Order Code RL32341
CRS Report for Congress
Received through the CRS Web
Assistance to Firefighters Program:
Distribution of Fire Grant Funding
Updated April 6, 2006January 18, 2008
Lennard G. Kruger
Specialist in Science and Technology
Resources, Science, and Industry Division
Congressional Research Service ˜ The Library of Congress
Assistance to Firefighters Program: Distribution of Fire
Grant Funding
Summary
The Assistance to Firefighters Grant (AFG) Program, also known as fire grants
or the FIRE Act grant
program, was established by Title XVII of the FY2001
National Defense
Authorization Act (P.L. 106-398). Currently administered by the Office of Grants
and Training within the Preparedness Directorate of the
Grant Programs Directorate of the Federal Emergency Management Agency
(FEMA), Department of Homeland
Security (DHS), the program provides federal
grants directly to local fire departments
and unaffiliated Emergency Medical Services
(EMS) organizations to help address
a variety of equipment, training, and other
firefighter-related and EMS needs.
The fire grant program is now in its sixtheighth year. Over $3.144.25 billion has been
appropriated to the fire grant program since FY2001. The Fire Act statute was
reauthorized in 2004 and provides overall guidelines on how fire grant money should
be distributed. There is no set geographical formula for the distribution of fire grants
— fire departments throughout the nation apply, and award decisions are made by
a peer panel based on the merits of the application and the needs of the community.
However, the law does require that fire grants should be distributed to a diverse mix
of fire
departments, with respect to type of department (paid, volunteer, or
combination),
geographic location, and type of community served (e.g. urban,
suburban, or rural).
An ongoing issue likely to receive attention during the 109th Congress is the
focus of the fire grant program. Activities in the preceding Congress included
reauthorization of the Fire Act suburban, or rural).
Activities in preceding Congresses included reauthorization of the Fire Act
through FY2009 (Title XXXVI of P.L. 108-375) and enactment of the Staffing for
Adequate Fire and
Emergency Response (SAFER) Act. On October 28, 2004, the President signed the
FY2005 National Defense Authorization Act (P.L. 108-375). Title XXXVI of P.L.
108-375 is the Assistance to Firefighters Grant Program Reauthorization Act of 2004,
which reauthorizes the fire grant program through FY2009 Emergency Response (SAFER) Act (Section 1057 of P.L. 108136). Ongoing issues in the 110th Congress include how appropriations for fire
grants should compare with authorized levels, and to what extent the focus of the
program should be shifted towards terrorism preparedness and away from the
traditional mission of enhancing basic firefighting needs.
This report will be updated as events warrant.
Contents
Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
FY2001 Grants . . .Assistance to Firefighters Grant Program . . . . . . . . . . . . . . . . . . . . . . . . .1
SAFER Grants . . . . . . . . . . . . . . . . . . . . 3
FY2002 Grants . . . . . . . . . . . . . . . . . . . . . . . . . .3
Program Evaluation . . . . . . . . . . . . . . . . . . . . . . 4
FY2003 Grants . . . . . . . . . . . . . . . . . . . . . . . . . .5
Distribution of Fire Grants . . . . . . . . . . . . . . . . . . . . . . 5
FY2004 Grants . . . . . . . . . . . . . . . . . . . . . .6
Issues in the 110th Congress . . . . . . . . . . . . . . . . . . . . . . . . . . 5
FY2005 Grants . . . . . . . . . . . . . . . . . . . . . . . . . .7
List of Tables
Table 1. Major Provisions of the Assistance to Firefighters Grant
Program Reauthorization Act . . . . . . . . . . . . . . . . . . . . . . 6
FY2006 Grants . . . . . . . . . . . . . . . . . . . . . . .2
Table 2. Appropriations for Assistance to Firefighters Grant Program,
FY2001-FY2008 . . . . . . . . . . . . . . . . . . . . . . . . . 7
Program Evaluation . . . . . . . . . . . . . . . . . . . . . . . . . . . .3
Table 3. Appropriations for SAFER Program, FY2005-FY2008 . . . . . . . . . . . . . . . . 8
4
Table 4. State-by-State Distribution of Fire Grants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Activities in the 108th Congress . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Fire Act Reauthorization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
SAFER Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Issues in the 109th Congress . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
List of Tables
Table 1. Appropriations for Assistance to Firefighters Grant Program,
FY2001-FY2006 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Table 2. Appropriations for SAFER Program, FY2005-FY2006 . . . . . . . . . . . . . 3
Table 3. FY2001 Fire Grant Award Recipients, By Category . . . . . . . . . . . . . . . 3
Table 4. FY2002 Awards Recipient, By Category . . . . . . . . . . . . . . . . . . . . . . . . 4
Table 5. FY2003 Award Recipients, By Category . . . . . . . . . . . . . . . . . . . . . . . . 5
Table 6. Major Provisions of the Assistance to Firefighters Grant
Program Reauthorization Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Table 7. State-by-State Distribution of Fire Grants, FY2001-FY2005 . . . . . . . . 14
Table 8. State-by-State Distribution of SAFER Grants, FY2005 . . . . . . . . . . . . 16
Table 9. Requests and Awards for Fire Grant Funding, FY2005 . . . . . . . . . . . . 18
Assistance to Firefighters Program:
Distribution of Fire Grant Funding
Background
The Assistance to Firefighters Program,1 also known as the FIRE Act grant
program, was established by Title XVII of the FY2001 National Defense
Authorization Act (P.L. 106-398).2 Currently administered by the Office of Grants
and Training within Preparedness Directorate of the Department of Homeland
Security (DHS), the program provides federal grants directly to local fire departments
and unaffiliated Emergency Medical Services (EMS) organizations to help address
a variety of equipment, training, and other firefighter-related and EMS needs. On
October 28, 2004, the President signed the FY2005 National Defense Authorization
Act (P.L. 108-375). Title XXXVI of P.L. 108-375 is the Assistance to Firefighters
Grant Program Reauthorization Act of 2004, which reauthorizes the fire grant
program through FY2009.
The FIRE Act statute prescribes 14 different purposes for which fire grant
money may be used (see 15 USC 2229(b)(3)). These are: hiring firefighters; training
firefighters; creating rapid intervention teams; certifying fire inspectors; establishing
wellness and fitness programs; funding emergency medical services; acquiring
firefighting vehicles; acquiring firefighting equipment; acquiring personal protective
equipment; modifying fire stations; enforcing fire codes; funding fire prevention
programs; educating the public about arson prevention and detection; and providing
incentives for the recruitment and retention of volunteer firefighters. The DHS has
the discretion to decide which of those purposes will be funded for a given grant year.
Since the program commenced in FY2001, the majority of fire grant funding has
been used by fire departments to purchase firefighting equipment, personal protective
equipment, and firefighting vehicles. At present, the program does not award
, FY2001-FY2006 . . . . . . . . . 9
Table 5. State-by-State Distribution of SAFER Grants, FY2005-FY2006 . . . . . 11
Table 6. Requests and Awards for Fire Grant Funding, FY2006 . . . . . . . . . . . . 13
Assistance to Firefighters Program:
Distribution of Fire Grant Funding
Background
Firefighting activities are traditionally the responsibility of states and local
communities. As such, funding for firefighters is provided mostly by state and local
governments. During the 1990s, shortfalls in state and local budgets, coupled with
increased responsibilities of local fire departments, led many in the fire community
to call for additional financial support from the federal government. While federally
funded training programs existed (and continue to exist) through the National Fire
Academy, and while federal money has been available to first responders for
counterterrorism training and equipment through the Department of Justice,1 there
did not exist a dedicated program, exclusively for firefighters, which provided federal
money directly to local fire departments to help address a wide variety of equipment,
training, and other firefighter-related needs.
Assistance to Firefighters Grant Program. During the 106th Congress,
many in the fire community asserted that local fire departments require and deserve
greater support from the federal government. The Assistance to Firefighters Grant
Program (AFG),2 also known as fire grants or the FIRE Act grant program, was
established by Title XVII of the FY2001 National Defense Authorization Act (P.L.
106-398).3 Currently administered by the Grant Programs Directorate of the Federal
Emergency Management Agency (FEMA) in the Department of Homeland Security
(DHS), the program provides federal grants directly to local fire departments and
unaffiliated Emergency Medical Services (EMS) organizations to help address a
variety of equipment, training, and other firefighter-related and EMS needs. On
October 28, 2004, the President signed the FY2005 National Defense Authorization
Act (P.L. 108-375). Title XXXVI of P.L. 108-375 is the Assistance to Firefighters
Grant Program Reauthorization Act of 2004, which reauthorizes the fire grant
program through FY2009. Table 1 provides a summary of key provisions of the
reauthorization.
1
For a list of federal programs providing assistance to state and local first responders, see
CRS Report RL32348, Selected Federal Homeland Security Assistance Programs: A
Summary, by Shawn Reese.
