Order Code RL31125
CRS Report for Congress
Received through the CRS Web
Recovery from Terrorist Attacks: A Catalog of
Selected Federal Assistance Programs
Updated February 1, 2002
Ben Canada, Coordinator
Analyst in American National Government
Government and Finance Division
Congressional Research Service ˜
The Library of Congress
Recovery from Terrorist Attacks:
A Catalog of Selected Federal Assistance Programs
Summary
Following the terrorist attacks of September 11, 2001, on New York City and
Washington, DC, Members of Congress from affected jurisdictions asked CRS to
compile a list of federal programs that could assist recovery from the results of such
attacks in urban areas. Subsequently, Members from jurisdictions not directly affected
have requested such a compilation, in the event their jurisdiction were to experience
an attack.
This catalog of programs also represents a selection of programs for which
Congress might provide funds in the FY2003 appropriations process or through
emergency supplemental legislation.
The programs listed in this catalog can be classified into two broad categories.
First are programs specifically for disaster situations. Most of these programs are
administered by the Federal Emergency Management Agency (FEMA) and the Small
Business Administration (SBA). Second are general assistance programs that may
apply to disaster situations. Many federal agencies, including the Departments of
Health and Human Services, Housing and Urban Development, and Justice,
administer programs that may be brought to bear under certain circumstances.
The programs can also be classified by recipients, primarily individuals, state and
local governments, or businesses. The programs address such short-term needs as
food and shelter, and such long-term needs as repair of public utilities.
Contents
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Program Selection Criteria . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Limitations of This Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Other Sources of Information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Federal Disaster Assistance Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
General Assistance Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Related CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
List of Figures
Figure 1. Framework of Federal Assistance Programs . . . . . . . . . . . . . . . . . . . . 2
List of Tables
Table 1. Disaster Assistance Programs for Individuals . . . . . . . . . . . . . . . . . . . . 4
Table 2. Disaster Assistance Programs for State and Local Governments . . . . . . 8
Table 3. Disaster Assistance Programs for Businesses . . . . . . . . . . . . . . . . . . . . 9
Recovery from Terrorist Attacks:
A Catalog of Selected
Federal Assistance Programs
Introduction
Following the terrorist attacks of September 11, 2001, on New York City and
Washington, DC, Members of Congress from affected jurisdictions asked CRS to
compile a list of federal programs that could assist recovery from the results of such
attacks in urban areas. Subsequently, Members from jurisdictions not directly affected
have requested such a compilation, in the event their area was to experience an attack.
This catalog, therefore, lists both federal disaster assistance programs and other
federal assistance programs that may appropriately be brought to bear on recovery
operations at the state and local levels. This report also represents a spectrum of
programs for which Congress might decide to provide funds in the FY2003
appropriations process or through emergency supplemental legislation.
Program Selection Criteria
Programs discussed in this report satisfy one or more of the following criteria:
! Congress expressly designated the program as a disaster relief or recovery
program;
! The program is applicable to disaster situations;
! FEMA and other federal agencies view the program as an emergency response
program;
! The program’s eligible recipients and eligible activities make it appropriate for
use in urban areas; or
! The program is potentially useful for addressing short-term and long-term
recovery needs (e.g., assistance with processing survivor benefits, repair of
public facilities).
The programs listed in this catalog can be classified into two broad categories:
1) programs specifically for disaster situations, and 2) general assistance programs
that may apply to disaster situations. The programs can also be classified by
recipients, primarily individuals, state and local governments, or businesses. The
programs address such short-term needs as food and shelter, and such long-term
needs as repair of public utilities (see
Figure 1).
CRS-2
Figure 1. Framework of Federal Assistance Programs
Eligible
Disaster Programs
General Assistance Programs
Recipient
Examples
Examples
Individual
Individual Assistance (FEMA)
Dislocated Worker Activities
Disaster Unemployment Assistance
(under the Workforce Investment
(DOL)
Act)
Medicaid
State and Local
Public Assistance (FEMA)
Community Development Block
Governments
Hazard Mitigation Grants (FEMA)
Grant (HUD)
Social Services Block Grant (HHS)
Business
Physical Disaster Loans (SBA)
—
Economic Injury Loans (SBA)
Limitations of This Report
The purpose of this catalog is to identify programs pertinent to the recovery
process. The report, therefore, does not provide
detailed program information; it
offers brief descriptive information to help congressional offices determine which
programs bear further consideration when planning, organizing, or implementing
recovery operations. Most of the programs listed here are expressly authorized as
assistance programs and are listed in the Catalog of Federal Domestic Assistance
(CFDA). The list does not include
ad hoc assistance that some agencies provide in
emergency or disaster situations.1
As Congress and the Administration respond to domestic needs, some of these
programs may be altered. For the most up-to-date information on a particular
program, please contact the listed CRS analyst.
