audit
Requirements for Federal Awards (Uniform Guidance) as set forth in 2 C.F.R. Part 200, https://www.gpo.gov/fdsys/
pkg/CFR-2016-title2-vol1/pdf/CFR-2016-title2-vol1-part200.pdf; DOC T erms and Conditions; and other
requirements.
67 Detailed program requirements are outlined in Notice of Funding Opportunities (NOFOs) (see https://eda.gov/
funding-opportunities/) and in agency regulations (see 13 C.F.R. Part 300).
68 T he term Indian tribe means an entity on the list of recognized tribes published pursuant to the Federally Recognized
Indian T ribe List Act of 1994, as amended (P.L. 103-454) (25 U.S.C. §479a et seq.), and any Alaska Native Village or
Regional Corporation (as defined in or established under the Alaska Native Claims Settlement Act ( 43 U.S.C. §1601 et
seq.). T his term includes t he governing body of an Indian t ribe, Indian corporation (restricted to Indians), Indian
authority, or other nonprofit Indian tribal organization or entity; provided that the Indian tribal organization,
corporation, or entity is wholly owned by, and established for the benefit of, the Indian t ribe or Alaska Native Village.
13 C.F.R. §300.3. A rule published in the Federal Register on September 24, 2021, extended EDA t ribal eligibility to
include for-profit entities that are wholly owned by and established for the benefit of a tribe. See EDA, U.S.
Department of Commerce, “ Permitting Additional Eligible T ribal Entities,” 86 Federal Register 52957-52959,
September 24, 2021, https://www.federalregister.gov/documents/2021/09/24/2021-20633/permitting-additional-
eligible-tribal-entities.
69 A state means a state, the District of Columbia, the Commonwealth of Puerto Rico, the Virgin Islands, Guam,
American Samoa, the Commonwealth of the Northern Mariana Islands, the Republic of the Marshall Islands, the
Federated States of Micronesia, and the Republic of Palau. 42 U.S.C. §3122.
70 T he Economic Development Administration Reauthorization Act of 2004 ( P.L. 108-373) authorized select nonprofits
as eligible recipients.
71 42 U.S.C. §3122(4) and 13 C.F.R. §300.3. T raining, Research, and T echnical Assistance Investment grants are
authorized under 42 U.S.C. §3147.
Businesses may receive EDA-supported loans and technical assistance to support expansion and entrepreneurial
Congressional Research Service

18

Economic Development Administration: An Overview of Programs and Appropriations

The types of applicants eligible for the Build to Scale (B2S) and STEM Talent Chal enge
programs, which are authorized by the Stevenson-Wydler Technology Innovation Act of 1980 (15
U.S.C. §§3722 and 3723), not PWEDA, include:
 A state;
 An Indian tribe;
 A city or other political subdivision of a state;
 An entity that is—
 a nonprofit organization,
 an institution of higher education,
 a public-private partnership,
 a science or research park,
 a federal laboratory, or
 an economic development organization or similar; and
 A consortium of any of the immediately aforementioned entities.
Additional y, a venture development organization may be an eligible applicant for the B2S
program. According to the EDA, select entities may be required to demonstrate that the
application is supported by a state or a political subdivision of a state for the B2S and STEM
Talent Chal enge programs.72
For the TAAF program, which is authorized by the Trade Act of 1974, as amended (19 U.S.C.
§2341 et seq.), the following types of entities can apply to operate a TAAC:
 Universities or affiliated organizations;
 States or local governments; and
 Nonprofit organizations.73
Cost Sharing Requirements
Cost sharing is required for most EDA grant programs although some exceptions may apply.
General y, EDA investment funds 50% of total project costs. Requirements may vary based on the
program, a determination of special need, type of applicant, and other factors. The Secretary may
increase the federal share for a grant to Indian tribes or when certain grantees have exhausted
their effective taxing and borrowing capacity or for other circumstances.74 The Secretary may also
increase the federal share up to 100% for RNTA grants. Agency regulations describe the

activities. For instance, qualifying businesses may receive a loan from an intermediary operating an EDA -supported
Revolving Loan Fund (RLF) and the loan must be repaid with interest. T here are approximately 400
organizations administering EDA-funded RLFs. See EDA, “ Revolving Loan Fund Program,” https://www.eda.gov/rlf/.
For more information, see CRS In Focus IF11449, Econom ic Development Revolving Loan Funds (ED-RLFs), by Julie
M. Lawhorn; and CRS Insight IN11419, COVID-19: Selected Federal Resources for Businesses Seeking to Assist with
Research and Manufacturing Efforts, by Maria Kreiser. Businesses may also receive direct technical assistance
through projects funded by EDA grants, University Center, or T rade Adjustment Assistance Center partners.
72 EDA, “NOFO—2020 Build to Scale Program—Concept Proposal,” EDA-HDQ-OIE-2020, https://www.grants.gov/
web/grants/view-opportunity.html?oppId=324375, and “ NOFO—2020 ST EM, EDA-HDQ-OIE-2020-2006617,
https://eda.gov/files/oie/stem/Section-28-ST EM-Talent-Challenge-NOFO.pdf.
73 13 C.F.R. §315.4.
74 42 U.S.C. §3144.
Congressional Research Service

19

link to page 29 Economic Development Administration: An Overview of Programs and Appropriations

conditions in which “projects subject to a Special Need” may receive a higher investment rate.
This includes, but is not limited to, post-disaster economic recovery projects and, as noted,
projects by Indian tribes, among other circumstances and conditions.75
Select Grant Requirements—Public Works and Economic
Adjustment Assistance Programs
The following select grant program requirements apply to two of the EDA’s economic
development assistance programs, the Public Works and Economic Adjustment Assistance
(PWEAA) programs, which accounted for over half of EDA’s program funding in FY2021 (see
Figure 5).76
Economic Distress Criteria
For a project to be eligible for assistance under the PWEAA programs,
The project shall be located in an area that, on the date of submission of the application,
meets one or more of the following criteria:
- An unemployment rate that is, for the most recent 24-month period for which data are
available, at least one percentage point greater than the national average unemployment
rate;
- Per capita income that is, for the most recent period for which data are available, 80
percent or less of the national average per capita income; or
- A special need, as determined by EDA.”77
These criteria are also used for the EDD designation. An EDD must “contain at least one
geographic area that fulfil s the economic distress criteria” among other requirements.78
Comprehensive Economic Development Strategies (CEDS)
The Comprehensive Economic Development Strategy (CEDS) is a local y-developed, long-term
regional economic development plan. Projects must serve an area that has a CEDS or equivalent
strategy in order to be eligible for Public Works and Economic Adjustment Assistance funding.79
However, the CEDS requirement may be waived in some instances.80 The EDA provides funding
to EDDs to carry out and implement the CEDS under its Partnership Planning program.81

75 13 C.F.R. §301.4, Subpart D—Investment Rates and Matching Share Requirements.
76 See agency regulations (13 C.F.R. Chapter III) for detailed program requirements. See also EDA, “EDA
Informational Brochure,” https://eda.gov/pdf/about/EDA-trifold-2017.pdf.
77 42 U.S.C. §3121 et seq. EDA’s regulations describe the economic distress criteria at 13 C.F.R. §300, Subpart C—
Economic Distress Criteria.
78 42 U.S.C. §3171. The EDA also encourages University Centers (42 U.S.C. §3147(a)(2)(D)) to provide services that
benefit distressed areas in their region (13 C.F.R. §306.5(a)). See EDA, NOFO—FY 2021 EDA University Center
Econom ic Developm ent Program Com petition , EDA-CHI-T A-CRO-2021-2006893 and EDA-CHI-T A-CRO-2021-
2006894, https://www.grants.gov/web/grants/view-opportunity.html?oppId=332622.
79 EDA, “Comprehensive Economic Development Strategies,” https://eda.gov/ceds/. According to EDA, “EDA
supports the CEDS Resource Library at http://www.statsamerica.org/ceds/Default.aspx where applicants can determine
whether their region is served by an EDD and locate the most recent CEDS”—see http://www.statsamerica.org/ceds.
80 42 U.S.C. §3149(b)(2); 42 U.S.C §3162; 13 C.F.R. §307.5.
81 EDA, “Planning Program,” https://eda.gov/pdf/about/Planning-Program-1-Pager.pdf.
Congressional Research Service

20

link to page 26 link to page 26 Economic Development Administration: An Overview of Programs and Appropriations

CEDS involves both a planning process and the development of a regional framework for
selecting and prioritizing economic development strategies—general y developed with an asset-
based approach. To complete the CEDS, regional stakeholders engage local leaders, private sector
firms, individuals, organizations, institutions of learning, and other participants. An organization
must have a CEDS in order to receive EDA’s EDD designation.82 The EDA requires a CEDS
update every five years.83 EDA regulations require that CEDS include elements outlined in Table
4. According to the EDA, CEDS must also incorporate the concept of economic resilience.84
Table 4. Core Elements of a Comprehensive Economic Development Strategy
(CEDS)
CEDS Element
Description
Summary Background
A summary of the economic conditions of the region.
SWOT Analysis
An in-depth analysis of regional strengths, weaknesses, opportunities and threats.
Strategic Direction/Action Plan
The strategic direction and action plan should build on findings from the SWOT
analysis and incorporate elements from other regional plans (e.g., land use and
transportation, workforce development, etc.) where appropriate, as determined
by the EDD or community/region engaged in development of the CEDS. The
action plan should also identify the stakeholder(s) responsible for implementation,
timetables, and opportunities for the integrated use of other local, state, and
federal funds.
Evaluation
The strategic direction and action plan should build on findings from the SWOT
Framework/Performance
analysis and incorporate/integrate elements from other regional plans (e.g., land
Measures
use and transportation, workforce development, etc.) where appropriate, as
determined by the EDD or community/region engaged in development of the
CEDS. The action plan should also identify the stakeholder(s) responsible for
implementation, timetables, and opportunities for the integrated use of other local,
state, and federal funds.
Sources: 13 C.F.R. §303.7 and EDA, “Comprehensive Economic Development Strategies,” https://eda.gov/ceds/.
Notes: EDA provides “Content Guidelines” with additional resources for CEDS development and suggestions
for CEDS content. However, beyond the four required sections and economic resilience component, the CEDS
content and CEDS development process is managed by local and regional stakeholders.
Persistent Poverty and Distressed, Small, Rural and Underserved
Areas—Funding and Technical Assistance
In reports accompanying the FY2020 and FY2021 appropriations bil s, Congress has signaled an
interest in prioritizing EDA funding for persistent poverty counties and in understanding the level
of funding and technical assistance provided to distressed, smal , rural, and underserved areas.85

82 13 C.F.R. §304.1.
83 13 C.F.R. §303.6.
84 EDA regulations specify that each regional CEDS must promote resiliency. Economic resilience in the context of the
CEDS is related to “ the ability to avoid, withstand, and recover from economic shifts, natural disasters, the impacts of
climate change, etc.” See 13 C.F.R. §303.7 and EDA, “Comprehensive Economic Development Strategies,”
https://eda.gov/ceds/.
85 See Congressional Record, December 17, 2019, pp. H10961-10962, https://www.govinfo.gov/content/pkg/CREC-
2019-12-17/pdf/CREC-2019-12-17-house-bk2.pdf; and Congressional Record, December 21, 2020, pp. H7922-7923,
https://www.govinfo.gov/content/pkg/CREC-2020-12-21/pdf/CREC-2020-12-21-house-bk3.pdf.
Congressional Research Service

