Economic Development Administration: An
August 1, 2023
Overview of Programs and Appropriations
Julie M. Lawhorn
(FY2011-FY2023)
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 infrastructure, and implement regional 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 10 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
• Economic Adjustment Assistance (EAA),
• Local Technical Assistance,
• Planning,
• Public Works,
• Recompete Pilot,
• Regional Innovations programs (e.g., Build to Scale (B2S), Regional Technology and Innovation
Hubs (Tech Hubs)),
• 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. Between FY2011 and FY2022, annual
appropriations averaged approximately $288 million. Annual appropriations decreased each year between FY2011
and FY2013, and have increased each year since FY2014. In FY2022, EDA received $373.5 million in annual
appropriations for the agency’s programs and administration. In FY2023, Congress approved $1.6 billion
(including supplemental appropriations) for the agency’s programs and administration—an increase of $1.2
billion (or 332%) from prior year funding levels.
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
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Economic Development Administration: An Overview of Programs and Appropriations

workforce and innovation-ready regions. Congress may consider reviewing the implementation, interagency
coordination, and outcomes of new programs as well as the staffing resources required for such programs. For
instance, in FY2023 Congress authorized two new regional programs, which received over $600 million in their
first round of appropriations (i.e., the Recompete Pilot and the Tech Hubs programs) and Congress may want to
conduct oversight on how those programs are implemented. Congressional debate on these and other EDA issues
may be associated with or separate from discussions of the reauthorization of appropriations for programs
established by PWEDA. Although the PWEDA authorities do not expire, the authorization of appropriations to
fund the economic development assistance programs expired on September 30, 2008.
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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 locally driven,
The EDA defines economic development as creating
regionally 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 58
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’s roles have expanded to include research,
technical assistance, and economic development integration across agencies, among others.
Congress approves appropriations for EDA annually and directs the agency to allocate funding to
the major programs outlined in Figure 1. Congress occasionally approves supplemental funding
as well. 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 generally 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 (Thousand 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; and Emil E. Malizia and Edward Feser,
Understanding Local Economic Development (New Brunswick, NJ: Center for Urban Policy Research, Rutgers, 1999),
pp. 12-13; among others.
2 Testimony by Mr. Dennis Alvord, Acting Assistant Secretary of Commerce for EDA, U.S. House of Representatives,
Committee on Transportation and Infrastructure, Subcommittee on Economic Development, Public Buildings and
Emergency Management, Investing in America: Reauthorization of the Economic Development Administration, 117th
Cong., 1st sess., April 28, 2021, https://www.congress.gov/117/meeting/house/112512/witnesses/HHRG-117-PW13-
Wstate-AlvordD-20210428.pdf.
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Figure 1. Major EDA Programs

Source: CRS, using EDA “EDA Programs,” https://www.eda.gov/funding/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 recent years,
Congress has directed EDA to administer additional funding through the EAA program for coal communities and
nuclear closure communities and EDA created the Assistance to Coal Communities (ACC) and Assistance to
Nuclear Closure Communities (NCC) Initiatives. Starting in FY2022, Congress further directed EDA to
administer funding through the EAA program for biomass plant closure communities.
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 allocations, grant requirements, disaster recovery, and reauthorization of
appropriations for programs established by 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 Kyla H. Kitamura.
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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 generally flexible and support economic adjustment,
economic resiliency, infrastructure, workforce, disaster economic recovery, innovation, planning,
technical assistance, and related activities. In allocating 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 economically distressed areas.5 The findings section of PWEDA reflect the origins
of the agency’s approach to locally 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, regionally 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 generally do not require applicants
to specialize in specific industries or strategies, and instead assist with locally developed projects
to advance industries or strategies based on a region’s particular assets and challenges.

3 EDA, “Overview,” https://eda.gov/about.
4 EDA, “EDA Informational Brochure,” https://www.eda.gov/sites/default/files/filebase/archives/2021/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 Elements 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., “The Logic of Economic Development: A Definition and
Model for Investment,” Environment and Planning C: Government and Policy, vol. 34, no. 1 (2016), pp. 5-21; also
available at https://www.eda.gov/grant-resources/reports/research-reports. The report defines economic development as
“the development of capacities that expand economic actors’ capabilities.”
7 EDA, FY2024 Congressional Budget Justification, p. 153, https://www.commerce.gov/sites/default/files/2023-03/
EDA-FY2024-Congressional-Budget-Submission.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.
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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
following milestones highlight precursors to current EDA programs as well 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 smaller 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 economically 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

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.
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, Economic Development Administration: A Review of Elements 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). The 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, Economic Development Administration: A Review of Elements 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
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, 123-124.
13 EDA, “History of EDA,” https://www.eda.gov/archives/2016/50/history.
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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
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. 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 well as offices for finance management and external affairs and communications (see
Figure 2).

14 Defense adjustment refers to activities that assist communities affected by base closures, reductions in defense
contracts, or reductions in Department of Energy defense-related funding. 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, 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.
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://www.eda.gov/sites/default/files/filebase/archives/2021/pdf/about/EDA-TriFold-2017.pdf.
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Figure 2. EDA Organizational Chart

Source: CRS with data from DOC, EDA, FY2024 Congressional Budget Justification, p. 7,
https://www.commerce.gov/sites/default/files/2023-03/EDA-FY2024-Congressional-Budget-Submission.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 Challenge, 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
policies that cultivate technology commercialization.” NACIE was established by

21 EDA, “Research and National Technical Assistance Program,” https://eda.gov/programs/rnta.
22 EDA, “About OIE,” https://eda.gov/oie.
OIE administered the first round of the Regional Innovation Program 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 STEM Talent Challenge (STEM Apprenticeships) program in FY2020 (see EDA, “STEM Talent
Challenge,” https://www.eda.gov/funding/programs/stem-challenge). Additionally, in FY2020, EDA administered the
Accelerate R2 Network competition in collaboration with the National Institute of Standards and Technology (NIST)
and the First Responder Network Authority (FirstNet) to develop a network of organizations working to address
disaster response and resiliency (R2) challenges with innovative technologies (see EDA, “Accelerate R2 Network
Challenge,” https://eda.gov/oie/accelerate-r2).
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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 illustrates 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 EDA,
“NACIE,” https://www.eda.gov/strategic-initiatives/national-advisory-council-on-innovation-and-entrepreneurship.
24 EDA, “Trade Adjustment Assistance for Firms,” https://www.eda.gov/sites/default/files/pdf/about/TAAF-Program-
1-Pager.pdf. For more information on TAAF, see CRS Report RS20210, Trade Adjustment Assistance for Firms, by
Kyla H. Kitamura.
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.
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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 September 2022, EDA had approximately 314 on-board employees.28
Figure 4 presents the number of on-board employees for 2011 to 2022. 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 of 2021 (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
planned to transition 50 staff hired under the CARES Act into permanent full-time equivalent

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 Implementing 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.
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(FTE) positions in FY2022.30 According to testimony by Assistant Secretary Alejandra Castillo 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:
The term full-time equivalent employment (FTE) is used to quantify employment as a function of hours worked
rather than by the number of individual employees. One FTE is also known as one work year. The number of
FTEs in an agency is calculated by determining the total 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 FTE, is equivalent to 2,080 hours of work. (The 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
FTE employment numbers are used by OMB to manage employment in departments and agencies. The
requirements for reporting FTE employment in the President’s Budget are prescribed in Section 85 of OMB
Circular No. A-11 on “Estimating Employment Levels and the Employment Summary (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 FTEs are calculated.)
31 U.S. Senate, Environment and Public Works Committee, Examining Programs at the Economic Development
Administration, 117th Cong., 1st sess., Nov. 3, 2021, https://www.epw.senate.gov/public/index.cfm/hearings?ID=
256D08CE-44DC-47B4-9663-F9AC5AA8950E. See also testimony by Mr. Dennis Alvord, Acting Assistant Secretary
of Commerce for EDA, U.S. House of Representatives, Committee on Transportation 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.
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Figure 4. EDA On-Board Employees, 2011-2022

Source: CRS, using data from the U.S. Office of Personnel Management, FedScope database, Employment cubes,
https://www.fedscope.opm.gov/employment.asp.
Note: Each total provides the number of on-board employees as of September each year.
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 generally 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 400 EDDs; some regions of the United States are not served by an EDA-
designated EDD.34 Most EDD regions do not align with standard, federally defined regions, such
as metropolitan statistical areas, and some EDDs cover regions that cross state borders.35 EDDs
may receive financial assistance through Partnership Planning and other programs, and may
implement or manage projects.

32 See https://www.eda.gov/grant-resources/economic-development-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 Development Organizations (RDOs) in Economic Development, by Julie M. Lawhorn.
33 EDA, “Economic Development Districts,” https://www.eda.gov/edd. See also 42 U.S.C. §3171.
34 EDA, “Celebrating 400 Blueprints for a Modern Economy,” March 2, 2023, https://www.eda.gov/news/blog/2023/
03/02/blog-celebrating-400-blueprints-modern-economy. Through an award from the EDA, the National Association of
Development Organizations (NADO) Research Foundation created an interactive map of EDDs, which is available at
https://www.nado.org/eddmap/.
35 EDA, “CEDS Content,” https://www.eda.gov/grant-resources/comprehensive-economic-development-strategy/
content/summary. 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.
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Investment Priorities, FY2011-Present
EDA encourages grant applicants to align their proposals with its investment priorities.36 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.37
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
•
•

Environmentally sustainable

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

Economically distressed and

Opportunity zones
•
Environmentally sustainable
underserved communities
development
•
Exports and foreign direct
investment (FDI)
Sources: EDA, “Investment Priorities,” https://www.eda.gov/funding/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
aims to better prepare regions to anticipate, withstand, and bounce back from any type of shock, disruption, or
stress it may experience.”38 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.39
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.40 EDA now leads
integration activities across federal economic development programs in an effort to enhance

36 EDA, “Investment Priorities,” https://www.eda.gov/funding/investment-priorities.
37 DOC, EDA, FY2023 Congressional Budget Justification, p. 11, https://www.commerce.gov/sites/default/files/2022-
03/FY2023-EDA-Congressional-Budget-Submission.pdf.
38 EDA, “CEDS Guidelines—Economic Resilience,” https://www.eda.gov/grant-resources/comprehensive-economic-
development-strategy/content/economic-resilience.
39 EDA, “Investment Priorities,” https://www.eda.gov/funding/investment-priorities.
40 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.
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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 EDDs to facilitate connections among local,
state, and federal contacts and programs—often convening for planning purposes
or post-disaster recovery initiatives.41 Regional offices have staff identified as
regional integrators as well.42
• EDA headquarters staff and operations support EDI goals through interagency
planning and efforts to align administrative requirements.43
• Eligible EDA grant recipients are allowed 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.44
• EDA partners with other federal agencies that administer economic development
programs, including the U.S. Department of Agriculture (USDA), the
Department of Housing and Urban Development (HUD), the Department of
Labor (DOL), and the Small Business Administration (SBA), among others.45
In July 2021, GAO analyzed opportunities for further collaboration among EDA, HUD, and
USDA. In its final report, GAO recommended that, in collaboration with HUD, EDA should (1)
update its written interagency agreement with HUD on community and economic development
planning, and (2) monitor its progress towards outcomes of its interagency agreement. At the time
of this report the EDA has already taken action to address the first recommendation and partially
address the second recommendation. GAO also recommended that USDA review options to
expand collaboration between EDA, HUD, and USDA, and this recommendation was considered
fully addressed at the time of this report.46 GAO noted existing interagency efforts to integrate
federal economic development activities, include the Thriving Communities Network and the

41 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.
42 EDA, “Regional Integrator Contacts,” https://eda.gov/integration/contact. Regional integrators may help stakeholders
by convening meetings, building coalitions, identifying 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.
43 EDA, “Economic Development Integration,” https://eda.gov/integration.
44 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. The FY2023 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, “FY 2023 Public Works and Economic Adjustment
Assistance Notice of Funding Opportunity,” p. 13, https://www.grants.gov/web/grants/view-opportunity.html?oppId=
346815, and 13 C.F.R. §300.3 and 2 C.F.R. §200.306.
45 EDA, “Economic Development Integration [EDI],” https://eda.gov/integration and “EDI Networking and
Collaboration,” https://www.eda.gov/strategic-initiatives/economic-development-integration/networking-collaboration.
For an overview of federal resources for state and local economic development, see CRS Report R46683, Federal
Resources for State and Local Economic Development, by Julie M. Lawhorn.
46 GAO, Economic Development: Opportunities Exist for Further Collaboration Among EDA, HUD, and USDA,
GAO-21-579, July 2021, https://www.gao.gov/products/gao-21-579.
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Rural Partners Network, among other federal interagency initiatives, in its update on the status of
report recommendations.47
Disaster Economic Recovery Role
EDA is the lead agency in the “Economic Recovery Support Function (ERSF)” under the
National Disaster Recovery Framework (NDRF).48 According to the Federal Emergency
Management Agency (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.”49 Within the NDRF, EDA’s role is to “facilitate the delivery of federal economic
development assistance to support long-term economic recovery planning and project
implementation in communities across the nation.”50 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 challenges to
facilitate long-term recovery.51 For instance:
• Following Hurricane Harvey in August 2017, EDA’s Austin Regional Office
collaborated with EDDs, federal agencies (e.g., FEMA, SBA, USDA, Federal
Reserve, Department of Transportation), 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.52
• Through its ERSF, EDA deployed to Puerto Rico following Hurricanes Maria
and Irma in September 2017 to provide support, coordination, and additional
capacity to economic recovery efforts.53
• EDA coordinated a “Federal Interagency Resource Exchange” following
Hurricane Laura in August 2021.54
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.55 For example,