2
3
See CRS Report RS21302, Assistance to Firefighters Program, by Lennard G. Kruger.
“Firefighter assistance” is codified as section 33 of the Federal Fire Prevention and Control
Act (15 U.S.C. 2229).
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Table 1. Major Provisions of the Assistance to Firefighters
Grant Program Reauthorization Act
Assistance to Firefighters Grant Program Reauthorization Act of 2004,
Section XXXVI of P.L. 108-375, FY2005 National Defense Authorization Act
Places program under the authority of the USFA Administrator
Grant recipient limits:
$2.75 million — populations over 1 million $1.75 million — 500K to 1 million
$1 million — under 500K
DHS can waive these limits in instances of extraordinary need
Nonfederal match requirements:
20% for populations over 50K
10% for populations 20K to 50K
5% for populations less than 20K
No match requirement for prevention and firefighter safety grants
Authorized for five years:
FY2005 — $900 million
FY2006 — $950 million
FY2007 — $1 billion
FY2008 — $1 billion
FY2009 — $1 billion
Expands grant eligibility to emergency medical service squads, not less than 3.5% of fire
grant money for EMS, but no more than 2% for nonaffiliated EMS
Provides grants for firefighter health and safety R&D
Requires the USFA Administrator to convene an annual meeting of non-federal fire
service experts to recommend criteria for awarding grants and administrative changes
Requires fire service peer review of grant applications
Requires the USFA, in conjunction with the National Fire Protection Association, to
conduct a $300,000, 18-month study on the fire grant program and the need for federal
assistance to state and local communities to fund firefighting and emergency response
activities
The FIRE Act statute prescribes 14 different purposes for which fire grant
money may be used (see 15 U.S.C. 2229(b)(3)). These are: hiring firefighters;
training firefighters; creating rapid intervention teams; certifying fire inspectors;
establishing wellness and fitness programs; funding emergency medical services;
acquiring firefighting vehicles; acquiring firefighting equipment; acquiring personal
protective equipment; modifying fire stations; enforcing fire codes; funding fire
prevention programs; educating the public about arson prevention and detection; and
providing incentives for the recruitment and retention of volunteer firefighters. The
DHS has the discretion to decide which of those purposes will be funded for a given
grant year. Since the program commenced in FY2001, the majority of fire grant
funding has been used by fire departments to purchase firefighting equipment,
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personal protective equipment, and firefighting vehicles. At present, the program
does not award funding for major building construction.
Eligible applicants are limited primarily to fire departments (defined as an
agency or organization that has a formally recognized arrangement with a state, local,
or tribal authority to provide fire suppression, fire prevention and rescue services to
a population within a fixed geographical area). Emergency Medical Services (EMS)
activities are eligible for fire grants, including a limited number (no more than 2%
of funds allocated) to EMS organizations not affiliated with fire departments.
Additionally, a separate competition is held for fire prevention and firefighter safety
research and development grants, which are available to national, state, local, or
1
2
See CRS Report RS21302, Assistance to Firefighters Program, by Lennard G. Kruger.
“Firefighter assistance” is codified as section 33 of the Federal Fire Prevention and Control
Act (15 USC 2229).
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community fire prevention or safety organizations (including, but not limited to, fire
departments).3 For official program guidelines, frequently-asked-questions, the latest
awards announcements, and other information, see the Assistance to Firefighters
grantGrant program web page at [http://www.firegrantsupport.com/].
The fire grant program is in its sixtheighth year. Table 12 shows the fire grant
program’s appropriations history. Over $3.144.25 billion has been appropriated to the
fire grant program since FY2001, its firstinitial year.
Table 12. Appropriations for Assistance to
Firefighters Grant Program, FY2001-FY2006FY2008
Fiscal year
Appropriation
FY2001
$100 million
FY2002
$360 million
FY2003
$745 million
FY2004
$746 million
FY2005
$650 million
FY2006
$539 million
Total
$3.14 billion
A related issue is the role of the federal government in assisting fire departments
to hire personnel. Firefighters have argued that inadequate state and local budgets
leave many fire departments critically understaffed, and that federal assistance is
needed. On the other hand, the Administration has argued that funding the hiring of
firefighters is not an appropriate federal role. In the first session of the 108th
Congress,FY2007
$547 million
FY2008
$560 million
Total
$4.25 billion
SAFER Grants. In response to concerns over the adequacy of firefighter
staffing, the 108th Congress enacted the Staffing for Adequate Fire and Emergency Response
Firefighters
Response (SAFER) Act as Section 1057 of the FY2004 National Defense
Authorization Act (P.L. 108-136; signed into law November 24, 2003).4 The SAFER
grant program is codified as Section 34 of the Federal Fire Prevention and Control
4
See CRS Report RL33375, Staffing for Adequate Fire and Emergency Response: The
SAFER Grant Program, by Lennard G. Kruger.
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Act of 1974 (15 U.S.C. 2229a). The SAFER Act authorizes grants to career,
volunteer, and combination fire departments for the purpose of increasing the number
of firefighters to help communities meet industry minimum standards and attain 24hour staffing to provide adequate protection from fire and fire-related hazards. Also
authorized are grants to volunteer fire departments for activities related to the
recruitment and retention of volunteers. P.L. 108-136 authorizes over one billion
dollars per year through FY2010 for SAFER.
Two types of grants are authorized by the SAFER Act: hiring grants and
recruitment and retention grants. Hiring grants cover a four year term and are costshared with the local jurisdiction. According to the statute, the federal share shall not
exceed 90% in the first year of the grant, 80% in the second year, 50% in the third
year, and 30% in the fourth year. The grantee must commit to retaining the
firefighter or firefighters hired with the SAFER grant for at least one additional year
after the federal money expires. Total federal funding for hiring a firefighter over the
four year grant period may not exceed $100,000, although that total may be adjusted
for inflation. While the majority of hiring grants will be awarded to career and
combination fire departments, the SAFER Act specifies that 10% of the total SAFER
appropriation be awarded to volunteer or majority-volunteer departments for the
hiring of personnel.
Additionally, at least 10% of the total SAFER appropriation is set aside for
recruitment and retention grants, which are available to volunteer and combination
fire departments for activities related to the recruitment and retention of volunteer
firefighters. Also eligible for recruitment and retention grants are local and statewide
organizations that represent the interests of volunteer firefighters. No local cost
sharing is required for recruitment and retention grants.
The SAFER program is in its fourth year. Table 3 shows the SAFER program’s
appropriations history. $479 million has been appropriated to the SAFER program
since FY2005, its initial year.
Table 3. Appropriations for SAFER Program, FY2005-FY2008
Fiscal year
Appropriation
FY2005
$65 million
FY2006
$109 million
FY2007
$115 million
FY2008
$190 million
Total
$479 million
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Program Evaluation
On May 13, 2003, the U.S. Fire Administration (USFA) released the first
independent evaluation of the Assistance to Firefighters Program. Conducted by the
U.S. Department of Agriculture’s Leadership Development Academy Executive
Potential Program, the survey study presented a number of recommendations and
concluded overall that the program was “highly effective in improving the readiness
and capabilities of firefighters across the nation.”5 Another evaluation of the fire
grant program was released by the DHS Office of Inspector General in September
2003. The report concluded that the program “succeeded in achieving a balanced
distribution of funding through a competitive grant process,”6 and made a number of
specific recommendations for improving the program.
At the request of DHS, the National Academy of Public Administration
conducted a study to help identify potential new strategic directions for the
Assistance to Firefighters Grant program and to provide advice on how to effectively
plan, manage, and measure program accomplishments. Released in April 2007, the
report recommended consideration of new strategic directions related to national
preparedness, prevention vs. response, social equity, regional cooperation, and
emergency medical response. According to the report, the “challenge for the AFG
program will be to support a gradual shift in direction without losing major strengths
of its current management approach — including industry driven priority setting and
its well-respected peer review process.”7
The Administration’s FY2008 budget proposal was accompanied by program
evaluations called the Program Assessment Rating Tool (PART). For assessment
year 2007, PART gave the fire grant program a rating of “Effective,” (an
improvement from the previous rating of “Results Not Demonstrated”). The PART
directed DHS to embark on an improvement plan encompassing three elements:
establishing a continuing strategic planning process, improving program
transparency, and increasing outreach.8
The Consolidated Appropriations Act of 2008 (P.L. 110-161), in the
accompanying Joint Explanatory Statement, directs the Government Accountability
Office (GAO) to review the application and award process for fire and SAFER
5
For full report see [http://www.usfa.fema.gov/downloads/pdf/affgp-fy01-usda-report.pdf].
6
Department of Homeland Security, Office of Inspections, Evaluations, and Special
Reviews, “A Review of the Assistance to Firefighters Grant Program,” OIG-ISP-01-03,
September 2003, p. 3. Available at [http://www.dhs.gov/interweb/assetlibrary/OIG_
Review_Fire_Assist.pdf].