21

Economic Development Administration: An Overview of Programs and Appropriations

In terms of persistent poverty counties, Congress has directed a portion of EDA assistance to
areas that have experienced high unemployment or high poverty levels for a certain period of
time through the “10-20-30” provision in recent appropriations bil s.86 The provision directs 10%
of federal funds for specific programs to counties with 20% poverty rates or more for the past 30
years.87 EDA applies the 10-20-30 provision to the Public Works and Build to Scale programs.88
In regards to distressed, smal , rural, and underserved areas, Congress requires EDA to report on
activities related to program outcomes, and directs the agency to provide technical assistance to
these areas. Congress and EDA have indicated their interests in these areas in the following ways:
 PWEDA requires EDA to include information in its annual report about private
sector leveraging goals set for investments awarded to rural and urban
economical y distressed areas and to highly distressed areas.89
 In FY2021, Congress directed EDA to support technical assistance for distressed
small, rural, and underserved communities for “pre-development activities
associated with accessing EDA programs and services.”90
 In FY2021, EDA made a Research and National Technical Assistance (RNTA)
award for the “Advancing Economic Development in Persistently Poor
Communities” project. According to EDA, the project “wil identify and analyze
areas of persistent poverty in the United States, develop a typology of
persistently poor places based on their needs to better inform future policy
approaches, and assess how effective past EDA investments have been in
al eviating deprivation in areas suffering from persistent poverty.”91
 The six new ARP Act grant programs launched in July 2021 wil consider the
agency’s new investment priority—equity—as well strategies to serve
communities disproportionately impacted by the pandemic.92 The EDA provided
additional detail on definitions for underserved communities, geographies, and
other terms when it released revised investment priorities in April 2021.93

86 By example, see annual appropriations bills: P.L. 115-31 (FY2017), P.L. 115-141 (FY2018), P.L. 116-6 (FY2019),
P.L. 116-93 (FY2020), and P.L. 116-260 (FY2021). T he 10-20-30 provision has also been applied to USDA Rural
Development programs and was applied in the American Recovery and Reinvestment Act of 2009 (ARRA, P.L. 111-
5).
87 For more information, see CRS Report R45100, The 10-20-30 Provision: Defining Persistent Poverty Counties, by
Joseph Dalaker.
88 GAO, “Areas with High Poverty—Changing How the 10-20-30 Funding Formula Is Applied Could Increase Impact
in Persistent Poverty Counties,” GAO-21-470, May 27, 2021, https://www.gao.gov/assets/gao-21-470.pdf. For EDA’s
list of Persistent Poverty Counties, see https://eda.gov/performance/tools/.
89 42 U.S.C. §3213. For an example of such reports and data, see EDA, FY2019 Annual Report, pp. 8-10,
https://eda.gov/files/annual-reports/fy2019/FY2019-Approved-EDA-Annual-Report.pdf.
90 Rep. Nita Lowey, “Explanatory Statement Submitted by Mrs. Lowey, Chairwoman of the House Committee on
Appropriations Regarding H.R. 133, Consolidated Appropriations Act, 2021 (Division B—Commerce, Justice,
Science, and Related Agencies),” Congressional Record, vol. 166, No. 218-Book III (December 21, 2020), pp. H7922-
7923, https://www.congress.gov/congressional-record/2020/12/21/house-section/article/H7879-2.
91 EDA, “ T ackling Persistent Poverty Is Goal of New EEDA-Economic Innovation Group Initiative,” July 19, 2021,
https://eda.gov/news/blogs/2021/07/19/eig.htm.
92 EDA, “EDA’s American Rescue Plan Programs,” https://eda.gov/arpa/.
93 EDA, “EDA Investment Priorities—Definitions,” https://eda.gov/files/about/investment-priorities/EDA-FY21-
Investment -Priorities-Definitions-June.pdf.
Additionally, per Executive Order 13985 federal agencies are required to conduct an assessment of “ whether, and to
what extent, its programs and policies perpetuate systemic barriers to opportunities and benefits for people of color and
Congressional Research Service

22

link to page 23 link to page 29 Economic Development Administration: An Overview of Programs and Appropriations

Assistance to Tribal Communities
EDA provides assistance to tribal communities in several ways. In addition to being eligible
recipients of EDA grant assistance (see “Eligible Recipients” above), grants may be up to 100%
of the cost of the project for tribes and consortiums of tribes.94 As noted previously, in October
2021, EDA implemented a rule to al ow for-profit tribal entities that are wholly owned by and
established for the benefit of the tribe to be eligible for EDA assistance.95 Additional y, in
FY2021, EDA al ocated $100 mil ion in ARP Act funding to the EDA’s Indigenous Communities
program, and tribes, consortiums of tribes, and other entities that serve indigenous communities
are eligible recipients.96 The Indigenous Communities program was EDA’s first program
developed specifical y for Indigenous communities.97
EDA Appropriations, FY2011—FY2021
For the FY2011-FY2021 period, annual appropriations for EDA programs and administration
expenses averaged $280 mil ion (not adjusted for inflation) excluding disaster and COVID-19
supplemental appropriations.98 Figure 5 provides a chart of the amounts al ocated to major EDA
programs since FY2011. Congress general y directs EDA to al ocate the largest share of its annual
appropriations to the Public Works program, with the second largest share of annual
appropriations directed to the EAA program. However, in FY2021, the al ocation for the Build to
Scale program was slightly higher than the al ocation for the EAA program ($38 mil ion
compared to $37.5 mil ion, respectively).

other underserved groups. Such assessments will better equip agencies to develop po licies and programs that deliver
resources and benefits equitably to all.” See https://www.govinfo.gov/content/pkg/FR-2021-01-25/pdf/2021-01753.pdf.
94 42 U.S.C. §3144.
95 See EDA, U.S. Department of Commerce, “ Permitting Additional Eligible T ribal Entities,” 86 Federal Register
52957-52959, September 24, 2021, https://www.federalregister.gov/documents/2021/09/24/2021-20633/permitting-
additional-eligible-tribal-entities.
96 EDA, “Indigenous Communities,” https://eda.gov/arpa/indigenous/.
97 EDA, “ EDA Updates Regulations to Make Grants More Accessible t o Native American Communities,” September
24, 2021, https://eda.gov/news/blogs/2021/09/24/updated-regulations-native-american-communities.htm.
98 For a summary of EDA programs and appropriations prior to FY2011, see Robert W. Lake, Robin Leichenko, and
Amy Glasmeier, “ EDA and U.S. Economic Distress 1965–2000,” EDA Research Report, 99-07-13812, July 2004,
http://www.ipsr.ku.edu/KUforKS/2004julyEDAandUSeconomicdistressreport.pdf.
Congressional Research Service

23

link to page 53

Economic Development Administration: An Overview of Programs and Appropriations

Figure 5. Funding for EDA Programs, FY2011- FY2021 and FY2022 Request
(in mil ions of nominal dol ars)

Source: CRS using information from the reports accompanying annual appropriations bil s and EDA’s FY2022
Congressional Budget Justification, https://www.commerce.gov/sites/default/files/2021-05/
fy2022_eda_congressional_budget_justification.pdf. For a breakdown of funding amounts by program, by fiscal
year, see Table B-2.
Notes: Excludes supplemental appropriations and funding proposed for EDA programs in the FY2022 House-
passed “Build Back Better Act” (H.R. 5376). The asterisk (*) indicates that the FY2013 levels are the post-
sequestration amounts. EDA renamed the Regional Innovation Strategies program in FY2020.
Assistance to Coal and Nuclear Closure Communities
Congress has signaled an interest in using the EDA to provide financial and technical assistance
to communities impacted by changes in the coal economy since FY2014, and to communities
impacted by nuclear plant closures since FY2015. The following milestones highlight Congress’s
interest in providing assistance to coal and nuclear closure communities since FY2014:
 In FY2014, Congress encouraged EDA to assist communities impacted by the
“economic dislocation in the coal and timber industries,” and directed EDA to
al ocate no less than $3 mil ion “to enhance regional business development in
areas negatively impacted by the downturn in the coal industry.”99

99 See explanatory statement accompanying the Consolidated Appropriations Act, 2014 (P.L. 113-76), printed in the
January 15, 2014, Congressional Record (pp. H507-H532), https://www.congress.gov/congressional-record/2014/01/
15/house-section/article/H475-2.
Congressional Research Service

24

link to page 13 link to page 13 Economic Development Administration: An Overview of Programs and Appropriations

 In FY2015, a Senate appropriations report noted the negative, regional economic
impact of nuclear plant closures and encouraged EDA to “identify and develop
best practices” to assist communities.100
 Between FY2015 and FY2017, Congress continued to direct EDA to provide
additional funding through the EAA program to coal-impacted communities as a
part of the multi-agency Partnerships for Opportunity and Workforce and
Economic Revitalization (POWER) Initiative.101
 Each year in FY2018 through FY2021, Congress directed EDA to provide
additional funding through the EAA program to coal-impacted communities as a
part of the Assistance to Coal Communities (ACC) initiative.102
 In FY2020 and FY2021, Congress directed EDA to provide additional funding
through the EAA program to the Assistance to Nuclear Closure Communities
(NCC) initiative.103
Figure 3 charts the amounts of annual appropriations that EDA has al ocated to the EAA, ACC,
and NCC programs since FY2011. The funding for the EAA, ACC, and NCC programs together
account for approximately 25-30% of total EDA appropriations annual y.104 In FY2021, EDA
al ocated $300 mil ion of the $3 bil ion appropriation from the ARP Act to coal-impacted
communities through the Coal Communities Commitment (CCC); CCC funding is not included
in Figure 3.105

100 S.Rept. 113-181.
101 In FY2015 and FY2016, Congress directed EDA to allocate funding to “Assistance to Coal Communities” (see
explanatory statements accompanying the FY2015 and FY2016 appropriations bills, P.L. 113-235 and P.L. 114-113).
In FY2015 and FY2016, the ACC initiative was administered as a component of the multi-agency POWER Initiative—
a coordinated federal effort to assist coal-impacted communities. T he Appalachian Regional Commission’s (ARC’s)
POWER Initiative and the EDA’s ACC initiative were developed as part of the Obama Administration’s POWER+
Plan (FY2015-FY2016). At the time, the POWER Initiative was the multi-agency economic development component.
During the T rump Administration, ARC’s POWER Initiative and the EDA’s ACC initiative continued to operate, but
were no longer a part of a cross-agency POWER Initiative. See CRS Report R46015, The POWER Initiative: Energy
Transition as Econom ic Developm ent, by Julie M. Lawhorn.
102 EDA, “ FY 2018 Economic Development Assistance Programs Notice of Funding Opportunity,” p. 7,
https://www.grants.gov/web/grants/view-opportunity.html?oppId=306735.
103 In FY2020, Congress directed EDA to allocate $15 million to the Assistance to Nuclear Closure Communities
(NCC) initiative (P.L. 116-93; see also Congressional Record, December 17, 2019, pp. H10961-10962). In FY2021,
Congress directed EDA to allocate $16.5 million to the NCC initiative (P.L. 116-260; see also Congressional Record,
December 21, 2020, pp. H7922-7923).
104 T he ACC and NCC initiatives are not independently authorized; congressional intent for funding the ACC and NCC
initiatives is outlined in the explanatory statements accompanying annual appropriations committee reports. For
additional information, including legislative origins, see CRS Insight IN11648, The Econom ic Developm ent
Administration’s Assistance to Coal and Nuclear Closure Communities Initiatives for Economic Transitions, by Julie
M. Lawhorn.
105 See EDA, “ Coal Communities Commitment ,” https://eda.gov/arpa/coal-communities/, which notes that t he Initial
Report to the President on Em powering Workers Through Revitalizing Energy Com m unities (April 2021), developed
by President Biden’s Interagency Working Group, recommended focused federal investments fo r coal-impacted
communities. T he report is available at https://netl.doe.gov/sites/default/files/2021-04/
Initial%20Report%20on%20Energy%20Communities_Apr2021.pdf.
Congressional Research Service

25

Economic Development Administration: An Overview of Programs and Appropriations

Figure 6. EAA, ACC, NCC Funding History: FY2011-FY2021 and FY2022 Request
(in mil ions of nominal dol ars)