47 GAO, “Recommendations,” https://www.gao.gov/products/gao-21-579#summary_recommend.
48 EDA, “EDA and Disaster Recovery,” https://eda.gov/disaster-recovery.
49 FEMA, “National Disaster Recovery Framework,” https://www.fema.gov/emergency-managers/national-
preparedness/frameworks/recovery.
50 EDA, “Spotlight: EDA Investments Advance Economic Recovery in American Communities Impacted by Natural
Disasters,” https://www.eda.gov/archives/2021/news/blogs/2020/09/01/spotlight.htm.
51 EDA, “Recovering from Harvey: EDA Leads the Coordination of Federal Resources,” January 12, 2021,
https://www.eda.gov/impact/success-stories/disaster-recovery/recovering-harvey-eda-leads-coordination-federal-
resources.
52 EDA, “EDA Investments in Disaster Recovery and Resiliency Programs for Regions Impacted by Hurricane
Harvey,” https://www.eda.gov/impact/success-stories/disaster-recovery/eda-investments-disaster-recovery-and-
resiliency-programs; and “Recovering from Harvey: EDA Leads Coordination of Federal Resources,” January 12,
2021, https://www.eda.gov/impact/success-stories/disaster-recovery/recovering-harvey-eda-leads-coordination-federal-
resources.
53 EDA, “EDA Continues to Support the Caribbean Following the Devastating 2017 Hurricane Season,” September 20,
2021, https://www.eda.gov/news/blog/2021/09/20/eda-continues-support-caribbean-following-devastating-2017-
hurricane-season.
54 See EDA, “Where We Work,” https://eda.gov/disaster-recovery/where-we-work/#la.
55 See Figure 7 for a summary of supplemental disaster appropriations during the FY2011-FY2023 time period. See
also, for example, EDA, “FY 2023 Disaster Supplemental NOFO,” https://www.grants.gov/web/grants/view-
opportunity.html?oppId=347414.
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since 2017, EDA has invested over $111 million in 34 grants to Puerto Rico following hurricanes
Maria and Irma.56 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.57 EDA administers recovery assistance grants through its regional offices.58
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.59 By example, Public Works is an infrastructure
program and Build to Scale is generally classified as a non-infrastructure program. The agency’s
goals and associated metrics are detailed in Table 2.
Table 2. EDA Performance Goals and Metrics
Performance Goal
Examples of Metrics
Infrastructure investments that
•
Private sector dol ars invested in economically distressed regions as a
promote private enterprise and
result of EDA’s investments.
job creation in economically
•
Jobs created or retained in economically distressed regions as a result
distressed communities and
of EDA’s investments.
regions.
Non-infrastructure investments
•
Estimated jobs created and retained for underserved populations and
that build community capacity to
geographies.
achieve and sustain regional
•
Private investment funds leveraged for underserved populations and
competitiveness and economic
geographies.
growth.
•
Estimated jobs created and retained from investments made to support
entrepreneurship.
•
Total sum of funding secured by entrepreneurs as a result of activities
sponsored by EDA investments.
•
Estimated jobs created and retained from investments made to support
the travel and tourism sector.
•
Estimated jobs created and retained from investments made to support
workforce development.
Source: EDA, “EDA Performance Measurement and Program Evaluation,” https://www.eda.gov/performance.
Notes: For more information, see “New Performance Data Col ection Instruments and Processes,”
https://eda.gov/performance/gpra.

56 EDA, “EDA Continues to Support the Caribbean Following the Devastating 2017 Hurricane Season,” September 20,
2021, https://www.eda.gov/news/blog/2021/09/20/eda-continues-support-caribbean-following-devastating-2017-
hurricane-season.
57 EDA “After Reoccurring Flooding, Moberly, Missouri, Business Owners to See Relief,” May 12, 2021,
https://eda.gov/success-stories/disaster/stories/moberly-mo.htm.
58 EDA, “Leading Economic Recovery Efforts in Disaster-Impacted Communities,” https://www.eda.gov/sites/default/
files/2023-03/EDA_Disaster_Brochure_2022_PRINT.pdf.
59 EDA, “EDA Performance Measurement and Program Evaluation,” https://www.eda.gov/performance.
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EDA Grant Programs
EDA grant programs, which are generally flexible, locally based, and regionally oriented, are
designed to increase the capacity for state and local economic development.60 According to EDA,
between FY2012 and FY2021, the agency invested over $5.3 billion in 7,921 projects.61 The
agency’s grant programs and investment priorities broadly support local initiatives that “leverage
economic assets in facilitating regional economic prosperity and resiliency as well as conditions
for business success.”62 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,63 among others. Grant programs may also
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.64 With the exception of the Recomplete Pilot and
Regional Technology and Innovation Hubs (Tech Hubs) programs, no minimum or maximum
project amount is specified in law.65
Table 3 provides a summary of EDA grant programs. For detailed program information, see
Appendix A.66

60 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 to 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.
61 EDA, “Performance Measurement and Program Evaluation,” https://www.eda.gov/performance.
62 EDA, “Investment Priorities,” https://www.eda.gov/funding/investment-priorities.
63 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
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.
... Business incubation programs usually provide clients access to appropriate rental space and flexible leases,
shared basic business services and equipment, technology support services, and assistance in obtaining the
financing necessary for company growth. Business incubation programs may also provide business assistance
services for nontenant clients, also referred to as virtual or affiliate clients.
See David A. Lewis, Elsie Harper Anderson, and Lawrence A. Molnar, “Incubating Success: Incubation Best Practices
that Lead to Successful New Ventures” (Ann Arbor, Michigan: University of Michigan Institute for Research on Labor,
Employment, and the Economy, University of Michigan, 2011).
64 DOC, EDA, FY2024 Congressional Budget Justification, p. 154, https://www.commerce.gov/sites/default/files/2023-
03/EDA-FY2024-Congressional-Budget-Submission.pdf.
65 42 U.S.C. §3121 et seq.
66 This report does not analyze EDA’s grant awards by program. For an analysis of EDA funding awarded by program
and other analysis, see Brett Theodos et al., “The Economic Development Administration’s Programs and Projects
Types—EDA Program Evaluation,” The 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; and “The Location of
Economic Development Administration Grants—EDA Program Evaluation,” The Urban Institute, July 20, 2023,
https://www.urban.org/research/publication/location-economic-development-administration-grants.
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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 as
training center.
water and sewer systems improvements,
•
Water and wastewater
industrial parks, business incubator facilities,
improvements in connection with
expansion of port and harbor facilities, skil -
the development of an industrial
training facilities, and brownfields
park.
redevelopment.
Economic Adjustment
The EAA program assists communities and
•
Capitalization of a Revolving Loan
Assistance (EAA) (11.307)
regions affected by natural disasters, natural
Fund for underserved regional
resource depletion, mass layoffs, and other
businesses.
severe economic shocks caused by
•
A study to evaluate how to
structural impacts to regional economies.
develop, sustain, and promote
Revolving Loan Funds (RLFs) are capitalized
businesses including retail,
by EAA grants. See CRS In Focus IF11449,
restaurants, services, and others
Economic Development Revolving Loan Funds
in a downtown area.
(ED-RLFs), by Julie M. Lawhorn.
•
Construction of a healthcare
simulation lab and telemedicine
space at a community col ege.
EAA—Assistance to
The ACC and NCC initiatives support
•
A broadband mapping project to
Coal Communities
communities and regions that have been
address current business access,
(ACC), Assistance to
negatively impacted by changes in the coal
an assessment of future needs,
Nuclear Closure
economy or by nuclear plant closures,
and regulatory matters for a coal-
Communities (NCC)
respectively. In addition to ongoing annual
impacted community.
initiatives, and Disaster
appropriations for the discretionary EAA
•
Economic Recovery
grant program, Congress has authorized

Development of a post-disaster
roadmap to improve regional
programs (11.307)
supplemental appropriations for EAA ACC
economic resiliency.
and NCC initiatives as well as for post-
disaster economic recovery and COVID-19
•
Storm water upgrades to
economic recovery efforts. EDA makes
minimize flooding hazards in a
ACC and NCC funding available through the
commercially zoned area in order
Notice of Funding Opportunity (NOFO) for
to support job creation and
the Public Works and EAA programs,
economic resiliency goals.
usually on an annual basis.
Partnership
The Partnership Planning program supports
•
Funds to support the
Planning (11.302)
a national network of EDA-designated
development and implementation
Economic Development Districts (EDDs) as
of the CEDS planning process.
well as local organizations (Indian Tribes 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 proposed,
Assistance (11.303)
provides grants for management and
regional entrepreneurship center.
technical services, including feasibility 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.
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Program Name
(CFDA No.)
Description
Project Examples
•
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
•
A grant to national organizations
regions.
to provide technical assistance
and disseminate promising
strategies among coal-impacted
and nuclear closure communities.
Build to Scale (Section
The Build to Scale program funds efforts to
•
Implementing regional strategies
27) (11.020)
facilitate innovation and entrepreneurship
that support entrepreneurship,
and increase access to risk capital. B2S is
technology development,
composed of the Venture Challenge and the
commercialization, and increased
Capital Challenge. The Venture Challenge
access to capital for biomedical
supports entrepreneurship support
products, agricultural
programs and other models to accelerate
technologies, advanced
high-growth entrepreneurship activities. The
manufacturing, and other
Capital Challenge provides operational
technology- and innovation-based
support to help organizations and regions
industries.
expand access to risk capital.
•
Operational support for a
EDA’s OIE administers the B2S program,
Prototype-to-Production
which is authorized under Section 27 of the
Hardware Accelerator program
Stevenson-Wydler Technology Act of 1980
to help entrepreneurs scale their
(15 U.S.C. §3722).
business and manufacture their
products.
STEM Talent Challenge/
The STEM Talent Challenge program funds
•
Development of a virtual smart
STEM Apprenticeships
efforts that expand career pathways and
factory environment to build
(Section 30, formerly
meet employers’ needs for a STEM capable
advanced manufacturing skil s and
Section 28) (11.023)
workforce. EDA’s OIE administers
facilitate workforce development.
the STEM Talent Challenge program, which
is authorized under Section 30 of the
Stevenson-Wydler Technology Act of 1980
(15 U.S.C. §3723).
Trade Adjustment
EDA partners with nonprofit or university-
•
Technical assistance for import-
Assistance for Firms
affiliated Trade Adjustment Assistance
impacted companies to develop
(TAAF) (11.313)
Centers (TAACs) to provide technical
business recovery plans and
assistance to import-impacted U.S.
strategies such as new product
manufacturing, production and service firms.
lines, updated information
TAAF is authorized under the Trade Act of
systems, and revised marketing
1974, as amended (19 U.S.C. §2341 et seq.).
campaigns.
Recompete Pilot
The Recompete Pilot program was
•
The Recompete Pilot program is
(Section 29) (11.306)
established by the CHIPS and Science Act
a new program. As of July 2023,
(P.L. 117-167, enacted August 8, 2022; 15
the EDA has not made awards
U.S.C. §3722b). The program wil provide
through the Recompete Pilot
grants and cooperative agreements to
program. EDA’s NOFO notes
persistently distressed areas. EDA will
that there is a large number of
administer two types of Recompete awards:
potentially eligible activities; in
(1) strategy development grants, and (2)
one example of a potential
strategy implementation grants.
project, a region seeking to
create new jobs may receive
funding for anchor institution
partnerships or economic
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Program Name
(CFDA No.)
Description
Project Examples
development capacity building
efforts.
Regional Technology and The Tech Hubs program was established by
•
The Tech Hubs program is a new
Innovation Hubs (Tech
the CHIPS and Science Act (P.L. 117-167,
program. As of July 2023, the
Hubs) (Section 28)
enacted August 8, 2022; 15 U.S.C. §3722a).
EDA has not made awards
(11.036)
The focus of the program is to support
through the program. EDA’s

technology development, job creation, and
NOFO included several project
expanding U.S. innovation capacity. The
examples, including “a strategy to
program also seeks to develop hubs in areas
bring entrepreneurship- and
that are not “leading technology
industry-focused faculty
centers.” EDA will administer two types of
researchers and innovators to
Tech Hubs awards: (1) strategy
the university and national lab
development grants, and (2) strategy
that have a proven track record
implementation grants.
of creating new startups in a
consortium’s selected core
technology area,” among others.
Sources: EDA, “Programs,” https://www.eda.gov/funding/programs; “Annual Reports,” https://eda.gov/annual-
reports; “Funding Opportunities,” https://www.eda.gov/funding/funding-opportunities; and “Press Releases”
https://www.eda.gov/news.
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 all 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.67 Applicants may also contact (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.68
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.69 Requirements vary by program,
authorizing statute, and agency regulations.70

