Summary
The Corporation for National and Community Service (CNCS) is an independent federal agency that administers the programs authorized by two statutes: the National and Community Service Act of 1990 (NCSA; P.L. 101-610), as amended, and the Domestic Volunteer Service Act of 1973 (DVSA; P.L. 93-113), as amended. NCSA and DVSA programs were most recently reauthorized by the Edward M. Kennedy Serve America Act (P.L. 111-13). This report describes programs authorized by these laws and details CNCS funding for FY2020, FY2021, FY2022, and FY2023.
The NCSA is designed to meet unmet human, educational, environmental, and public safety needs and to renew an ethic of civic responsibility by encouraging citizens to participate in national service programs. The major programs authorized by the NCSA include AmeriCorps State and National Grants and the National Civilian Community Corps (NCCC). The NCSA also authorizes the National Service Trust, which funds educational awards for community service participants.
A central purpose of the DVSA, which authorizes the Volunteers in Service to America (VISTA) program and the National Senior Volunteer Corps, is to foster and expand voluntary service in communities while helping the vulnerable, the disadvantaged, the elderly, and the poor. The National Senior Volunteer Corps includes three programs for senior citizens: the Foster Grandparent Program, the Senior Companion Program, and the Retired and Senior Volunteer Program (RSVP).
Appropriations for the DVSA and the NCSA programs are made annually through the Departments of Labor, Health and Human Services, and Education, and Related Agencies Appropriations Act (Labor-HHS-ED). CNCS programs are funded through FY2023 under the Consolidated Appropriations Act, 2023 (P.L. 117-328). The FY2023 appropriations amount for CNCS is $1.313 billion, which is $162 million more than the FY2022 amount of $1.151 billion.
Background
The Corporation for National and Community Service (CNCS)1 was established by the National and Community Service Trust Act of 1993 (P.L. 103-82). Operating as an independent federal agency, the CNCS oversees all national and community service programs authorized by the National and Community Service Act of 1990 (NCSA)2 and the Domestic Volunteer Service Act of 1973 (DVSA).3
The NCSA and DVSA were last reauthorized by the Edward M. Kennedy Serve America Act (P.L. 111-13).4 Although authorization of appropriations under the Serve America Act expired in FY2014, NCSA and DVSA programs have continued to receive funding through the Departments of Labor, Health and Human Services, and Education and Related Agencies Appropriations Act (Labor-HHS-ED).
CNCS programs are funded through FY2023 under the Consolidated Appropriations Act, 2023 (P.L. 117-328). The final enacted appropriations law for FY2023 included $1.313 billion for CNCS, which is approximately 14% above the FY2022 level of $1.151 billion.
Program-by-Program Overview and Funding
This section provides an overview of each of the NCSA and DVSA programs and their funding.
The purpose of the NCSA is to address unmet human, educational, environmental, and public safety needs and to renew an ethic of civic responsibility and community spirit in the United States by encouraging citizens to participate in national service programs. The NCSA was enacted in 1990 as P.L. 101-610 and last reauthorized in 2011 by the Edward M. Kennedy Serve America Act (P.L. 111-13).5 NCSA programs include AmeriCorps State and National Grants, the National Service Trust, the National Civilian Community Corps (NCCC), and Learn and Serve America (LSA). See Table A-1 for NCSA funding information.
AmeriCorps State and National Grants (Title I-C)6
Program Focus: Created in 1993, programs under AmeriCorps State and National Grants identify and address critical community needs, including tutoring and mentoring disadvantaged youth, managing or operating after-school programs, helping communities respond to disasters, improving health services, building affordable housing, and cleaning parks and streams. Grants include formula grants to states and territories, and competitive grants to states, territories, Indian tribes, and national nonprofit organizations.
Volunteer Eligibility: Individuals aged 17 and older.
Amount of Volunteer Service: Full-time or part-time for a 9- to 12-month period.
Volunteer Benefits: Some full-time AmeriCorps members receive a living allowance, health coverage, and child care for those who qualify.7 Participants in AmeriCorps may receive educational awards for their service through the National Service Trust (see the following section of this report). AmeriCorps members can also obtain loan forbearance (i.e., postponement) in the repayment of their qualified student loans while participating in these programs and have the interest on their accrued loans paid from the National Service Trust once they earn an educational award.
