Staffing for Adequate Fire and Emergency
Response: The SAFER Grant Program
Lennard G. Kruger
Specialist in Science and Technology Policy
May 8June 23, 2009
Congressional Research Service
7-5700
www.crs.gov
RL33375
CRS Report for Congress
Prepared for Members and Committees of Congress
Staffing for Adequate Fire and Emergency Response: The SAFER Grant Program
Summary
In response to concerns over the adequacy of firefighter staffing, the Staffing for Adequate Fire
and Emergency Response Act—popularly called the “SAFER Act”—was enacted by the 108th
Congress as Section 1057 of the FY2004 National Defense Authorization Act (P.L. 108-136). The
SAFER Act authorizes grants to career, volunteer, and combination local 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. The SAFER grant program is authorized through
FY2010.
Although authorized for FY2004, the SAFER grant program received its initial appropriation of
$65 million in FY2005, followed by $109 million in FY2006, $115 million in FY2007, and $190
million in FY2008. The Bush Administration requested zero funding for SAFER in all years of
the program’s existence. For FY2009, the Senate Appropriations Committee approved $190
million for SAFER grants, while the House Appropriations Committee approved $230 million.
The Consolidated Security, Disaster Assistance, and Continuing Appropriations Act, 2009 (P.L.
110-329)—which contains the FY2009 Department of Homeland Security Appropriations Act—
provided $210 million for SAFER.
With the economic turndown adversely affecting budgets of local governments, concerns have
arisen that modifications to the SAFER statute may be necessary to enable fire departments to
more effectively participate in the program. The American Recovery and Reinvestment Act of
2009 (P.L. 111-5) included a provision (section 603) that waives the matching requirements for
SAFER grants awarded in fiscal years 2009 and 2010. On May 7, 2009, the House Appropriations
Committee approved the FY2009 Supplemental Appropriations bill. Included is a provision
waiving certain limitations and restrictions in the SAFER statute.
For FY2010, the Obama Administration is proposing $420 million for SAFER, double the
amount appropriated in FY2009. The budget proposal for SAFER is likely to receive heightened
scrutiny, given the national economic downturn and local budgetary cutbacks that many fire
departments are now facing. Concerns over local fire departments’ budgetary problems may also
frame debate of the SAFER reauthorization bill, which is expected to be considered during the
second session of theWith the economic turndown adversely affecting budgets of local governments, concerns have
arisen that modifications to the SAFER statute may be necessary to enable fire departments to
more effectively participate in the program. The American Recovery and Reinvestment Act of
2009 (P.L. 111-5) included a provision (section 603) that waives the matching requirements for
SAFER grants awarded in fiscal years 2009 and 2010. The FY2009 Supplemental Appropriations
Act (H.R. 2346) included a provision authorizing the Secretary of Homeland Security to waive
further limitations and restrictions in the SAFER statute for FY2009 and FY2010. Because of the
statutory modifications made to SAFER’s applicant eligibility criteria in the ARRA and the
FY2009 Supplemental Appropriations Act, the FY2009 SAFER application round is expected to
commence later in the year than usual, likely sometime in the fall of 2009.
For FY2010, the Obama Administration proposed $420 million for SAFER, double the amount
appropriated in FY2009. Both the House and Senate Appropriations Committees have also
approved $420 million for SAFER in FY2010. The budget proposal for SAFER is likely to
receive heightened scrutiny, given the national economic downturn and local budgetary cutbacks
that many fire departments are now facing. Concerns over local fire departments’ budgetary
problems may also frame debate of the SAFER reauthorization bill, which is expected to be
considered during the 111th Congress.
This report will be updated as events warrant.
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Staffing for Adequate Fire and Emergency Response: The SAFER Grant Program
Contents
Background and Genesis of SAFER ............................................................................................1
Authorization—The SAFER Act .................................................................................................2
Appropriations ............................................................................................................................3
FY2005.................................................................................................................................3
FY2006.................................................................................................................................4
FY2007.................................................................................................................................4
FY2008FY2009.................................................................................................................................4
FY2009FY2010.................................................................................................................................5
FY2010...............Modifications of SAFER Program for FY2009 and FY2010..................................................................................................................6
Modifications of SAFER in the ARRA and the FY2009 Supplemental Appropriations Bill ..........65
Implementation of the SAFER Program ......................................................................................75
Issues in the 111th Congress.........................................................................................................76
Tables
Table 1. Authorization Levels for SAFER Grant Program............................................................2
Table 2. Appropriations for Firefighter Assistance, FY2001-FY2009 ...........................................3
Table 3. Recent and Proposed Appropriations for Firefighter Assistance .............................3.........4
Table 34. State-by-State Distribution of SAFER Grants, FY2005-FY2007FY2008...................................8.6
Contacts
Author Contact Information ...................................................................................................... 10..8
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Staffing for Adequate Fire and Emergency Response: The SAFER Grant Program
Background and Genesis of SAFER
Firefighting and the provision of fire protection services to the public is traditionally a local
responsibility, funded primarily by state, county, and municipal governments. During the 1990s,
however, shortfalls in state and local budgets—coupled with increased responsibilities (i.e.,
counterterrorism) of local fire departments—led many in the fire community to call for additional
financial support from the federal government. Since enactment of the FIRE Act1 in the 106th
Congress, the Assistance to Firefighters Grants program (also known as “fire grants” and “FIRE
Act grants”) has provided funding for equipment and training directly from the federal
government to local fire departments.2
Since the fire grant program commenced in FY2001, funding has been used by fire departments
to purchase firefighting equipment, personal protective equipment, and firefighting vehicles.