67 Information on EDA grant competitions is available at https://www.eda.gov/funding/funding-opportunities and
http://www.grants.gov.
68 EDA, “Economic Development Directory,” https://www.eda.gov/grant-resources/economic-development-directory.
69 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 Terms and Conditions; and other requirements.
70 Detailed program requirements are outlined in Notice of Funding Opportunities (NOFOs) (see https://www.eda.gov/
funding/funding-opportunities) and in agency regulations (see 13 C.F.R. Part 300).
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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 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;71
• a state;72
• 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.73
Businesses are not eligible for most grants authorized by PWEDA, but may be eligible for
Training, Research, and Technical Assistance grants.74
The types of applicants eligible for the Build to Scale (B2S) and STEM Talent Challenge
programs, which are authorized by the Stevenson-Wydler Technology Innovation Act of 1980 (15
U.S.C. §§3722 and 3723) rather than PWEDA, include
• A state;
• An Indian tribe;

71 The term Indian tribe means an entity on the list of recognized tribes published pursuant to the Federally Recognized
Indian Tribe 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.). This term includes the governing body of an Indian tribe, 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 tribe or Alaska Native Village.
13 C.F.R. §300.3. A rule published in the Federal Register on September 24, 2021, extended EDA tribal 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 Tribal Entities,” 86 Federal Register 52957-52959,
September 24, 2021, https://www.federalregister.gov/documents/2021/09/24/2021-20633/permitting-additional-
eligible-tribal-entities.
72 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.
73 The Economic Development Administration Reauthorization Act of 2004 (P.L. 108-373) authorized select nonprofits
as eligible recipients.
74 42 U.S.C. §3122(4) and 13 C.F.R. §300.3. Training, Research, and Technical 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
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. There 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, Economic 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 Trade Adjustment Assistance Center partners.
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• 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.
Additionally, 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 Challenge programs.75
For the Tech Hubs program, which is authorized by the Stevenson-Wydler Technology Innovation
Act of 1980 (15 U.S.C. §3722a), EDA plans to award grants to eligible consortia. In addition to
other entities, an eligible consortium must include one or more representatives from
• institutions of higher education;
• state, territorial, local, or tribal governments or other political subdivisions of a state;
• industry groups or firms in relevant technology, innovation, or manufacturing sectors;
• economic development organizations or similar entities; and
• labor or workforce training organizations.
The Tech Hubs NOFO encourages the participation of at least two private firms in an eligible
consortium, and notes that other entities may be part of the consortium. One of the consortium
members will be the lead applicant.76
For the Recompete Pilot program, which is also authorized by the Stevenson-Wydler Technology
Innovation Act of 1980 (15 U.S.C. §3722b), eligible applicants include
• political subdivisions of a state;
• tribal governments;
• U.S. territories;
• the District of Columbia;
• nonprofit organizations working in cooperation with a political subdivision of a state;
• economic development districts; and

75 EDA, “2022 Build to Scale Program NOFO,” https://www.eda.gov/sites/default/files/2022-05/FY22-Build-to-Scale-
NOFO.pdf, and “2023 STEM Talent Challenge Program NOFO,” https://www.eda.gov/sites/default/files/2023-04/
FY%2023%20STEM%20Talent%20Challenge%20NOFO.pdf.
76 EDA, “FY2023 Regional Technology and Innovation Hub Program Phase 1 NOFO (Tech Hubs Phase 1 NOFO),”
https://www.eda.gov/sites/default/files/2023-05/Tech_Hubs_NOFO.pdf.
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• a coalition of any of the entities listed above.77
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;
• state or local governments; and
• nonprofit organizations.78
Cost Sharing Requirements
Cost sharing is required for most EDA grant programs although some exceptions may apply.79
Generally, 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.80 The Secretary may also
increase the federal share up to 100% for RNTA grants. Agency regulations describe the
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.81
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.82
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

77 EDA, “FY2023 Recompete Pilot Phase 1 NOFO,” https://www.eda.gov/sites/default/files/2023-06/
Recompete_Pilot_Program_NOFO_phase_1_vF.pdf.
78 13 C.F.R. §315.4.
79 For example, for the Recompete Pilot program, there is no match requirement for Phase 1 or Phase 2 awards;
matching is to be a competitive factor in Phase 2. See EDA, “FY2023 Recompete Pilot Phase 1 NOFO,”
https://www.eda.gov/sites/default/files/2023-06/Recompete_Pilot_Program_NOFO_phase_1_vF.pdf.
80 42 U.S.C. §3144.
81 13 C.F.R. §301.4, Subpart D—Investment Rates and Matching Share Requirements.
82 See agency regulations (13 C.F.R. Chapter III) for detailed program requirements. See also EDA, “EDA
Informational Brochure,” https://www.eda.gov/sites/default/files/filebase/archives/2021/pdf/about/EDA-TriFold-
2017.pdf.
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- A special need, as determined by EDA.”83
These criteria are also used for the EDD designation. An EDD must “contain at least one
geographic area that fulfills the economic distress criteria” among other requirements.84 For
additional information about area eligibility and measures of economic distress in PWEDA, see
CRS In Focus IF12074, Areas of Economic Distress for EDA Activities and Programs, by Julie
M. Lawhorn.
Comprehensive Economic Development Strategies (CEDS)
The Comprehensive Economic Development Strategy (CEDS) is a locally 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 PWEAA funding.85 However, the CEDS requirement may be
waived in some instances.86 The EDA provides funding to EDDs to carry out and implement the
CEDS under its Partnership Planning program.87
CEDS involves both a planning process and the development of a regional framework for
selecting and prioritizing economic development strategies—generally 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.88 The EDA requires a CEDS
update every five years.89 EDA regulations require that CEDS include elements outlined in Table
4. According to the EDA, CEDS must also incorporate the concept of economic resilience.90
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.

83 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.
84 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
Economic Development Program Competition, EDA-CHI-TA-CRO-2021-2006893 and EDA-CHI-TA-CRO-2021-
2006894, https://www.grants.gov/web/grants/view-opportunity.html?oppId=332622.
85 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.
86 42 U.S.C. §3149(b)(2); 42 U.S.C. §3162; 13 C.F.R. §307.5.
87 EDA, “Planning Program,” https://www.eda.gov/sites/default/files/pdf/about/Planning-Program-1-Pager.pdf.
88 13 C.F.R. §304.1.
89 13 C.F.R. §303.6.
90 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.
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CEDS Element
Description
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 use
Measures
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
Each year, in reports accompanying the FY2020 through FY2023 appropriations bills, 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, small, rural,
and underserved areas.91
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 bills.92 The provision directs 10%
of federal funds for specific programs to counties with 20% poverty rates or more for the past 30
years.93 EDA applies the 10-20-30 provision to the Public Works and Build to Scale programs.94
In regards to distressed, small, 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:

91 See, for example, 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.
92 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). The 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).
93 For more information, see CRS Report R45100, The 10-20-30 Provision: Defining Persistent Poverty Counties, by
Joseph Dalaker.
94 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.
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• PWEDA requires EDA to include information in its annual report about private
sector leveraging goals set for investments awarded to rural and urban
economically distressed areas and to highly distressed areas.95
• 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.”96
• 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 “will 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
alleviating deprivation in areas suffering from persistent poverty.”97
• In FY2022, guidance for several CARES Act programs indicated that the
programs’ intended outcomes included increased capacity for underserved
communities.98
• The six new ARP Act grant programs launched in July 2021 considered the
agency’s new investment priority—equity—as well as strategies to serve
communities disproportionately impacted by the pandemic.99 The EDA provided
additional detail on definitions for underserved communities, geographies, and
other terms when it released revised investment priorities in April 2021.100
• In FY2023, as in prior years, Congress directed EDA “to consider geographic
equity in making all award decisions and to ensure that rural projects are
adequately represented among those selected for funding.”101

95 42 U.S.C. §3213. For an example of such reports and data, see EDA, FY2019 Annual Report, pp. 8-10,
https://www.eda.gov/sites/default/files/2022-02/FY2019-Approved-EDA-Annual-Report.pdf.
96 Representative 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.
97 EDA, “Tackling Persistent Poverty is Goal of New EEDA-Economic Innovation Group Initiative,” July 19, 2021,
https://www.eda.gov/news/blog/2021/07/19/tackling-persistent-poverty-goal-new-eda-economic-innovation-group-
initiative.
98 See, for example, EDA, “Economic Recovery Corps Frequently Asked Questions,” https://www.eda.gov/funding/
programs/economic-recovery-corps/faq.
99 EDA, “EDA’s American Rescue Plan Programs,” https://eda.gov/arpa/.
100 EDA, “EDA Investment Priorities—Definitions,” https://www.eda.gov/sites/default/files/2022-06/EDA-FY21-
Investment-Priorities-Definitions.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
other underserved groups. Such assessments will better equip agencies to develop policies 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.
101 Senator Patrick Leahy, “Explanatory Statement Submitted by Mr. Leahy, Chair of the Senate Committee on
Appropriations, Regarding H.R. 2617, Consolidated Appropriations Act, 2023,” Congressional Record, vol. 168, no.
198 (December 20, 2022), S7898-7899, https://www.congress.gov/congressional-record/volume-168/issue-198/senate-
section/article/S7819-2.
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Assistance to Tribal Communities
EDA assists 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.102 As noted previously, in October 2021, EDA
implemented a rule to allow for-profit tribal entities that are wholly owned by and established for
the benefit of the tribe to be eligible for EDA assistance.103 Additionally, in FY2021, EDA
allocated $100 million 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.104 The Indigenous Communities program was EDA’s first program developed
specifically for Indigenous communities.105 As noted below, the Biden Administration’s FY2024
budget request includes $20 million for a program that would focus on economic development
needs faced by tribal governments and indigenous communities.106
Regional Innovation Programs107
In recent years, Congress has authorized EDA to administer place-based programs that fund
regional efforts to expand economic growth by developing the entrepreneurial and innovation
ecosystem in a specified region. Certain programs are designed to enhance national
competitiveness as well. The Tech Hubs program, for instance, was designed to build regional
innovation capacity. However, the program is also part of a broader set of initiatives authorized
by the CHIPS and Science Act (P.L. 117-167) that focus on bolstering the U.S. global technology
and economic competitiveness position, particularly in relation to China.108
Since 2015, EDA has administered the B2S program, which was established in Section 603 of the
America COMPETES Reauthorization Act of 2010 (P.L. 111-358).109 In July 2021, the EDA
allocated $1 billion of supplemental ARP Act funding for economic recovery activities to the
Build Back Better Regional Challenge (BBBRC), a new grant initiative to support new or