7
National Academy of Public Administration, Assistance to Firefighters Grant Program:
Assessing Performance, April 2007, p. xvii. Available at [http://www.napawash.org/
pc_management_studies/Fire_Grants_Report_April2007.pdf]
8
Office of Management and Budget, ExpectMore.gov, Detailed Information on the Federal
Emergency Management Agency, Grants and Training Office Assistance to Firefighters
Grants Assessment, Assessment Year 2007, available at [http://www.whitehouse.gov/omb/
expectmore/detail/10001071.2007.html].
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grants. Additionally, FEMA is directed to peer review all grant applications that
meet criteria established by FEMA and the fire service. Those criteria necessary for
peer-review must be included in the grant application package. Applicants whose
grant applications are not reviewed must receive an official notification detailing why
the application did not meet the criteria for review. Applications must be rankordered, and funded following the rank order. The SAFER
Act authorizes federal grants of over $1 billion per year through 2010 directly to fire
departments for the hiring of firefighters and recruitment and retention of volunteer
firefighters. The SAFER Act authorizes four-year grants for new hires, with the
condition that the recipient fire department must assume an increasing percentage of
the cost in each year.
The SAFER program is in its second year. Table 2 shows the SAFER
program’s appropriations history. $174 million has been appropriated to the SAFER
program since FY2005, its first year.
3
“Fire prevention and safety grants” are distinct from fire grants for prevention activities
given exclusively to fire departments under the primary fire grant program.
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Table 2. Appropriations for SAFER Program, FY2005-FY2006
Fiscal year
Appropriation
FY2005
$65 million
FY2006
$109 million
Total
$174 million
FY2001 Grants
On December 21, 2000, President Clinton signed into law the Consolidated
Appropriations Act 2001 (H.R. 5666; P.L. 106-554). P.L. 106-554 provided $100
million in FY2001 funding for the Assistance to Firefighters Program.
For the initial year of the program, the Federal Emergency Management
Agency/U.S. Fire Administration (FEMA/USFA) received 31,295 grant applications
from 18,915 fire departments, totaling $2.99 billion in requests. Between July 23 and
September 30, 2001, FEMA/USFA awarded 1,855 grants to local fire departments
throughout the nation, and 31 grants to fire prevention or safety organizations, for a
total of 1,886 grants worth $96,586,668. Table 3 provides a breakdown of FY2001
award recipients by category.
Table 3. FY2001 Fire Grant Award Recipients, By Category
Category
Number of awards
Amount of awards
Training
160
$5,199,356
Wellness & Fitness
168
$8,256,720
Vehicles
208
$20,412,605
Fire Prevention
209
$9,071,484
Fire Fighting Equipment
404
$14,919,463
Personal Protective
Equipment
706
$34,136,809
Total, Fire grants
1,855
$91,996,439
31
$4,590,156
1,886
$96,586,668
Fire Prevention and Safety
Grants
Total
Source: U.S. Fire Administration.
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FY2002 Grants
In its preliminary FY2002 budget document, “Blueprint for a New Beginning,”
the Bush Administration proposed abolishing the fire grant program, arguing that it
did not represent an appropriate responsibility of the federal government. After
intense opposition from the fire community, the Administration reversed its position
and proposed $100 million in FY2002 for the Assistance to Firefighters Program.
The November 6, 2001 House-Senate conference agreement (H.Rept. 107-272) set
the Assistance to Firefighters Program at $150 million for FY2002. The FY2002
VA-HUD appropriations act was signed into law (P.L. 107-73) on November 26,
2001. Supplemental FY2002 funding for the firefighter grant program was provided
in the homeland security package contained in the FY2002 Defense Appropriations
Act (P.L. 107-117, H.R. 3338), signed into law on January 10, 2002. P.L. 107-117
appropriated an additional $210 million in FY2002 funding for the Assistance to
Firefighters grant program. Thus, the total FY2002 appropriation for the fire grant
program was $360 million.
In FY2002, USFA received over 19,900 applications requesting a total of $2.98
billion. Volunteer and combination4 fire departments accounted for approximately
91% of applications, with career departments filing the remaining 9%.5 In all, $334
million in grant money was awarded in FY2002 in four broad program areas: fire
operations and firefighter safety; firefighting vehicles; emergency medical services;
and fire prevention programs. USFA began announcing FY2002 awards on July 11,
2002.6 Table 4 provides a breakdown of FY2002 award recipients by category.
Table 4. FY2002 Awards Recipient, By Category
Category
Fire Operations &
Firefighter Safety
Number of awards
Amount of awards
4,731
$281,091,066
Fire Prevention
215
$10,926,998
Firefighting Vehicles
315
$39,277,630
53
$3,069,736
5,314
$334,365,430
51
$4,806,165
5,365
$339,171,595
EMS
Total, Fire Grants
Fire Prevention and Safety
Total
Source: U.S. Fire Administration.
4
A “combination fire department” is a fire department with a mixture of paid and volunteer
personnel.
5
Department of Homeland Security, Office of Inspections, Evaluations, and Special
Reviews, A Review of the Assistance to Firefighters Grant Program, OIG-ISP-01-03,
September 2003, p. 39.
6
For award totals and recipients, see [http://www.usfa.fema.gov/fire-service/grants/afgp/
awards/2002awards/02awards.shtm].
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FY2003 Grants
The President’s FY2003 budget proposal sought to transfer $150 million of
funding for the Assistance to Firefighter Program into FEMA’s newly formed Office
of National Preparedness, where the fire grant program would be incorporated into
the President’s proposed $3.5 billion First Responder grant program. The 107th
Congress was not able to complete passage of the VA-HUD-Independent Agencies
appropriation for FY2003. In the 108th Congress, the FY2003 Omnibus
Appropriations (P.L. 108-7;H.J.Res 2) was signed into law on February 20, 2003, and
provides $745 million to the Assistance to Firefighters Program. P.L. 108-7
established a separate appropriations account for the program — “Firefighter
Assistance Grants.”
The FY2003 grant application period began on March 10, 2003, and ended on
April 11, 2003. About 19,950 applications were received, requesting approximately
$2.5 billion in funding (including both the federal and nonfederal share).
Approximately $2 billion in federal funding was requested. The first round of
awards was announced on June 12, 2003; the final round (35th Round) was
announced on March 5, 2004 (see Table 5). Separate fire prevention and safety
awards (totaling $27.5 million) were also awarded. The first round of fire prevention
and safety awards was announced on April 9, 2004.
Table 5. FY2003 Award Recipients, By Category
Category
Fire Operations &
Firefighter Safety
Fire Prevention
Firefighting Vehicles
Emergency Medical
Services
Total, Fire grants
Fire Prevention and Safety
Grants
Total
Number of awards
Amount of awards
6,901
$492,671,198
295
$14,070,509
1,367
$184,233,676
67
$4,145,676
8,630
$695,121,059
398
$19,469,083
9,028
$714,590,142
Source: U.S. Fire Administration.
FY2004 Grants
The Administration’s FY2004 budget requested $500 million for the Assistance
to Firefighters Program. The budget proposal sought to fund the fire grant program
as part of the $3.5 billion Office for Domestic Preparedness, located within the
Department of Homeland Security’s Directorate of Border and Transportation
Security. The FY2004 Department of Homeland Security Appropriations Act P.L.
108-90) funded fire grants at $746 million for FY2004, and provided fire grant
funding as a separate appropriation within the Office for Domestic Preparedness.
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The Conference Report (H.Rept. 108-280) specified that DHS shall “continue current
administrative practices in a manner identical to the current fiscal year, including a
peer review process of applications, granting funds directly to local fire departments,
and the inclusion of the United States Fire Administration during grant
administration.”
During FY2004, the fire grant program was administered by the Office for
Domestic Preparedness. Funding was available in three categories: fire operations
and firefighter safety, fire prevention, and firefighting vehicles. Grants for
preparedness for weapons of mass destruction (WMD) incidents was specifically
added in all three categories. ODP plans to direct grant money to “WMD Priority
Communities” — primarily high-threat urban areas.7
The application period for the FY2004 grants opened on March 1 and closed on
April 2, 2004. Over 20,000 applications were received, requesting approximately
$2.664 billion in funding (including both the federal and nonfederal share).
Approximately $2.345 billion in federal funding was requested. To date, 7876
awards have been made, totaling $684,326,324. The Fire Prevention and Safety grant
program issued 532 awards totaling $35,234,823.