Administrative Entity: Each state and territory8 governor9 appoints members of a service commission to manage, monitor, and administer annual grant applications for the state. CNCS reviews the state commissions' submitted formula grant applications and makes the awards.10 For multistate or national awards, grantees are selected competitively by the CNCS headquarters office.
National Service Trust Education Awards (Title I-D)
The National Service Trust, a special account in the U.S. Treasury, provides educational awards for participants in AmeriCorps Grants, NCCC, and Volunteers in Service to America (VISTA). AmeriCorps members are eligible to receive the education award after successfully completing their term of service and enrolling in the National Service Trust. An individual may not receive more than an amount equal to the aggregate value of two awards for full-time service.11
The educational award for full-time service is equal to the maximum amount of a Pell Grant in effect at the beginning of the federal fiscal year in which the CNCS approves the national service position. AmeriCorps members serving full-time in programs funded in FY2023 are to receive an education award of up to $6,895, the Pell Grant maximum in the year the positions were approved. Prorated awards are also made for other terms of service, such as half-time service (see Table 1). AmeriCorps State and National Participants aged 55 or older at the beginning of a term of service may transfer the education award to a child, stepchild, grandchild, step-grandchild, or foster child. AmeriCorps State and National participants can serve a maximum of four terms of service.12 Full-time, half-time, reduced half-time, quarter time, and minimum time terms of service each count as one term of service.
Education awards can be used to pay for current educational expenses at institutions of higher education that participate in the Title IV Student Financial Aid Programs authorized under the Higher Education Act.13 Awards can also be used for certain GI Bill-approved educational programs and to repay qualified student loans.
In addition to education awards, the National Service Trust makes interest payments on qualified student loans on behalf of recipients of AmeriCorps Grants and participants in NCCC or VISTA who have obtained forbearance (postponement of loan repayment).14 In order to receive interest payments, participants must complete the required term of service and have earned an education award.
|
Participation Type |
Minimum Number of Hours |
Educational |
|
Full time |
1,700 |
$6,895.00 |
|
Three-quarters time |
1,200 |
$4,826.50 |
|
Half time |
900 |
$3,447.50 |
|
Reduced half time |
675 |
$2,626.27 |
|
Quarter time |
450 |
$1,824.07 |
|
Minimum time and summer associate |
300 |
$1,459.26 |
|
AmeriCorps Affiliate |
100 |
$388.03 |
National Civilian Community Corps (Title I-E)
Program Focus: NCCC is a full-time residential program that focuses on short-term projects that meet national and community needs related to disaster relief, infrastructure improvement, environment and energy conservation, environmental stewardship, and urban and rural development.
Volunteer Eligibility: Individuals aged 18 to 24. By statute (42 U.S.C. §12613(c)), the CNCS is required to take steps to increase the percentage of program participants who are disadvantaged15 to 50% of all participants.
Amount of Volunteer Service: Participants can serve up to two years full time. Full-time service is defined as 10 months each year.
Volunteer Benefits: NCCC participants may receive a living allowance, room and board, limited medical benefits, and an educational award through the National Service Trust.
Administrative Entity: NCCC programs are administered by the CNCS.
Innovation, Demonstration, and Assistance Activities (I-H)
CNCS continues to have broad authority to fund a range of activities as authorized by Subtitle I-H, Investment for Quality and Innovation. The Serve America Act established the following programs:
Learn and Serve America (Title I-B)16—Not Funded Since FY2010
Since 1990, the NCSA has authorized community service programs benefitting students and communities through "service-learning," which integrates community service projects with classroom learning. This program was last funded in FY2010 by the Consolidated Appropriations Act, 2010 (P.L. 111-117).
The DVSA was enacted in 1973 as P.L. 93-113. Like the NCSA, it was last reauthorized in 2011 by the Edward M. Kennedy Serve America Act (P.L. 111-13). The purpose of DVSA is to foster and expand voluntary citizen service throughout the nation. DVSA programs are designed to help the poor, the disadvantaged, the vulnerable, and the elderly. Administered by the CNCS, DVSA programs include VISTA and the National Senior Volunteer Corps. See Table A-1 for DVSA funding information.
