Economic Development: Opportunities Exist for Further Collaboration among EDA, HUD, and USDA
States spend billions of dollars on incentives to attract and retain businesses. Some question their cost and effectiveness. Do federal funds play a part in these incentives?
In 6 large state business incentive packages we reviewed, federal economic development funds were not directly used.
However, 3 federal agencies help fund and encourage state and local economic development planning. This may include determining how to best use incentives.
The agencies could better coordinate their efforts and, for example, reduce the amount of separate paperwork required for each agency. Our recommendations address improving coordination.
What GAO Found
Federal economic development programs and state business incentives approach economic development in different ways. In GAO's review of six large state business incentive packages ($50 million or more) in four states, federal economic development program funds were not directly used. Reasons for limited use could include differences in purposes and goals, and limitations on how federal funds can be used. For example, the goals of economic development programs administered by the Department of Commerce's Economic Development Administration (EDA), the Department of Housing and Urban Development (HUD), and the U.S. Department of Agriculture (USDA) do not completely align with the goals of state business incentives, the latter of which include attracting and retaining individual businesses.
Although these incentive packages were not funded with federal economic development program funds, some of the businesses that received a large incentive package were highlighted in federal strategic plans as opportunities for investment and job growth in the local economy. The economic development programs of EDA, HUD, and USDA each encourage or require state and local communities to conduct strategic planning, which includes obtaining input from a range of public and private stakeholders and identifying ways to leverage other available resources, such as federal and state funding. Recognizing the similarities in what they require of grantees, in 2016, EDA and HUD entered into an interagency agreement to align planning requirements under their programs. The agencies implemented certain aspects of the agreement, such as issuing joint guidance to applicants. However, they have not implemented selected leading practices for effective interagency collaboration:
- Updating written agreements: EDA and HUD have not regularly monitored or updated their interagency agreement to reflect changing priorities of either agency. Officials stated the agencies have prioritized other areas for coordination, such as disaster relief, instead of state and local strategic planning processes.
- Including relevant participants: EDA and HUD have made limited efforts to involve USDA in their collaborative efforts. USDA also encourages strategic planning for local communities.
- Monitoring progress towards outcomes: EDA and HUD's agreement identifies specific outcomes, including effectively aligning federal, state, and local resources for economic development. However, the agencies have not monitored progress or addressed any related challenges in meeting the stated outcomes of the collaboration.
By incorporating selected leading practices for effective collaboration, EDA and HUD can help grantees and local communities better manage fragmented efforts to meet federal requirements for strategic planning and more effectively align federal and state resources.
Why GAO Did This Study
States spend billions of dollars annually in business incentives to attract and retain individual businesses or industries. EDA, HUD, and USDA administer programs that support states' economic development goals and encourage strategic planning. In previous reports, we have identified concerns related to fragmentation in these agencies' efforts to collaborate on economic development programs with each other.
GAO was asked to review issues related to these state and federal economic development efforts. This report examines the use of federal economic development programs to support state business incentives and how selected federal agencies collaborate on these programs, among other issues.
GAO reviewed information on federal economic development programs and business incentives in four states (selected because the states offer incentives of $50 million or more and vary geographically). GAO interviewed federal and state agency officials and policy organizations.
Recommendations
GAO is making five recommendations related to enhancing collaboration across the three agencies, including that EDA and HUD revisit its agreement on economic development planning, determine the extent to which USDA should be included, and monitor progress towards stated outcomes. The agencies generally agreed with the recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Economic Development Administration | The Assistant Secretary of Economic Development at EDA should, in collaboration with HUD, revisit the two agencies' interagency agreement on community and economic development planning to align their collaborative efforts based on current priorities and determine to what extent USDA should be included in the agreement. (Recommendation 1) |
This recommendation is an action identified in GAO's 2022 annual Duplication and Cost Savings report. EDA agreed with the recommendations. As of March 2022, EDA stated that its existing agreement was limited to a specific task and therefore EDA may address the recommendations through a different interagency agreement or other document, action, or policy. EDA plans to explore whether a refresh of the interagency agreement and expansion to include USDA is appropriate and work with HUD to add progress monitoring metrics to the agreement, if applicable. EDA also provided examples of general efforts to collaborate with HUD and USDA, such as under its American Rescue Plan (ARP) Act programs and coordinated disaster recovery. More specific to economic development, according to EDA, it had begun initiating a working group with HUD and USDA on Interagency Place Based Initiatives that will provide a renewed and regular working forum to identify and implement further opportunities for cross agency collaboration and actions that support the economic and community development mission of the three agencies. EDA also mentioned the Interagency Policy Committees on Urban Equitable Development and on Rural Prosperity, respectively, will continue to explore policies and actions that can further advance outcome driven collaboration and enhanced resource coordination among federal economic development programs. To fully implement the recommendation, EDA will need to finalize its plan and procedures for identifying opportunities to collaborate on economic development planning based on its current priorities and identify ways to formalize any agreements and monitor progress of the collaboration. By incorporating leading practices in collaboration, EDA and the other agencies can help grantees and local communities better manage overlapping efforts to meet federal requirements for strategic planning, which can reduce administrative and planning burden for local communities while also assisting these communities to better address their economic development needs. We will continue to monitor the agencies' progress in implementing our recommendation.