Sources: CRS using information from reports accompanying annual appropriations bil s, and EDA’s FY2022
Congressional Budget Justification, https://www.commerce.gov/sites/d efault/files/2021-05/
fy2022_eda_congressional_budget_justification.pdf.
Notes: Does not include supplemental appropriations for disaster or COVID-19 economic recovery assistance
or funding proposed for EDA programs in the FY2022 House-passed “Build Back Better Act” (H.R. 5376). The
asterisk (*) indicates that the FY2013 level is the post-sequestration amount.
Consolidated Appropriations Act of 2021, P.L. 116-260
On December 27, 2020, Congress approved, and the President signed into law, the Consolidated
Appropriations Act of 2021 (P.L. 116-260), providing appropriations for a number of federal
agencies and departments, including the programs and activities of the EDA. The act provided
$346 mil ion for EDA, including $305.5 mil ion for programs and activities and $40.5 mil ion for
salaries and expenses. EDA’s FY2021 appropriations included a 12% increase (from $30 mil ion
to $33.5 mil ion) in the amount of funds for the ACC initiative, and a 10% increase (from $15
mil ion to $16.5 mil ion) in the second year of funding for the NCC initiative. The act also
included $38 mil ion for the Build to Scale program, which was an increase of $5 mil ion over the
program funding level in FY2020.106 In addition, P.L. 116-260 included a provision rescinding
$10 mil ion in unobligated balances from prior year appropriations for economic development
assistance programs.107
Report language accompanying the FY2021 appropriations bil provided additional direction to
EDA on the following matters:
 geographic equity and rural economic development chal enges;

106 Rep. Nita Lowey, “Explanatory Statement Submitted by Mrs. Lowey, Chairwoman of the House Committee on
Appropriations Regarding H.R. 133, Consolidated Appropriations Act, 2021 (Division B—Commerce, Justice,
Science, and Related Agencies),” Congressional Record, vol. 166, no. 218-Book III (December 21, 2020), pp. H7922-
7923, https://www.congress.gov/congressional-record/2020/12/21/house-section/article/H7879-2.
107 According to OMB, “Unobligated balances refers to balances that have not yet been committed by contract or other
legally binding action by the government.” See OMB, Budget of the United States, FY2022, p. 5,
https://www.govinfo.gov/content/pkg/BUDGET -2021-BALANCES/pdf/BUDGET -2021-BALANCES.pdf.
Congressional Research Service

26

link to page 34 Economic Development Administration: An Overview of Programs and Appropriations

 EDA’s collaborations with the Delta Regional Authority, the Appalachian
Regional Commission, and the Northern Border Regional Commission to assist
distressed communities;
 EDA’s technical assistance outreach and capabilities on projects involving
manufacturing and energy efficiency, and for distressed communities broadly;
 the al ocation and distribution of B2S funding; and
 the facilitation of economic development involving specific activities or sectors
such as new forest products, outdoor recreation, and aeronautics-related
industries; among others.108
Supplemental Appropriations
Supplemental appropriations for EDA programs have supported recovery efforts following
economic injury caused by natural disasters and the COVID-19 pandemic. Disaster funding
provides for expenses related to flood mitigation, disaster relief, long-term recovery, and the
restoration of infrastructure for specific areas.109 COVID-19 economic recovery funding is
supporting economic recovery planning and technical assistance strategies to address economic
dislocations caused by the coronavirus pandemic; entrepreneurial support programs to diversify
economies; and related efforts.110 EDA’s distribution and al ocation strategy for supplemental
appropriations varies by each event or situation.111
Disaster Economic Recovery Assistance, FY2011-FY2021
Since FY2011, Congress has approved $1.4 bil ion in supplemental funding for economic
recovery in response to natural disasters (see Figure 7), including the following appropriations:
 In FY2012, Congress approved $200 mil ion for assistance to areas that received
a major disaster designation in 2011 pursuant to the Robert T. Stafford Disaster
Relief and Emergency Assistance Act.112
 In FY2018 and FY2019, supplemental appropriations provided $1.2 bil ion for
assistance to communities affected by disasters that occurred in calendar years
2017-2019.
 The Bipartisan Budget Act of 2018 (P.L. 115-123) provided EDA with $600
mil ion in additional Economic Adjustment Assistance (EAA) funds for
disaster relief and in response to economic distress or harm resulting from

108 Rep. Nita Lowey, “Explanatory Statement Submitted by Mrs. Lowey, Chairwoman of the House Committee on
Appropriations Regarding H.R. 133, Consolidated Appropriations Act, 2021 (Division B—Commerce, Justice,
Science, and Related Agencies),” Congressional Record, vol. 166, no. 218-Book III (December 21, 2020), pp. H7922-
7923, https://www.congress.gov/congressional-record/2020/12/21/house-section/article/H7879-2.
109 By example, see P.L. 116-120, which authorizes appropriations for disaster economic recovery activities under
Section 703 of the Public Works and Economic Development Act (42 U.S.C. §3233).
110 By example, see P.L. 116-260.
111 T estimony by Mr. Dennis Alvord, Acting Assistant Secretary of Commerce for EDA, U.S. House of
Representatives, Committee on T ransportation and Infrastructure, Subcommittee on Economic Development, Public
Buildings and Emergency Management , Investing in Am erica: Reauthorization of the Econom ic Developm ent
Adm inistration, 117th Cong., 1st sess., April 28, 2021, https://www.congress.gov/117/meeting/house/112512/witnesses/
HHRG-117-PW13-Wstate-AlvordD-20210428.pdf.
112 P.L. 112-55.
Congressional Research Service

27

link to page 34 Economic Development Administration: An Overview of Programs and Appropriations

Hurricanes Harvey, Irma, and Maria, wildfires and other federal y-declared
natural disasters occurring in calendar year 2017.
 The Additional Supplemental Appropriations for Disaster Relief Act, 2019
(P.L. 116-120) provided EDA with $600 mil ion in additional EAA funds for
areas that received a major disaster designation under the Robert T. Stafford
Act as a result of Hurricanes Florence, Michael, and Lane, Typhoons Yutu
and Mangkhut, wildfires, volcanic eruptions, earthquakes, and other natural
disasters occurring in calendar year 2018, as wel as for areas affected by
tornadoes and floods occurring in calendar year 2019.113
COVID-19 Economic Recovery Assistance, FY2020-FY2021
EDA received $1.5 bil ion of supplemental appropriations through the Coronavirus Aid, Relief,
and Economic Security (CARES) Act (P.L. 116-136) in FY2020, and $3 bil ion of supplemental
appropriations through the American Rescue Plan (ARP) Act (P.L. 117-2) in FY2021. As noted
previously, the supplemental CARES Act funding was nearly five times the amount of EDA’s
FY2020 annual appropriation, and the ARP Act funding was over eight times the amount of
EDA’s FY2021 annual appropriation—see Figure 7.
CARES Act, P.L. 116-136
The types of projects supported through CARES Act recovery assistance included:
 economic recovery planning and preparing technical assistance strategies to
address economic dislocations caused by the COVID-19 pandemic;
 preparing or updating resiliency plans to respond to future pandemics;
 implementing entrepreneurial support programs to diversify economies;
 constructing public works and facilities that wil support economic recovery, and
including the deployment of broadband to support telehealth and remote learning
for job skil s.
Al geographic areas were eligible to apply for assistance under the “Special Need” criteria of the
EAA program because of the widespread effects of the COVID-19 pandemic.114 EDA used both
competitive and non-competitive processes to distribute CARES Act funding. Activities that
received funding through non-competitive processes included EDDs and tribal planning grantees;
University Centers; and Revolving Loan Fund (RLF) programs.115
American Rescue Plan (ARP) Act, P.L. 117-2
The ARP Act provided $3 bil ion to assist communities with COVID-19 recovery and resiliency
strategies. These funds are available for economic adjustment assistance, to prevent, prepare for,
and respond to COVID-19 conditions and for necessary expenses for responding to economic

113 EDA, “Disaster Supplemental Funding,” https://eda.gov/disaster-recovery/supplemental/.
114 42 U.S.C. §3149(b).
115 For more information on the EDA’s COVID-19 response, see CRS Insight IN11402, The Economic Development
Administration’s Economic Recovery Assistance for COVID-19 Impacted Communities, by Julie M. Lawhorn; and
DOC, “ CARES Act Implementation Plan,” June 2020, https://www.commerce.gov/sites/default/files/2020-
07/Commerce%20CARES%20Act%20Implementation%20Plan —Section%2015011%20PRAC%20Report—
June%202020—Final.pdf.
Congressional Research Service

28

Economic Development Administration: An Overview of Programs and Appropriations

injury as a result of the COVID-19 pandemic. Of this amount, 25% wil be for states and
communities that have been affected by the decline in the “travel, tourism, or outdoor recreation
sectors.” EDA wil administer ARP Act recovery assistance through the following six new grant
programs, each with different investment criteria and priorities:116
 the Build Back Better Regional Chal enge;117
 the Good Jobs Chal enge;
 the Economic Adjustment Assistance Program;
 the Indigenous Communities Chal enge;
 the Travel, Tourism, and Outdoor Recreation Program; and
 the Statewide Planning, Research, and Networks Program.
Figure 7. Annual and Supplemental and Disaster Recovery Appropriations,
FY2011-FY2021
(in mil ions of nominal dol ars)

Source: CRS using information from the reports accompanying appropriations bil s.
Notes: Annual appropriations include funding for programs and salaries and expenses. In FY2012, annual
appropriations for programs and disaster recovery assistance were approved in one bil , the Consolidated and
Further Continuing Appropriations Act, 2012 (P.L. 112-55). In FY2018 through FY2021, supplemental
appropriations for disaster recovery assistance and COVID-19 pandemic economic recovery assistance were
approved in bil s separate from annual appropriations bil s. The asterisk (*) indicates that the FY2013 level is the
post-sequestration amount.
FY2022 Funding Request
The Biden Administration proposed increased annual appropriations for EDA. The EDA’s
FY2022 congressional budget request included $433 mil ion for the EDA, an amount that is
almost 25% above the FY2021 enacted level of $346 mil ion. The request cal ed for increases in

116 For more information about the six ARP Act grant programs, see CRS Insight IN11712, The Economic
Development Administration’s American Rescue Plan (ARP) Act Grant Programs, by Julie M. Lawhorn.
117 T he EDA allocated one third of the total amount of ARP Act appropriations ($1 billion of a total $3 billion in ARP
Act funding) to the Build Back Better Regional Challenge (BBRC) to support new or existing regional innovation
clusters. On December 13, 2021, EDA announced awards to 60 coalitions through Phase 1 of the BBRC program ; see
https://eda.gov/news/press-releases/2021/12/13/build-back-better-regional-challenge-finalists.htm.
Congressional Research Service

29

link to page 35 Economic Development Administration: An Overview of Programs and Appropriations

funding levels for almost al of EDA’s programs, with the exception of the Trade Adjustment
Assistance for Firms program and the Assistance to Nuclear Closure Communities initiative. The
largest nominal increases in program funding from FY2021 enacted levels were proposed for:
 the STEM Talent Chal enge (“STEM Apprenticeships”) (from $2 mil ion to $10
mil ion in FY2022),
 the Build to Scale program (from $38 mil ion to $45 mil ion in FY2022),
 the Economic Adjustment Assistance program (from $37.5 mil ion to $48 mil ion
in FY2022),
 the ACC initiative (from $33.5 mil ion to $80.5 mil ion in FY2022), and
 salaries and expenses (from $40.5 mil ion to $50.1 mil ion in FY2022).118
Table 5 provides a summary of funding for EDA programs in annual and supplemental
appropriations bil s enacted in FY2021—as wel as the requested FY2022 amounts, the House
and Senate recommended amounts, and supplemental amounts in the House-passed “Build Back
Better Act” (BBBA) in FY2022.
Table 5. FY2021 Regular Appropriations, ARP Act, and FY2022 Request, House,
Senate, and House-Passed BBBA
(budget authority, in mil ions of nominal dol ars)

FY2021 Enacted
FY2022
P.L. 116-
ARP Act,
House
Senate
BBBA

260
P.L. 117-2
Request
(H.R. 4505)
Draft Bill
(H.R. 5376)
EDA Programs

Public Works
119.5

124.0
124.0
124.0

Economic Adjustment
37.5
3,000.0
48.0
42.5
40.0
5,040.0
Assistance
Partnership Planning
33.5

36.0
36.0
36.5

Technical Assistance
10.0

14.0
14.0
19.0

Research and Evaluation
1.5

2.0
2.0
2.5

Traded Adjustment Assistance
13.5

13.0
13.5
13.0

for Firms (TAAF)
Assist. Coal Communities
37.5

80.5
80.5

(ACC)
Assist. Nuclear Closure (NCC)
16.5

10.0
10.0

Assist. Power Plant Closure

55.0

Communities
STEM Apprenticeships (Sec. 28)
2.0

10.0
10.0
5.0

Build to Scale (Sec. 27)
38.0

45.0
50.0
50.0

Subtotal Programs
305.5
3,000.0
382.5
382.5
345.0
5,040.0

118 DOC, EDA, FY2022 Congressional Budget Justification, https://www.commerce.gov/sites/default/files/2021-05/
fy2022_eda_congressional_budget_justification.pdf.
Congressional Research Service