Other Sources of Information
Federal Agency Web Sites. Many federal agencies have established web
sites specifically to respond to efforts for overcoming the results of the terrorist
attacks. Some agencies maintain web sites with comprehensive information about
their disaster assistance programs. Other agencies, however, supply only limited
information. Most web sites list contact phone numbers for more information. A
comprehensive list of federal agency web sites is maintained by Louisiana State
University (see [http://www.lib.lsu.edu/gov/fedgovall.html]).
FEMA Web Site. From its web site, FEMA offers regular updates on recovery
efforts in areas under a major disaster declaration. FEMA also maintains a “Victims
1 Agencies such as the Army Corps of Engineers (DoD) are substantially involved with
recovery efforts. The Corps has assisted with installing temporary generating capacity at the
twin towers rescue site in New York, has provided boats for immediate evacuations of lower
Manhattan, and is providing ongoing engineering expertise for the rescue effort in New York.
CRS-3
Benefits and Assistance Contacts Matrix,” which is updated regularly. The matrix
provides contact information for federal and state agencies, airline companies, and
charitable organizations. It lists resources for meeting the financial, physical, and
mental needs of victims. See [http://www.fema.gov/nwz01/wtc_victims.pdf].
FirstGov. Following the attacks of September 2001, the General Services
Administration set up a special feature on its web site, FirstGov, with links to
information on
individual assistance programs, investigation assistance, and volunteer
opportunities (see [http://www.firstgov.gov]). It also contains links to web sites that
provide maps of affected areas and other useful logistical information. FirstGov,
however, contains few resources for affected state and local governments and
community-based organizations.
Catalog of Federal Domestic Assistance. The CFDA lists all federal
assistance programs (see [http://www.cfda.gov]). The catalog, however, does not
contain the most current information for all programs. It also does not include
information pertinent to disaster situations in most program descriptions.
Because of limitations of information available via the Internet, congressional
users of this report are urged to contact the appropriate CRS program analysts for
more complete, timely information.
CRS-4
Federal Disaster Assistance Programs
The programs listed in this section are authorized specifically for disaster situations. The majority of these programs
are administered by FEMA, but other agencies, including the Small Business Administration and Department of Justice,
administer programs for emergency situations.
Table 1. Disaster Assistance Programs for Individuals
Title
Agency
Description, Funding, and Web Site
CRS Contact
Financial Assistance
Individual and Family
FEMA
This program is FEMA’s primary assistance program for individuals
Keith Bea
Grants
after the President issues a major disaster declaration. Congress
7-8672
(83.543)
appropriates money for the IFG program to the Disaster Relief Fund.
Grants are made to localities to assist disaster victims whose needs
cannot be met through other forms of assistance or through other
means such as insurance. Program funds have a wide range of
eligible uses.
Matching Requirement: State contributes 25%. The matching
requirement is a statutory mandate.
[http://www.fema.gov/r-n-r/inassist.htm]
Disaster Unemployment
Department of
Disaster Unemployment Assistance (DUA) provides benefits to
Jennifer Lake
Assistance
Labor
previously employed or self-employed individuals rendered jobless as
7-0620
a direct result of a major disaster and who are not eligible for regular
federal/state unemployment insurance (UI). DUA is federally funded
through FEMA, but is administered by the state UI agencies. The
DUA weekly benefit amount and duration are the same as under the
UI program.
CRS Report RS21012,
Disaster Unemployment Assistance (DUA), by
Jennifer Lake
[http://ows.doleta.gov/unemploy/duany.asp]
CRS-5
Title
Agency
Description, Funding, and Web Site
CRS Contact
Dislocated Worker
Department of
The dislocated worker program provides training and related
Ann Lordeman
Activities (under the
Labor
assistance to persons who have lost their jobs and are unlikely to
7-2323
Workforce Investment
return to their current jobs or industries. Of the funds appropriated,
Act)
80% are allocated by formula grants to states and local entities; 20%
are reserved by the Secretary of Labor for activities including
National Emergency Grants to states or local entities. One specific
type of national emergency grant is Disaster Relief Employment
Assistance, under which funds can be made available to states to
employ dislocated workers in temporary jobs involving recovery and
cleanup after a national emergency.
Matching Requirement: None
[http://www.doleta.gov/layoff/default.asp]
Public Safety Officers’
Bureau of Justice
Benefits (lump-sum payment) to spouses and children of public safety
Joanne
Benefits Program (PSOB)
Assistance (DOJ)
officers who have been permanently disabled or have lost their lives
O’Bryant
while in the line of duty. The benefit is adjusted each year to reflect
7-6819
the percentage of change in the Consumer Price Index (CPI). The
benefit for FY2001 is $151,635.