102 42 U.S.C. §3144.
103 See EDA, U.S. Department of Commerce, “Permitting Additional Eligible Tribal Entities,” 86 Federal Register
52957-52959, September 24, 2021, https://www.federalregister.gov/documents/2021/09/24/2021-20633/permitting-
additional-eligible-tribal-entities.
104 EDA, “Indigenous Communities,” https://eda.gov/arpa/indigenous.
105 EDA, “EDA Updates Regulations to Make Grants More Accessible to Native American Communities,” September
24, 2021, https://www.eda.gov/news/blog/2021/09/24/eda-updates-regulations-make-grants-more-accessible-native-
american.
106 Office of Management and Budget (OMB), Budget of the U.S. Government, Fiscal Year 2024 (2023), pp. 60-61,
https://www.whitehouse.gov/wp-content/uploads/2023/03/com_fy2024.pdf, and Appendix: Budget of the U.S.
Government, Fiscal Year 2024 (2023), p. 188, https://www.whitehouse.gov/wp-content/uploads/2023/03/
com_fy2024.pdf.
107 See also CRS Report R47495, Regional Innovation: Federal Programs and Issues for Consideration, by Julie M.
Lawhorn et al.
108 Sintia Radu, “The U.S. Is (Again) Among the World’s Top Innovators,” U.S. News and World Report, August 8,
2019. See also Robert Hassink, “Advancing Place-Based Regional Innovation Policies” (2019); F. Hu, “Study on the
Roles and Responsibilities of Government in the Regional Innovation System,” in Frontiers in Enterprise Integration,
(CRC Press, 2008), pp. 381-384, https://www.taylorfrancis.com/chapters/edit/10.1201/9781003061090-58/study-roles-
responsibilities-government-regional-innovation-system-hu; and Karen G. Mills, Elisabeth B. Reynolds, and Andrew
Reamer, Clusters and Competitiveness: A New Federal Role for Stimulating Regional Economies, The Brookings
Institution, April 2008, https://www.brookings.edu/wp-content/uploads/2016/07/Clusters-Brief.pdf.
109 15 U.S.C. §3722. See also EDA, “Build to Scale,” https://www.eda.gov/funding/programs/build-to-scale.
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existing regional industry clusters.110 In FY2023, the CHIPS and Science Act (Section 10621, P.L.
117-167) authorized two new programs: (1) the Regional Technology and Innovation Hubs (Hub)
program,111 and (2) the Recompete Pilot program.
• The Tech Hubs program. The focus of the Tech Hubs program is to support
technology development, job creation, and expanding U.S. innovation capacity.
The program also seeks to develop hubs in areas that are not “leading technology
centers.”112 The Tech Hubs program is one of several programs authorized by
P.L. 117-167 designed to improve the development and commercialization of
certain technology areas. Through the Tech Hubs program, however, EDA will
make place-based economic development grants to help regions address barriers
to entrepreneurship and expand their capacity to become globally competitive in
critical technologies and industries. Only eligible consortia may apply for the
program, and each consortium has certain required and optional entity types.113
Initial implementation awards may be up to $150 million.114 P.L. 117-167
authorized $10 billion over five years (FY2023 through FY2027) to be
appropriated for the program.115
• The Recompete Pilot program. The Recompete Pilot program does not
explicitly require economic development activities to focus on technology or
innovation, but instead provides long-term, place-based assistance in amounts
that will be larger than most existing EDA program awards. The minimum grant
award amount will be $20 million. P.L. 117-167 authorized $1 billion over five
years (FY2022 through FY2026) to be appropriated for the Recompete Pilot
program.116

110 For more information about the EDA’s allocation of supplemental appropriations approved in the American Rescue
Plan Act (P.L. 117-2), see CRS Insight IN11712, The Economic Development Administration’s American Rescue Plan
(ARP) Act Grant Programs, by Julie M. Lawhorn. For information about EDA’s regional innovation programs and
activities, see EDA, “About OIE,” https://eda.gov/oie.
111 P.L. 117-167 directed EDA to administer the Tech Hubs program in coordination with another Commerce agency,
the National Institute of Standards and Technology (NIST).
112 U.S. Senate Committee on Commerce, Science, and Transportation, “Section-by-section summary of the CHIPS and
Science Act,” https://www.commerce.senate.gov/services/files/1201E1CA-73CB-44BB-ADEB-E69634DA9BB9.
113 EDA, “Tech Hubs Program Fact Sheet,” https://www.eda.gov/sites/default/files/2023-04/
EDA_TECH_HUBS_Fact_Sheet.pdf.
114 For comparison, the FY2023 Notice of Funding Opportunity (NOFO) for the Public Works and Economic
Adjustment Assistance (EAA) program noted that the average size of a Public Works investment has been
approximately $1.4 million, and investments generally range from $600,000 to $5 million. The average size of an EAA
investment has been approximately $650,000, and EDA expects to make awards ranging from $150,000 to $2.5 million
in FY2023. See the Public Works and EAA NOFO at https://www.grants.gov/web/grants/view-opportunity.html?
oppId=346815.
115 Division B, Title VI—Miscellaneous Science and Technology Provisions, Subtitle C, Section 10621. See also EDA,
“Regional Technology and Innovation Hubs (Tech Hubs),” https://www.eda.gov/funding/programs/regional-
technology-and-innovation-hubs; and CRS Insight IN12170, Economic Development Administration Announces Phase
1 of New Tech Hubs Program, by Julie M. Lawhorn and Marcy E. Gallo.
116 Division B, Title VI—Miscellaneous Science and Technology Provisions, Subtitle C, Section 10621. See also EDA,
“Distressed Area Recompete Pilot Program (Recompete Pilot Program),” https://www.eda.gov/funding/programs/
recompete-pilot-program; and CRS Insight IN12201, Economic Development Administration Announces New
Recompete Program, by Julie M. Lawhorn.
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EDA Appropriations, FY2011-FY2023
For the FY2011-FY2023 period, annual appropriations for EDA programs and administration
expenses averaged $304 million (not adjusted for inflation) excluding disaster and COVID-19
supplemental appropriations.117
Figure 5 provides the amounts allocated to major EDA programs since FY2011 excluding
disaster, COVID-19, and other supplemental appropriations. Congress generally directs EDA to
allocate 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, beginning
in FY2021, the allocation for the B2S program exceeded the allocation for the EAA program. In
FY2023, Congress directed EDA to allocate $39.5 million for the EAA program and $50 million
for the B2S program. In FY2022 and FY2023, Congress directed EDA to allocate a larger amount
of funding to the Assistance to Coal Communities (ACC) initiative than to the base EAA program
($41.5 million compared to $37.5 million in FY2022, and $48.0 million compared to $39.5
million in FY2023). Congress directed EDA to set aside funding for coal-impacted communities
beginning in FY2014 (i.e., through the ACC initiative and its precursors).

117 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.
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Figure 5. Funding for EDA Programs, FY2011-FY2023
(in millions of nominal dollars)

Source: CRS using information from the reports accompanying annual appropriations bil s. For a breakdown of funding amounts by program, by fiscal year, see Table
B-2.
Notes: The asterisk (*) indicates that the FY2013 levels are the post-sequestration amounts. EDA renamed the Regional Innovation Strategies program in FY2020.
Amounts exclude funding provided for salaries and expenses. Amounts exclude disaster, COVID-19, and other supplemental appropriations.
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Assistance to Energy Transition 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 energy transition 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
allocate no less than $3 million “to enhance regional business development in
areas negatively impacted by the downturn in the coal industry.”118
• In FY2015, a Senate appropriations committee report noted the negative, regional
economic impact of nuclear plant closures and encouraged EDA to “identify and
develop best practices” to assist communities.119
• 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.120
• Each year in FY2018 through FY2023, 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.121
• Each year in FY2020 through FY2023, Congress directed EDA to provide
additional funding through the EAA program to the Assistance to Nuclear
Closure Communities (NCC) initiative.122
• In FY2022 and FY2023, Congress directed EDA to provide funding ($4.5
million) through the EAA program to biomass power plant closure communities
(BCC).123

118 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.
119 S.Rept. 113-181.
120 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. The 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 Trump 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 Economic Development, by Julie M. Lawhorn.
121 EDA, “FY 2018 Economic Development Assistance Programs Notice of Funding Opportunity,” p. 7,
https://www.grants.gov/web/grants/view-opportunity.html?oppId=306735.
122 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). Each year in
FY2021 through FY2023, 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; P.L. 117-103, see also Congressional Record, March
9, 2022, p. H1733; and P.L. 117-328, Congressional Record, December 20, 2022, p. S7898-S7899).
123 Each year in FY2022 and FY2023, Congress directed EDA to allocate $4.5 million to the biomass power plant
closure communities (P.L. 117-103, Congressional Record, March 9, 2022, p. H1733; and P.L. 117-328, Congressional
Record, December 20, 2022, p. S7898-S7899).
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Figure 6 charts the amounts of annual appropriations that EDA has allocated to the EAA, ACC,
BCC, and NCC programs since FY2011.124 The funding for the EAA, ACC, BCC, and NCC
programs together account for approximately 25-30% of total EDA appropriations annually.125 In
FY2021, EDA allocated $300 million of the $3 billion appropriation from the ARP Act to coal-
impacted communities through the Coal Communities Commitment (CCC); CCC funding is not
included in Figure 6.126
Figure 6. EAA, ACC, NCC, and BCC Funding History: FY2011-FY2023
(in millions of nominal dollars)

Sources: CRS using information from reports accompanying annual appropriations bil s.
Notes: Does not include supplemental appropriations for disaster or COVID-19 economic recovery assistance
The asterisk (*) indicates that the FY2013 level is the post-sequestration amount. In recent years, Congress has
directed EDA to administer additional funding through the EAA program for coal communities and nuclear
closure communities. Starting in FY2022, Congress further directed EDA to administer funding through the EAA
program for biomass plant closure communities (BCC).
Consolidated Appropriations Act, 2023, P.L. 117-328
On December 20, 2022, Congress approved, and the President signed into law, the Consolidated
Appropriations Act, 2023 (P.L. 117-328) providing appropriations for a number of federal
agencies and departments, including the programs and activities of the EDA. The act provided
$1.6 billion for EDA, including $1 billion for programs and activities; $68 million for salaries and

124 FY2022 and FY2023 funding for biomass power plant closure communities is displayed as “BCC” in Figure 6.
125 The ACC, BCC, 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 Economic Development
Administration’s Assistance to Coal and Nuclear Closure Communities Initiatives for Economic Transitions, by Julie
M. Lawhorn. See also EDA, “FY 2023 Public Works and Economic Adjustment Assistance Notice of Funding
Opportunity,” https://www.grants.gov/web/grants/view-opportunity.html?oppId=346815.
126 See EDA, “Coal Communities Commitment,” https://eda.gov/arpa/coal-communities/, which notes that the Initial
Report to the President on Empowering Workers Through Revitalizing Energy Communities (April 2021), developed
by President Biden’s Interagency Working Group, recommended focused federal investments for coal-impacted
communities. The report is available at https://netl.doe.gov/sites/default/files/2021-04/
Initial%20Report%20on%20Energy%20Communities_Apr2021.pdf.
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expenses; and $500 million for certain disasters that occurred in calendar years 2021 and 2022.
The total FY2023 appropriations for EDA programs and administration (including supplemental
appropriations) represents an increase of $1.2 billion (or 332%) from the FY2022 funding level of
$373.5 million.127
In FY2023, funding for two new programs and salaries and administration represented the largest
year-to-year increases. For instance, P.L. 117-328 provided $200 million and $500 million,
respectively, for the new Recompete and Tech Hubs programs through annual and supplemental
appropriations. P.L. 117-328 also provided $68.0 million for salaries and administration in
FY2023—an increase of 56% from the FY2022 funding level of $43.5 million. In the explanatory
statement accompanying P.L. 117-328, Congress directed EDA to allocate funding to other
program areas in amounts that were at the same level or slight increases from FY2022 funding
levels.128 For instance, Congress directed EDA to increase the amount of funds for the ACC
initiative by 16% (from $41.5 million to $48.0 million). P.L. 117-328 also included $50 million
for the Build to Scale (section 27) program, which was an increase of $5 million over the program
funding level in FY2022.129 In addition, P.L. 117-328 included a provision rescinding $10 million
in unobligated balances from prior-year appropriations for economic development assistance
programs.130
Report language accompanying the FY2023 appropriations bill provided additional direction to
EDA on the following matters:
• geographic equity, persistent poverty counties, and rural economic development
challenges;
• the facilitation of economic development involving specific activities or sectors
such as outdoor recreation and forest-related and aeronautics-related industries,
among others;
• EDA’s technical assistance outreach and capabilities on projects involving
manufacturing and energy efficiency, and for distressed communities broadly, as
well as “technical assistance to eligible entities, consistent with the Native
American Tourism and Improving Visitor Experience (NATIVE, P.L. 114-221)
Act;”131
• the allocation and distribution of B2S and Assistance to Energy Communities
funding;
• EDA’s efforts to avoid duplication in grant programs;