30

link to page 25 Economic Development Administration: An Overview of Programs and Appropriations

FY2021 Enacted
FY2022
P.L. 116-
ARP Act,
House
Senate
BBBA

260
P.L. 117-2
Request
(H.R. 4505)
Draft Bill
(H.R. 5376)
Salaries and Expenses
40.5

$50.6
50.6
50.0
210.0
Total
346.0
3,000.0
433.1
433.1
395.0
5,250.0
Sources: Sources for FY2021 amounts are from the explanatory statements accompanying P.L. 116-260 and P.L.
117-2. FY2022 requested and House committee-reported amounts were taken from H.Rept. 117-97 and DOC,
EDA, FY2022 Congressional Budget Justification, https://www.commerce.gov/sites/default/files/2021-05/
fy2022_eda_congressional_budget_justification.pdf. Senate Committee on Appropriations majority draft bil
amounts were taken from the text of the FY2022 Commerce, Justice, and Science (CJS) draft bil (S. 3042 and
joint explanatory statement posted on the Senate Committee on Appropriations’ website at
https://www.appropriations.senate.gov/news/majority/chairman-leahy-relea ses-rema ining-nine-senate-
appropriations-bil s). Amounts for the “Build Back Better Act” (H.R. 5376) funding prepared by CRS based on
the text of H.R. 5376, as approved by the House on 11/3/2021, https://rules.house.gov/bil /117/hr-5376.
Notes: Funding in the “Build Back Better Act” (H.R. 5376) has periods of availability ranging from FY2027
through FY2031. The EDA is currently operating, as al federal agencies are, under continuing appropriations for
FY2022.
Policy Considerations
The following policy considerations center on EDA programs and the factors that affect the
distribution of assistance; the agency’s role in federal economic development integration and in
disaster economic recovery and resiliency; the extent of innovation and technology-led economic
development activities in EDA’s investment portfolio; and options for EDA investments in
workforce and human capital development. These considerations, among others, may inform
Congress’s debate on the reauthorization of PWEDA and its consideration of other legislative
options involving economic development policy.
Changes to Program Requirements
Instead of establishing new programs for specific development issues, Congress may consider
changes to the factors that affect the distribution of EDA assistance, such as changes to the types
of eligible recipients, cost share arrangements,119 or other program requirements established by
legislation. Such changes could be designed to limit or expand access to grants for certain
projects, types of applicants, or communities with specific characteristics (e.g., regions
experiencing economic distress as measured by new or revised metrics or regions affected by
changes in specific industries).120 For instance, congressional members, EDA leaders, and outside

119 Some analysts have proposed lower cost share requirements based on the applicant community’s level of economic
distress, size, or other characteristics. For additional perspectives, see Anthony F. Pipa and Natalie Geismar, “ Will
Biden Deliver for Rural America? T he Promise of the American Rescue Plan,” June 21, 2021,
https://www.brookings.edu/blog/up-front/2021/06/22/will-biden-deliver-for-rural-america-the-promise-of-the-
american-rescue-plan/. By example, S. 307 proposed a 100% funding rate for specific project types, and lower cost
share requirements were discussed in a recent EDA oversight hearing (see U.S. Senate, Environment and Public Works
Committee, Exam ining Program s at the Econom ic Developm ent Adm inistration, 117th Cong., 1st sess., Nov. 3, 2021,
https://www.epw.senate.gov/public/index.cfm/hearings?ID=256D08CE-44DC-47B4-9663-F9AC5AA8950E).
120 EDA provides financial and technical assistance to communities regardless of size or density (e.g., regardless of
urban or rural designations). Selected EDA grant programs prioritize areas experiencing economic distress as directed
by authorizing statute (see “ Economic Distress Criteria” and 42 U.S.C. §3121 et seq.). Geographic distribution is
considered in award decisions according to selected NOFOs (see EDA, ST EM T alent Challenge NOFO, FY2021, p.
17, https://www.grants.gov/web/grants/view-opportunity.html?oppId=328794).
Congressional Research Service

31

Economic Development Administration: An Overview of Programs and Appropriations

groups have cal ed attention to the role of broadband access in economic recovery and
infrastructure policies. Broadband-related activities are currently eligible for assistance under
many EDA program grants.121 However, unlike many forms of public infrastructure (e.g., water,
wastewater), broadband access is frequently provided by, or in partnership with, private, for-profit
companies.122 Congress has considered bil s in the 117th Congress that would amend PWEDA to
make public-private partnerships eligible for assistance for specified broadband projects (see H.R.
3193 and S. 1695).123
Expanding or Establishing EDA Programs, Roles, Offices, and Capacity
Congress may also consider new or expanded EDA programs, roles, and offices, as wel as
adjustments to the agency’s overal capacity and authorities. These options may be considered in
addition to the technology and innovation policies noted in the following section.
In terms of EDA programs, Congress may wish to establish new, or redirect existing, investments
to address specific development issues, including regional strategies, new types of infrastructure,
human capital, and capacity chal enges.124 In terms of new program options, bil s proposed in the
117th Congress (S. 2464 and H.R. 4651) would create a flexible, 10-year block grant program to
be administered by the EDA to promote economic growth and opportunity in persistently
distressed areas. Outside groups have cal ed for a shift to more broad-based, multi-sector, and
large-scale grants to support collaborative regional economic development strategies, similar to
the structure and scale of the new Build Back Better Regional Chal enge.125 As a matter of
program integration and overal policy consideration, some of Congress’s existing and proposed
priorities related to disaster recovery as wel as climate and economic resiliency may overlap with
the infrastructure planning, design, and implementation activities currently supported by the
Public Works and EAA programs.126 As an alternative—or in addition to—changing program or

Additionally, the “10-20-30” provision, included in reports accompanying recent appropriations bills, directs the
agency to award 10% of its funding to counties with poverty rates of at least 20% over the last 30 years (persistent -
poverty counties). By example, see P.L. 115-31, P.L. 115-141, among other annual appropriations bills for EDA
programs.
GAO’s 2021 report, Areas with High Poverty: Changing How the 10- 20-30 Funding Formula Is Applied Could
Increase Im pact in Persistent Poverty Counties, notes that EDA applies the 10-20-30 provision to appropriations for
two of its programs—Public Works and Build to Scale. See https://www.gao.gov/assets/gao-21-470.pdf.
121 In a FY2021 EDA oversight hearing, testimony from a practitioner witness noted that in statutory language (i.e.,
PWEDA, 42 U.S.C. §3121 et seq.) and in EDA’s guidance there is limited direction on broadband activities in the
economic development context. See U.S. House of Representatives, Committee on Transportation and Infrastructure,
Subcommittee on Economic Development, Public Buildings and Emergency Management , Investing in Am erica:
Reauthorization of the Econom ic Developm ent Adm inistration, April 28, 2021, https://www.congress.gov/117/meeting/
house/112512/witnesses/HHRG-117-PW13-Wstate-CooperL-20210428.pdf.
122 T estimony by Assistant Secretary of Economic Development, Alejandra Castillo, U.S. Senate, Environment and
Public Works Committee, Exam ining Programs at the Econom ic Developm ent Adm inistration, 117th Cong., 1st sess.,
Nov. 3, 2021, https://www.epw.senate.gov/public/index.cfm/hearings?ID=256D08CE-44DC-47B4-9663-
F9AC5AA8950E.
123 Related bills (H.R. 6491 and S. 3648) were also introduced in the 116th Congress.
124 For additional context, Congress has also considered bills to amend PWEDA to explicitly autho rize the use of grant
funds for activities such as travel promotion and for projects that directly or indirectly increase the accessibility of child
care, among other purposes.
125 U.S. Senate, Environment and Public Works Committee, Examining Programs at the Economic Development
Adm inistration, 117th Cong., 1st sess., Nov. 3, 2021, https://www.epw.senate.gov/public/index.cfm/hearings?ID=
256D08CE-44DC-47B4-9663-F9AC5AA8950E.
126 As noted previously, EDA was one of several agencies named in the Administration’s American Jobs Plan for
potential new infrastructure investment through increased funding (or other changes) to the Public Works program. See
Congressional Research Service

32

link to page 34 Economic Development Administration: An Overview of Programs and Appropriations

eligibility requirements, Congress may also consider additional support for direct EDA technical
assistance, expanded partnerships, targeted initiatives, or other strategies to build the capacity of
stakeholder groups, such as economical y distressed and smal , rural communities, through
EDA’s existing planning, RNTA, and/or University Center programs.127
In terms of EDA’s existing interagency role, Congress may continue to direct EDA to lead
economic development integration at multiple levels (e.g., federal, state, and local), or consider
permanent authorization of an EDA office dedicated to economic integration. EDA assistance to
state and local stakeholders may involve further alignment of program requirements with other
federal agencies’ requirements and procedures.128 Alternatively, assistance to state and local
stakeholders may involve expanded EDA support for capacity-building, leadership, and planning
activities at the state and local levels. For instance, Congress could direct EDA to increase the
level and type of assistance to state and local stakeholders in rural and underserved communities
(e.g., for planning, project development, technical assistance, and data analysis or other forms of
assistance). Agency officials and other groups have proposed that expanding the level of EDA
support for planning, capacity, and skil s development for state and local stakeholders could
facilitate economic recovery fol owing disasters or widespread economic shocks.129 Lastly,
Congress may consider additional, targeted integration activities. Such activities may involve
EDA expanding its convening, coordinating, and regional interagency planning roles. Or,
Congress may direct EDA to participate in joint federal interagency funding opportunities for
specific development initiatives.130
In terms of offices, authorities, and internal capacity, Congress continues to rely on EDA for post-
disaster economic recovery activities, as evidenced by the increased frequency and amount of
supplemental appropriations following national disasters (see Figure 7). Congress may seek to
formalize this role by authorizing an office for disaster recovery and/or increasing resources or
authorities related to the agency’s recovery role.131 Alternatively, the agency’s disaster recovery

White House, “Fact Sheet: T he American Jobs Plan,” March 31, 2021, https://www.whitehouse.gov/briefing-room/
statements-releases/2021/03/31/fact-sheet-the-american-jobs-plan/.
127 As noted previously, in FY2021, the report accompanying the annual appropriations bill also directed EDA to
support technical assistance for distressed small, rural, and underserved communities for “ pre-development activities
associated with accessing EDA programs and services.”
128 For information about EDA’s efforts to collaborate, reduce administrative burdens, and align plans and resources,
see https://eda.gov/integration/resource-alignment/. See also GAO, Econom ic Developm ent: Opportunities Exist for
Further Collaboration Am ong EDA, HUD, and USDA, GAO-21-579, July 2021, https://www.gao.gov/assets/720/
715997.pdf.
129 U.S. Senate, Committee on Environment and Public Works, “Oversight of the EDA,” S.Hrg. 116 -239, 116th Cong.,
2nd sess., January 22, 2020, https://www.congress.gov/116/chrg/CHRG-116shrg40975/CHRG-116shrg40975.pdf.
130 Interagency Working Group on Coal and Power Plant Communities and Economic Revitalizat ion, Initial Report to
the President on Em powering Workers Through Revitalizing Energy Com m unities, April 2021, p. 21,
https://netl.doe.gov/sites/default/files/2021-04/Initial%20Report%20on%20Energy%20Communities_Apr2021.pdf ;
and U.S. House of Representatives, Committee on T ransportation and Infrastructure, Subcommittee on Economic
Development, Public Buildings and Emergency Managem ent, Investing in Am erica: Reauthorization of the Econom ic
Developm ent Adm inistration, 117th Cong., 1st sess., April 28, 2021.
131 EDA currently has an Office of Disaster Recovery and Economic Integration (see https://www.eda.gov/disaster-
recovery/ and https://eda.gov/integration). In addition to and in coordination with EDA’s headquarters offices, the
EDA’s regional offices handle disaster recovery activit ies through supplemental and regular funding.
In a FY2021 oversight hearing, a witness suggested that Congress could formally establish in statute an Office of
Disaster Recovery within the EDA. See U.S. House of Representatives, Committee on T ransportation and
Infrastructure, Subcommittee on Economic Development, Public Buildings and Emergency Management, Investing in
Am erica: Reauthorization of the Econom ic Developm ent Adm inistration, witness testimony, 117th Cong., 1st sess., April
28, 2021, https://www.congress.gov/117/meeting/house/112512/witnesses/HHRG-117-PW13-Wstate-CooperL-
Congressional Research Service

