link to page 2 
January 14, 2022
FEMA’s Emergency Food and Shelter Program (EFSP)
The Federal Emergency Management Agency’s (FEMA’s)
Program Funding Award Process
Emergency Food and Shelter Program (EFSP) provides
When Congress appropriates funding to the EFSP, FEMA
grants to private nonprofit organizations and local
awards the funding as a single grant to the National Board.
governments to support and expand existing programs that
The National Board is responsible for establishing program
aid individuals and families who are homeless or
policies, procedures, and guidelines, which vary for
experiencing economic emergencies. The EFSP is funded
different Phases (i.e., grant cycles aligning with each
by annual appropriations provided in the Department of
tranche of funding; see Table 1), and disbursing the
Homeland Security (DHS) Appropriations Act. It can also
funding as smaller grants. To determine a jurisdiction’s
be funded through supplemental appropriations. This In
EFSP grant eligibility, the National Board uses a formula
Focus briefly describes the EFSP grant award process, the
that includes population data, poverty data from the U.S.
eligible use of funding, and recent funding history.
Bureau of the Census’s American Community Survey, and
unemployment data from the Bureau of Labor Statistics.
Program Authorization
Thus, jurisdictions must meet specific criteria to qualify for
The EFSP was established in 1983 through the Temporary
EFSP funding. These criteria may vary for different Phases.
Emergency Food Assistance Act of 1983 (P.L. 98-8), and
For example, per the National Board’s website, a
later authorized under the Stewart B. McKinney Homeless
jurisdiction could qualify for Phase 39 (FY2021 annual
Assistance Act of 1987 (P.L. 100-77), renamed the
appropriations) funding if both of the following criteria are
McKinney-Vento Homeless Assistance Act. It is codified at
met:
42 U.S.C. §§11331 et seq.
“300 minimum unemployed [individuals]”; and
Program Structure
National Board: The EFSP is governed by a National
“unemployment and poverty rates at national average.”
Board that, by statute, includes representatives from six
private nonprofit organizations: (1) the American Red
For comparison, a jurisdiction could qualify for Phase 38
Cross; (2) Catholic Charities U.S.A.; (3) the Jewish
(FY2020 annual appropriations) funding if it met one of the
Federations of North America (referred to in statute as the
following criteria:
Council of Jewish Federations, Inc.); (4) the National
Council of Churches of Christ in the U.S.A.; (5) the
“Number of unemployed: 300 or more with a 6.9% rate
Salvation Army; and (6) United Way Worldwide (referred
of unemployment”; or
to in statute as the United Way of America). United Way
Worldwide serves as the EFSP National Board’s secretariat
“Number of unemployed: 300 or more with a 14.1% rate
and fiscal agent, and administers the program day-to-day,
of poverty.”
along with the Director.
EFSP grant award amounts are determined by “dividing the
Director: The National Board is chaired by a Director,
available funds by the number of unemployed persons
which, by statute, is the FEMA Administrator.
within each jurisdiction that qualifies ,” which creates a per
capita rate. In addition, there is a “State Set-Aside” process
Local Board: Each jurisdiction designated for funding
that allows any jurisdiction (formula-qualified or not) to
must establish a Local Board. Membership mirrors the
receive EFSP funding. The National Board allocates a
National Board unless the jurisdiction is not served by a
portion of the appropriated funds (e.g., 8% of the EFSP
member agency (this is noted on the Local Board roster),
award for Phase 39) for such purposes based on the
and also includes the highest-ranking local government
unemployment rates in the jurisdictions that do not qualify
official, a representative who is or was homeless, and a
under the formula. These grants can be used to address
tribal representative (if applicable). Local Boards are
“pockets of homelessness and poverty” or immediate needs.
responsible for advertising funding availability, setting
funding priorities, determining community needs,
There is no national EFSP application process. Instead,
establishing client eligibility, selecting grant recipients,
LROs are selected by the Local Boards of the jurisdictions
monitoring grant recipients’ program compliance, and grant
designated for funding. The National Board disburses funds
reporting.
directly to LROs recommended by the Local Boards.
Local Recipient Organizations (LROs): LROs are EFSP
Supplemental EFSP funding may be directed for a specific
grant recipients. They can be private nonprofit
purpose. For example, Phases ARPA and SAHA fund
organizations or public organizations of the local
eligible costs associated with providing humanitarian relief,
government in the individual jurisdiction.
including shelter, food, and related supportive services, to
https://crsreports.congress.gov
link to page 2 link to page 2 link to page 2 link to page 2 FEMA’s Emergency Food and Shelter Program (EFSP)
migrants released from DHS custody or encountered by
EFSP
Appropriated
DHS at the southern border. Phases ARPA and SAHA are
Fiscal
Funding
Allocation
Amount
subject to competitive award processes in which the
Year
Measure
Phase
(millions)
National Board makes award determinations—rather than
formula-based allocations—and prioritizes communities
FY2020 CARES
P.L. 116-136
$200
most affected by the humanitarian crisis. Phase SAHA set
(Title VI)
aside $25 million (83.3%) for southern border state LROs.