Program Focus: The VISTA program encourages Americans to participate in community service in an effort to eliminate poverty.
Volunteer Eligibility: Individuals aged 18 and older.
Amount of Volunteer Service: VISTA members serve full time for up to five years.17
Volunteer Benefits: VISTA members may receive a living allowance, student-loan forbearance, health coverage, relocation costs, training, and child care assistance. VISTA members who complete a term of service have the option of receiving an educational award, which is equivalent to the educational awards earned by AmeriCorps or NCCC members, or they may choose to receive an end-of-service lump sum cash stipend of approximately $1,800 instead.18 Like NCCC members, VISTA members receive an educational award based on the Pell Grant.19 Full-time, half-time, reduced half-time, quarter time, and minimum time terms of service each count as one term of service.
Administrative Entity: CNCS state offices.
National Senior Service Corps (Title II)
The National Senior Service Corps consists of three programs, summarized below: the Retired Senior Volunteer Program (RSVP), the Foster Grandparent Program (FGP), and the Senior Companion Program (SCP).
Retired and Senior Volunteer Program (Title II-A)
Program Focus: Volunteers in RSVP may play community service roles in education, health and nutrition services, community and economic development, and other areas of human need.
Volunteer Eligibility: Individuals aged 55 and older.
Amount of Volunteer Service: Participants can contribute up to 40 hours each week.
Volunteer Benefits: Income eligible participants may receive a modest stipend. Volunteers may also receive accident, liability, and automobile insurance during assignments.
Administrative Entity: CNCS state offices.
Foster Grandparent Program (Title II-B)
Program Focus: FGP participants support children with exceptional needs by providing aid and services. FGP participants mentor children and teenagers, teach model parenting skills, and help care for premature infants and children with disabilities.
Volunteer Eligibility: Individuals must be aged 55 or older to participate in FGP and meet income eligibility requirements to receive a stipend.
Amount of Volunteer Service: Volunteer schedules, which range from 15 to 40 hours each week, average 20 hours per week.
Volunteer Benefits: Income eligible participants may receive a stipend. Participants may also receive mileage reimbursements and accident, liability, and automobile insurance coverage during assignments.
Administrative Entity: CNCS state offices.
Senior Companion Program (Title II-C)
Program Focus: SCP gives older adults the opportunity to assist homebound elderly individuals to remain in their own homes and to enable institutionalized elderly individuals to return to home care settings.
Volunteer Eligibility: Individuals must be aged 55 or older to participate in SCP and meet income eligibility requirements to receive a stipend.
Amount of Volunteer Service: Volunteer schedules, which range from 15 to 40 hours each week, average 20 hours per week.
Volunteer Benefits: Participants may receive a stipend. Participants may also receive mileage reimbursements and accident, liability, and automobile insurance coverage during assignments.
Administrative Entity: CNCS state offices.
Appendix A. CNCS Program Funding
|
Program |
FY2020 Appropriation |
FY2021 Appropriation |
FY2022 Appropriation |
FY2023 Appropriation |
|
AmeriCorps State and National Grants (NCSA Title I-C) |
$428,510 |
$455,096 |
$466,749 |
$557,094 |
|
National Service Trust (NCSA Title I-D) |
$208,342 |
$185,000 |
$190,550 |
$230,000 |
|
National Civilian Community Corps (NCSA Title I-E) |
$32,500 |
$33,500 |
$34,505 |
$37,735 |
|
Innovation, Demonstration, and Assistance Activities |
$9,600 |
$9,600 |
$9,888 |
$14,706 |
|
—Volunteer Generation Fund (non-add) |
$6,400 |
$6,400 |
$6,558 |
$8,558 |
|
—Innovation, Demonstration & Other (non-add) |
$3,200 |
$3,200 |
$3,330 |
$6,148 |
|
State Commission Administrative Grants |
$17,538 |
$18,538 |
$19,094 |
$19,538 |
|
Evaluation (NCSA Title I-F, §179) |
$4,000 |
$4,000 |
$4,120 |
$6,250 |
|
VISTA (DVSA Title I-A) |
$93,364 |
$97,364 |
$100,285 |
$103,285 |
|
National Senior Service Corps (DVSA Title II) |
$221,017 |
$225,017 |
$230,768 |
$236,917 |
|
—Retired Senior Volunteer Program, RSVP (non-add) |
$51,355 |
$53,355 |
$53,956 |
$55,105 |
|
—Foster Grandparent Program (non-add) |
$118,799 |
$118,799 |
$122,363 |
$125,363 |
|
—Senior Companion Program (non-add) |
$50,863 |
$52,863 |
$54,449 |
$56,449 |
|
Inspector Generala |
$5,750 |
$6,500 |
$6,595 |
$7,595 |
|
Salaries and Expensesb |
$83,737 |
$86,487 |
$88,082 |
$99,686 |
|
Total |
$1,104,358 |
$1,121,102 |
$1,150,636 |
$1,312,806 |
Source: Compiled by the Congressional Research Service using data from current and past Budget Charts available at https://americorps.gov/about/agency-overview/budget-performance-plans.