33

link to page 45 Economic Development Administration: An Overview of Programs and Appropriations

role may continue to be linked, as it is now, with the agency’s Office of Economic Development
Integration. Congress may also consider providing additional administrative resources or
emergency hiring authority to extend the agency’s capacity for recovery assistance.132
Trade Adjustment Assistance for Firms (TAAF)
Congress may review the TAAF program in light of current trade and economic dynamics and
ongoing trade negotiations. TAAF policy discussions involve the program’s reauthorization, and
broadening criteria so that more firms may qualify for assistance. The program’s focus, funding
level, partnership structure, and options to streamline its operations, among other matters, are
outlined as “Issues for Congress” in CRS Report RS20210, Trade Adjustment Assistance for
Firms, by Rachel F. Fefer.
Preparing for Future Industries and EDA’s Role in Federal Innovation Policy133
One of EDA’s seven updated investment priorities (April 2021) is “technology-based economic
development,” which is defined as:
economic development planning or implementation projects that foster regional knowledge
ecosystems that support entrepreneurs and startups, including the commercialization of
new technologies, that are creating technology-driven businesses and high-skilled, well-
paying jobs of the future.134
Congress may wish to establish new, or focus existing, EDA programs to further prepare regions
and workers for innovation, technology-led economic development, and “future industries.”135
Innovation and technology-led economic development strategies are based on the premise that
technological breakthroughs and innovation drive economic growth. Some researchers observe

20210428.pdf.
132 For a discussion of EDA’s recent application of its emergency hiring authority and state and local capacity
challenges in the disaster recovery context, see U.S. Senate, Committee on Environment and Public Works, “Oversight
of the EDA,” S.Hrg. 116-239, 116th Cong., 2nd sess., January 22, 2020, https://www.congress.gov/116/chrg/CHRG-
116shrg40975/CHRG-116shrg40975.pdf. See also Department of Commerce, Office of Inspector General, EDA Was
Effective in Im plem enting the Requirem ents for Awarding Funds Under the CARES Act, Final Report No. OIG-21-017-
I, https://www.oig.doc.gov/OIGPublications/OIG-21-017-I.pdf.
133 As previously noted, EDA’s involvement in innovation and technology broadly includes the administration of
competitive grant programs (e.g., the Build to Scale (B2S), SPRINT Challenge, and the Accelerate Response and
Recovery (R2) Network Challenge programs described above and in Appe ndix A), workforce development and
technical assistance initiatives (e.g., the ST EM T alent Challenge and University Centers), and coordination with other
federal agencies on regional innovation strategies (e.g., NACIE), among other activities.
For a list of CRS analysts associated with science, t echnology, and innovation policy, see CRS Report R42688,
Science, Technology, and Innovation Policy: CRS Experts, by John F. Sargent Jr.
134 EDA, “ Investment Priorities,” https://eda.gov/about/investment-priorities/.
135 T estimony by Mr. Dennis Alvord, Acting Assistant Secretary of Commerce for EDA, U.S. House of
Representatives, Committee on T ransportation and Infrastructure, Subcommittee on Economic Development, Public
Buildings and Emergency Management , Investing in Am erica: Reauthorization of the Econom ic Developm ent
Adm inistration, 117th Cong., 1st sess., April 28, 2021, https://www.congress.gov/117/meeting/house/112512/witnesses/
HHRG-117-PW13-Wstate-AlvordD-20210428.pdf.
EDA’s guidance for the ST EM T alent Challenge highlighted “ industries of the future” which could include, but are not
limited to: artificial intelligence; machine learning; advanced manufacturing and robotics; space exploration and
commerce; bioscience; quantum information science; and aqua- and agricultural technologies. EDA, “ ST EM T alent
Challenge NOFO,” FY2021, p. 1, https://www.grants.gov/web/grants/view-opportunity.html?oppId=328794.
Congressional Research Service

34

Economic Development Administration: An Overview of Programs and Appropriations

that by identifying and promoting innovation, federal support may facilitate economic growth and
competition.136
Congress has supported various policies to promote innovation and to prepare regions for
expanded technology-based development through workforce development programs as wel as a
subset of federal innovation policies often referred to as “regional innovation” or “innovation
cluster” programs.137 Congress may seek to continue support for EDA’s existing innovation-
oriented programs (e.g., Build to Scale), similar programs, or new programs.138 For instance, in
the 117th Congress, a new regional technology hub program was proposed under Section 2401 of
S. 1260 and a new regional technology and innovation hub program was proposed under Section
2 of H.R. 4588.139 Additional y, funding to develop regional economic growth clusters was
included in the house-passed “Build Back Better Act.”140 Alternatively, Congress may pursue a
more limited federal role in the facilitation of innovation clusters, advance policies that favor
stronger state and local roles in technology-led economic development, or advance policies that
favor investment in public goods or other development strategies.141

136 See Congressional Budget Office, “ Federal Policies and Innovation,” November 17, 2014, p. 5,
https://www.cbo.gov/publication/49487; and Yong-Shik Lee, “ Law and Economic Development in the United States:
T oward a New Paradigm,” Catholic University Law Review, vol. 68, no. 2 (2019), pp. 1-62, May 31, 2018,
SSRN: https://ssrn.com/abstract=3168964.
137 EDA defines regional clusters as
geographic concentrations of firms, workers and industries that do business with each other and have
common needs for talent, technology, and infrastructure. Regional clusters are essentially networks of
similar, synergistic, or complementary entities that are engaged in or with a particular industry sector; h ave
active channels for business transactions and communication; share specialized infrastructure, labor markets,
and services; and leverage the region’s unique competitive strengths to stimulate innovation and create jobs.
Regional clusters may cross municipal, county, and other jurisdictional boundaries.
EDA, “Key Definitions,” https://eda.gov/performance/key-definitions/.
138 Federal support for regional clusters and innovation cluster initiatives have included programs administered by EDA
(Regional Innovation Strategies/Build to Scale) and agencies such as the Department of Energy, DOC, NIST , SBA, and
others. T hese programs generally provide planning and other support to intermediary organiz ations to develop new or
expand existing industry clusters. See Ryan Donahue, Joseph Parilla, and Brad McDearman, “ Rethinking Cluster
Initiatives,” Brookings Institution Metropolitan Policy Program, July 2018, https://www.brookings.edu/wp-content/
uploads/2018/07/201807_Brookings-Metro_Rethinking-Clusters-Initiatives_Full-report-final.pdf; Mark Muro and
Bruce Katz, “ T he New ‘Cluster Moment’: How Regional Innovation Clusters Can Foster the Next Economy,”
Brookings Institution Metropolitan Policy Program, September 21, 2010, https://www.brookings.edu/research/the-new-
cluster-moment -how-regional-innovation-clusters-can-foster-the-next-economy/; the National Research Council, “ T he
Federal Dimension,” Best Practices in State and Regional Innovation Initiatives: Com peting in the 21 st Century
(Washington, DC: T he National Academies Press), 2013, https://doi.org/10.17226/18364; and Camilla Alexandra
Hrdy, “ Cluster Competition,” Lewis & Clark Law Review, vol. 20, October 7, 2016, pp. 982-986, 1013,
https://ssrn.com/abstract=2672660, which includes the definition of innovation clusters as “ regional economies made
up of firms, suppliers, and human talent whose core activity is innovation.”
As noted, the EDA’s new Build Back Better Regional Challenge, a grant program launched in July 2021, will support
new or existing regional innovation clusters with one third of the total amount of ARP Act appropriations ($1 billion
out of a total of $3 billion in ARP Act funding).
139 T he House and Senate bills shared similar provisions, but were not identical. Both proposed to amend the
Stevenson-Wydler T echnology Innovation Act of 1980 (15 U.S.C. §3701) by re-designating Section 28 of the act as
Section 29 and establishing the aforementioned programs as Section 28 of the Stevenson -Wydler Act .
140 See T itle XI of H.R. 5376, as approved by the House on November 3, 2021, https://rules.house.gov/bill/117/hr-
5376. As additional context, “ regional innovation hubs” were included in the Administration’s FY2021 American Jobs
Plan. See White House, “Fact Sheet: T he American Jobs Plan,” March 31, 2021, https://www.whitehouse.gov/briefing-
room/statements-releases/2021/03/31/fact-sheet-the-american-jobs-plan/.
141 Camilla Alexandra Hrdy, “Cluster Competition,” Lewis & Clark Law Review, vol. 20, October 7, 2016, pp. 997-
1009, https://ssrn.com/abstract=2672660; and Giles Duranton, “ California Dreamin’: T he Feeble Case for Cluster
Congressional Research Service

35

Economic Development Administration: An Overview of Programs and Appropriations

Congress may also seek to review the overal distribution and coordination of existing innovation
policies as wel as the EDA’s role in the landscape of federal innovation programs. The
House Subcommittee on Research and Technology reviewed these matters in a hearing in June
2021. The hearing addressed the following questions, many of which pertain to the broader
discussion on EDA and its role in future industries and regional economic development,
including:
 What are the critical elements and who are the necessary partners in developing a
successful strategy for local and regional innovation economies?
 What is the role of the federal government, and in particular the EDA, in
supporting the development of local and regional innovation economies?
 How can research universities strengthen their role in helping to anchor local and
regional innovation economies?
 How can efforts to build regional innovation economies include equity and
shared prosperity as a priority?142
Underserved Communities
Congress may consider options to update how EDA’s recovery and non-recovery programs assist
underserved and disadvantaged communities. For instance, matching fund requirements and
limited broadband access may limit some rural and underserved communities’ access to
innovation-centered competitions and other programs.143 Additional y, Congress may continue to
consider directing additional types of EDA partnerships with historical y black colleges and
universities (HBCUs), minority-serving institutions (MSIs), and other entities in its efforts to
address regional disparities, racial equity, and inclusive strategies that serve communities that
may have been left behind by prior innovation initiatives and opportunities.144 In response to
geographic and demographic disparities, Congress may consider increasing funding for
innovation hubs, research and business incubators, STEM education, and other activities in rural,
underserved, and disadvantaged communities beyond metropolitan areas and existing growth

Policies,” Review of Economic Analysis, vol. 3, pp. 3-45, http://repository.upenn.edu/real-estate_papers/2.
142 Policy questions from the Hearing Charter for U.S. House of Representatives, Committee on Science, Space, and
T echnology, “Building Regional Innovation Economies,” June 9, 2021, https://www.congress.gov/117/meeting/house/
112753/documents/HHRG-117-SY15-20210609-SD002.pdf.
T he hearing memo reviewed the role of the Department of Commerce and the EDA in expanding regional innovation
economies, options for further development, and partnership opportunities with federal science agencies, and raised
several considerations regarding the EDA’s role and select aspects of the Build to Scale (B2S) program in particular.
T he memo noted that EDA’s expertise includes leading regional economic development and related expertise, while
NIST and other agencies are generally considered lead agencies in terms of technical expertise on innovation and
research and development. T he hearing charter further noted that t he matching requirements associated with the
competitive B2S program may limit participation by economically distressed and rural communities due to limited
resources in some communities.
143 For an example of these perspectives, see Robert D. Atkinson, Mark Muro, and Jacob Whiton, “T he Case for
Growth Centers—How to Spread T ech Innovation Across America,” T he Brookings Institution, December 2019,
https://www2.itif.org/2019-growth-centers.pdf; and Olugbenga Ajilore and Zoe Willingham, “ T he Path to Rural
Resilience in America,” Center for American Progress, September 21, 2020, https://www.americanprogress.org/issues/
economy/reports/2020/09/21/490411/path-rural-resilience-america/.
144 L. Waymond Jackson, Jr., “Leveraging Regional T ech Hubs to Advance Economic Inclusion,” Brookings
Institution, July 13, 2021, https://www.brookings.edu/wp-content/uploads/2021/07/
metro_20210713_techhubs_transcript.pdf.
Congressional Research Service