FY2020 Phase 38
P.L. 116-93
$125
The National Board’s website provides publicly available
(Div. D)
information on the funded LROs, as well as jurisdiction-
FY2019 SAHA
P.L. 116-26
$30
level data on the assistance provided (e.g., number of meals
(Title III)
provided) and amount spent on eligible assistance by fiscal
year and Phase (see the “Regular Features” tab, including
FY2019 Phase 37
P.L. 116-6
$120
“Funded Organizations” and “Your Community”).
(Div. A)
Eligible Costs
FY2018 Phase 36
P.L. 115-141
$120
(Div. F)
EFSP funds supplement existing services, but are not
intended to establish new programs. Eligible costs include:
FY2017 Phase 35
P.L. 115-31
$120
(Div. F)
food (e.g., served meals or groceries);
Sources: CRS Appropriations Status Table, and the website of the
Emergency Food and Shelter National Board Program, available at
hotel/motel lodging assistance (up to 90 days) to prevent
https://www.efsp.unitedway.org/efsp/website/.
homelessness;
Notes: ARPA = American Rescue Plan Act of 2021; CARES =
rent/mortgage assistance (up to 90 days) to maintain
Coronavirus Aid, Relief, and Economic Security Act; and SAHA =
housing;
Supplemental Appropriations for Humanitarian Assistance.
utility assistance (up to 90 days) to prevent service
a.
Funding for Phase “ARPA-R” was provided through Section
disconnection; and
4007 of the American Rescue Plan Act of 2021 (ARPA, P.L. 117-
2), in which $400 mil ion was appropriated. The –R designates
necessary equipment (up to $300 per item).
the regular EFSP (this is distinct from Phase ARPA; see below).
Per EFSP guidance, the provision of assistance for up to 90
b. Funding for Phase “ARPA” was provided through ARPA Section
days for hotel/motel, rent/mortgage, and utility assistance is
4008, in which $110 mil ion was appropriated to provide
an EFSP program change that applied beginning with the
“humanitarian relief to families and individuals encountered by
implementation of the EFSP awards for Phases 39 and
[DHS].” Phases ARPA and SAHA have distinct funding tranches.
ARPA-R (see Table 1). Previously, such assistance could
be provided for up to 30 days or one month. The National
The Biden Administration’s FY2022 budget request
Board is not subject to agency rulemaking requirements,
included $130 million for the EFSP in FEMA’s
and can make program changes via guidance.
appropriations. Previous Administrations periodically have
EFSP Appropriations
proposed transitioning or eliminating the EFSP. The Obama
Administration proposed transitioning the program and
According to the National Board, more than $5.6 billion has
budget authority from FEMA to the U.S. Department of
been disbursed through the EFSP in the program’s history.
Housing and Urban Development (HUD) in its FY2015-
Table 1 lists the EFSP appropriations for the last five fiscal
FY2017 budget requests, citing the EFSP’s goals as being
years (FY2017-FY2021), including funding provided
consistent with HUD’s mission. The Trump Administration
through the annual appropriation process (numbered
proposed eliminating the EFSP in FY2018 and FY2021,
Phases) and supplemental funding (named Phases).
and did not request EFSP funding in FY2019 or FY2020,
Table 1. EFSP Appropriations, FY2017-FY2021
citing the EFSP as being duplicative of HUD’s housing
programs and stating the provision of emergency food and
EFSP
Appropriated
shelter is primarily a state and local responsibility.
Fiscal
Funding
Allocation
Amount
Year
Measure
Phase
(millions)
Additional Resources
Additional EFSP program information can be found on
FY2021 ARPA-Ra
P.L. 117-2
$400
FEMA’s “Emergency Food and Shelter Program” webpage,
(Title IV)
at https://www.fema.gov/grants/emergency-food-and-
shelter-program, and the Emergency Food and Shelter
FY2021 ARPAb
P.L. 117-2
$110
National Board Program website, at
(Title IV)
https://www.efsp.unitedway.org/efsp/website/index.cfm.
FY2021 Phase 39
P.L. 116-260
$130
DHS’s Congressional Budget Justifications are available at
(Div. F)
https://www.dhs.gov/dhs-budget.
https://crsreports.congress.gov
FEMA’s Emergency Food and Shelter Program (EFSP)
Elizabeth M. Webster, Analyst in Emergency
Management and Disaster Recovery
IF12026
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permissio n of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF12026 · VERSION 1 · NEW