FY2005 Grants
For FY2005, the Administration requested $500 million for the fire grant
program and zero for SAFER. The House passed the FY2005 Homeland Security
Appropriations Act (H.R. 4567) on June 18, 2004. H.R. 4567 sought to provide $600
million for firefighter grants in FY2005, while funding the program within the Office
for State and Local Government Coordination and Preparedness (OSLGCP). In its
bill report (H.Rept. 108-541), the House Appropriations Committee expressed
concern over language in the Administration proposal that would shift the grant to
terrorism, and the proposed deletion of several eligible activities for fire grants,
specifically, wellness and fitness programs, emergency medical services, fire
prevention programs, public education programs, and modifications of facilities for
health and safety of personnel. The Committee also emphasized that fire grants must
continue to be administered in a manner identical to FY2003, including a peer review
process of applications, granting funds directly to local fire departments, and the
inclusion of the United States Fire Administration during grant administration.
On June 17, 2004, the Senate Appropriations Committee reported S. 2537
(S.Rept. 108-280), its version of the FY2005 Homeland Security Appropriations bill.
The Senate Appropriations Committee recommended $700 million for fire grants in
FY2005, and, like the House, sought to fund the program under the OSLGCP. Also
similar to the House version, the Senate bill did not include bill language, requested
in the Administration proposal, which would refocus the program on enhancing
terrorism preparedness. The Committee directed DHS “to continue the present
practice of funding applications according to local priorities and those established by
7
Office of Domestic Preparedness, Department of Homeland Security, 2004 Assistance to
Firefighters Grant Program, Workshop for New Applicants, power point presentation
available at [http://www.firegrantsupport.com/present.aspx].
CRS-7
the USFA.” The Senate passed its version of the FY2005 Homeland Security
Appropriations bill on September 14, 2004. During floor consideration of the bill,
an addition of $50 million was approved for fire grants, bringing the Senate level to
$750 million.
The Conference Agreement on H.R. 4567 (H.Rept. 108-774) set the fire grants
program at $650 million and SAFER at $65 million for FY2005. The Conferees
reiterated concerns over the Administration’s proposal to shift grant focus from allhazards to terrorism, and directed that all currently eligible activities should continue
to be funded. The Conference Report stated that the fire grant program should be
administered by the Office of State and Local Government Coordination and
Preparedness, and that the USFA should be included in the grant administration
process. The House approved the Conference Report on October 9, 2004; it was
approved by the Senate on October 11. The bill was signed into law (P.L. 108-334)
on October 18, 2004.
The application period for the FY2005 Assistance to Firefighters Grant Program
opened on March 7, 2005 and closed on April 8, 2005. Fire departments could apply
for grants in one of two programmatic areas: Operations and Firefighter Safety and
Firefighting Vehicle Acquisition. Unaffiliated EMS organizations could apply for
grants in either EMS Operations and Safety or EMS Vehicle Acquisition. All
applications were evaluated by peer review, although requests for equipment or
training related to chemical, biological, radiological, nuclear, or explosive devices
(CBRNE) and interoperable communications underwent additional state technical
review. A total of 20,972 applications were received, requesting approximately
$2.916 billion in funding (including both the federal and nonfederal share).
Approximately $2.678 billion in federal funding was requested. To date, 5725
awards have been made, totaling $585.6 million.
The Fire Prevention and Safety grant program accepted applications from
September 6 through October 7, 2005. Applicants requested $337.863 million in
federal funds. To date, the Fire Prevention and Safety grant program has issued 97
awards totaling $5.9 million.
The SAFER grants program accepted applications between May 31 and June
28, 2005. A total of 2954 applications were submitted, representing $2.883 billion
in total project costs and $1.142 billion in federal funds requested. To date, 137
awards have been made, totaling $61.3 million.
FY2006 Grants
The Administration’s FY2006 budget proposal requested $500 million for fire
grants and zero for SAFER. Priority would be given to grant applications enhancing
terrorism capabilities. Grants would be available only for training, vehicles,
firefighting equipment, and personal protective equipment. Under the budget
proposal, activities such as wellness/fitness and fire station modification would not
be funded. Activities such as prevention, public fire safety education and awareness,
and fire code enforcement would be funded under the separate fire prevention and
firefighter safety grant program.
CRS-8
On May 10, 2005 the House Appropriations Committee reported the FY2006
Homeland Security Appropriations bill (H.R. 2360; H.Rept. 109-79). The
Committee recommended $600 million for firefighter assistance, including $550
million for fire grants and $50 million for SAFER Act grants. The Committee did not
agree with the Administration’s proposal to shift the program’s priority to terrorism
or to limit the list of eligible activities. During House consideration of H.R. 2360,
an amendment was adopted on the House floor (H.Amdt. 134 offered by Mr. Sabo)
which added $50 million to firefighter assistance — $25 million for fire grants and
$25 million for SAFER grants. The House passed H.R. 2360 on May 17, 2005. The
total House appropriation was $575 million for fire grants and $75 million for
SAFER grants.
On June 16, 2005, the Senate Appropriations Committee approved its version
of the FY2006 Homeland Security Appropriations bill. The Committee
recommended $615 million for firefighter assistance, including $550 million for fire
grants and $65 million for SAFER Act grants. The Committee report states that DHS
should “continue the present practice of funding applications according to local
priorities and those established by the United States Fire Administration.” After
adopting S.Amdt. 1133 during floor debate, the Senate passed (on July 14, 2005) its
version of H.R. 2360 which redistributes the $615 million for firefighter assistance
as follows: $500 million for fire grants and $115 million for SAFER act grants. The
Conference agreement for H.R. 2360 (H.Rept. 109-241) provided a total of $655
million for firefighter assistance, including $545 million for fire grants and $110
million for SAFER grants. The Conferees expressed concern with the
Administration’s proposed shift in focus from all-hazards to terrorism. Further, the
Conferees specified that all previously funded areas should continue to be funded,
and that the U.S. Fire Administration continue to be included in grant administration
activities. The FY2006 Homeland Security Appropriations bill was signed into law
(P.L. 109-90) on October 18, 2005. The government-wide 1% rescission mandated
by the FY2006 Department of Defense appropriations bill (P.L. 109-115) lowered the
FY2006 appropriation for assistance to firefighters (fire grants plus SAFER) to $648
million.
The application period for the FY2006 Assistance to Firefighters Grant Program
ran from March 6 through April 7, 2006. For the first time, the FY2006 program is
accepting applications for regional projects. For up-to-date application information,
official program guidelines, and frequently-asked-questions, see the Assistance to
Firefighters grant program web page at [http://www.firegrantsupport.com].
Program Evaluation
On May 13, 2003, the USFA released the first independent evaluation of the
Assistance to Firefighters Program. Conducted by the U.S. Department of
Agriculture’s Leadership Development Academy Executive Potential Program, the
survey study presented a number of recommendations and concluded overall that the
program was “highly effective in improving the readiness and capabilities of
CRS-9
firefighters across the nation.”8 Another evaluation of the fire grant program was
released by the DHS Office of Inspector General in September 2003. The report
concluded that the program “succeeded in achieving a balanced distribution of
funding through a competitive grant process,”9 and made a number of specific
recommendations for improving the program.
The Administration’s FY2007 budget proposal was accompanied by program
evaluations called the Program Assessment Rating Tool (PART). PART gave the
fire grant program a rating of “Results Not Demonstrated,” and made the following
criticisms: grant funding is not targeted for jurisdictions with higher rates of fire
deaths, injuries, or hazards; performance measures reflect the program’s purpose, but
data collection has been inconsistent; and in focusing on investments that have long
been local funding responsibility, the program has provided little support for fire
departments’ preparedness for terrorism and other catastrophic events.10
Distribution of Fire Grants
The Fire Act statute provides overall guidelines on how fire grant money will
be distributed and administered. The law directs that volunteer departments receive
a proportion of the total grant funding that is not less than the proportion of the U.S.
population that those departments protect (currently 55%). The Assistance to
Firefighters Grant Program Reauthorization Act of 2004 (Title XXXVI of P.L.108375) raised award caps and lowered nonfederal matching requirements (based on
recipient community population), extended eligibility to nonaffiliated emergency
medical services (i.e. ambulance services not affiliated with fire departments), and
expanded the scope of grants to include firefighter safety R&D.
There is no set geographical formula for the distribution of fire grants — fire
departments throughout the nation apply, and award decisions are made by a peer
panel based on the merits of the application and the needs of the community.
However, the law does require that fire grants should be distributed to a diverse mix
of fire departments, with respect to type of department (paid, volunteer, or
combination), geographic location, and type of community served (e.g. urban,
suburban, or rural).119 The Fire Act’s implementing regulation provides that:
In a few cases, to fulfill our obligations under the law to make grants to a variety
of departments, we may also make funding decisions using rank order as the
preliminary basis, and then analyze the type of fire department (paid, volunteer,
or combination fire departments), the size and character of the community it
serves (urban, suburban, or rural), and/or the geographic location of the fire
8
For full report see [http://www.usfa.fema.gov/downloads/pdf/affgp-fy01-usda-report.pdf].