36

link to page 26 link to page 26 link to page 45 link to page 45 link to page 45 Economic Development Administration: An Overview of Programs and Appropriations

centers.145 See “Persistent Poverty and Distressed, Smal , Rural and Underserved Areas—Funding
and Technical Assistance” for a summary of recent legislative and agency activities focused on
underserved communities.
Human Capital, STEM, and Workforce Development
As Congress considers workforce development in the context of EDA programs and the broader
portfolio of federal economic development policies, the following issues may warrant further
analysis:
 connecting stakeholders across the public, private, and education sectors in
response to emerging industries and career pathways;
 al owing flexibility for new or nontraditional training programs; and
 coordinating new and existing workforce and economic development
programs.146
Congress may seek to support innovation economies through human capital policies that prepare
workers with expertise and skil s to meet new and emerging opportunities. For instance, Congress
approved funding for the STEM Talent Chal enge (see program description in Appendix A),
which is designed to advance the STEM-capable workforce. Additional y, EDA set aside
approximately 17% ($500 mil ion) of the ARP Act recovery assistance to enhance regional
workforce systems through the Good Jobs Chal enge grant program.147 Insights from these
programs could inform how new or flexible training program models may support technology-led
economic development goals and address employer needs in emerging industries.148
Reauthorization
PWEDA’s statutory authority lapsed on September 30, 2008. Hearings during the first session of
the 117th Congress indicate that policymakers may consider legislation to reauthorize and/or
amend PWEDA.149 Many of the aforementioned considerations propose to address policy through

145 Mark Muro et al, “Congress Needs to Prioritize Inclusion in Our Slumping Innovation System,” T he Brookings
Institution, August 11, 2021, https://www.brookings.edu/blog/the-avenue/2021/08/11/congress-needs-to-prioritize-
inclusion-in-our-slumping-innovation-system; and Brad McDearman, Joseph Parilla, and Ryan Donahue “ A New
Federal Grant Should Make Regional Leaders Rethink T heir Industry Clusters,” T he Brookings Institution, September
1, 2021, https://www.brookings.edu/blog/the-avenue/2021/09/01/a-new-federal-grant -should-make-regional-leaders-
rethink-their-industry-clusters/.
146 See Federal Reserve Bank of Atlanta, “Why Connecting Economic and Workforce Development Matters,”
https://www.atlantafed.org/podcasts/transcripts/economic-development/121214-why-connecting-economic-and-
workforce-development -matters.
147 EDA, “Good Jobs Challenge,” https://eda.gov/arpa/good-jobs-challenge/.
148 In FY2020, Congress directed EDA to implement ST EM apprenticeships (see ST EM T alent Challenge in Appendix
A) to support ST EM-capable workforce initiatives. EDA highlights “ industries of the future” which could include, but
are not limited to: artificial intelligence; machine learning; advanced manufacturing and robotics; space exploration and
commerce; bioscience; quantum information science; and aqua- and agricultural technologies.” T he FY2020 ST EM
T alent Challenge NOFO notes that applicants may address the need for computational literacy and issues related to the
digital economy (e.g., remote work, shifting business practices) in order to address the current COVID -19 pandemic or
prepare for virtual and remote work. See ST EM T alent Challenge NOFO, EDA-HDQ-OIE-2020-2006617, pp. 1, 4,
https://www.grants.gov/web/grants/view-opportunity.html?oppId=328794.
149 For a review of reauthorization issues during the 112th Congress, see CRS Report R41162, Economic Development
Adm inistration: Reauthorization and Funding Issues in the 112th Congress, by Julie M. Lawhorn.
For reports from EDA oversight hearings from t he 117th Congress, see
Congressional Research Service

37

Economic Development Administration: An Overview of Programs and Appropriations

PWEDA amendments and/or reauthorization. Reauthorization discussions may consider
amending PWEDA to add new grant programs, expand or clarify the scope of existing programs,
or expand eligibility criteria for specific types of projects, among other actions.
Concluding Remarks
Throughout the agency’s history, a central feature of EDA’s role has been to provide matching
federal funds to assist state, local, and regional economies advance projects in support of growth
or to address geographic disparities for distressed areas. Expanding EDA’s role to serve more
communities, achieve different outcomes, or coordinate across federal and state departments and
agencies may involve changes in the agency’s authority, budget, or program structure.150
Policies that propose to change the agency’s roles or programs may reflect different
interpretations of what constitutes economic development and differing views on whether federal
policies should provide broad-based assistance, targeted assistance, or some combination thereof.
For some, broad-based economic development programs with economic distress criteria al ows
assistance to be accessible for a range of communities’ needs and opportunities (e.g., the Public
Works and EAA programs). For others, targeted economic development programs al ow
assistance to reach a particular type of community or circumstance (e.g., programs for energy-
and resource-based industries). For others stil , policies may involve a mixture of approaches and
overlap in definitions, agencies, roles, and strategies of practice. In considering policy changes,
Congress may also wish to maintain current program roles and authorities—many of which are
broad and flexible (e.g., the EAA program)—and targeted appropriations, directed as needed to
address new chal enges and opportunities (e.g., in the manner of setting aside EAA funding for
coal-impacted and nuclear closure communities in the ACC and NCC initiatives).151 Congress
may also review the al ocation of assistance based on preferred economic development goals—to
further economic growth (i.e., jobs), to prepare regions for development, to develop human
capital, to recover from and prepare for economic shocks, and/or other outcomes.
The EDA—through its program investments, partnerships, and integration roles—represents one
of many channels of federal and nonfederal policies designed to address economic matters at the
subnational level. In practice, economic development involves multiple stakeholders, and the
associated outcomes and processes wil likely be impacted by multiple macroeconomic factors
and community-level circumstances, conditions, and histories. Policy considerations related to
EDA are likely to involve a strategic and contextual evaluation of adjacent policies, related


U.S. Senate, Committee on Environment and Public Works, Exam ining Program s at the Econom ic
Developm ent Adm inistration, 117th Cong., 1st sess., Nov. 3, 2021, https://www.epw.senate.gov/public/
index.cfm/hearings?ID=256D08CE-44DC-47B4-9663-F9AC5AA8950E.

U.S. House of Representatives, Committee on T ransportation and Infrastructure, Subcommittee on Economic
Development, Public Buildings and Emergency Management, Investing in Am erica: Reauthorization of the
Econom ic Developm ent Adm inistration, 117th Cong., 1st sess., April 28, 2021, https://www.congress.gov/
event/117th-congress/house-event/112512.

U.S. House of Representatives, Committee on Appropriations, Subcommittee on Commerce, Justice, Science,
and Related Agencies, “ Oversight of the Economic Development Administration’s Role in Pandemic
Response,” 117th Cong., 1st sess., April 21, 2021, https://www.congress.gov/event/117th-congress/house-
event/112466.
150 Yong-Shik Lee, “ Law and Economic Development in the United States: T oward a New Paradigm ,” Catholic
University Law Review, vol. 68, no. 2 (2019), May 31, 2018, pp. 1-62, SSRN: https://ssrn.com/abstract=3168964.
151 Congress approved appropriations for several years for the ACC and NCC initiatives. T hese initiatives are not
separately authorized and are administered by EDA through the EAA program.
Congressional Research Service

38

Economic Development Administration: An Overview of Programs and Appropriations

agencies, supporting actors, and awareness of the many, dynamic factors impacting global,
national, and regional economies.
Congressional Research Service

39

Economic Development Administration: An Overview of Programs and Appropriations

Appendix A. Grant Programs
Summaries of EDA’s current grant programs and selected requirements are provided below.
Build to Scale (B2S)
The Build to Scale (B2S) program (formerly cal ed Regional Innovation Strategies) supports
entrepreneurship, innovation, technology commercialization, access to capital, and related efforts
to expand startups, company growth, and increased access to risk capital across regional
economies. B2S is composed of the Venture Chal enge (formerly the “i6 Chal enge”) and the
Capital Chal enge (formerly the “Seed Fund Support”).152 The Venture Chal enge funds
entrepreneurship support programs and other models to accelerate high-growth entrepreneurship
activities. The Capital Chal enge supports efforts to expand access to risk capital. The B2S
program primarily funds intermediary organizations and does not provide funding to start-ups.
Statutory Authority: 15 U.S.C. §3722
Agency Regulations: 13 C.F.R. Part 312
Economic distress criteria: No minimum economic distress level requirements.153
Level of matching funds requirement: In FY2020, the minimum matching share was 50%.154
Economic Adjustment Assistance (EAA) Program
EDA refers to the EAA as its most flexible economic development tool.155 The EAA program is
designed to assist areas experiencing long-term economic distress or sudden and substantial
economic dislocation. Under Economic Adjustment Assistance, EDA administers its Revolving
Loan Fund (RLF) program, which al ows local loan administrators to provide gap financing to
smal businesses and entrepreneurs. EAA funds are competitively awarded to qualified applicants
to assist them in developing and implementing a five-year CEDS or for implementation grants
that support the activities and strategies identified in a CEDS. EAA activities may include
physical infrastructure projects, including water and sewer facilities, industrial parks, and
business incubators; strategic planning; market or industry research and analysis; technical
assistance, including feasibility studies; public services; and training.156

152 In FY2020, EDA administered a third competition in the B2S program, the Industry Challenge, which was not
offered in FY2021. In FY2020, the Industry Challenge focused on advancing regional blue economies. According to
the EDA, the term “blue economy” refers to the “ sustainable use of ocean resources for economic growth, improved
livelihoods and jobs, while preserving the health of marine ecosystems. ” See EDA, February 2020 Newsletter,
“Spotlight: EDA Launches the Build to Scale Program, a Redesign of its Regional Innovation Strategies P rogram,”
https://www.eda.gov/news/blogs/2020/02/01/spotlight.htm.
153 T he B2S Program is authorized under Section 27 of the Stevenson -Wydler T echnology Innovation Act of 1980 (15
U.S.C. §3722). T he FY2020 B2S Notice of Funding Opportunity (NOFO) notes that, “ this authorization does not
require applicants to meet specific distress criteria to be considered eligible.” See EDA, “NOFO—2020 Build to Scale
Program—Concept Proposal,” EDA-HDQ-OIE-2020, https://www.grants.gov/web/grants/view-opportunity.html?
oppId=324375.
154 EDA, “NOFO—2020 Build to Scale Program—Concept Proposal,” EDA-HDQ-OIE-2020, https://www.grants.gov/
web/grants/view-opportunity.html?oppId=324375.
155 DOC, EDA, FY2022Congressional Budget Justification, p. 58, https://www.commerce.gov/sites/default/files/2021-
05/fy2022_eda_congressional_budget_justification.pdf.
156 13 C.F.R. Part 307.
Congressional Research Service

40

Economic Development Administration: An Overview of Programs and Appropriations

Funding for Assistance to Coal Communities (ACC), Nuclear Closure Communities (NCC), and
some forms of supplemental appropriations are administered through the EAA as wel .157 The
EDA supports disaster recovery efforts primarily through the EAA program to support disaster
recovery strategies, disaster recovery coordinators, construction activities, capitalizing RLFs,
entrepreneurship development, technical assistance, and other recovery projects.158 For eligibility
under the ACC initiative (as administered through the EAA program), EDA applies the term “coal
economy” as “the complete supply chain of coal-reliant industries. This includes, but is not
limited to: coal mining, coal-fired power plants, along with related transportation, logistics, and
supply chain manufacturing.” To be eligible for assistance as a nuclear closure community under
the NCC initiative (as administered through the EAA program), regions must demonstrate “that
they have been impacted, or can reasonably demonstrate that they wil be impacted, by nuclear
power plant closure(s).”159
The SPRINT Chal enge was administered through the EAA program with $25 mil ion of CARES
Act funding. The purpose of the SPRINT Chal enge was to “address the economic, health, and
safety risks caused by the coronavirus pandemic through entrepreneurship and innovation.”160
Statutory Authority: 42 U.S.C. §3149
Agency Regulations: 13 C.F.R. Part 307
Economic distress criteria: The project area must meet one (or more) of the economic distress
criteria, which includes projects that meet a “special need.”
Requirement to align with CEDS or equivalent: Funded projects must be part of an EDA-
certified Comprehensive Economic Development Strategy (CEDS) or equivalent EDA-accepted
regional economic development strategy, unless the project is for a Strategy Grant (as defined in
13 C.F.R. §307.3)161 or serves a Special Impact area (as defined in 13 C.F.R. Part 310).162