a. Funding is used for oversight activities including promoting efficiency and effectiveness in agency programs.
Appendix B. A Brief Presentation of Selected Corporation for National and Community Service Benefits
|
Program |
Living Allowances, Stipends, and/or Expenses |
Health care |
Childcare |
Education Award |
|
AmeriCorps State and National |
FY23 Minimum and Maximum Living Allowancea
|
The grant recipient "must provide, or make available healthcare insurance to those members serving a 1,700-hour full-time term who are not otherwise covered by a healthcare policy at the time the member begins his/her term of service." "Less-than-full-time members who are serving in a full-time capacity for a sustained period of time (e.g. a full-time summer project) are eligible for healthcare benefits. Programs may provide health insurance to less-than-full-time members serving in a full-time capacity, but they are not required to do so.... [A] member is serving in a full-time capacity when his/her regular term of service will involve performing service on a normal full-time schedule for a period of six weeks or more."c |
State and national members are eligible to receive childcare through the AmeriCorps Childcare Benefit Program if income guidelines are met. The maximum rates are established by state Child Care and Development Block Grants.d To qualify, members' household income must not exceed 75% of the state's median family income for a same-size family excluding living allowances.e |
|
|
AmeriCorps NCCC Traditional Corps and FEMA Corps |
Living Allowance: For 10 months of service, eligible AmeriCorps NCCC members receive the living allowance of about $4,000 (or $200 every two weeks before taxes), lodging and meals. Team leaders earn $1,136 per month during 11 months of service. Program-Related Travel: AmeriCorps NCCC members may be eligible for reimbursement of certain expenses for program-related travel such as travel from member's home to campus and special purpose travel (e.g., conferences).i |
AmeriCorps NCCC members are eligible for the AmeriCorps Health Benefit Plan, administered by CNCS. It is not considered insurance and only provides limited benefits such as office visits, lab and x-ray services, preventive care, emergency expenses, and most prescription drug costs.j |
AmeriCorps NCCC members are eligible to receive up to $400 per child each month for childcare or the rate charged by the childcare provider, whichever is lower, through the AmeriCorps Childcare Benefit Program.e |
Same Education Award amounts available as for the AmeriCorps State and National program (see above). |
|
AmeriCorps VISTA |
2022-2023 Minimum Living Allowance: allowances are based on the county served. In summer 2022, the VISTA minimum allowance increased to $17,600 from $15,002.k End of Service Stipend Option: VISTA members who choose not to receive an education award can receive an end-of-service lump sum stipend of $1,800 (accrues at a rate of $4.94 per day). Leaders receive approximately $8.22/day.l AmeriCorps VISTA Relocation Allowance: VISTA candidates who are relocating more than 50 miles from their home may be eligible for a relocation travel allowance "based on the mileage between the ZIP code of the home of record and the ZIP code of the VISTA service site. Effective January 1, 2019, the rate is $0.40 per mile."k Settling In Stipend: AmeriCorps VISTA members may receive $750 if serving a 12-month term and relocating 50 or more miles.k |
CNCS provides a Healthcare Allowance Plan for VISTA members who already have insurance. The allowance offsets expenses up to $8,550. The VISTA Health Benefit Plan is a basic plan available for members who do not already have health care benefits. The plan is covered at no cost and includes "medical office visits, most lab and x-ray services, limited preventive care." It is not considered insurance.m |
VISTA members are eligible to receive childcare through the AmeriCorps Childcare Benefit Program if income guidelines are met. The maximum rates are established by state Child Care and Development Block Grants. To qualify, a member's household income must not exceed 75% of the state's median family income for a same-size family excluding living allowances.e |
