About the Higher Education Emergency Relief Fund (HEERF)

Last updated 6 days ago. Our resources are updated regularly but please keep in mind that links, programs, policies, and contact information do change.

The COVID-19 pandemic presented unprecedented challenges to the United States, profoundly impacting all sectors, including higher education. In response to the widespread disruption, the federal government established the Higher Education Emergency Relief Fund (HEERF), administered by the Office of Postsecondary Education at the U.S. Department of Education.

This initiative aimed to provide emergency financial support to institutions of higher education (IHEs), their staff, faculty, students, and parents. HEERF was designed to help colleges and universities navigate pandemic challenges by helping them prevent, prepare for, and respond to the national health crisis.

The Foundation: Legislative Acts and Funding Allocation

HEERF was implemented through a series of legislative actions, each building upon the previous one to address evolving needs in higher education.

CARES Act (HEERF I)

The Coronavirus Aid, Relief, and Economic Security (CARES) Act, enacted on March 27, 2020, marked the initial federal response, allocating approximately $14 billion to the Office of Postsecondary Education.

• Over $6 billion was specifically earmarked for direct emergency financial aid grants to students
• Around $12.5 billion was intended for emergency grants to students and institutional needs
• The Department of Education established an initial deadline of September 30, 2020, for institutions to apply for Student Portion grants, with a limited reopening until January 11, 2021
• The reporting period for the first HEERF annual report ran from January 5, 2021, to February 1, 2021

CRRSAA (HEERF II)

The Coronavirus Response and Relief Supplemental Appropriations Act, signed on December 27, 2020, provided a second significant infusion of funding.

• The Department of Education announced that an additional $21.2 billion was being made available to higher education institutions
• CRRSAA authorized a total of $81.88 billion for education, with $21.2 billion allocated to higher education
• The deadline for new HEERF II awards was April 15, 2021
• An exception was made for quarterly reporting requirements for HEERF II for the first quarter of 2021, with the deadline extended to June 30, 2021

American Rescue Plan (HEERF III)

The American Rescue Plan Act, enacted on March 11, 2021, represented the largest single allocation, providing $39.6 billion in support.

• Cumulatively, total emergency funds authorized across all three HEERF acts reached $76.2 billion
• HEERF III placed greater emphasis on serving students and addressing issues of equity
• Grantees could request a No-Cost Extension (NCE) for institutional awards through June 30, 2024, and for student awards through December 31, 2023
• Application deadlines for many HEERF III programs were in March/April 2022

The increasing financial commitment across the three HEERF acts reflects a deepening understanding of the pandemic’s extensive impact on higher education. What began as an initial response evolved into more substantial and targeted support, recognizing that challenges were more profound and long-lasting than initially anticipated.

Who Benefited? Eligibility Criteria for HEERF Funding

The fundamental requirement for institutions to be eligible for HEERF grants was their classification as an Institution of Higher Education under Section 18004(a)(1) of the CARES Act. This definition aligns with criteria outlined in Section 101 of the Higher Education Act of 1965.

Student Aid Funding

A significant portion of HEERF was designated as Student Aid, providing emergency financial aid grants directly to students experiencing disruptions and financial difficulties.

• Initially, students had to meet federal financial aid eligibility requirements under Title IV of the HEA
• This Title IV eligibility requirement became a point of legal contention, with district courts issuing preliminary injunctions
• Despite legal challenges, the Department maintained that grants should primarily go to those eligible for Title IV aid
• Emergency grant funds could be used for expenses related to cost of attendance, including tuition, fees, food, housing, health care, and child care
• Under the ARP Act (HEERF III), 100% of Student Aid Funds had to be used for emergency financial aid grants

Institutional Funding

HEERF also provided direct funding to institutions to cover costs associated with changes to instructional delivery and other pandemic-related expenses.

Allowable uses included:

• Defraying costs incurred by the institution, including lost revenue
• Reimbursement for expenses already incurred in responding to the pandemic
• Technology costs for the transition to distance education
• Faculty and staff training on online teaching methodologies
• Payroll expenses

Restrictions prevented using funds for:

• Pre-enrollment recruitment activities
• Endowments
• Capital outlays for facilities used for athletics, sectarian instruction, or religious worship
• Executive salaries and benefits

Institutions could use Institutional Portion funds to discharge student debt balances, enabling students to re-enroll, continue education, or obtain transcripts.

Special Institutional Programs

HEERF included specific funding for Minority-Serving Institutions (MSIs), Historically Black Colleges and Universities (HBCUs), and Tribally Controlled Colleges and Universities (TCCUs).