Matching Requirement: None
[http://www.ojp.usdoj.gov/BJA/html/fs000277.pdf]
Public Safety Officers’
Bureau of Justice
Provides an educational assistance allowance to eligible survivors of
Joanne
Educational Assistance
Assistance (DOJ)
public safety officers whose death or total permanent disability are
O’Bryant
Program (PSOEA)
the direct and proximate result of an injury sustained in the line of
7-6819
duty; funds may be used only to defray educational expenses, such as
tuition, room and board, books, etc.
Matching Requirement: None
[http://www.ncjrs.org/pdffiles1/bja/fs000270.pdf]
Tax Relief for Disaster
Internal Revenue
Tax benefits to disaster victims and counseling on rights established
Gary Guenther
Victims
Service
by the federal tax system.
7-7742
Matching Requirement: None
[http://www.irs.gov/relief/index.html]
CRS-6
Title
Agency
Description, Funding, and Web Site
CRS Contact
Social Security
Social Security
Counseling on claims for Social Security survivors and disability
Dawn Nuschler
Administration
benefits; assistance with obtaining necessary evidence for claims
7-6283
processing (e.g., evidence of death); and resolution of problems
involving lost or destroyed SSA checks and lost or destroyed claims
forms.
Matching Requirement: None
[http://www.ssa.gov]
Cora Brown Fund
FEMA
Direct payments to individuals and groups for disaster-related needs
Keith Bea
(83.538)
that have not been, or will not be, met by government agencies or any
7-8672
other organizations that have programs to address such needs.
Annual obligations for the entire program are typically less than
$100,000.
Matching Requirement: None
[http://www.fema.gov]
Savings Bonds
Bureau of the
Assistance to disaster victims in expediting replacement or
James Bickley
Replacement or
Public Debt
redemption of U.S. savings bonds.
7-7794
Redemption
(Treasury)
Matching Requirement: None
[http://www.publicdebt.treas.gov/sav/sbfaqcs2.htm]
Counseling and Other Specialized Services
Assistance for Victims of
Office for
Offers a variety of services to victims, including emergency travel
Alison Siskin
Crime
Victims of Crime
assistance, assistance with obtaining information, and long-term
7-0260
(DOJ)
mental health counseling.
Matching Requirement: None
[http://www.ojp.usdoj.gov/ovc/]
CRS-7
Title
Agency
Description, Funding, and Web Site
CRS Contact
Crisis Counseling
FEMA
Grants to states to provide immediate crisis counseling services,
Keith Bea
(83.539)
when required, to victims of a major federally declared disaster for
7-8672
the purpose of relieving mental health problems caused or aggravated
by a major disaster or its aftermath; assistance is short-term and
community-oriented.
Matching Requirement: None
[http://www.fema.gov/r-n-r/counsel.htm]
Disaster Legal Services
FEMA
Free legal assistance to individuals affected by a major federal
Keith Bea
(83.540)
disaster. Types of assistance typically include help with insurance
7-8672
claims, preparing powers of attorney, help with guardianships, and
preparing new wills and other lost legal documents.
Matching Requirement: None
[http://www.fema.gov]
Food and Housing
Emergency Food and
FEMA
Grants to supplement and expand ongoing efforts to provide shelter,
Keith Bea
Shelter (83.523)
food, and supportive services for needy families and individuals.
7-8672
Activities include strengthening efforts to create more effective and
innovative local programs by providing supplemental funding for
them; conducting minimum rehabilitation of existing mass shelter or
mass feeding facilities, but only to the extent necessary to make
facilities safe and sanitary and bring them into compliance with local
building codes.
Matching Requirement: None
[http://www.usfa.fema.gov/fedguide/ch1-21.htm]
Disaster Housing Program
FEMA
Direct payments to individuals affected by a disaster to assist with
Keith Bea
(83.545)
their related housing needs; examples include rental assistance, home
7-8672
repair, and transient accommodations.
Matching Requirement: None, except units of government must
provide 25% of the eligible costs of developing mobile home sites.
[http://www.hud.gov:80/disassit.cfm]
CRS-8
Table 2. Disaster Assistance Programs for State and Local Governments
Title
Agency
Description, Funding, and Web Site
CRS Contact
Public Assistance (PA)
FEMA
PA is FEMA’s primary assistance program for state and local
Keith Bea
Grants
governments.
Funds may be used to repair, replace, or restore
7-8672
(83.544)
disaster-damaged, publicly owned facilities and the facilities of
certain private nonprofit organizations. This program has a wide
range of eligible activities, including removal of debris, repair of
roads and bridges, repair of water control facilities, etc. Congress
appropriates funds to the Disaster Relief Fund.
Matching Requirement: generally 25%, but the statute authorizes the
President to waive part or all of the required match.