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| Economic Development Administration | The Assistant Secretary of Economic Development at EDA should, in collaboration with HUD, monitor progress toward achieving outcomes of the two agencies' interagency agreement on community and economic development planning. (Recommendation 2) |
This recommendation is an action identified in GAO's 2022 annual Duplication and Cost Savings report. EDA agreed with the recommendations. As of March 2022, EDA stated that its existing agreement was limited to a specific task and therefore EDA may address the recommendations through a different interagency agreement or other document, action, or policy. EDA plans to explore whether a refresh of the interagency agreement and expansion to include USDA is appropriate and work with HUD to add progress monitoring metrics to the agreement, if applicable. EDA also provided examples of general efforts to collaborate with HUD and USDA, such as under its American Rescue Plan (ARP) Act programs and coordinated disaster recovery. More specific to economic development, according to EDA, it had begun initiating a working group with HUD and USDA on Interagency Place Based Initiatives that will provide a renewed and regular working forum to identify and implement further opportunities for cross agency collaboration and actions that support the economic and community development mission of the three agencies. EDA also mentioned the Interagency Policy Committees on Urban Equitable Development and on Rural Prosperity, respectively, will continue to explore policies and actions that can further advance outcome driven collaboration and enhanced resource coordination among federal economic development programs. To fully implement the recommendation, EDA will need to finalize its plan and procedures for identifying opportunities to collaborate on economic development planning based on its current priorities and identify ways to formalize any agreements and monitor progress of the collaboration. By incorporating leading practices in collaboration, EDA and the other agencies can help grantees and local communities better manage overlapping efforts to meet federal requirements for strategic planning, which can reduce administrative and planning burden for local communities while also assisting these communities to better address their economic development needs. We will continue to monitor the agencies' progress in implementing our recommendation.
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| Department of Housing and Urban Development | The Principal Deputy Assistant Secretary for Community Planning and Development at HUD should, in collaboration with EDA, revisit the two agencies' interagency agreement on community and economic development planning to align their collaborative efforts based on current priorities and determine to what extent USDA should be included in the agreement. (Recommendation 3) |
This recommendation is an action identified in GAO's 2022 annual Duplication and Cost Savings report. HUD generally agreed with the recommendations. As of September 2021, HUD stated that it planned to revise its agreement with the Economic Development Administration (EDA) and formalize its current collaboration with the U.S. Department of Agriculture (USDA) through a memorandum of understanding (MOU). In addition, HUD plans for the revised MOU to reflect the current administration's priority of economic recovery from the pandemic needs. Additionally, HUD told us that it is engaged in a number of collaborative efforts with USDA, which would benefit from codification in a MOU. To fully implement the recommendation, HUD will need to finalize its plan and procedures for identifying opportunities to collaborate on economic development planning based on its current priorities and identify ways to formalize any agreements and monitor progress of the collaboration. By incorporating leading practices in collaboration, HUD and the other agencies can help grantees and local communities better manage overlapping efforts to meet federal requirements for strategic planning, which can reduce administrative and planning burden for local communities while also assisting these communities to better address their economic development needs. We will continue to monitor the agencies' progress in implementing our recommendation.
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| Department of Housing and Urban Development | The Principal Deputy Assistant Secretary for Community Planning and Development at HUD should, in collaboration with EDA, monitor progress toward achieving outcomes of the two agencies' interagency agreement on community and economic development planning. (Recommendation 4) |
This recommendation is an action identified in GAO's 2022 annual Duplication and Cost Savings report. HUD generally agreed with the recommendations. As of September 2021, HUD stated that it planned to revise its agreement with the Economic Development Administration (EDA) and formalize its current collaboration with the U.S. Department of Agriculture (USDA) through a memorandum of understanding (MOU). In addition, HUD plans for the revised MOU to reflect the current administration's priority of economic recovery from the pandemic needs. Additionally, HUD told us that it is engaged in a number of collaborative efforts with USDA, which would benefit from codification in a MOU. To fully implement the recommendation, HUD will need to finalize its plan and procedures for identifying opportunities to collaborate on economic development planning based on its current priorities and identify ways to formalize any agreements and monitor progress of the collaboration. By incorporating leading practices in collaboration, HUD and the other agencies can help grantees and local communities better manage overlapping efforts to meet federal requirements for strategic planning, which can reduce administrative and planning burden for local communities while also assisting these communities to better address their economic development needs. We will continue to monitor the agencies' progress in implementing our recommendation.
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| Department of Agriculture | The Deputy Under Secretary for Rural Development at USDA should work with EDA and HUD to identify opportunities to include USDA in the agencies' collaborative efforts on community and economic development strategic planning. (Recommendation 5) |
This recommendation is an action identified in GAO's 2022 annual Duplication and Cost Savings report. USDA generally agreed with the recommendation. In November 2021, USDA provided examples of general collaboration efforts between USDA and the Department of Housing and Urban Development (HUD) and EDA. However, to fully implement the recommendation, USDA will need to finalize its plan and procedures for identifying opportunities to collaborate on economic development planning based on its current priorities and identify ways to formalize any agreements and monitor progress of the collaboration. By incorporating leading practices in collaboration, USDA and the other agencies can help grantees and local communities better manage overlapping efforts to meet federal requirements for strategic planning, which can reduce administrative and planning burden for local communities while also assisting these communities to better address their economic development needs. We will continue to monitor the agencies' progress in implementing our recommendation.
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