I don't think the primary purpose of this government program was to assist those who were affected by 9-11. Remember this program was;
1. Part of the airlines bailout bill
2. Recipients agree not to sue the airlines
While I am not sure how someone could logically (I know, logic and lawsuit are not necessarily related) sue the airlines (after all, they followed all the laws then in effect, i.e., the hijackers did not take anything on board that was illegal), the key part of this hand out is the recipients agree not to sue the airlines. So, the need of the recipient is not an important consideration. Getting them to agree not to sue is.