127 See the Consolidated Appropriations Act, 2022 (P.L. 117-103) and the Consolidated Appropriations Act, 2023 (P.L.
117-328).
128 Senator Patrick Leahy, “Explanatory Statement Submitted by Mr. Leahy, Chair of the Senate Committee on
Appropriations, Regarding H.R. 2617, Consolidated Appropriations Act, 2023,” Congressional Record, vol. 168, no.
198 (December 20, 2022), S7898-S7899, https://www.congress.gov/congressional-record/volume-168/issue-198/
senate-section/article/S7819-2.
129 Ibid.; and Representative Rosa DeLauro, “Explanatory Statement Submitted by Ms. Delauro, Chair of the House
Committee On Appropriations, Regarding the House Amendment to the Senate Amendment to H.R. 2471,
Consolidated Appropriations Act, 2022,” Congressional Record, vol. 168, no. 42,(March 9, 2022), p. H2254,
https://www.congress.gov/117/crec/2022/03/09/168/42/CREC-2022-03-09-bk3.pdf.
130 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.
131 P.L. 114-221 was enacted on September 23, 2016. One of the law’s purposes was “to expand heritage and cultural
tourism opportunities in the United States to spur economic development, create jobs, and increase tourism revenues,”
among others.
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• EDA’s collaborations with HUD and USDA to help communities maximize
federal economic development resources; and
• EDA’s activities with the Delta Regional Authority, the Appalachian Regional
Commission, and the Northern Border Regional Commission to assist distressed
communities.132
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.133 COVID-19 economic recovery funding
supported 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.134 EDA’s distribution and allocation strategy for supplemental
appropriations varies by each event or situation.135
Disaster Economic Recovery Assistance, FY2011-FY2023
Since FY2011, Congress has approved $1.9 billion in supplemental funding for economic
recovery in response to natural disasters (see Figure 7), including the following appropriations:
• In FY2012, Congress approved $200 million in P.L. 112-55 for assistance to
areas that received a major disaster designation in 2011 pursuant to the Robert T.
Stafford Disaster Relief and Emergency Assistance Act (Stafford Act, 42 U.S.C.
§§5121 et seq.).
• In FY2018 and FY2019, supplemental appropriations provided $1.2 billion 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
million in additional EAA funds for disaster relief and in response to
economic distress or harm resulting from Hurricanes Harvey, Irma, and
Maria, wildfires, and other federally 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 million in additional EAA funds for
areas that received a major disaster designation under the Stafford Act as a
result of Hurricanes Florence, Michael, and Lane, Typhoons Yutu and

132 Senator Patrick Leahy, “Explanatory Statement Submitted by Mr. Leahy, Chair of the Senate Committee on
Appropriations, Regarding H.R. 2617, Consolidated Appropriations Act, 2023,” Congressional Record, vol. 168, no.
198 (December 20, 2022), S7898-S7899, https://www.congress.gov/congressional-record/volume-168/issue-198/
senate-section/article/S7819-2.
133 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).
134 By example, see P.L. 116-260.
135 Testimony by Mr. Dennis Alvord, Acting Assistant Secretary of Commerce for EDA, U.S. House of
Representatives, Committee on Transportation and Infrastructure, Subcommittee on Economic Development, Public
Buildings and Emergency Management, Investing in America: Reauthorization of the Economic Development
Administration, 117th Cong., 1st sess., April 28, 2021, https://www.congress.gov/117/meeting/house/112512/witnesses/
HHRG-117-PW13-Wstate-AlvordD-20210428.pdf.
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Mangkhut, wildfires, volcanic eruptions, earthquakes, and other natural
disasters occurring in calendar year 2018, as well as for areas affected by
tornadoes and floods occurring in calendar year 2019.136
• The Consolidated Appropriations Act, 2023 (P.L. 117-328) provided EDA with
$500 million in additional EAA funds for areas that received a major disaster
designation under the Stafford Act as a result of Hurricanes Ian and Fiona,
wildfires, flooding, and other natural disasters occurring in calendar years 2021
and 2022.137
COVID-19 Economic Recovery Assistance, FY2020-FY2021
EDA received $1.5 billion of supplemental appropriations through the CARES Act in FY2020,
and $3 billion of supplemental appropriations through the ARP Act 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 will support economic recovery, and
including the deployment of broadband to support telehealth and remote learning
for job skills.
All 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.138 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.139 Additionally, Congress
provided temporary special hiring authority to EDA through the CARES Act.140

136 EDA, “Disaster Supplemental Funding,” https://eda.gov/disaster-recovery/supplemental.
137 EDA administers this funding through the “FY 2023 Disaster Supplemental NOFO,” at https://www.grants.gov/
web/grants/view-opportunity.html?oppId=347414.
138 42 U.S.C. §3149(b).
139 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/files/commerce-cares-act-
implementation-plan-june-2020.
140 P.L. 116-136. See also GAO, Federal Hiring: OPM Should Collect and Share COVID-19 Lessons Learned to
Inform Hiring During Future Emergencies, GAO-22-104297, October 25, 2021, https://www.gao.gov/assets/gao-22-
104297.pdf.
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American Rescue Plan (ARP) Act, P.L. 117-2
The ARP Act provided $3 billion 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
injury as a result of the COVID-19 pandemic. Of this amount, 25% will be for states and
communities that have been affected by the decline in the “travel, tourism, or outdoor recreation
sectors.” EDA will administer ARP Act recovery assistance through the following six new grant
programs, each with different investment criteria and priorities:141
• the Build Back Better Regional Challenge;142
• the Good Jobs Challenge;
• the Economic Adjustment Assistance Program;
• the Indigenous Communities Challenge;
• the Travel, Tourism, and Outdoor Recreation Program; and
• the Statewide Planning, Research, and Networks Program.
Other Supplemental Appropriations, FY2023
As noted above, the CHIPS and Science Act (P.L. 117-167, Section 10621) authorized two new
programs to be administered by EDA: (1) the Tech Hubs program and (2) the Recompete Pilot
program. The Consolidated Appropriations Act, 2023 (P.L. 117-328) appropriated $500 million
for the Tech Hubs Program ($41 million in regular appropriations in Division B, and $459 million
in supplemental appropriations in Division N). P.L. 117-328 also appropriated $200 million for
the Recompete Pilot Program ($41 million in regular appropriations in Division B, and $159
million in supplemental appropriations in Division N of P.L. 117-328).143

141 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.
142 The 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.
143 See Division B, Title VI—Miscellaneous Science and Technology Provisions, Subtitle C, Section 10621.
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Figure 7. Annual and Supplemental and Disaster Recovery Appropriations,
FY2011-FY2023
(in millions of nominal dollars)

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. In FY2023, supplemental appropriations in P.L. 117-
328 included (1) $500 mil ion for disaster recovery, (2) $159 mil ion for the Recompete Pilot program, and (3)
$459 mil ion for the Tech Hubs program. The asterisk (*) indicates that the FY2013 level is the post-
sequestration amount.
FY2024 Funding Request
The Biden Administration proposed increased annual appropriations for EDA in FY2024. The
EDA’s FY2024 congressional budget request included $2.3 billion for the EDA, an amount that is
almost 44% above the FY2023 enacted level of $1.6 billion (including supplemental
appropriations). The request called for increases in funding levels for salaries and administration
and for many of EDA’s new and existing programs. The largest nominal increases in program
funding from FY2023 enacted levels were proposed for:
• the STEM Talent Challenge (“STEM Apprenticeships”) (from $2 million to $10
million in FY2024),
• the EAA program (from $37.5 million to $48 million in FY2024),
• the ACC initiative (from $41.5 million to $80.5 million in FY2024), and
• salaries and expenses (from $43.5 million to $70 million in FY2024).144
The FY2024 request includes funding for several new initiatives including
• $1.5 billion in no-year mandatory funding for the Tech Hubs program;

144 DOC, EDA, FY2024 Congressional Budget Justification, https://www.commerce.gov/sites/default/files/2023-03/
EDA-FY2024-Congressional-Budget-Submission.pdf.
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• $195.5 million in discretionary funding for a new Recompete pilot program for
multi-year grants to address persistent economic distress, as defined by high
prime-age employment gaps;145
• $97 million in discretionary funding for a new workforce development program
established under the ARP Act; and
• $20 million in discretionary funding for an Assistance to Indigenous communities
program.
The EDA’s FY2024 congressional budget justification also called for no or decreased funding
levels for several existing programs (e.g., Public Works, Economic Adjustment Assistance, Trade
Adjustment Assistance for Firms, and Research and Evaluation programs; and the Assistance to
Nuclear Closure Communities initiative). Table 5 provides a summary of funding for EDA
programs in annual appropriations bills enacted in FY2023—as well as the requested FY2024
amounts.
Table 5. FY2023 Annual Appropriations and FY2024 Request
(budget authority, in millions of nominal dollars)

FY2023 Enacted
FY2024

P.L. 117-328
Request
EDA Programs

Public Works
$121.5
$100.0
Economic Adjustment Assistance
$39.5
$33.0
Partnership Planning
$36.0
$36.0
Technical Assistance
$14.0
$14.0
Research and Evaluation
$2.0
$2.0
Traded Adjustment Assistance for Firms (TAAF)
$13.5
$13.0
Assist. Coal Communities (ACC)
$48.0
$80.5
Assist. Nuclear Closure (NCC)
$16.5
$10.0
Assist. Biomass Power Plant Closure
$4.5
—
Communities
STEM Apprenticeships (Sec. 28)
$2.5
$10.0
Build to Scale (Sec. 27)
$50.0
$45.0
Recompete Pilot
$200.0
$195.5
Tech Hubs—Discretionary
$500.0
$48.5
Tech Hubs—Mandatory
—
$1,500.0
Good Jobs Challenge
—
$97.0
Assistance to Indigenous Communities
—
$20.0
Subtotal Programs (Discretionary only)
$1,048.0
$704.5
Subtotal Programs (Discretionary +
$1,048.0
$2,204.5
Mandatory)

145 Ibid., p. 99.
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FY2023 Enacted
FY2024

P.L. 117-328
Request
Salaries and Expenses
$68.0
$99.5
Total (Discretionary + Mandatory)
$1,616.0
$2,304.0
Sources: Sources for FY2023 amounts are from the explanatory statements accompanying P.L. 117-328.
FY2024 requested amounts are from DOC, EDA, FY2024 Congressional Budget
Justification, https://www.commerce.gov/sites/default/files/2023-03/EDA-FY2024-Congressional-Budget-
Submission.pdf.
Inspector General Oversight
The mission of the DOC Office of Inspector General (OIG) is to improve the DOC’s programs
and operations through independent and objective oversight. The OIG’s primary methods of
oversight include audits, evaluations, investigations, and related activities.146 In recent years,
DOC OIG testimonies and reports have analyzed the Public Works program, the Revolving Loan
Fund (RLF) program (administered through the EAA program), and disaster recovery awards
(also administered through the EAA program), with the OIG making recommendations for
changes to grant application review, compliance, and related practices to prevent fraud, waste,
and abuse.147 The most recent report focused on the EDA by the OIG’s Office Audit and
Evaluation was issued in January 2021 and discussed EDA’s administration of CARES Act
funding.148 The report found that (1) EDA was proactive in implementing the requirements of the
CARES Act; (2) EDA mitigated challenges during implementation of the CARES Act; and (3)
EDA exceeded obligation milestones and completed required certifications. The report reiterated
a recommendation from a prior DOC OIG report for EDA to complete a comprehensive
workforce plan for ongoing and future emergency and disaster relief efforts due to insufficient
staffing and related concerns.149
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

146 U.S. Department of Commerce (DOC) Office of Inspector General (OIG), “Mission, Vision, and Core Values,”
https://www.oig.doc.gov/Pages/Mission-Vision-and-Core-Values.aspx; and “Organization,” https://www.oig.doc.gov/
Pages/Organization.aspx.
147 See, for example, DOC OIG, “IG’s Testimony on EDA Reauthorization Act: Senate Committee on Environment
and Public Works,” September 9, 2008, https://www.oig.doc.gov/Pages/IG-Testimony-EDA-Reauthorization-Act-
2008.09.09.aspx; “The Economic Development Administration Faces Challenges in Effectively Monitoring Its
Revolving Loan Funds,” Final Report No. OIG-15-031-A, June 5, 2015, https://www.oig.doc.gov/OIGPublications/
OIG-15-031-A.pdf; and “EDA Is Not Fully Complying with All Its Disaster Relief Award Policies,” Final Report No.
OIG-21-014-A, December 21, 2020, https://www.oig.doc.gov/OIGPublications/OIG-21-014-A.pdf.
148 According to the DOC OIG, “the Office of Audit and Evaluation supervises and conducts independent and objective
audits and other reviews of Commerce programs and activities to ensure they operate economically, efficiently, and
effectively.” DOC OIG, “Audits/Evaluations,” https://www.oig.doc.gov/Pages/Audits-Evaluations.aspx.
149 DOC OIG, “EDA Was Effective in Implementing the Requirements for Awarding Funds Under the CARES Act,”
Final Report OIG-21-017-I, January 5, 2021, https://www.oig.doc.gov/OIGPublications/OIG-21-017-I.pdf.
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Congress’s debate on the reauthorization of program appropriations 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,150 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).151 For instance, congressional members, EDA leaders, and outside
groups have called 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.152 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.153 The 117th Congress considered bills that would have amended PWEDA to make
public-private partnerships eligible for assistance for specified broadband projects (see H.R. 3193
and S. 1695).154