9
Department of Homeland Security, Office of Inspections, Evaluations, and Special
Reviews, “A Review of the Assistance to Firefighters Grant Program,” OIG-ISP-01-03,
September 2003, p. 3. Available at [http://www.dhs.gov/interweb/assetlibrary/OIG_
Review_Fire_Assist.pdf].
10
See [http://www.whitehouse.gov/omb/expectmore/summary.10001071.2005.html].
11
15 U.S.C. 2229(b)(9).
CRS-10
department. In these instances where we are making decisions based on
geographic location, we will use States as the basic geographic unit.1210
According to the FY2006FY2007 Program Guidance for the Assistance to Firefighters
Program, career (paid) departments will compete against other career departments for
up to 45% of the available funding, while volunteer and combination departments
will compete for at least 55% of the available funding.11 However, given that less than
than 10% of fire grant applications are historically received from career departments,
9
15 U.S.C. 2229(b)(9).
10
11
44 CFR Part 152.6(c).
For the FY2007 round of awards, no less than 33% of AFG funds must be awarded to
combination departments, and no less than 22% of AFG funds must be awarded to allvolunteer departments. See Department of Homeland Security, Fiscal Year 2007 Assistance
to Firefighters Grants Program and Application, March 2007, p. 6.
CRS-7
funding levels are likely not to reach the 45% ceiling for career departments.1312
Additionally, each fire department that applies is classified as either urban, suburban,
or rural. In FY2003, 5% of FY2005, 6% of the total number of fire grant awards went to urban
areas, 1317% to suburban
areas, and 8277% to rural areas.14 Of the total amount of federal
funding awarded, 11% went to urban areas, 20% to suburban areas, and 69% to rural
areas.13
Finally, in an effort to maximize the diversity of awardees, the geographic
location of an applicant (using states as the basic geographic unit) is used as a
deciding factor in cases where applicants have similar qualifications.15 Table 7
shows 4 shows
a state-by-state breakdown of fire grant funding for FY2001 through FY2005,
while Table 8FY2006, while
Table 5 shows a state-by-state breakdown of SAFER grant funding for
FY2005 (the program’s initial year). Table 9 FY2005 and
FY2006. Table 6 provides an in-depth look at the
FY2005 FY2006 fire grants, showing, for
each state, the number of fire departments in each
state,1614 the number of fire grant
applications, the total amount requested, the total
amount awarded, and the amount
of funds awarded as a percentage of funds
requested. As Table 96 shows, fire
departments on average received about 2221% of
the funds they requested in FY2005. FY2006.
This is down from 22% in FY2005, 28% in FY2004, and 34% in
FY2003.
ActivitiesIssues in the 108th Congress
Fire Act Reauthorization. The authorization for the original Fire Act
(Section 33 of the Federal Fire Prevention and Control Act, 15 USC 2229) extended
through FY2004. On April 1, 2004, Representative Boehlert introduced H.R. 4107
— the Assistance to Firefighters Grant Reauthorization Act of 2004. H.R. 4107
would have extended the authorization (at a yearly level of $900 million) through
FY2007. The USFA Administrator was specifically designated as the entity who
shall administer the program. Additionally, H.R. 4107 sought to increase the current
12
44 CFR Part 152.6(c).
13
Department of Homeland Security, 2006 Program Guidance for the Assistance to
Firefighters Grant Program, February 2006, p. 40.
14
Department of Homeland Security, Report on the Assistance to Firefighters Grant
Program for FY2003, October 7, 2005, p. 13.
15
16
Ibid, p. 34.110th Congress
A primary issue in the 110th Congress is how appropriations for fire grants
should compare with the authorized annual levels of $1 billion.15 The
Administration’s budget proposals have typically recommended significant cuts for
fire grants, as well as zero funding for SAFER grants. Opponents of the cuts have
argued that the reduced levels are inadequate to meet the needs of fire departments,
while the Administration has argued that reduced levels are sufficient to enhance
critical capabilities in the event of a terrorist attack or major disaster. Aside from
budget issues, an ongoing issue has been the focus of the fire grant program.
Administration budget proposals have sought to shift the priority of the fire grant
program to terrorism preparedness. Firefighting groups have questioned this
proposed shift, arguing that the original purpose of the Fire Act (enhancing basic
firefighting needs) should not be compromised or diluted. S. 608, the Risk-Based
Homeland Security Grants Act of 2007, would direct DHS to conduct a study
12
Ibid., p. 52.
13
Department of Homeland Security, National Preparedness Directorate, Capabilities
Division, Assistance to Firefighters Grant Program, FY2005 Report, p. 14.
14
The fire grant program sets a limit of one application per fire department. Thus, the
number of fire departments in a state plays a major factor in the number of fire grant
applications submitted and the amount of total funding awarded within a given state. For
example, because Pennsylvania has — by far — the largest number of fire departments, it
is not surprising that it leads the nation in the number of fire grants applications and the
amount of funding awarded.
CRS-11
award caps for grant recipients, while reducing required cost-sharing nonfederal
matches. Of perhaps greatest controversy was a provision which would prohibit
grant recipients from discriminating against or prohibiting firefighters from engaging
in volunteer firefighting activities in other jurisdictions during off-duty hours. The
House Committee on Science held a hearing on H.R. 4107 on May 12, 2004.
On May 11, 2004, the Senate version of the fire grant reauthorization was
introduced by Senator Dodd. S. 2411, the Assistance to Firefighters Act of 2004,
would have authorized the fire grant program through FY2010 and designated the
Secretary of the Department of Homeland Security as the program’s administering
authority. Unlike the House bill, S. 2411 did not contain a provision on volunteer
firefighter discrimination. On June 17, 2004, the text of S. 2411 was adopted as an
amendment (offered by Senator Dodd) to the FY2005 National Defense
Authorization Act (S. 2400, Division D, Sections 4001-4013). On June 23, 2004, S.
2400 was passed by the Senate and incorporated into the House-passed Defense
Authorization bill (H.R. 4200). The Senate Committee on Commerce, Science and
Transportation held a hearing on S. 2411 on July 8, 2004.
On October 9, 2004 the House and Senate approved the Conference Agreement
on H.R. 4200 (H.Rept. 108-767). Title XXXVI of H.R. 4200 (Assistance to
Firefighters Grant Program Reauthorization Act of 2004) reauthorizes the fire grant
program at $900 million for FY2005, $950 million for FY2006, and $1 billion for
each of the fiscal years 2007 through 2009. Award caps are raised, nonfederal
matching requirements are lowered, eligibility is extended to include nonaffiliated
emergency medical services (i.e. ambulance services not affiliated with fire
departments), and the scope of grants is expanded to include firefighter safety R&D.
H.R. 4200 does not contain the provision on volunteer firefighter discrimination.
The reauthorization legislation designates the USFA Administrator as the
administering authority of the fire grant program. H.R. 4200 was signed into law
(P.L. 108-375) by the President on October 28, 2004. Table 6 provides a summary
of key provisions.
CRS-12
Table 6. Major Provisions of the Assistance to Firefighters
Grant Program Reauthorization Act
Assistance to Firefighters Grant Program Reauthorization Act of 2004,
Section XXXVI of P.L. 108-375, FY05 National Defense Authorization Act
Places program under the authority of the USFA Administrator
Grant recipient limits:
$2.75 million — populations over 1 million $1.75 million — 500K to 1 million
$1 million — under 500K
DHS can waive these limits in instances of extraordinary need
Nonfederal match requirements:
20% for populations over 50K
10% for populations 20K to 50K
5% for populations less than 20K
No match requirement for prevention and firefighter safety grants
Authorized for five years:
FY2005 — $900 million
FY2006 — $950 million
FY2007 — $1 billion
FY2008 — $1 billion
FY2009 — $1 billion
Expands grant eligibility to emergency medical service squads, not less than 3.5% of fire
grant money for EMS, but no more than 2% for nonaffiliated EMS
Provides grants for firefighter health and safety R&D
Requires the USFA Administrator to convene an annual meeting of non-federal fire
service experts to recommend criteria for awarding grants and administrative changes
Requires fire service peer review of grant applications
Requires the USFA, in conjunction with the National Fire Protection Association, to
conduct a $300,000, 18-month study on the fire grant program and the need for federal
assistance to state and local communities to fund firefighting and emergency response
activities
SAFER Act. In response to concerns over the adequacy of firefighter staffing,
the 108th Congress enacted the Staffing for Adequate Fire and Emergency Response
(SAFER) Act as Section 1057 of the FY2004 National Defense Authorization Act
(P.L. 108-136; signed into law November 24, 2003). The SAFER grant program is
codified as Section 34 of the Federal Fire Prevention and Control Act of 1974 (15
U.S.C. 2229a). The SAFER Act authorizes grants to career, volunteer, and
combination fire departments for the purpose of increasing the number of firefighters
to help communities meet industry minimum standards and attain 24-hour staffing
to provide adequate protection from fire and fire-related hazards. Also authorized
are grants to volunteer fire departments for activities related to the recruitment and
retention of volunteers. P.L. 108-136 authorizes over one billion dollars per year
through FY2010 for SAFER.