• These funds addressed needs directly related to the coronavirus
• Institutions could use funds for prevention, preparation, and response efforts
• Funding helped defray expenses such as lost revenue and technology costs
• Eligibility depended on meeting criteria under specific sections of the Higher Education Act

Accountability in Action: Reporting Requirements

Transparency and accountability were paramount in the HEERF program, with recipient institutions obligated to:

• Post quarterly reports on their primary websites detailing fund use
• Submit annual performance reports to the Department of Education
• Submit PDF attachments of quarterly reports to [email protected]

Quarterly Reporting

• Due no later than 10 days after each calendar quarter (January 10, April 10, July 10, October 10)
• Exception for HEERF II where first quarter 2021 deadline was extended to June 30, 2021
• Required for both Student Funds and Institutional Funds
• Summary of expenditures across different HEERF grant funds (I, II, and III)
• Two separate reports: one for institutional portion, one for student portion

Annual Reporting

• Required for all institutions receiving any student or institutional funds
• First HEERF I annual report period: January 5 – February 8, 2021
• Submitted through the Annual Report Data Collection System
• Required reporting URLs of webpages with quarterly reporting information
• HEERF audits submitted through the Department’s eZ-Audit System
• Specific individuals designated to edit and submit performance reports
• Fourth annual report (covering January-December 2023) due June 27, 2024

The Department of Education proposed retroactive changes to reporting requirements to expand student demographic data and categorical spending details, indicating an effort to gather more information about the program’s impact on various populations.

Making a Difference: The Impact of HEERF

Student Retention and Success

• Most college presidents reported HEERF played a crucial role in retaining at-risk students
• About 90% of institutions indicated HEERF was instrumental in keeping students enrolled
• Southern New Hampshire University found HEERF grant recipients were significantly more likely to remain enrolled in the following term
• Western Governors University research showed HEERF emergency aid resulted in an 11 percentage point increase in graduation rates within 12 months
• The Department of Education reported approximately 9 out of 10 institutions believed HEERF helped prevent students from stopping out

Financial Stabilization

• HEERF funding helped institutions offset financial losses from reduced enrollment
• Community college total revenue per college actually increased during the pandemic, largely due to HEERF funds
• This compensation for lost tuition revenue was critical for maintaining institutional financial health

Supporting Student Needs

• HEERF grants helped students cover essential basic needs: rent, food, course materials, transportation, medical expenses
• Students reported significantly reduced financial stress related to tuition and living expenses
• Emergency funding enabled many students to purchase technology needed for online coursework
• Some institutions used HEERF to expand counseling services and mental health support
• Analysis at SNHU found top three student expenses were housing, food, and transportation

Infrastructure and Innovation

• HEERF had significant impact on increasing support for technology hardware, high-speed internet, and housing assistance
• Many institutions used funds to support the transition of courses and services to online environments
• Investments in classroom technology supported hybrid learning models
• Enhanced Wi-Fi infrastructure on campus and in surrounding communities improved accessibility
• University of Houston example: investment in “Advanced HyFlex Classrooms” supporting both on-site and remote participation

The widespread agreement among college leaders and various reports indicates HEERF was largely successful in its primary goals. The program acted as a vital safety net for many students who might otherwise have abandoned their education, demonstrating that large-scale federal emergency aid can effectively mitigate negative consequences of a national crisis.

A Critical Look: Criticisms and Challenges

Despite its positive impact, HEERF faced several criticisms and challenges:

Administrative Issues

• The Government Accountability Office identified instances where the Department of Education awarded funding exceeding allocated limits
• The California State Auditor found inconsistencies in how UC and CSU campuses distributed student aid
• Some UC campuses may have missed millions in HEERF MSI funding by failing to apply for or renew Minority-Serving Institution designation

Oversight Concerns

• The Department’s Office of Inspector General concluded that the Office of Postsecondary Education needed to enhance oversight processes
• OIG recommended developing a comprehensive monitoring framework using risk assessment
• Proprietary institutions expending $500,000+ in HEERF funds were required to submit independent audits
• Concerns about potential False Claims Act lawsuits highlighted legal risks and compliance importance

Effectiveness Questions

• Research on emergency aid programs, including HEERF, yielded mixed results for improving student retention and completion
• Some studies suggest emergency aid is most effective when coupled with comprehensive support services
• Higher education community expressed concerns about proposed retroactive changes to reporting requirements
• Organizations like NASFAA offered policy recommendations for improving future federal emergency aid programs

These criticisms highlight the complexities of rapidly deploying large-scale federal aid during an emergency. The urgency of the pandemic necessitated a quick rollout, which may have led to administrative errors and oversight challenges. The mixed findings regarding HEERF’s impact on student outcomes underscore that financial aid alone may not overcome all barriers to academic success during a crisis.

Our articles make government information more accessible. Please consult a qualified professional for financial, legal, or health advice specific to your circumstances.