150 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? The 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, Examining Programs at the Economic Development Administration, 117th Cong., 1st sess., Nov. 3, 2021,
https://www.epw.senate.gov/public/index.cfm/hearings?ID=256D08CE-44DC-47B4-9663-F9AC5AA8950E).
151 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, STEM Talent Challenge NOFO, FY2023, p.
31, https://www.eda.gov/sites/default/files/2023-04/FY%2023%20STEM%20Talent%20Challenge%20NOFO.pdf).
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 Impact 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.
152 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 America:
Reauthorization of the Economic Development Administration, April 28, 2021, https://www.congress.gov/117/meeting/
house/112512/witnesses/HHRG-117-PW13-Wstate-CooperL-20210428.pdf.
153 Testimony by Assistant Secretary of Economic Development, Alejandra Castillo, U.S. Senate, Environment and
Public Works Committee, Examining Programs at the Economic Development Administration, 117th Cong., 1st sess.,
Nov. 3, 2021, https://www.epw.senate.gov/public/index.cfm/hearings?ID=256D08CE-44DC-47B4-9663-
F9AC5AA8950E.
154 Related bills (H.R. 6491 and S. 3648) were also introduced in the 116th Congress.
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Expanding or Establishing EDA Programs, Roles, Offices, and Capacity
Congress may also consider new or expanded EDA programs, roles, and offices, as well as
adjustments to the agency’s overall 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 challenges.155 As a matter of program integration and overall policy
consideration, some of Congress’s existing and proposed priorities related to disaster recovery as
well as climate and economic resiliency may overlap with the infrastructure planning, design, and
implementation activities currently supported by the Public Works and EAA programs.156 As an
alternative—or in addition to—changing program or 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 economically
distressed and small, rural communities, through EDA’s existing planning, RNTA, and/or
University Center programs.157
Congress may also review how EDA manages the implementation of new programs, staffing
levels, and increases in appropriations.158 As noted, in August 2022, P.L. 117-167 established two
new programs at EDA: the Tech Hubs program and the Recompete Pilot program. The Tech Hubs
and the Recompete Pilot programs are to provide financial assistance for long-term, place-based
projects in amounts that are expected to be larger than most existing EDA program awards.
Congress may wish to continue overall oversight of the new programs as well as how
communities use EDA programs and resources to meet a shared outcome and how EDA allocates
awards to address various policy, industry, and geographic diversity goals. Additionally, Congress
may wish to examine how the programs align with existing EDA and other federal programs.
Congress may also review how EDA manages the implementation of the new Tech Hubs program
in coordination with other federal agencies, federal regional commissions and authorities, and
other stakeholders. For instance, Congress has previously directed EDA to consider innovation
policy across the federal government through its NACIE role.159 Congress has also directed other

155 For additional context, Congress has also considered bills to amend PWEDA to explicitly authorize 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.
156 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
White House, “Fact Sheet: The American Jobs Plan,” March 31, 2021, https://www.whitehouse.gov/briefing-room/
statements-releases/2021/03/31/fact-sheet-the-american-jobs-plan/.
157 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.”
158 The CHIPS and Science Act (P.L. 117-167) authorized $10 billion to be appropriated over five years (FY2023-
FY2027) for the Tech Hubs Program. The Consolidated Appropriations Act, 2023 (P.L. 117-328) appropriated $500
million for the Tech Hubs Program—$41 million in regular appropriations in Division B and $459 million in
supplemental appropriations in Division N for the Tech Hubs Program.
P.L. 117-167 authorized $1 billion to be appropriated over five years (FY2022-FY2026), and P.L. 117-328
appropriated $200 million for the Recompete program—$41 million in regular appropriations in Division B and $159
million in supplemental appropriations in Division N.
159 EDA, “National Advisory Council on Innovation and Entrepreneurship (NACIE),” https://www.eda.gov/strategic-
initiatives/national-advisory-council-on-innovation-and-entrepreneurship.
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agencies to lead interagency activities pertaining to regional innovation and newly authorized
regional innovation programs that are administered by agencies outside of DOC.
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.160 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 skills development for state and local stakeholders could
facilitate economic recovery following disasters or widespread economic shocks.161
Lastly, Congress may consider additional, targeted integration activities. Such activities may
involve EDA expanding its convening, coordinating, and regional interagency planning roles. In
July 2021, at the request of the U.S. House Committee on Appropriations, Subcommittee on
Commerce, Justice, Science, and Related Agencies, GAO issued a report on opportunities for
interagency collaboration. The report noted that EDA continues to implement its
recommendations for additional interagency collaboration.162 Congress also may direct EDA to
participate in joint federal interagency funding opportunities for specific development
initiatives.163
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.164 Alternatively, the agency’s disaster recovery

160 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, Economic Development: Opportunities Exist for
Further Collaboration Among EDA, HUD, and USDA, GAO-21-579, July 2021, https://www.gao.gov/assets/720/
715997.pdf.
161 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.
162 In July 2021, in response to a request from the House Appropriations Committee, Subcommittee on Commerce,
Justice, Science and Related Agencies, the Government Accountability Office (GAO) issued a report that analyzed
options for further interagency collaboration. Two recommendations remain open and pertain to ways that EDA could
expand its agreements and collaboration with the Department of Housing Urban Development (HUD) and the U.S.
Department of Agriculture (USDA). As of March 2022, the EDA stated that it planned to revise certain agreements.
See GAO, Economic Development: Opportunities Exist for Further Collaboration among EDA, HUD, and USDA,
GAO-21-579, July 30, 2021, https://www.gao.gov/products/gao-21-579.
163 Interagency Working Group on Coal and Power Plant Communities and Economic Revitalization, Initial Report to
the President on Empowering Workers Through Revitalizing Energy Communities, 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 Transportation and Infrastructure, Subcommittee on Economic
Development, Public Buildings and Emergency Management, Investing in America: Reauthorization of the Economic
Development Administration, 117th Cong., 1st sess., April 28, 2021.
164 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 activities through supplemental and regular funding.
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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.165 As noted
previously, in 2020, the DOC OIG recommended EDA develop a comprehensive workforce plan
for ongoing and future emergency and disaster relief efforts; DOC OIG reaffirmed this
recommendation in 2021.166
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, 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 Kyla H.
Kitamura.
Preparing for Future Industries and EDA’s Role in Federal Innovation Policy167
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.168

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 Transportation and
Infrastructure, Subcommittee on Economic Development, Public Buildings and Emergency Management, Investing in
America: Reauthorization of the Economic Development Administration, witness testimony, 117th Cong., 1st sess., April
28, 2021, https://www.congress.gov/117/meeting/house/112512/witnesses/HHRG-117-PW13-Wstate-CooperL-
20210428.pdf.
165 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 Implementing the Requirements 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.
166 DOC Office of Inspector General, “EDA Should Develop a Workforce Plan and Improve Its Hiring Accountability
to Successfully Award and Administer the Disaster Supplemental Funds Appropriated by the Bipartisan Budget Act of
2018,” Final Report OIG-20-014-A, January 27, 2020, https://www.oig.doc.gov/Pages/EDA-Should-Develop-a-
Workforce-Plan-and-Improve-its-Hiring-Accountability-to-Successfully-Award-and-Administer-the-Disaster.aspx; and
“EDA Was Effective in Implementing the Requirements for Awarding Funds Under the CARES Act,” Final Report
OIG-21-017-I, January 5, 2021, https://www.oig.doc.gov/OIGPublications/OIG-21-017-I.pdf.
167 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 Appendix A), workforce development and
technical assistance initiatives (e.g., the STEM Talent Challenge and University Centers), and coordination with other
federal agencies on regional innovation strategies (e.g., NACIE), among other activities. For a review of EDA and
other federal programs for regional innovation, see CRS Report R47495, Regional Innovation: Federal Programs and
Issues for Consideration, by Julie M. Lawhorn et al.
For a list of CRS analysts associated with science, technology, and innovation policy, see CRS Report R42688,
Science, Technology, and Innovation Policy: CRS Experts, by John F. Sargent Jr.
168 EDA, “Investment Priorities,” https://eda.gov/about/investment-priorities/.
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Congress recently authorized new EDA programs to further prepare regions and workers for
innovation- and technology-led economic development, and for “future industries.”169 Innovation-
and technology-led economic development strategies are based on the premise that technological
breakthroughs and innovation drive economic growth. Some researchers observe that by
identifying and promoting innovation, federal support may facilitate economic growth and
competition.170
Congress has supported various policies to promote innovation and to prepare regions for
expanded technology-based economic development through workforce development programs as
well as a subset of federal innovation policies often referred to as “regional innovation” or
“innovation cluster” programs.171 Congress may seek to continue support for EDA’s existing
innovation-oriented programs (e.g., Build to Scale, Regional Technology and Innovation Hub),
similar programs, or new programs.172 Alternatively, Congress may pursue a more limited federal
role in the facilitation of innovation clusters, advance policies that favor stronger state and local

169 Testimony by Mr. Dennis Alvord, Acting Assistant Secretary of Commerce for EDA, U.S. House of
Representatives, Committee on Transportation and Infrastructure, Subcommittee on Economic Development, Public
Buildings and Emergency Management, Investing in America: Reauthorization of the Economic Development
Administration, 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 STEM Talent 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; broadband expansion; bioscience; quantum information science; climate technologies; the built
environment; and aqua- and agricultural technologies. EDA, “STEM Talent Challenge NOFO,” FY2023, p. 6,
https://www.eda.gov/sites/default/files/2023-04/FY%2023%20STEM%20Talent%20Challenge%20NOFO.pdf.
170 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:
Toward a New Paradigm,” Catholic University Law Review, vol. 68, no. 2 (2019), pp. 1-62, May 31, 2018,
SSRN: https://ssrn.com/abstract=3168964.
171 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.
EDA, “Key Definitions,” https://eda.gov/performance/key-definitions/.
172 Federal support for regional clusters and innovation cluster initiatives have included programs administered by EDA
(e.g., Regional Innovation Strategies/Build to Scale) and agencies such as the Department of Energy, DOC, NIST,
SBA, and others. These programs generally provide planning and other support to intermediary organizations 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, “The 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/; National Research Council, “The Federal Dimension,” Best Practices in State and Regional Innovation
Initiatives: Competing in the 21st Century (Washington, DC: The 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 Build Back Better Regional Challenge, a grant program launched in July 2021, funded 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).
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roles in technology-led economic development, or advance policies that favor investment in
public goods or other development strategies.173
Congress may also seek to review the overall distribution and coordination of existing innovation
policies as well 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?174
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;
• allowing flexibility for new or nontraditional training programs; and
• coordinating new and existing workforce and economic development
programs.175
Congress may seek to support innovation economies through human capital policies that prepare
workers with expertise and skills to meet new and emerging opportunities. For instance, Congress
approved funding for the STEM Talent Challenge (see program description in Appendix A),
which is designed to advance the STEM-capable workforce. Additionally, EDA set aside
approximately 17% ($500 million) of the ARP Act recovery assistance to enhance regional

173 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’: The Feeble Case for Cluster
Policies,” Review of Economic Analysis, vol. 3, pp. 3-45, http://repository.upenn.edu/real-estate_papers/2.
174 Policy questions from the Hearing Charter for U.S. House of Representatives, Committee on Science, Space, and
Technology, “Building Regional Innovation Economies,” June 9, 2021, https://www.congress.gov/117/meeting/house/
112753/documents/HHRG-117-SY15-20210609-SD002.pdf.
The 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.
The 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. The hearing charter further noted that the matching requirements associated with the
competitive B2S program may limit participation by economically distressed and rural communities due to limited
resources in some communities.
175 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.
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workforce systems through the Good Jobs Challenge grant program.176 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.177
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.178 Additionally, Congress may continue to
direct or change how EDA partners with historically 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.179 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 centers.180 Congress
may also seek to evaluate the level of engagement with partners and allocation or distribution of
funding in underserved communities. See “Persistent Poverty and Distressed, Small, Rural and
Underserved Areas—Funding and Technical Assistance” for a summary of recent legislative and
agency activities focused on underserved communities.
Reauthorization
Although the PWEDA authorities do not expire, the authorization of appropriations to fund the
economic development assistance programs expired on September 30, 2008. Hearings during the
first session of the 117th Congress indicated that policymakers may have considered legislation to
provide authorization of program appropriations and/or amend PWEDA.181 Many of the