CRS-13
Two types of grants are authorized by the SAFER Act: hiring grants and
recruitment and retention grants. Hiring grants cover a four year term and are costshared with the local jurisdiction. According to the statute, the federal share shall not
exceed 90% in the first year of the grant, 80% in the second year, 50% in the third
year, and 30% in the fourth year. The grantee must commit to retaining the
firefighter or firefighters hired with the SAFER grant for at least one additional year
after the federal money expires. Total federal funding for hiring a firefighter over the
four year grant period may not exceed $100,000, although that total may be adjusted
for inflation. While the majority of hiring grants will be awarded to career and
combination fire departments, the SAFER Act specifies that 10% of the total SAFER
appropriation be awarded to volunteer or majority-volunteer departments for the
hiring of personnel.
Additionally, at least 10% of the total SAFER appropriation is set aside for
recruitment and retention grants, which are available to volunteer and combination
fire departments for activities related to the recruitment and retention of volunteer
firefighters. Also eligible for recruitment and retention grants are local and statewide
organizations that represent the interests of volunteer firefighters. No local cost
sharing is required for recruitment and retention grants.
Issues in the 109th Congress
An ongoing issue is the focus of the fire grant program. Similar to the FY2006
proposal, the Administration’s FY2007 budget proposal would give priority to grant
applications enhancing anti-terrorism capabilities. Firefighting groups have
questioned this proposed shift, arguing that the original purpose of the Fire Act
(enhancing basic firefighting needs) should not be compromised or diluted. Under
the Administration’s proposal, FY2007 fire grants would be available exclusively for
training, vehicles, firefighting equipment and personal protective equipment.
Wellness/fitness activities and fire station modification would not be funded.
Activities such as prevention, public fire safety education and awareness, fire code
enforcement, fire inspector certifications and inspection activities, purchase and
installation of smoke detectors, wild land mitigation awareness, and arson prevention
would be funded under the separate fire prevention and firefighter safety grant
program.
Meanwhile, the Administration’s FY2007 budget proposal requests $293.45
million for fire grants in FY2007, a cut of 46% from the FY2006 level. Opponents
of the cuts argue that the reduced levels are inadequate to meet the needs of fire
departments, while the Administration argues that reduced levels are sufficient to
enhance critical capabilities. Also, for the third consecutive year, the Administration
is requesting no funding for SAFER Act grants. While firefighters assert that
inadequate state and local budgets leave many fire departments critically understaffed
and in need of federal assistance, the Administration argues that funding local
firefighter hiring is not an appropriate federal role. For information on House and
Senate actions regarding appropriations for the fire grant and SAFER programs, see
CRS Report RS21302, Assistance to Firefighters Program, by Lennard G. Kruger.
CRS-14
Table 7. State-by-State Distribution of Fire Grants,
FY2001-FY2005
(millions of dollars)
FY2001
FY2002
FY2003
FY2004
FY2005
Total
Alabama
3.085
12.503
23.329
25.097
20.836
84.85
Alaska
1.303
2.641
5.242
2.522
3.111
14.819
Arizona
1.37
3.6
7.490
9.808
7.905
30.173
Arkansas
1.337
4.635
10.675
13.680
10.402
40.729
California
5.905
18.978
30.060
29.793
25.631
110.367
Colorado
1.003
3.968
6.168
5.585
6.073
22.797
Connecticut
1.828
4.675
10.841
9.991
7.287
34.622
Delaware
0.132
0.372
1.096
1.755
1.161
4.516
District of
Columbia
0
0.22
0
0
0.453
0.673
Florida
2.865
10.16
16.344
15.969
17.922
63.26
Georgia
2.375
6.079
13.791
11.857
10.168
44.27
0
1.182
0.947
0.864
1.205
4.198
Idaho
0.916
2.744
6.001
4.828
4.684
19.173
Illinois
2.417
13.398
28.810
27.238
25.433
97.296
Indiana
2.703
8.739
20.456
18.646
15.779
66.323
Iowa
1.301
7.284
16.087
16.430
13.119
54.221
Kansas
1.153
5.118
10.850
10.211
7.165
34.497
Kentucky
2.215
7.896
19.832
16.150
14.215
60.308
Louisiana
3.344
10.084
12.248
11.101
11.630
48.407
Maine
1.296
4.319
10.323
10.031
6.124
32.093
Maryland
0.739
4.08
8.153
10.227
8.771
31.97
Massachusetts
2.301
8.386
15.715
13.958
13.529
53.889
Michigan
2.815
8.948
17.247
20.005
15.088
64.103
Minnesota
2.133
8.149
17.510
18.609
14.894
61.295
Mississippi
1.763
6.755
15.679
11.329
9.856
45.382
Missouri
3.079
10.291
19.573
17.757
14.246
64.946
Montana
1.164
3.726
8.361
7.271
6.656
27.178
Nebraska
1.034
2.392
7.820
6.577
5.116
22.939
Nevada
0.282
1.446
3.312
1.405
1.946
8.391
New
Hampshire
0.594
1.887
4.584
5.694
4.563
17.322
New Jersey
2.596
6.339
19.982
16.488
14.691
60.096
New Mexico
1.455
3.463
5.048
3.653
2.259
15.878
New York
3.978
14.728
34.320
35.030
36.009
124.065
Hawaii
CRS-15
FY2001
FY2002
FY2003
FY2004
FY2005
Total
North
Carolina
1.949
10.239
22.864
22.360
19.315
76.727
North Dakota
0.546
2.613
5.105
3.391
2.673
14.328
Ohio
2.731
13.742
26.997
29.107
27.344
99.921
Oklahoma
1.864
4.939
10.540
10.393
8.757
36.493
Oregon
1.596
4.892
9.896
10.122
10.014
36.52
Pennsylvania
2.89
16.97
45.179
47.898
39.233
152.17
Rhode Island
0.407
1.507
2.327
1.917
2.129
8.287
South Carolina
1.554
5.257
11.832
14.150
10.544
43.337
South Dakota
0.904
3.142
5.602
4.693
3.570
17.911
2.46
11.509
19.306
18.686
15.047
67.008
3.697
15.644
29.264
30.118
23.480
102.203
0.9
2.754
4.628
3.880
2.188
14.35
Vermont
0.451
1.971
5.163
4.747
2.071
14.403
Virginia
2.066
8.79
15.816
16.668
14.357
57.697
Washington
1.535
7.544
18.808
19.565
15.763
63.215
West Virginia
1.067
3.966
9.942
9.133
10.143
34.251
Wisconsin
2.077
7.518
18.234
19.668
17.685
65.182
Wyoming
1.09
1.612
3.507
1.811
2.032
10.052
0.657
0.382
1.643
1.140
1.104
4.926
0
0.225
0
0
0.220
0.445
0.145
0
0
0
0
0.145
0
0.016
0
0
0
0.016
American
Samoa
0.164
0
0
0.284
0
0.448
Virgin Islands
0.741
0
0.544
0
0
1.285
91.972
334.417
695.121
679.305
585.619
2386.366
Tennessee
Texas
Utah
Puerto Rico
Saipan
Rota
Guam
Total
Source: Department of Homeland Security.
CRS-16
Table 8. State-by-State Distribution of SAFER Grants, FY2005
(millions of dollars)
FY2005
Alabama
1.611
Alaska
1.051
Arizona
1.560
Arkansas
0.394
California
5.221
Colorado
1.584
Connecticut
0.130
Delaware
0
District of Columbia
0
Florida
6.576
Georgia
5.354
Hawaii
0
Idaho
0.063
Illinois
1.340
Indiana
0
Iowa
0.169
Kansas
0.667
Kentucky
0.152
Louisiana
3.430
Maine
0.081
Maryland
0.096
Massachusetts
1.300
Michigan
1.759
Minnesota
0.300
Mississippi
0.756
Missouri
1.467
Montana
0.034
Nebraska
0
Nevada
1.500
New Hampshire
0.400
New Jersey
6.374
New Mexico
0
New York
1.540
North Carolina
2.155
North Dakota
0
CRS-17
FY2005
Ohio
1.319
Oklahoma
0.147
Oregon
1.710
Pennsylvania
1.244
Rhode Island
0.400
South Carolina
0.456
South Dakota
0.063
Tennessee
2.700
Texas
0.951
Utah
0.900
Vermont
0
Virginia
2.091
Washington
2.298
West Virginia
0
Wisconsin
0
Wyoming
0
Puerto Rico
0
Northern Mariana Islands
0
Marshall Islands
0
Guam
0
American Samoa
0
Virgin Islands
0
Republic of Palua
0
Total
Source: Department of Homeland Security.