Same education award amounts available as for the AmeriCorps State and National program (see above). |
|
Senior Corps: RSVP Program |
Living Allowance/Stipend: n/a Program-Related Travel: RSVP participants may be eligible for reimbursement for certain expenses, including transportation costs, incurred while performing volunteer assignments. Meals, Uniforms, Clothing: RSVP participants may be eligible for reimbursement for expenses for uniforms, meals, and physical exams, depending on the sponsoring grantees' resources or policies.n |
n/a |
n/a |
n/a |
|
Senior Corps: Foster Grandparent Program (FGP) |
Stipend: If income guidelines are met (income up to 200% of poverty level), program volunteers receive $3.00/hour tax free. Program-Related Travel: FGP participants may be eligible for reimbursement for certain expenses, including transportation costs, incurred while performing volunteer assignments. Meals, Uniforms, Clothing, Physical Exams: FGP participants may be eligible for reimbursement for expenses for uniforms, meals, and physical exams, depending on the sponsoring grantees' resources or policies.o |
Each FGP participant is eligible to receive a yearly physical exam, with the costs covered by the project or grantee.o |
n/a |
n/a |
|
Senior Corps: Senior Companion Program (SCP) |
Stipend: If income guidelines are met (income up to 200% of poverty level), program volunteers receive S3.00/hour tax free. Program-Related Travel: SCP participants may be eligible for reimbursement for certain expenses, including transportation costs, incurred while performing volunteer assignments. Meals, Uniforms, Clothing, Physical Exams: SCP participants may be eligible for reimbursement for expenses for uniforms, meals, and physical exams depending on the sponsoring grantees' resources or policies.p |
Each SCP participant is eligible to receive a yearly physical exam, with the costs covered by the project or grantee.p |
n/a |
n/a |
Source: Compiled by CRS from CNCS sources and other sources as indicated.
Notes: Potential benefits may depend on program eligibility. Additional benefits (such as coverage of accident insurance) may also apply. National Service Trust Education Award benefits are mentioned in Table 1, AmeriCorps Education Award Amounts.
a. AmeriCorps State and National FY2023 Living Allowance, https://www.americorps.gov/sites/default/files/document/ASN_FY2023_Competitve_Notice_508_072722.pdf.
b. AmeriCorps requires a living allowance for full-time members. A minimum living allowance is not required for less than full-time members. See AmeriCorps, 2023 Terms and Conditions for AmeriCorps State and National Grants, https://americorps.gov/sites/default/files/document/2023ASNProgram508TC.pdf.
c. AmeriCorps, 2023 Terms and Conditions for AmeriCorps State and National Grants, https://americorps.gov/sites/default/files/document/2023ASNProgram508TC.pdf.
d. See CRS Report R47312, The Child Care and Development Block Grant: In Brief.
e. AmeriCorps Childcare Program, https://americorpschildcare.com/index.cfm?tab4.
f. Eligible AmeriCorps members aged 55 and older may be able to transfer education benefits to a child, stepchild, grandchild, step-grandchild, or foster child. See the AmeriCorps Education Award, FY23 Award Amount, https://americorps.gov/members-volunteers/segal-americorps-education-award/find-out-more.
g. The AmeriCorps education award maximum award for full-time service is based on the maximum Pell grant amount. The amounts listed above were based on the 2022-2023 school year. See U.S. Department of Education, Federal Pell Grant information: https://studentaid.gov/understand-aid/types/grants/pell.
h. For more information on the AmeriCorps Education Award type of slots, see the AmeriCorps Application Instructions, https://americorps.gov/sites/default/files/document/ASN_ApplicationInstructions_FINAL.pdf.508.pdf.
i. AmeriCorps NCCC Benefits, https://dev.americorps.gov/serve/americorps/americorps-nccc#benefits; AmeriCorps NCCC FEMA Corps Summer 2023, https://my.americorps.gov/mp/listing/viewListing.do?fromSearch=true&id=115332, and the AmeriCorps NCCC Traditional Corps, Summer 2023, https://my.americorps.gov/mp/listing/viewListing.do?fromSearch=true&id=115332.