176 EDA, “Good Jobs Challenge,” https://eda.gov/arpa/good-jobs-challenge/.
177 In FY2020, Congress directed EDA to implement STEM apprenticeships (see STEM Talent Challenge in Appendix
A) to support STEM-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.” The FY2020 STEM
Talent 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 STEM Talent Challenge NOFO, EDA-HDQ-OIE-2020-2006617, pp. 1, 4,
https://www.grants.gov/web/grants/view-opportunity.html?oppId=328794.
178 For an example of these perspectives, see Robert D. Atkinson, Mark Muro, and Jacob Whiton, “The Case for
Growth Centers—How to Spread Tech Innovation Across America,” The Brookings Institution, December 2019,
https://www2.itif.org/2019-growth-centers.pdf; and Olugbenga Ajilore and Zoe Willingham, “The 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/.
179 L. Waymond Jackson, Jr., “Leveraging Regional Tech Hubs to Advance Economic Inclusion,” Brookings
Institution, July 13, 2021, https://www.brookings.edu/wp-content/uploads/2021/07/
metro_20210713_techhubs_transcript.pdf.
180 Mark Muro et al, “Congress Needs to Prioritize Inclusion in Our Slumping Innovation System,” The 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 Their Industry Clusters,” The 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/.
181 For a review of reauthorization issues during the 112th Congress, see CRS Report R41162, Economic Development
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aforementioned considerations propose to address policy through PWEDA amendments and/or
reauthorization of program appropriations. Policymakers 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 to 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.182
Legislation enacted in the 117th and 118th Congresses indicates interest in expanding the EDA’s
role in place-based, regionally oriented, and community-led approaches to technology-based
economic development. As EDA and other federal agencies implement new regional innovation
programs, Congress may evaluate aspects of such programs for consideration in other place-based
initiatives.
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 allow
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 allow
assistance to reach a particular type of community or circumstance (e.g., programs for energy-
and resource-based industries). For others still, 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 challenges 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).183 Congress
may also review the allocation of assistance based on preferred economic development goals—to
further economic growth, to advance national competitiveness, to foster job creation, to prepare

Administration: Reauthorization and Funding Issues in the 112th Congress, by Julie M. Lawhorn.
For reports from EDA oversight hearings from the 117th Congress, see
- U.S. Senate, Committee on Environment and Public Works, Examining Programs at the Economic
Development Administration, 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 Transportation and Infrastructure, Subcommittee on
Economic Development, Public Buildings and Emergency Management, Investing in America:
Reauthorization of the Economic Development Administration, 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.
182 Yong-Shik Lee, “Law and Economic Development in the United States: Toward a New Paradigm,” Catholic
University Law Review, vol. 68, no. 2 (2019), May 31, 2018, pp. 1-62, SSRN: https://ssrn.com/abstract=3168964.
183 Congress approved appropriations for several years for the ACC and NCC initiatives. These initiatives are not
separately authorized and are administered by EDA through the EAA program.
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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 will 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
agencies, supporting actors, and awareness of the many, dynamic factors impacting global,
national, and regional economies.
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Appendix A. Grant Programs
This appendix provides summaries of EDA’s current grant programs and selected requirements.
Build to Scale (B2S)
The Build to Scale (B2S) program (formerly called 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 Challenge (formerly the “i6 Challenge”) and the
Capital Challenge (formerly the “Seed Fund Support”).184 The Venture Challenge funds
entrepreneurship support programs and other models to accelerate high-growth entrepreneurship
activities. The Capital Challenge 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.185
Level of matching funds requirement: In FY2023, the minimum matching share was 50%.186
Economic Adjustment Assistance (EAA) Program
EDA refers to the EAA program as its most flexible economic development tool.187 The EAA
program is designed to assist areas experiencing long-term economic distress or sudden and
substantial economic dislocation. Under EAA, EDA administers its Revolving Loan Fund (RLF)
program, which allows local loan administrators to provide gap financing to small 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.188

184 In FY2020, EDA administered a third competition in the B2S program, the Industry Challenge, but did not offer it
in FY2021 or FY2022. 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 Program,”
https://www.eda.gov/news/blogs/2020/02/01/spotlight.htm.
185 The B2S Program is authorized under Section 27 of the Stevenson-Wydler Technology Innovation Act of 1980 (15
U.S.C. §3722). The FY2020 B2S Notice of Funding Opportunity (NOFO) noted 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.
186 EDA, “2023 Build to Scale Program NOFO,” https://www.eda.gov/sites/default/files/2023-06/
FY23_B2S_NOFO.pdf.
187 EDA, FY2024 Congressional Budget Justification, p. 56, https://www.commerce.gov/sites/default/files/2023-03/
EDA-FY2024-Congressional-Budget-Submission.pdf.
188 13 C.F.R. Part 307.
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EDA administers funding for Assistance to Coal Communities (ACC), Nuclear Closure
Communities (NCC), and some forms of supplemental appropriations through EAA.189 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.190
EDA administered the SPRINT Challenge through the EAA program with $25 million of CARES
Act funding. The purpose of the SPRINT Challenge was to “address the economic, health, and
safety risks caused by the coronavirus pandemic through entrepreneurship and innovation.”191
EDA administered the following economic recovery assistance through the EAA program in
FY2022:
• Economic Recovery Corps. EDA administered the new Economic Recovery Corps
program through the EAA program with funding provided by the CARES Act. The
Economic Recovery Corps program was designed to expand staff capacity in local
organizations focused on improving economic resilience and competitiveness in
distressed regions. The NOFO indicated that EDA would select a Network Operator (an
organization or coalition) to build, launch, and operate the Economic Recovery Corps
program, which will embed Fellows in local economic development organizations.192
• Equity Impact Investments. EDA administered the new Equity Impact Investments
program through the EAA program with funding provided by the CARES Act. The
program was designed to provide technical assistance to enable organizations serving
underserved populations and communities to participate in economic development
planning and projects.193
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 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)194 or serves a Special Impact area
(as defined in 13 C.F.R. Part 310).195
Level of matching funds requirement: Generally, 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 will be located, as determined by EDA. In the case of certain Indian tribes,

189 For more information, see CRS Insight IN11648, The Economic Development Administration’s Assistance to Coal
and Nuclear Closure Communities Initiatives for Economic Transitions, by Julie M. Lawhorn.
190 EDA, “Leading Economic Recovery Efforts in Disaster-Impacted Communities,” https://eda.gov/files/programs/
disaster-recovery/EDA-Disaster-Brochure.pdf.
191 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 Economic Development Administration and the CARES Act (P.L.
116-136), by Julie M. Lawhorn.
192 EDA, “Economic Recovery Corps,” https://www.eda.gov/economic-recovery-corps.
193 EDA, “FY2023 Public Works and Economic Adjustment Assistance NOFO,” https://www.grants.gov/web/grants/
view-opportunity.html?oppId=346815.
194 13 C.F.R. §307.5(1).
195 13 C.F.R. §301.10(c).
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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,
EDA may award grants totaling 100% of a project’s cost. 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 TA grant to
prepare for a business development project such as an incubator, shared-use processing facility, or
an entrepreneurship center. Local TA 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 will 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: Generally, 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 EDDs as well as local
organizations (Indian tribes and other eligible recipients) charged with long-term strategic
economic development planning efforts such as a 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.196
Statutory Authority: 42 U.S.C. §3143
Agency Regulations: 13 C.F.R. Part 303
Economic distress criteria: No minimum economic distress level requirements.197

196 According to an example noted in EDA’s FY2021-FY2023 NOFO for Planning and Local Technical Assistance,
“EDA might provide Short Term Planning funding to a coalition of Tribal and regional organizations to plan a
coordinated response to the sudden loss of a significant employer in the affected area. EDA also makes Short-Term
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 Technical Assistance Programs,” https://eda.gov/files/programs/eda-
programs/FY21-23-Planning-and-LTA-NOFO_FINAL.pdf.
197 13 C.F.R. §306 and 13 C.F.R. §301.3.
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Requirement to align with CEDS or equivalent: Generally, the long-term partnership planning
investments support the development of CEDS.
Level of matching funds requirement: Generally, 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, skill-training facilities, brownfields redevelopment, and the expansion of port and
harbor facilities. Similar assistance is also available under the agency’s EAA 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 CEDS or equivalent EDA-accepted regional economic development strategy.
Level of matching funds requirement: Generally, 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 will 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,
EDA may award grants totaling 100% of a project’s cost. Credit may be given toward the
nonfederal share for in-kind contributions, including contributions of space, equipment, and
services.
Recompete Pilot Program (Distressed Area Recompete Pilot
Program)
The Recompete Pilot program is a new program authorized by the CHIPS and Science Act (P.L.
117-167, Section 10621) that will provide grants and cooperative agreements to persistently
distressed areas. The program will administer two types of awards: (1) strategy development
grants, and (2) strategy implementation grants. EDA plans to administer two types of funding
awards through two award phases for the program.
For Phase 1, EDA instructs applicants to choose either a strategy development grant, approval of
a Recompete Plan, or both. Strategy development grants are designed to help applicants
strengthen regional coordination and support planning and pre-development activities, including
hiring a coordinator or the formulation of a Recompete Plan. A strategy development grant
conveys funding. A Recompete Plan is a comprehensive economic development plan that
includes the proposed multiyear activities to be implemented, projected costs, partner roles, and
other information. EDA also says it will approve Recompete Plans in Phase 1, but approval of a
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Recompete Plan does not convey funding. According to EDA, applicants must have their
Recompete Plan approved in order to be invited to apply for implementation funds under Phase 2.
In Phase 2, EDA plans to fund implementation awards to support a range of economic
development activities based on regional priorities. The implementation funds may be used for
activities that are consistent with an applicant’s approved Recompete plan in order to support
workforce development; business and entrepreneur development; infrastructure (or other site
development programs); and planning and technical assistance activities. Implementation award
recipients are not required to have previously received a strategy development award.
Eligible applicants include
• political subdivisions of a state;
• tribal governments;
• U.S. territories;
• the District of Columbia;
• nonprofit organizations working in cooperation with a political subdivision of a
state;
• economic development districts; and
• a coalition of any of the entities listed above.
Statutory Authority: 15 U.S.C. §3722b
Agency Regulations: The program is governed by the terms of the Notice of Funding
Opportunity (NOFO).198
Economic distress criteria: The program targets areas where prime-age (25-54 years)
employment falls below the national rate. The prime age employment gap (PAEG) is the
difference (expressed as a percentage) between (i) the national five-year average prime-age
employment rate; and (ii) the five-year average prime-age employment rate of the eligible area.
Among other requirements, projects must be located in one of two eligible geographic areas and
meet certain PAEG requirements. The two eligible geographic areas are:
• Local Labor Markets (LLMs)—a Metropolitan Statistical Area (MSA), a
Micropolitan Statistical Area (μMSA), a commuting zone, or tribal lands. LLMs
with a PAEG of at least 2.5% are eligible. Tribal lands and Pacific Ocean
territories are considered eligible LLMs.
• Local Communities (LCs)—an area served by a general-purpose unit of local
government (e.g., county government) that is located within, but does not fully
cover, an ineligible LLM. In addition, one of these conditions must apply:
• The entire area served by the unit of local government on average has a
PAEG of at least 5% and a median annual household income of no more than
$75,000; or
• A subset of the area served by the unit of local government has five or more
contiguous Census tracts that each individually have a PAEG of at least 5%
and median annual household income of no more than $75,000. In this

198 EDA, “FY2023 Distressed Area Recompete Pilot Program Phase 1 NOFO (Recompete Pilot Phase 1 NOFO),”
https://www.eda.gov/sites/default/files/2023-06/Recompete_Pilot_Program_NOFO_phase_1_vF.pdf.
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instance, the applicant’s service area must be contained within the identified
Census tracts.
Requirement to align with CEDS or equivalent: The CEDS requirement is not referenced in 15
U.S.C. §3722b.
Level of matching funds requirement: There is no match requirement for Phase 1 or Phase 2
awards; matching is to be a competitive factor in Phase 2.
Regional Technology and Innovation Hubs (Tech Hubs) Program199
P.L. 117-167 (the CHIPS and Science Act), enacted August 8, 2022, established a new Regional
Technology and Innovation Hub (Tech Hubs) Program at the Department of Commerce.200 The
focus of the program is to support technology development, job creation, and expanding U.S.
innovation capacity. The program also seeks to develop hubs in areas that are not “leading
technology centers.”
Program applicants will determine their technology focus area and hub activities based on their
regional assets and other factors. P.L. 117-167 does not include a list of specific industry or
technology focus areas for the hubs. However, it does outline “considerations for the designation
and award of implementation grants.” One of the considerations indicates that, among other
factors, the Secretary shall consider “the potential of the eligible consortium to advance the
research, development, deployment, and domestic manufacturing of technologies in a key
technology focus area, as described in section 10387 of the Research and Development,
Competition, and Innovation Act or other technology or innovation sector critical to national
security and economic competitiveness.” The initial list of ten key technology focus areas in
Section 10387 (Division B, Title III—National Science Foundation for the Future, Subtitle G)
includes biotechnology, quantum information sciences, advanced materials science, and advanced
energy and industrial efficiency technologies, among others.
The NOFO further notes that the grants will be made using a competitive, merit-review process,
and that awards will be made in a manner that ensures geographic diversity and representation
from communities of differing populations, among other considerations. EDA plans to administer
two Tech Hubs funding awards:
• Strategy development awards—to help a consortium prepare to apply for an
implementation award and/or Tech Hub designation by supporting planning,
coordination, and pre-development activities; and
• Strategy implementation awards—to support economic development activities such as
workforce development, business and entrepreneur development, technology maturation,
and infrastructure.
EDA plans to administer the program in two phases. In Phase 1, an applicant can apply for a
strategy development award, a Tech Hub designation, or both. Only entities that
are already designated as Tech Hubs in Phase 1 will be permitted to apply for implementation
awards under the Phase 2 NOFO. Designated Tech Hubs, however, will not be required to receive
a strategy development award to apply for an implementation award. EDA is statutorily required