61.356
CRS-18
Table 9. Requests and Awards for Fire Grant Funding, FY2005
State
Number of
fire/EMS
departmentsa
Funds
awarded as a
Federal funds Federal funds percentage of
funds
awarded
requested
requested
($millions)
($millions)
Number of
applications
Alabama
935
677
80.250
20.836 0.2596386293
Alaska
110
76
12.600
3.111 0.2469047619
Arizona
267
142
24.051
7.905 0.3286765623
Arkansas
818
483
47.556
10.402 0.2187316006
California
757
524
83.800
25.631 0.3058591885
Colorado
354
199
30.094
6.073 0.2018010235
Connecticut
365
231
33.834
7.287 0.2153750665
Delaware
72
33
5.530
1.161 0.2099457505
District of
Columbia
11
2
0.491
0.453 0.9226069246
Florida
696
317
59.155
17.922 0.3029667822
Georgia
767
342
49.376
10.168 0.2059300065
Hawaii
16
5
1.257
1.205 0.9586316627
Idaho
206
141
19.547
4.684 0.2396275643
Illinois
1041
864
111.592
25.433 0.2279106029
Indiana
621
521
68.534
15.779 0.2302360872
Iowa
856
618
66.628
13.119 0.1968992015
Kansas
664
352
37.463
Kentucky
779
567
69.659
14.215 0.2040655192
Louisiana
538
328
38.373
11.630 0.3030776848
Maine
416
290
35.298
6.124
Maryland
381
207
38.558
8.771 0.2274754915
Massachusetts
398
306
52.792
13.529 0.2562698894
Michigan
824
700
77.586
15.088 0.1944680741
Minnesota
755
593
66.207
14.894 0.2249611068
Mississippi
746
449
47.699
9.856 0.2066290698
Missouri
846
576
62.244
14.246 0.2288734657
Montana
271
224
23.935
6.656 0.2780864842
7.165
0.191255372
0.173494249
CRS-19
Funds
awarded as a
Federal funds Federal funds percentage of
funds
awarded
requested
requested
($millions)
($millions)
State
Number of
fire/EMS
departmentsa
Nebraska
483
272
29.818
5.116 0.1715742169
Nevada
151
44
7.087
1.946 0.2745872725
New
Hampshire
247
165
18.693
4.563 0.2441020703
New Jersey
988
584
74.682
14.691 0.1967140676
New Mexico
324
120
15.485
2.259 0.1458831127
New York
1815
1353
158.458
36.009 0.2272463366
North
Carolina
1372
786
113.828
19.315 0.1696858418
319
184
16.459
2.673 0.1624035482
1312
909
126.049
27.344 0.2169315108
Oklahoma
760
448
43.852
8.757 0.1996944267
Oregon
346
204
29.351
10.014 0.3411808797
Pennsylvania
2563
1939
268.033
39.233 0.1463737674
Rhode Island
95
71
8.662
2.129 0.2457861926
South
Carolina
576
392
51.922
10.544 0.2030738415
South Dakota
341
227
18.533
3.570 0.1926293638
Tennessee
625
485
56.533
Texas
1808
828
114.576
23.480 0.2049294791
Utah
218
131
13.171
2.188 0.1661225419
Vermont
248
150
17.554
2.071 0.1179788082
Virginia
769
385
60.347
14.357 0.2379074353
Washington
524
352
57.413
15.763 0.2745545434
West Virginia
465
318
41.082
10.143
Wisconsin
881
696
71.982
17.685 0.2456864216
Wyoming
128
68
10.631
2.032 0.1911391214
Puerto Rico
Not available
89
7.245
1.104 0.1523809524
Northern
Marianas
Not available
3
0.577
0.220 0.3812824957
Guam
Not available
1
1.000
North Dakota
Ohio
Number of
applications
15.047
0
0.266163126
0.246896451
0
CRS-20
State
Virgin Islands
Total
Number of
fire/EMS
departmentsa
Funds
awarded as a
Federal funds Federal funds percentage of
funds
awarded
requested
requested
($millions)
($millions)
Number of
applications
Not available
1
0.798
0
0
31,822
20,972
2,677.956
585.619
21.87%
crsphpgw
Source: Department of Homeland Security.
a. Data from [http://firehouse.com].
15
For information on the latest House and Senate actions regarding appropriations for the
fire grant and SAFER programs, see CRS Report RS21302, Assistance to Firefighters
Program, by Lennard G. Kruger.
CRS-8
analyzing the distribution of fire grant awards and the level of unmet firefighting
equipment needs in each state.
A related issue is the role of the U.S. Fire Administration in the administration
of the fire grant program. At its inception, the program was administered by the
USFA/FEMA and focused on enhancing the basic needs of fire departments across
the nation. In the FY2004 budget request, as part of its effort to consolidate terrorism
preparedness grants under a single entity, the Administration proposed to relocate the
fire grant program within the Office for Domestic Preparedness (ODP), whose
mission was to provide state and local governments with assistance to improve their
readiness for terrorism incidents. The FY2004 DHS Appropriations Act (P.L. 10890) acceded to the Administration’s request, and relocated the fire grants to ODP.
The Conferees directed that DHS shall “continue current administrative practices in
a manner identical to the current fiscal year, including a peer review process of
applications, granting funds directly to local fire departments, and the inclusion of
the United States Fire Administration during grant administration.”
On January 26, 2004, then-DHS Secretary Ridge informed Congress of his
intention to consolidate ODP, including the Assistance to Firefighters Program, into
the Office of State and Local Government Coordination Preparedness (OSLGCP).
The FY2005 Homeland Security appropriations act (P.L. 108-334) placed the fire
grant program within OSLGCP. However, the Assistance to Firefighters Grant
Program Reauthorization Act of 2004 (P.L. 108-375) designated administration of
the fire grant program to USFA. According to the FY2006 budget request, the fire
grant program would be administered by the OSLGCP “in cooperation with the
USFA.”
On July 13, 2005, DHS Secretary Michael Chertoff announced a restructuring
of DHS, effective October 1, 2005. Under the restructuring plan, the fire grants (as
well as the SAFER grants) were to be administered by the Office of Grants and
Training in the new DHS Directorate for Preparedness. However, legislation
considered in the 109th Congress sought to restructure FEMA within DHS, with the
result that fire and SAFER grant programs would be transferred back to FEMA.
Ultimately, Title VI of the Conference Agreement on the DHS appropriations bill
(P.L. 109-295; H.Rept. 109-699), the Post Katrina Emergency Management Reform
Act of 2006, transferred most of the existing Preparedness Directorate (including fire
and SAFER grants and the USFA) back to an enhanced FEMA.