j. AmeriCorps NCCC Member Handbook (January 2023), https://americorps.gov/sites/default/files/document/AmeriCorps-NCCC-Member-Handbook-2023.pdf.
k. AmeriCorps VISTA 2022 Living Allowance Rates by County (Effective August 14, 2022), https://americorps.gov/sites/default/files/document/FY22-County-Living-Allowance-Rates-VISTA.pdf.
l. AmeriCorps VISTA Benefits, https://americorps.gov/members-volunteers/vista/benefits.
m. AmeriCorps VISTA Health Benefits Overview (April 2021), https://americorps.gov/sites/default/files/document/2021_04_07_VISTA_Health_Benefits_Overview_VISTA.pdf.
n. AmeriCorps RSVP Operations Handbook (May 2022), https://americorps.gov/sites/default/files/document/RSVP%20Handbook_2022.2.pdf.
o. AmeriCorps FGP Operations Handbook (January 2022), https://www.americorps.gov/sites/default/files/document/2022-01-12-FGP-Handbook2022.1-ACS.pdf.
p. AmeriCorps SCP Operations Handbook (May 2022), https://americorps.gov/sites/default/files/document/SCP%20Handbook.2022.2-5.12.22.pdf.
This report was originally authored by former CRS Analyst Joselynn H. Fountain and former Senior Research Librarian Abigail R. Overbay.
| 1. |
The Corporation for National and Community Service (CNCS) promulgated a regulation on October 15, 2020 to change its operating name to AmeriCorps. See 45 C.F.R. §2500. |
| 2. |
National and Community Service Act of 1990 (NCSA), P.L. 101-610. |
| 3. |
Domestic Volunteer Service Act of 1973 (DVSA), P.L. 93-113. |
| 4. |
For more information, see CRS Report R40432, Reauthorization of the National and Community Service Act of 1990 and the Domestic Volunteer Service Act of 1973 (P.L. 111-13). |
| 5. |
The authorization of appropriations for most of the programs authorized under the NCSA expired in 2014; however, most programs have continued to receive funding through annual appropriations bills. |
| 6. |
In statute, Title I-C is titled "National Service Trust Program." |
| 7. |
For more information on AmeriCorps benefits eligibility, see 42 U.S.C. §12594. |
| 8. |
As of April 21, 2023, Guam and Puerto Rico are the only territories that have state commissions. |
| 9. |
With respect to the District of Columbia, the mayor serves in this role. |
| 10. |
For more information, see AmeriCorps State Service Commission Road Map, https://americorps.gov/sites/default/files/document/2017_07_01_State_Service_Commission_Road_Map_ASN.pdf. |
| 11. |
42 U.S.C. §12602(c). |
| 12. |
Corporation for National and Community Service, Segal AmeriCorps Education Award, https://americorps.gov/members-volunteers/segal-americorps-education-award. |
| 13. |
For an overview of the Title IV programs, see CRS Report R43351, The Higher Education Act (HEA): A Primer. |
| 14. |
For more information on student loan forbearance, see CRS Report R45931, Federal Student Loans Made Through the William D. Ford Federal Direct Loan Program: Terms and Conditions for Borrowers. |
| 15. |
Disadvantaged youth are defined at 42 U.S.C. §12511(b) as youth who are economically disadvantaged and one or more of the following: out-of-school, in or aging out of foster care, limited in English proficiency, homeless or have run away from home, at-risk to leave school without a diploma, juvenile offenders or at risk of delinquency, or individuals with a disability. |
| 16. |
In statute, Title I-B is titled "School-Based and Community-Based Service-Learning Programs." |
| 17. |
VISTA Handbook, Chapter 12: End of Service, https://www.vistacampus.gov/chapter-12-end-service. |
| 18. |
AmeriCorps, VISTA Benefits, https://americorps.gov/members-volunteers/vista/benefits. |
| 19. |
Corporation for National and Community Service, Segal AmeriCorps Education Award, http://www.nationalservice.gov/programs/americorps/segal-americorps-education-award. |