199 For more information, see https://www.eda.gov/funding/programs/regional-technology-and-innovation-hubs.
200 See P.L. 117-167, Division B, Title VI—Miscellaneous Science and Technology Provisions, Subtitle C, Section
10621.
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to designate at least 20 Tech Hubs and indicates that designation is a strong signal of a region’s
potential. There is no funding associated with the designation.
EDA plans to award grants to eligible consortia. In addition to other entities, an eligible
consortium must include one or more representatives from
• Institutions of higher education;
• State, territorial, local, or tribal governments or other political subdivisions of a state;
• Industry groups or firms in relevant technology, innovation, or manufacturing sectors;
• Economic development organizations or similar entities; and
• Labor or workforce training organizations.
The NOFO encourages the participation of at least two private firms in an eligible consortium,
and notes that other entities may be part of the consortium. One of the consortium members will
be the lead applicant.201
Statutory Authority: 15 U.S.C. §3722a202
Agency Regulations: The program is governed by the terms of the Notice of Funding
Opportunity (NOFO).203
Economic distress criteria: No minimum economic distress level requirements; however, the
FY2023 Tech Hubs NOFO indicates that
Consistent with Executive Order 13985, Advancing Racial Equity and Support for
Underserved Communities through the Federal Government, Executive Order 14091,
Further Advancing Racial Equity and Support for Underserved Communities Through the
Federal Government, and EDA’s Equity Investment Priority, EDA expects projects to
advance equity to underserved and underrepresented populations to the extent practicable.
Specifically, applicants are expected to articulate which populations or communities will
benefit from the project and how the project will provide for inclusive community
engagement, ensuring that the economic benefits of the project will be shared by all
communities in the project area, including any underserved communities.204
Additionally, the NOFO highlighted the potential for tech hubs’ engagement with underserved
communities and other stakeholders in its description of its “equity and diversity” criteria.205
Requirement to align with CEDS or equivalent: The CEDS requirement is not referenced in 15
U.S.C. §3722a.
Level of matching funds requirement: Strategy development award recipients will generally
contribute at least a 20% cost share, except the cost share is lowered to 10% if the eligible
consortium represents all or part of a small and rural or other underserved community. For
implementation awards, the total amount of initial funds awarded shall not exceed 90% of the
total operating costs of the hub—except in the case of an eligible consortium that represents all or
part of a small and rural or other underserved community or is led by a tribal government.

201 Ibid.
202 The Tech Hubs program is authorized under Section 28 of the Stevenson-Wydler Technology Innovation Act (15
U.S.C. §3722a).
203 EDA, “FY2023 Regional Technology and Innovation Hub Program Phase 1 NOFO (Tech Hubs Phase 1 NOFO),”
https://www.eda.gov/sites/default/files/2023-05/Tech_Hubs_NOFO.pdf.
204 Ibid.
205 Ibid.
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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.206 Through the National Technical Assistance program, EDA may provide technical
assistance that is national in scope on a specific type of economic development challenge,
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.207
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 will 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: Generally, 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 Challenge208
The STEM Talent Challenge 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 Challenge seeks to address the need for the “talent” component by
building a skilled workforce for regional innovation economies. Funded projects may address

206 EDA, “Research and Evaluation (R&E) and National Technical Assistance (NTA) Programs,” https://eda.gov/
programs/rnta/. See also EDA, “NOFO for FY 2021-2023 Research and Evaluation (R&E) and National Technical
Assistance (NTA) Programs,” EDA-HDQ-RNTA-2021, https://www.grants.gov/web/grants/view-opportunity.html?
oppId=334079.
207 The EDA’s webpage on RNTA provides additional examples at https://www.eda.gov/rnta.
208 STEM 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/.
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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. §3723209
Agency Regulations: The program is governed by the terms of the Notice of Funding
Opportunity (NOFO).210
Economic distress criteria: No minimum economic distress level requirements; however, the
FY2023 NOFO indicates that
Consistent with Executive Order 13985, Advancing Racial Equity and Support for
Underserved Communities through the Federal Government, and EDA’s Equity
Investment Priority, EDA expects projects to advance equity to underserved populations
to the extent practicable. In this context, EDA is seeking projects that directly benefit: (1)
one or more traditionally underserved populations, including but not limited to women,
Black, Latino, and Indigenous and Native American persons, Asian Americans, and Pacific
Islanders or (2) underserved communities within geographies that have been systemically
and/or systematically denied a full opportunity to participate in aspects of economic
prosperity such as Tribal Lands, Persistent Poverty Counties, and rural areas with
demonstrated, historical underservice.211
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)212
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.213 EDA generally funds a TAAC for a three-year period composed of three separate
funding periods of 12 months each.214
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.215

209 The STEM Talent Challenge is authorized under Section 30 (formerly Section 28) of the Stevenson-Wydler
Technology Innovation Act of 1980 (15 U.S.C. §3723).
210 EDA, “2023 STEM Talent Challenge Program NOFO,” https://www.eda.gov/sites/default/files/2023-04/
FY%2023%20STEM%20Talent%20Challenge%20NOFO.pdf.
211 Ibid.
212 For more information, see CRS Report RS20210, Trade Adjustment Assistance for Firms, by Kyla H. Kitamura.
213 13 C.F.R. §315.4.
214 13 C.F.R. §315.5.
215 13 C.F.R. §315.5.
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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.216 Certified firms that receive assistance from TAACs must pay a
percentage of expenses associated with services.217
University Center Program218
The University Center program connects economic development practitioners with expertise and
resources from colleges and universities. University Centers provide technical assistance in
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-skilled 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 generally 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 held the University Center competition in its Chicago and
Philadelphia Regional Offices.219 In FY2022, EDA held the University Center competition in its
Atlanta and Seattle Regional Offices. In FY2023, EDA will hold the University Center
competition in its Austin and Denver Regional Offices.220
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.221

216 13 C.F.R. §315.5.
217 13 C.F.R. §315.6.
218 For a list of University Centers, see https://eda.gov/programs/university-centers/current-list/.
219 EDA, NOFO—FY2021 EDA University Center Economic Development Program Competition, EDA-CHI-TA-
CRO-2021-2006893 and EDA-CHI-TA-CRO-2021-2006894, https://www.grants.gov/web/grants/view-
opportunity.html?oppId=332622.
220 EDA, “University Centers—Applicant Resources,” https://www.eda.gov/funding/programs/university-centers/
applicant-resources.
221 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)).
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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.222
Level of matching funds requirement: Generally, 50% of project costs, but may vary. See 13
C.F.R. §301.4.

222 EDA, NOFO—FY2021 EDA University Center Economic Development Program Competition, EDA-CHI-TA-CRO-
2021-2006893 and EDA-CHI-TA-CRO-2021-2006894, https://www.grants.gov/web/grants/view-opportunity.html?
oppId=332622.
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Appendix B. EDA Funding—Historical Tables
Table B-1. Budget Requests and Annual Enacted Appropriations,
FY2011-FY2023 and FY2024 Request
(budget authority, in millions of nominal dollars)
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
$373.5
2023
$502.5
$1,616.0*
2024
$2,304.0a

Sources: OMB Budget Appendices of the United States, EDA Annual Reports, and EDA Congressional Budget
Justification Reports.
Notes: Includes funding for programs and salaries and expenses and supplemental appropriations. The asterisk
(*) indicates that the amount includes supplemental appropriations.
a. In FY2024, the Administration’s budget included a request of $1.5 bil ion of no-year mandatory spending.

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Table B-2. Funding for EDA, by Program, FY2011-FY2023
(budget authority, in millions of nominal dollars)

FY2011 FY2012 FY2013a FY2014 FY2015 FY2016 FY2017 FY2018 FY2019 FY2020 FY2021 FY2022 FY2023
Program

Public Works
88.7
111.6
77.2
96.0
99.0
100
100
117.5
117.5
118.5
119.5
120.5
121.5
Economic Adjustment Assistance
78.7
50.1
49.0
42.0
35.0
35.0
35.0
37.0
37.0
37.0
37.5
37.5
39.5
Planning Assistance
30.9
29.0
28.4
29.0
30.0
32.0
31.5
33.0
33.0
33.0
33.5
34.5
36.0
Technical Assistance
13.4
12.0
11.8
11.0
11.0
10.5
9.0
9.5
9.5
9.5
10.0
12.5
14.0
Research and Evaluation
1.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
1.5
2.0
2.0
Trade Adjustment Assistance
15.8
15.8
15.5
15.0
12.5
13.0
13.0
13.0
13.0
13.0
13.5
13.5
13.5
Innovative Manufacturing (Sec. 26)

—b

5.0
4.0

Build to Scale (Sec. 27)

—c

10.0
10.0
15.0
17.0
21.0
23.5
33.0
38.0
45.0
50.0
Assistance to Coal Communities

10.0d
15.0
30.0
30.0
30.0
30.0
33.5
41.5
48.0
Assistance to Nuclear Closure

15.0
16.5
16.5
16.5
Communities
Assistance to Biomass Power Plant

4.5
4.5
Closure Communities
STEM Apprenticeships (Sec. 30)

2.0
2.0
2.0
2.5
Recompete Pilot (Sec. 29)

41.0
Tech Hubs (Sec. 28)

41.0
Global Climate Change Mitigation
16.5

Subtotal—Programs
245.5
220.0
182.0
209.5
213.0
222.0
237.0
262.5
265.0
292.5
305.5
330.0
430.0
Supplemental Appropriations

200.0

600.0
600.0
1,500.0
3,000.0

1,118.0
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
43.5
68.0
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
$373.5 $1,616.0
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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, P.L. 116-260, and P.L. 117-103;
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, P.L. 117-2, and in P.L. 117-328.
Notes: Amounts may not add to totals due to rounding. Build to Scale was called 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 allocate 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 requirements of 15 U.S.C. §§3721-
3722 rather than the requirements of PWEDA. See Representative 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, FY2024
Congressional Budget Justification, p. 67, https://www.commerce.gov/sites/default/files/2023-03/EDA-FY2024-Congressional-Budget-Submission.pdf.

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Table B-3. Supplemental Funding, FY2011-FY2023
(budget authority, in millions of dollars)
FY2012
FY2018
FY2019
FY2020
FY2021
FY2023

(P.L. 112-55)
(P.L. 115-123)
(P.L. 116-20)
(P.L. 116-136)
(P.L. 117-2)
(P.L. 117-328)
Economic Adjustment Assistance
$200
$600
$600
$1,500
$3,000
$500
Recompete Pilot
N/A
N/A
N/A
N/A
N/A
$159
Regional Technology and
N/A
N/A
N/A
N/A
N/A
$459
Innovation Hub
Total
$200
$600
$600
$1,500
$3,000
$1,118
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), American
Rescue Plan Act (ARPA, P.L. 117-2), and Consolidated Appropriations Act, 2023 (P.L. 117-328). P.L. 117-328 established the Recompete Pilot and the Tech Hubs
program.

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Economic Development Administration: An Overview of Programs and Appropriations

Appendix C. Staff Level History
Table C-1. EDA Employment, FY2011-FY2022
Year
Employment
2011
222
2012
197
2013
169
2014
167
2015
174
2016
192
2017
180
2018
180
2019
202
2020
261
2021
281
2022
314
Sources: CRS using information from the Office of Personnel Management (OPM), FedScope,
http://www.fedscope.opm.gov.
Note: Each total is an “on-board” U.S.-based personnel count as of September of the year noted.

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.
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Economic Development Administration: An Overview of Programs and Appropriations

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