[http://www.fema.gov/r-n-r/pa/]
Hazard Mitigation Grants
FEMA
Grants to states to enable mitigation measures to be implemented
Keith Bea
(83.548)
following the recovery from a disaster; and to provide funding for
7-8672
previously identified mitigation measures to benefit the area.
Matching Requirement: 25%
[http://www.fema.gov/]
Community Disaster
FEMA
Loans to local governments that have suffered substantial loss of tax
Keith Bea
Loans
and other revenue in areas included in a major disaster declaration.
7-8672
(83.537)
The funds can only be used to maintain existing functions of a
municipal operating character and the local government must
demonstrate a need for financial assistance.
Matching Requirement: No matching requirement, but loan amount
may not exceed $5 million.
CRS Report RS20736,
Disaster Mitigation Act of 2000 (P.L.
106-390): Summary of New and Amended Provisions of the Stafford
Disaster Relief Act, by Keith Bea.
[http://www.fema.gov/]
CRS-9
Title
Agency
Description, Funding, and Web Site
CRS Contact
Reimbursement for
FEMA
Direct payments to fire departments for engaging in firefighting
Keith Bea
Firefighting on Federal
operations on federal property; applicants may be reimbursed for
7-8672
Property (83.007)
direct expenses and direct losses (those losses and expenses not
considered normal operating expenses) incurred in firefighting.
Matching Requirement: None
[http://www.fema.gov/]
Table 3. Disaster Assistance Programs for Businesses
Title
Agency
Description, Funding, and Web Site
CRS Contact
Economic Injury Disaster
Small Business
Loans and loan guarantees to assist small businesses suffering
Bruce Mulock
Loans
Administration
economic injury as a result of disasters. Business must be located in
7-7775
(59.002)
(SBA)
disaster areas declared by President, Small Business Administration
(SBA), and/or Secretary of Agriculture.
Matching Requirement: None
[http://www.sba.gov/disaster/newyorkfires.html]
Physical Disaster Loans
SBA
Provides loans to small businesses in declared disaster areas for
Bruce Mulock
(59.008)
uninsured physical damage and losses.
7-7775
Matching Requirement: None
[http://www.sba.gov/disaster/newyorkfires.html]
CRS-10
General Assistance Programs
In addition to programs described in Tables 1, 2, and 3, which provide targeted
assistance to individuals, state and local governments, and businesses specifically
affected by disasters, numerous other general assistance programs may potentially be
useful to communities in disaster situations. For example, by virtue of losing income,
employment, or health insurance, individuals affected by disasters may become eligible
for programs that are not specifically intended as disaster relief, such as cash
assistance under the Temporary Assistance for Needy Families (TANF) program,
unemployment compensation, job training under the Workforce Investment Act,
Medicaid, or the State Children’s Health Insurance Program (S-CHIP).
Likewise, state or local officials have the discretion to use funds under such
programs as Social Services Block Grants or Community Development Block Grants
to meet disaster-related needs, even though these programs were not established
specifically for such purposes. Other agencies that may potentially offer assistance
to state and local governments include the Economic Development Administration
and Army Corps of Engineers. For businesses, however, only the disaster programs
administered by the SBA are applicable.
Numerous federal programs of potential use as disaster relief can be found
throughout the government. However, while many programs might be of
potential
use based on their statutorily
allowable use of funds, specific eligibility criteria or
other program rules might make it less likely that they would
actually be used.
Moreover, available funds might already be obligated for ongoing program activities.
On the other hand, to the extent that federal agencies have discretion in the
administration of programs, some may choose to adapt these non-targeted programs
for use in disaster situations.
On the other hand, Congress may choose to provide additional funds through the
emergency supplemental for certain general assistance programs, specifically for use
after a disaster.
CRS analysts and program specialists can help provide information on the extent
to which general assistance programs might be of relevance in a given disaster
situation. CRS appropriations reports (accessible at [http://www.crs.gov/products/
appropriations/apppage.shtml]) may have information on disaster assistance within
particular federal agencies. These reports also contain a list of key policy staff at CRS
(including phone numbers), identified by their program-area or agency expertise.
CRS-11
Related CRS Products
CRS Report RS21061,
Small Business Disaster Assistance: Responding to the
Terrorist Attacks, by Bruce Mulock.
CRS Report RS21023,
Disaster Unemployment Assistance (DUA), by Jennifer Lake.
CRS Report RS20669,
Federal Grants to State and Local Governments: Overview
and Characteristics, by Ben Canada.
CRS Report RS20272,
FEMA’s Mission: Policy Directives for the Federal
Emergency Management Agency, by Keith Bea.
CRS Report RL30460,
The Federal Emergency Management Agency: Overview of
Funding for Disaster Relief and Other Activities, by Keith Bea.