157 For more information, see CRS Insight IN11648, The Economic Development Administration’s Assistance to Coal
and Nuclear Closure Com m unities Initiatives for Econom ic Transitions, by Julie M. Lawhorn.
158 EDA, “Leading Economic Recovery Efforts in Disaster-Impacted Communities,” https://eda.gov/files/programs/
disaster-recovery/EDA-Disaster-Brochure.pdf.
159 Additionally, EDA guidance notes that,
In general, EDA will consider applications for projects in communities and regions where the
primary coal economy contraction “event” (e.g., closure of a coal mine or a coal-fired power plant,
closure of various coal economy supply chain businesses, etc.) took place within 1-15 years prior to
the application submission date. Note, this timeframe is a range during which projects will
generally be eligible; applicants may propose projects outside this timeframe, but sho uld take
special care to demonstrate that the primary coal economy contraction “event” continues to
tangibly impact the community.
T here is no pre-defined list of impacted coal communities. T o demonstrate eligibility, complete
applications must provide appropriate third party economic and demographic statistics that
document the extent to which contractions in the coal economy have negatively impacted the
community or region.
See EDA, “FY 2020 Public Works and Economic Adjustment Assistance Programs Including CARES Act Funding,”
pp. 7, 17, https://www.grants.gov/web/grants/view-opportunity.html?oppId=321695; and EDA, “ American Rescue
Plan Coal Communities Commitment Frequently Asked Questions,” https://eda.gov/arpa/coal-communities/faq/.
160 For more information on the SPRINT Challenge, see https://eda.gov/oie/sprint/. For more information on EDA
CARES Act funding, see CRS Insight IN11303, The Econom ic Developm ent Adm inistration and the CARES Act (P.L.
116-136), by Julie M. Lawhorn.
161 13 C.F.R. §307.5(1).
162 13 C.F.R. §301.10(c).
Congressional Research Service

41

Economic Development Administration: An Overview of Programs and Appropriations

Level of matching funds requirement: General y 50% of project costs, but may vary. Projects
may receive an additional amount, not to exceed 30%, based on the relative needs of the region in
which the project wil be located, as determined by EDA. In the case of certain Indian tribes,
nonprofit organizations that have exhausted their effective borrowing capacity, or a state or
political subdivision of a state that has exhausted its effective taxing and borrowing capacity,
grants totaling 100% of a project’s cost may be awarded. Credit may be given toward the
nonfederal share for in-kind contributions, including contributions of space, equipment, and
services.
Local Technical Assistance Program
The Local Technical Assistance (Local TA) program provides grants for management and
technical services, including feasibility studies, impact analyses, disaster resiliency plans, and
project planning. Analysis from the impact and feasibility studies may help leaders in economic
development decisionmaking. For instance, an eligible entity could apply for a local technical
assistance grant to prepare for a business development project such as an incubator, shared-use
processing facility, or an entrepreneurship center. Local technical assistance could help a city or
county prepare a feasibility study regarding the reuse of an abandoned manufacturing facility to
advance local economic development.
Statutory Authority: 42 U.S.C. §3147
Agency Regulations: 13 C.F.R. Part 306, Subpart A
Economic distress criteria: EDA’s regulations (13 C.F.R. §301.3) note that there are no
minimum economic distress level requirements for Local TA projects.
Requirement to align with CEDS or equivalent: EDA regulations (13 C.F.R. §306.2) note that
projects wil be evaluated based on the extent that they are “consistent with an EDA-approved
CEDS, as applicable, for the region in which the project is located.”
Level of matching funds requirement: General y 50% of project costs, but may vary. See 13
C.F.R. §301.4.
Planning Partnership Program
Planning grants are used for direct and indirect administrative expenses of Economic
Development Districts (EDDs) as wel as local organizations (Indian tribes and other eligible
recipients) charged with long-term strategic economic development planning efforts such as the
Comprehensive Economic Development Strategies (CEDS) in EDA-designated distressed areas.
Planning grants may also support short-term planning investments to states, sub-state planning
regions and urban areas and may help communities undertake focused, project-specific planning
activities. Eligible activities under this program include developing, maintaining, and
implementing a CEDS and related short-term planning activities.163

163 According to an example noted in EDA’s FY2021-FY2023 NOFO for Planning and Local T echnical Assistance,
“EDA might provide Short T erm Planning funding to a coalition of T ribal and regional organizations to plan a
coordinated response to the sudden loss of a significant employer in the affected area. EDA also makes Short -T erm
Planning awards to support the preparation or update of a CEDS for regions not served by a District Organization.” See
EDA, “NOFO—EDA Planning and Local T echnical Assistance Programs,” https://eda.gov/files/programs/eda-
programs/FY21-23-Planning-and-LTA-NOFO_FINAL.pdf.
Congressional Research Service

42

Economic Development Administration: An Overview of Programs and Appropriations

Statutory Authority: 42 U.S.C. §3143
Agency Regulations: 13 C.F.R. Part 303
Economic distress criteria: No minimum economic distress level requirements.164
Requirement to align with CEDS or equivalent: General y, the long-term partnership planning
investments support the development of CEDS.
Level of matching funds requirement: General y 50% of project costs, but may vary.
Public Works Program
The Public Works program is designed to promote long-term economic development and assist
with the construction of physical infrastructure projects in distressed areas. Grants may support
the acquisition or development of land and improvements for use for a public works, public
service, or development facility; and the acquisition, design and engineering, construction,
rehabilitation, alteration, expansion, or improvement of such a facility, including related
machinery and equipment. Examples of Public Works activities may include water and sewer
systems improvements, industrial parks, business incubator facilities, telecommunications
infrastructure, skil -training facilities, brownfields redevelopment, and the expansion of port and
harbor facilities. Similar assistance is also available under the agency’s Economic Adjustment
Assistance program.
Statutory Authority: 42 U.S.C. §3141
Agency Regulations: 13 C.F.R. Part 305
Economic distress criteria: The project area must meet one (or more) of the economic distress
criteria, which includes projects that meet a “special need.”
Requirement to align with CEDS or equivalent: Funded projects must be part of an EDA-
certified Comprehensive Economic Development Strategy (CEDS) or equivalent EDA-accepted
regional economic development strategy.
Level of matching funds requirement: General y 50% of project costs, but may vary. Projects
may receive an additional amount, not to exceed 30%, based on the relative needs of the region in
which the project wil be located, as determined by EDA. In the case of certain Indian tribes,
nonprofit organizations that have exhausted their effective borrowing capacity, or a state or
political subdivision of a state that has exhausted its effective taxing and borrowing capacity,
grants totaling 100% of a project’s cost may be awarded. Credit may be given toward the
nonfederal share for in-kind contributions, including contributions of space, equipment, and
services.
Research and National Technical Assistance Program (RNTA)
According to the EDA, the RNTA program funds research, evaluation, and national technical
assistance projects that promote competitiveness and innovation. The EDA administers RNTA
funding through a single Notice of Funding Opportunity (NOFO) for two separate programs: the
Research and Evaluation (R&E) Program and the National Technical Assistance (NTA)
Program.165 Through the National Technical Assistance program, EDA may provide technical

164 13 C.F.R. §306.
165 EDA, “ Research and Evaluation (R&E) and National T echnical Assistance (NT A) Programs,” https://eda.gov/
Congressional Research Service

43

Economic Development Administration: An Overview of Programs and Appropriations

assistance that is national in scope on a specific type of economic development chal enge,
opportunity, event, or condition, or for “outreach, training, and information dissemination.” For
instance:
 EDA partnered with two national organizations (the National Association of
Development Organizations (NADO) Research Foundation and the National
Association of Counties (NACo)) to disseminate promising strategies among
coal-impacted communities.
 EDA directs a portion of Assistance to Nuclear Closure Communities (NCC)
funds to a national technical assistance provider that disseminates promising
strategies and creates a ‘community of practice’ for applicants and grantees.166
Statutory Authority: 42 U.S.C. §3147
Agency Regulations: 13 C.F.R. Part 306
Economic distress criteria: EDA’s regulations (13 C.F.R. §301.3) note that there are no
minimum economic distress level requirements for RNTA projects.
Requirement to align with CEDS or equivalent: EDA regulations (13 C.F.R. §306.2) note that
projects wil be evaluated based on the extent that they are “consistent with an EDA-approved
CEDS, as applicable, for the region in which the project is located.”
Level of matching funds requirement: General y 50% of project costs, but may vary. PWEDA
notes that the Secretary may also increase the federal share up to 100% for Research and National
Technical Assistance (RNTA) grants (42 U.S.C. §3147). See 13 C.F.R. §301.4.
STEM Talent Challenge167
The STEM Talent Chal enge program (or “STEM Apprenticeship Pilot” program) funds
proposals to expand career pathways and meet employers’ needs for a STEM-capable workforce.
The program was authorized in the American Innovation and Competitiveness Act of 2017 (P.L.
114-329) and is administered by the EDA’s Office of Innovation and Entrepreneurship.
According to EDA, the STEM initiative aligns with the goals of the agency’s Build to Scale
program, which is also administered by OIE and designed to develop talent, capital, and
entrepreneurial support systems. The STEM Talent Chal enge seeks to address the need for the
“talent” component by building a skil ed workforce for regional innovation economies. Funded
projects may address training gaps in order to facilitate the growth of high-growth, high-wage
entrepreneurial ventures, innovation-driven businesses, and industries that leverage emerging
technologies.
Statutory Authority: 15 U.S.C. §3723

programs/rnta/. See also EDA, “ NOFO for FY 2021-2023 Research and Evaluation (R&E) and National T echnical
Assistance (NT A) P rograms,” EDA-HDQ-RNT A-2021, https://www.grants.gov/web/grants/view-opportunity.html?
oppId=334079.
166 T he EDA’s webpage on RNT A provides additional examples at https://eda.gov/programs/rnta/rnta-programs/
national-technical-assistance/index.htm.
167 ST EM is the acronym used for science, technology, engineering, and mathematics curriculum, training, education,
and related initiatives. For more information, see https://eda.gov/oie/stem/.
Congressional Research Service

44

Economic Development Administration: An Overview of Programs and Appropriations

Agency Regulations: The program is governed by the terms of the Notice of Funding
Opportunity (NOFO).168
Economic distress criteria: No minimum economic distress level requirements.169
Requirement to align with CEDS or equivalent: See the terms of the program’s NOFO.
Level of matching funds requirement: Applicants must provide a matching nonfederal cost-
share of at least 50% of the total project cost.
Trade Adjustment Assistance for Firms (TAAF)170
The Trade Adjustment Assistance for Firms program funds a national network of Trade
Adjustment Centers (TAACs) that provide assistance to American companies that have “lost
domestic sales and employment because of increased imports of similar goods and services.”
According to the EDA, “a national network of 11 TAACs help strengthen the competitiveness of
American companies that have lost domestic sales and employment because of increased imports
of similar goods and services.” The following entities may apply for assistance to operate a
TAAC: universities or affiliated organizations; states or local governments; or nonprofit
organizations.171 EDA general y funds a TAAC for a three-year period composed of three separate
funding periods of 12 months each.172
Statutory Authority: Trade Act of 1974, as amended (19 U.S.C. §2341 et seq.)
Agency Regulations: 13 C.F.R. Part 315
Economic distress criteria: No minimum economic distress level requirements.173
Requirement to align with CEDS or equivalent: The CEDS requirement is not referenced in 19
U.S.C. §2341 et seq. or agency regulations.
Level of matching funds requirement: There are no matching share requirements for
adjustment assistance provided by the TAACs to firms for certification or for administrative
expenses of the TAACs.174 Certified firms that receive assistance from TAACs must pay a
percentage of expenses associated with services.175
University Center Program176
The University Center program connects economic development practitioners with expertise and
resources from col eges and universities. University Centers provide technical assistance in

