WAP Application & State Plan Guide

The Two-Tier Application Process

WAP operates through a two-tier application structure. States apply to DOE for their annual allocation, and local agencies apply to their state for sub-grant funding. Understanding both tiers is essential — even if you are a local agency that only interacts with the state, knowing what your state commits to in its DOE application helps you understand the production targets, compliance expectations, and reporting requirements that will flow down to your organization.

State Application to DOE

Each state WAP grantee submits an annual state plan to DOE that serves as both the application for federal funds and the roadmap for the program year. The state plan is submitted through Grants.gov and must be approved by DOE before funds are released. State plans typically cover a program year aligned with the federal fiscal year (October 1 through September 30), though some states operate on different cycles.

Required State Plan Elements

Under 10 CFR 440.14, the state plan must include:

• Production targets: The number of dwelling units the state expects to weatherize during the program year, broken down by dwelling type (single-family, multifamily, manufactured housing)
• Sub-grantee list: Identification of all local agencies that will receive WAP sub-grants, including their service areas and allocated amounts
• Budget: A detailed budget showing the allocation across program operations, training and technical assistance, administrative costs, and health and safety
• Energy audit procedures: The audit tools and procedures the state will use (NEAT/MHEA or approved equivalent) and any state-specific audit policies
• Priority system: How the state will prioritize eligible households, including the ranking criteria for elderly, disabled, families with children, and high energy burden populations
• Training plan: The state's approach to ensuring all auditors, crew members, and inspectors are properly trained and certified in Standard Work Specifications (SWS) and applicable technical standards
• Monitoring plan: How the state will monitor sub-grantees, including the frequency of on-site visits, file review procedures, and quality control inspection protocols
• Leveraging strategy: How the state will leverage WAP funds with other resources, including utility programs, LIHEAP transfers, state appropriations, and other funding sources
• Health and safety plan: The state's approach to addressing health and safety hazards encountered during weatherization, including lead, asbestos, mold, combustion safety, and electrical hazards

BIL-Specific State Plan Requirements

The Bipartisan Infrastructure Law introduced additional requirements for state plans seeking BIL funding. These requirements reflect the expanded scale and enhanced accountability expectations of the BIL investment:

• Workforce capacity plan: States must demonstrate how they will recruit, train, and retain sufficient staff to meet expanded production targets. This includes plans for new crew hiring, training partnerships with community colleges and workforce boards, and retention strategies.
• Equity and justice considerations: DOE requires states to describe how they will ensure WAP services reach disadvantaged communities and communities with environmental justice concerns.
• Scale-up timeline: A realistic timeline showing how the state will ramp from current production levels to BIL target levels, including interim milestones.
• Enhanced data collection: Plans for collecting the additional data elements required under BIL reporting, including energy savings measurement, workforce demographics, and equity metrics.

Sub-Grantee Application to State

Local weatherization agencies apply to their state WAP office for sub-grant funding. This process varies significantly by state, but the core elements are consistent. Unlike the DOE application which goes through Grants.gov, sub-grantee applications are typically submitted through state-specific systems or processes.

Typical Sub-Grantee Application Elements

While requirements vary by state, most sub-grantee applications require:

• Production plan: How many units the agency expects to complete during the program year, broken down by dwelling type and monthly or quarterly targets
• Budget narrative: A detailed budget showing how the agency will allocate its sub-grant across labor, materials, equipment, administration, training, and health and safety
• Staffing plan: Current crew composition, auditor and inspector certifications, training needs, and any planned hires for the program year
• Quality control procedures: The agency's plan for conducting quality control inspections on completed units, including the percentage of units to be inspected and the inspection methodology
• Leveraging documentation: Other funding sources the agency will use to supplement WAP, including utility programs, state funds, and private contributions
• Prior year performance: Summary of the previous year's production, expenditure rate, compliance findings (if any), and corrective actions taken

Setting Production Targets

Production targets are the cornerstone of WAP planning. Your target directly determines your budget allocation, staffing needs, and operational rhythm for the year. Setting realistic production targets requires balancing several factors:

• Historical production: Your track record of completed units in previous years provides the baseline. States generally expect at least the same level of production unless circumstances have changed.
• Crew capacity: The number of trained crew members you have, their productivity rates, and any anticipated absences or turnover. A typical weatherization crew can complete 6 to 12 units per month depending on complexity and travel distances.
• Average cost per unit: Your average cost determines how many units your budget can support. Under the regular appropriation, the cap is $8,009; under BIL, it is $12,000. Your actual average may be well below these caps.
• Seasonal factors: In northern climates, production may slow during winter months when certain measures (exterior insulation, air sealing of vented areas) are difficult to install. Build seasonal variability into your monthly targets.
• Waitlist depth: The number of eligible applicants on your waiting list. If your waitlist is thin, you may need to invest in outreach before committing to aggressive production targets.

Staffing and Capacity Building

The BIL-era production expansion has made workforce capacity the defining challenge for WAP agencies. Building and maintaining a trained weatherization workforce requires intentional planning:

Key Workforce Positions

Training Resources and Partnerships

DOE funds a national training and technical assistance network that states and local agencies can access. Key resources include:

• DOE WAP Training Centers: Regional training centers that offer hands-on courses in energy auditing, insulation installation, HVAC, and health and safety
• BPI certification programs: Building Performance Institute offers nationally recognized certifications in Building Analyst, Envelope Professional, and Quality Control Inspector
• State-level T&TA: Many states operate their own training programs, including classroom instruction, field mentoring, and annual conferences for weatherization staff
• Community college partnerships: Under BIL, DOE encourages states to partner with community colleges and workforce boards to create pre-apprenticeship and apprenticeship pathways into weatherization careers

Application Timeline

While specific dates vary by state, the typical WAP application cycle follows this general pattern:

Tips for a Strong Sub-Grantee Application

While WAP is a formula grant and not a competitive process, your application quality still matters. States evaluate sub-grantee applications to ensure allocated funds will be used effectively. A strong application:

• Sets realistic production targets based on crew capacity, historical performance, and budget constraints — not aspirational numbers that will lead to shortfalls
• Documents leveraging clearly, showing exactly how WAP funds will be supplemented by utility programs, LIHEAP transfers, and other resources
• Addresses prior-year findings directly, demonstrating how any compliance issues from the previous year have been resolved
• Includes a credible training plan that ensures all staff maintain required certifications and receive ongoing professional development
• Aligns budget with production so that the per-unit cost implied by the budget is reasonable and within DOE limits

For guidance on how your application connects to budget management and compliance requirements, see those dedicated sections. For requirements related to 2 CFR 200 that apply to all WAP expenditures, see our compliance hub.