CRS-9
Table 4. State-by-State Distribution of Fire Grants,
FY2001-FY2006
(millions of dollars)
FY2001
FY2002
FY2003
FY2004
FY2005
FY2006
Total
AL
3.085
12.503
23.329
25.097
20.836
22.027
106.877
AK
1.303
2.641
5.242
2.522
3.111
0.754
15.573
AZ
1.37
3.6
7.490
9.808
7.905
4.041
34.214
AR
1.337
4.635
10.675
13.680
10.402
7.699
48.428
CA
5.905
18.978
30.060
29.793
25.631
17.856
128.223
CO
1.003
3.968
6.168
5.585
6.073
3.213
26.01
CT
1.828
4.675
10.841
9.991
7.287
5.479
40.101
DE
0.132
0.372
1.096
1.755
1.161
1.107
5.623
DC
0
0.22
0
0
0.453
0
0.673
FL
2.865
10.16
16.344
15.969
17.922
6.787
70.047
GA
2.375
6.079
13.791
11.857
10.168
8.887
53.157
HI
0
1.182
0.947
0.864
1.205
0.264
4.462
ID
0.916
2.744
6.001
4.828
4.684
2.712
21.885
IL
2.417
13.398
28.810
27.238
25.433
21.120
118.416
IN
2.703
8.739
20.456
18.646
15.779
14.447
80.77
IA
1.301
7.284
16.087
16.430
13.119
10.064
64.285
KS
1.153
5.118
10.850
10.211
7.165
4.984
39.481
KY
2.215
7.896
19.832
16.150
14.215
13.308
73.616
LA
3.344
10.084
12.248
11.101
11.630
6.935
55.342
ME
1.296
4.319
10.323
10.031
6.124
6.702
38.795
MD
0.739
4.08
8.153
10.227
8.771
10.368
42.338
MA
2.301
8.386
15.715
13.958
13.529
8.957
62.846
MI
2.815
8.948
17.247
20.005
15.088
15.798
79.901
MN
2.133
8.149
17.510
18.609
14.894
14.718
76.013
MS
1.763
6.755
15.679
11.329
9.856
7.885
53.267
MO
3.079
10.291
19.573
17.757
14.246
13.202
78.148
MT
1.164
3.726
8.361
7.271
6.656
5.839
33.017
NE
1.034
2.392
7.820
6.577
5.116
4.399
27.338
NV
0.282
1.446
3.312
1.405
1.946
0.857
9.248
NH
0.594
1.887
4.584
5.694
4.563
3.307
20.629
NJ
2.596
6.339
19.982
16.488
14.691
12.386
72.482
NM
1.455
3.463
5.048
3.653
2.259
1.461
17.339
NY
3.978
14.728
34.320
35.030
36.009
33.804
157.869
NC
1.949
10.239
22.864
22.360
19.315
18.309
95.036
CRS-10
FY2001
FY2002
FY2003
FY2004
FY2005
FY2006
Total
ND
0.546
2.613
5.105
3.391
2.673
2.459
16.787
OH
2.731
13.742
26.997
29.107
27.344
25.380
125.301
OK
1.864
4.939
10.540
10.393
8.757
10.852
47.345
OR
1.596
4.892
9.896
10.122
10.014
9.288
45.808
PA
2.89
16.97
45.179
47.898
39.233
41.259
193.429
RI
0.407
1.507
2.327
1.917
2.129
2.025
10.312
SC
1.554
5.257
11.832
14.150
10.544
8.028
51.365
SD
0.904
3.142
5.602
4.693
3.570
2.989
20.9
TN
2.46
11.509
19.306
18.686
15.047
11.209
78.217
TX
3.697
15.644
29.264
30.118
23.480
18.035
120.238
UT
0.9
2.754
4.628
3.880
2.188
2.213
16.563
VT
0.451
1.971
5.163
4.747
2.071
1.456
15.859
VA
2.066
8.79
15.816
16.668
14.357
8.317
66.014
WA
1.535
7.544
18.808
19.565
15.763
16.150
79.365
WV
1.067
3.966
9.942
9.133
10.143
5.838
40.089
WI
2.077
7.518
18.234
19.668
17.685
13.994
79.176
WY
1.09
1.612
3.507
1.811
2.032
1.197
11.249
PR
0.657
0.382
1.643
1.140
1.104
0.528
5.454
MP
0.145
0.225
0
0
0.220
0.172
0.762
GU
0
0.016
0
0
0
0.287
0.303
AS
0.164
0
0
0.284
0
0
0.448
VI
0.741
0
0.544
0
0
0
1.285
91.972
334.417
695.121
679.305
585.619
491.375
2877.718
Tot.
Source: Department of Homeland Security.
CRS-11
Table 5. State-by-State Distribution of SAFER Grants, FY2005FY2006
(millions of dollars)
FY2005
FY2006
Total
Alabama
1.611
6.215
7.826
Alaska
1.051
0.205
1.256
Arizona
1.560
3.559
5.119
Arkansas
0.394
1.820
2.214
California
5.221
5.212
10.433
Colorado
1.584
3.479
5.063
Connecticut
0.130
0.191
0.321
Delaware
0
0.135
0.135
District of Columbia
0
0
0
Florida
6.576
9.329
15.905
Georgia
5.354
2.085
7.439
Hawaii
0
0
0
Idaho
0.063
0.621
0.684
Illinois
1.340
4.463
5.803
Indiana
0
0.099
0.099
Iowa
0.169
0.144
0.313
Kansas
0.667
0.045
0.712
Kentucky
0.152
2.890
3.042
Louisiana
3.430
3.078
6.508
Maine
0.081
0
0.081
Maryland
0.096
1.862
1.958
Massachusetts
1.300
2.079
3.379
Michigan
1.759
0.592
2.351
Minnesota
0.300
1.089
1.389
Mississippi
0.756
0.594
1.35
Missouri
1.467
3.547
5.014
Montana
0.034
0.255
0.289
Nebraska
0
0.873
0.873
Nevada
1.500
1.714
3.214
New Hampshire
0.400
1.035
1.435
New Jersey
6.374
3.971
10.345
New Mexico
0
3.123
3.123
1.540
2.991
4.531
New York
CRS-12
FY2005
FY2006
Total
North Carolina
2.155
5.533
7.688
North Dakota
0
0.609
0.609
Ohio
1.319
1.881
3.2
Oklahoma
0.147
0.699
0.846
Oregon
1.710
2.141
3.851
Pennsylvania
1.244
1.475
2.719
Rhode Island
0.400
0
0.4
South Carolina
0.456
0.863
1.319
South Dakota
0.063
0.311
0.374
Tennessee
2.700
2.719
5.419
Texas
0.951
10.961
11.912
Utah
0.900
3.312
4.212
Vermont
0
0.621
0.621
Virginia
2.091
3.554
5.645
Washington
2.298
2.897
5.195
West Virginia
0
0.187
0.187
Wisconsin
0
0.072
0.072
Wyoming
0
0
0
Puerto Rico
0
0
0
Northern Mariana Islands
0
0
0
Marshall Islands
0
0
0
Guam
0
0
0
American Samoa
0
0
0
Virgin Islands
0
0
0
Republic of Palua
0
0
0
61.356
105.142
166.498
Total
Source: Department of Homeland Security.
CRS-13
Table 6. Requests and Awards for Fire Grant Funding, FY2006
State
Alabama
Number of
fire/EMS
departmentsa
Federal
funds
requested
($millions)
Number of
applications
Federal
funds
awarded
($millions)
Funds
awarded as a
% of funds
requested
958
595
69.333
22.027 0.3176986428
Alaska
72
54
9.650
Arizona
281
135
22.475
4.041 0.1797997775
Arkansas
826
384
40.996
7.699 0.1877988096
California
802
441
73.192
17.856 0.2439610886
Colorado
371
142
21.269
3.213 0.1510649302
Connecticut
393
202
30.959
5.479 0.1769760005
Delaware
77
35
6.122
1.107 0.1808232604
District of
Columbia
18
2
0.370
Florida
748
259
49.293
6.787 0.1376868927
Georgia
792
282
43.48`
8.887 0.2043928243
Hawaii
18
3
0.579
0.264 0.4559585492
Idaho
211
125
14.398
2.712 0.1883594944
Illinois
1081
769
92.320
21.120 0.2287694974
Indiana
656
444
62.412
14.447 0.2314779209
Iowa
862
547
54.667
10.064 0.1840964384
Kansas
674
262
27.851
4.984 0.1789522818
Kentucky
797
508
62.416
13.308 0.2132145604
Louisiana
555
217
24.898
6.935 0.2785364286
Maine
426
236
34.928
6.702 0.1918804398
Maryland
408
189
34.654
10.368 0.2991862411
Massachusetts
407
291
53.729
8.957 0.1667069925
Michigan
858
623
73.773
15.798 0.2141433858
Minnesota
768
518
56.804
14.718 0.2591014717
Mississippi
756
364
45.569
7.885 0.1730342996
Missouri
862
467
51.581
13.202 0.2559469572
Montana
279
188
22.667
5.839
Nebraska
485
215
23.580
4.399 0.1865564037
0.754
0
0.078134715
0
0.257599153
CRS-14
State
Number of
fire/EMS
departmentsa
Federal
funds
requested
($millions)
Number of
applications
Federal
funds
awarded
($millions)
Funds
awarded as a
% of funds
requested
Nevada
159
34
5.868
0.857 0.1460463531
New
Hampshire
255
144
17.269
3.307 0.1914992183
New Jersey
1037
555
67.147
12.386 0.1844609588
New Mexico
337
109
16.180
1.461
0.090296663
New York
1880
1190
141.676
33.804
0.238600751
North Carolina
1407
689
87.855
18.309 0.2084002049
North Dakota
322
116
11.431
2.459 0.2151167877
1332
824
113.954
Oklahoma
772
452
46.402
10.852 0.2338692298
Oregon
358
193
29.471
9.288 0.3151572733
Pennsylvania
2624
1736
227.488
41.259 0.1813678084
Rhode Island
98
65
8.822
2.025 0.2295397869
South Carolina
591
335
43.067
8.028
South Dakota
345
163
15.038
2.989 0.1987631334
Tennessee
642
437
46.960
11.209 0.2386925043
Texas
1873
712
99.953
18.035 0.1804348044
Utah
219
120
11.674
2.213 0.1895665582
Vermont
254
124
14.170
1.456 0.1027522936
Virginia
810
301
47.719
8.317 0.1742911628
Washington
538
304
49.715
16.150 0.3248516544
West Virginia
476
295
41.198
5.838 0.1417059081
Wisconsin
898
623
64.067
13.994 0.2184275836
Wyoming
134
49
6.329
1.197 0.1891294043
7
91
8.822
0.528
0.059850374
Northern
Marianas
Not available
1
0.172
0.172
1
Guam
Not available
1
0.287
0.287
1
Total
31,822
20,972
2326.457
491.375
21.12%
Ohio
Puerto Rico
Source: Department of Homeland Security.
a. Data from [http://firehouse.com], updated January 2008.
25.380
0.222721449
0.186407226