168 EDA, “NOFO—2020 ST EM, EDA-HDQ-OIE-2020-2006617,” https://eda.gov/files/oie/stem/Section-28-ST EM-
T alent -Challenge-NOFO.pdf.
169 T he ST EM T alent Challenge is authorized under Section 28 of the Stevenson-Wydler T echnology Innovation Act of
1980 (15 U.S.C. §3723). T he FY2020 ST EM Notice of Funding Opportunity (NOFO) notes that, “this authorization
does not require applicants to meet specific distress criteria to be considered eligible.” See EDA, “NOFO—2020
ST EM, EDA-HDQ-OIE-2020-2006617,” https://eda.gov/files/oie/stem/Section-28-ST EM-Talent-Challenge-
NOFO.pdf.
170 For more information, see CRS Report RS20210, Trade Adjustment Assistance for Firms, by Rachel F. Fefer.
171 13 C.F.R. §315.4.
172 13 C.F.R. §315.5.
173 13 C.F.R. §315.5.
174 13 C.F.R. §315.5.
175 13 C.F.R. §315.6.
176 For a list of University Centers, see https://eda.gov/programs/university-centers/current-list/.
Congressional Research Service

45

Economic Development Administration: An Overview of Programs and Appropriations

support of regional economic development strategies in one or more of the following program
areas:
 Advancing regional commercialization efforts,
 Advancing high-growth entrepreneurship,
 Cultivating innovation,
 Encouraging business expansion in a region’s innovation cluster(s),
 Developing a high-skil ed regional workforce, and
 Increasing the resiliency of a region.
Eligible recipients for the University Center program include institutions of higher education
(including community colleges or junior colleges and consortia of institutions of higher
education); university-affiliated research institutions; and nonprofit organizations. University
Center grants general y have a five-year period of performance, with an initial funding period of
one year. Since FY2004, EDA has administered the University Center program as a competitive
multiyear program. In FY2021, EDA is holding the University Center competition in its Chicago
and Philadelphia Regional Offices.177 In FY2022, EDA wil hold the University Center
competition in its Atlanta and Seattle Regional Offices. In FY2023, EDA wil hold the University
Center competition in its Austin and Denver Regional Offices.178
Statutory Authority: 42 U.S.C. §3147
Agency Regulations: 13 C.F.R. Parts 300-302 and 13 C.F.R. §306 Subpart B
Economic distress criteria: No minimum economic distress level requirements.179
Requirement to align with CEDS or equivalent: Recent University Center NOFOs indicate that
applicants to the University Center program are not required to submit a CEDS.180
Level of matching funds requirement: General y 50% of project costs, but may vary. See 13
CFR §301.4.

177 EDA, NOFO—FY2021 EDA University Center Economic Development Program Competition, EDA-CHI-T A-
CRO-2021-2006893 and EDA-CHI-T A-CRO-2021-2006894, https://www.grants.gov/web/grants/view-
opportunity.html?oppId=332622.
178 EDA, “University Centers—Applicant Resources,” https://eda.gov/programs/university-centers/applicant-resources/
.
179 13 C.F.R. §306 Subpart B. The EDA encourages University Centers to provide services that benefit distressed areas
in their region (13 C.F.R. §306.5(a)).
180 EDA, NOFO—FY2021 EDA University Center Economic Development Program Competition, EDA-CHI-T A-CRO-
2021-2006893 and EDA-CHI-T A-CRO-2021-2006894, https://www.grants.gov/web/grants/view-opportunity.html?
oppId=332622.
Congressional Research Service

46

Economic Development Administration: An Overview of Programs and Appropriations

Appendix B. EDA Funding—Historical Tables
Table B-1. Budget Requests and Annual Enacted Appropriations,
FY2011-FY2021 and FY2022 Request
(budget authority, in mil ions of nominal dol ars)
Fiscal Year
Request
Enacted
2011
$286.2
$283.4
2012
$324.9
$457.5*
2013
$219.7
$218.3
2014
$320.9
$246.5
2015
$248.2
$250.0
2016
$273.0
$261.0
2017
$258.0
$276.0
2018
$30.0
$901.5*
2019
$14.9
$904.0*
2020
$30.0
$1,833.0*
2021
$31.6
$3,346.0*
2022
$433.1

Source: OMB Budget Appendices of the United States and EDA Annual Reports. The FY2022 Administration
Request amount is from the President’s request for FY2022 discretionary funding.
Notes: Includes funding for programs and salaries and expenses. The asterisk (*) indicates that the amount
includes supplemental appropriations.

Congressional Research Service

47

Table B-2. Funding for EDA, by Program, FY2011-FY2021
(budget authority, in mil ions of nominal dol ars)

FY2011
FY2012
FY2013a
FY2014
FY2015
FY2016
FY2017
FY2018
FY2019
FY2020
FY2021
Program

Public Works
88.7
111.6
77.2
96.0
99.0
100
100
117.5
117.5
118.5
119.5
Economic
78.7
50.1
49.0
42.0
35.0
35.0
35.0
37.0
37.0
37.0
37.5
Adjustment
Assistance
Planning Assistance
30.9
29.0
28.4
29.0
30.0
32.0
31.5
33.0
33.0
33.0
33.5
Technical Assistance
13.4
12.0
11.8
11.0
11.0
10.5
9.0
9.5
9.5
9.5
10.0
Research and
1.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
Evaluation
Trade Adjustment
15.8
15.8
15.5
15.0
12.5
13.0
13.0
13.0
13.0
13.0
13.5
Assistance
Innovative

—b

5.0
4.0

Manufacturing (Sec.
26)
Build to Scale (Sec.

—c

10.0
10.0
15.0
17.0
21.0
23.5
33.0
38.0
27)
Assistance to Coal

10.0d
15.0
30.0
30.0
30.0
30.0
33.5
Communities

Assistance to

15.0
16.5
Nuclear Closure
Communities
STEM

2.0
2.0
Apprenticeships
(Sec. 28)
Global Climate
16.5

Change Mitigation
CRS-48

FY2011
FY2012
FY2013a
FY2014
FY2015
FY2016
FY2017
FY2018
FY2019
FY2020
FY2021
Subtotal—Programs
245.5
220.0
182.0
209.5
213.0
222.0
237.0
262.5
265.0
292.5
305.5
Supplemental

200.0

600.0
600.0
1,500.0
3,000.0
Appropriations
Salaries and Expenses
37.9
37.5
36.2
37.0
37.0
39.0
39.0
39.0
39.0
40.5
40.5
Total
$283.4
$457.5
$218.3
$246.5
$250.0
$261.0
$276.0
$901.5
$904.0
$1,833.0
$3,346.0
Sources: Appropriated funding amounts compiled by CRS using data from the conference reports and explanatory statements for the fol owing annual appropriations
bil s: P.L. 112-10, P.L. 112-55, P.L. 113-76, P.L. 113-235, P.L. 114-113, P.L. 115-31, P.L. 115-141, P.L. 116-6, P.L. 116-93, P.L. 116-136, and P.L. 116-260; S.Rept. 113-78;
and EDA, FY2013 Annual Report, https://eda.gov/files/annual-reports/fy2013/EDA-FY2013-Annual-Report-ful .pdf. Funding amounts include the fol owing supplemental
appropriations bil s: P.L. 115-123, P.L. 116-20, P.L. 116-136, and P.L. 117-2.
Notes: Amounts may not add to totals due to rounding. Build to Scale was cal ed Regional Innovation Strategies (RIS) or Regional Innovations Program (RIP) in annual
appropriations bil s from FY2014 to FY2021; EDA began administering RIS/RIP funding using the Build to Scale program name in FY2020. The RIS/RIP included Science
Parks Loan Guarantees in FY2014 (P.L. 113-76). In FY2015 (P.L. 113-235), the explanatory statement indicated that the amount for regional innovation would include up
to $5 mil ion for planning grants for science park infrastructure.
a. FY2013 levels reflect post-sequestration amounts. According to CRS Report R43080, Commerce, Justice, Science, and Related Agencies: FY2014 Appropriations,
coordinated by Nathan James, Jennifer D. Wil iams, and John F. Sargent Jr., “FY2013 post-sequestration amounts were provided by the Department of Commerce.
FY2014-requested amounts were taken from S.Rept. 113-78. The FY2013 amounts include rescissions of FY2013 budget authority and the amount sequestered per
the Budget Control Act of 2011 (P.L. 112-25).”
b. The conference report accompanying the FY2012 appropriations directed EDA to al ocate up to $5,000,000 for loan guarantees under section 26 under the
Economic Adjustment Assistance program. See CRS Report R41721, Commerce, Justice, Science, and Related Agencies: FY2012 Appropriations, coordinated by Nathan
James, Jennifer D. Wil iams, and John F. Sargent Jr.
c. In FY2012, the annual appropriations bil did not include a separate appropriation for Regional Innovation Program activities as requested by the Administration.
Grants and loan guarantees authorized by section 27 were funded under the Economic Adjustment Assistance program. See CRS Report R41721, Commerce, Justice,
Science, and Related Agencies: FY2012 Appropriations, coordinated by Nathan James, Jennifer D. Wil iams, and John F. Sargent Jr. In FY2014, the explanatory statement
accompanying the appropriations bil directed EDA to administer section 27 grants and loan guarantees in accordance with the req uirements of 15 U.S.C. §§3721-
3722 rather than the requirements of PWEDA. See Rep. Harold Rogers, “Explanatory Statement Submitted by Mr. Rogers, Chairman of the House Committee on
Appropriations Regarding H.R. 3547, Consolidated Appropriations Act, 2014,” Congressional Record, vol. 160, no. 9 (January 15, 2014), p. H507.
d. According to the EDA, “This program line was created by the Consolidated and Further Continuing Appropriation Act, 2015 ( P.L. 113-235).” See EDA, FY2022
Congressional Budget Justification, p. 63, https://www.commerce.gov/sites/d efault/files/2021-05/fy2022_eda_congressional_budget_justification.pdf.
CRS-49

Economic Development Administration: An Overview of Programs and Appropriations

Table B-3. Supplemental Funding, FY2011-FY2021
(budget authority, in mil ions of dol ars)
FY2012
FY2018
FY2019
FY2020
FY2021

(P.L. 112-55)
(P.L. 115-123)
(P.L. 116-20)
(P.L. 116-136)
(P.L. 117-2)
Economic Adjustment
$200
$600
$600
$1,500
$3,000
Assistance
Sources: CRS using information from the reports accompanying the fol owing appropriations bil s: Consolidated
and Further Continuing Appropriations Act, 2012 (P.L. 112-55), Bipartisan Budget Act of 2018 (P.L. 115-123),
Supplemental Appropriations for Disaster Relief Act, 2019 (P.L. 116-20), CARES Act (P.L. 116-136), and
American Rescue Plan Act (ARPA, P.L. 117-2).
Congressional Research Service

50

Economic Development Administration: An Overview of Programs and Appropriations

Appendix C. Staff Level History
Table C-1. EDA Employment, FY2011-FY2021
Year
Employment
2011
222
2012
197
2013
169
2014
167
2015
174
2016
192
2017
180
2018
180
2019
202
2020
261
2021
272
Source: CRS using information from the Office of Personnel Management (OPM), FedScope,
http://www.fedscope.opm.gov.
Notes: Each total is an “on-board” U.S.-based personnel count as of September of the year noted, except 2021.
The amount for 2021 shows the total as of June, the most recent month for which data is available.

Author Information

Julie M. Lawhorn

Analyst in Economic Development Policy

Acknowledgments
Jamie Hutchinson, Visual Information Specialist, developed the figures included in this report. Maria
Kreiser, Julie Jennings, and Jared Nagel provided research assistance. Shelley Harlan, Editor, provided
technical edits and functionality support as the report was developed. Lauren R. Stienstra, Federalism and
Emergency Management Section Research Manager, and section- and division-level management
throughout CRS provided substantive edits and assistance in shaping the report’s development.
Congressional Research Service

51

Economic Development Administration: An Overview of Programs and Appropriations

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.

Congressional Research Service
R46991 · VERSION 1 · NEW
52