Many in the fire service community argued that notwithstanding the fire grant program, there
remained a pressing need for an additional federal grant program to assist fire departments in the
hiring of firefighters and the recruitment and retention of volunteer firefighters. They asserted that
without federal assistance, many local fire departments would continue to be unable to meet
national consensus standards for minimum staffing levels, which specify at least four firefighters
per responding fire vehicle (or five or six firefighters in hazardous or high risk areas).3 Fire
service advocates also pointed to the Community Oriented Policing Services (COPS) program4 as
a compelling precedent of federal assistance for the hiring of local public safety personnel.
In support of SAFER, fire service advocates cited and continue to cite studies performed by the
U.S. Fire Administration and the National Fire Protection Association,5 the Boston Globe,6 and
the National Institute for Occupational Safety and Health (NIOSH)7 which concluded that many
fire departments fall below minimum standards for personnel levels. According to these studies,
1
Title XVII of the FY2001 National Defense Authorization Act (P.L. 106-398).
2
For more information, see CRS Report RL32341, Assistance to Firefighters Program: Distribution of Fire Grant
Funding, by Lennard G. Kruger.
3
These refer to consensus standards developed by the National Fire Protection Association (NFPA): NFPA 1710
(“Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and
Special Operations to the Public by Career Fire Departments”), and NFPA 1720 (“Standard for the Organization and
Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by
Volunteer Fire Departments”). NFPA standards are voluntary unless adopted as law by governments at the local, state,
or federal level, and are also often considered by insurance companies when establishing rates. Another applicable
standard to this debate is the federal Occupational Safety and Health Administration (OSHA) standard on respiratory
protection in structural firefighting situations (29 CFR 1910.134(g)), which requires at least four firefighters (two in
and two for backup) before entering a hazardous environment wearing a Self-Contained Breathing Apparatus.
4
For more information on the COPS program, see CRS Report RL33308, Community Oriented Policing Services
(COPS): Background, Legislation, and IssuesFunding, by Nathan James.
5
U.S. Fire Administration and the National Fire Protection Association, Four Years Later—A Second Needs
Assessment of the U.S. Fire Service, FA-303, October 2006, 159 p. Available at http://www.usfa.dhs.gov/downloads/
pdf/publications/fa-303-508.pdf.
6
Dedman, Bill, “Deadly Delays: The Decline of Fire Response,” Boston Globe Special Report, January 30, 2005.
Available at http://www.boston.com/news/specials/fires/.
7
National Institute for Occupational Safety and Health, “National Institute for Occupational Safety and Health
(NIOSH) Fire Fighter Fatality Investigation and Prevention Program, 1998 - 2005,” March 2006, 16 p. Available at
http://www.cdc.gov/niosh/fire/pdfs/progress.pdf.
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the result of this shortfall can lead to inadequate response to different types of emergency
incidents, substandard response times, and an increased risk of firefighter fatalities.
On the other hand, those opposed to SAFER grants contend that funding for basic local
government functions—such as paying for firefighter salaries—should not be assumed by the
federal government, particularly at a time of high budget deficits. Also, some SAFER opponents
disagree that below-standard levels in firefighting personnel is necessarily problematic, and point
to statistics indicating that the number of structural fires in the United States has continued to
decline over the past twenty years.8
Authorization—The SAFER Act
In response to concerns over the adequacy of firefighter staffing, the Staffing for Adequate Fire
and Emergency Response Act—popularly called the “SAFER Act”—was introduced into the
107th and 108th Congresses. 9 The 108th Congress enacted the SAFER Act as Section 1057 of the
FY2004 National Defense Authorization Act (P.L. 108-136; signed into law November 24, 2003).
The SAFER provision was added as an amendment to S. 1050 on the Senate floor (S.Amdt. 785,
sponsored by Senator Dodd) and modified in the FY2004 Defense Authorization conference
report (H.Rept. 108-354). 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. SAFER grants are authorized through FY2010. Table 1
shows the authorization levels for the SAFER grant program.
Table 1. Authorization Levels for SAFER Grant Program
(billions of dollars)
FY2004
FY2005
FY2006
FY2007
FY2008
FY2009
FY2010
1.0
1.03
1.061
1.093
1.126
1.159
1.194
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 cost-shared 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
8
See Lehrer, Eli, “Do We Need More Firefighters?” Weekly Standard, April 12, 2004, p. 21-22. Available at
http://www.sipr.org/default.aspx?action=PublicationDetails&id=44. See also Easterbrook, Gregg, “Where’s the Fire?”
New Republic Online, August 9, 2004. Available at http://www.tnr.com/doc.mhtml?i=express&s=easterbrook080904.
9
107th Congress: S. 1617 (Dodd), H.R. 3992 (Boehlert), H.R. 3185 (Green, Gene). 108th Congress: S. 544 (Dodd),
H.R. 1118 (Boehlert).
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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.
Appropriations
The SAFER grant program receives its annual appropriation through the House and Senate
Appropriations Subcommittees on Homeland Security. Within the appropriations bills, SAFER is
listed under the line item, “Firefighter Assistance Grants,” which is located in Title III—
Protection, Preparedness, Response, and Recovery. “Firefighter Assistance Grants” also includes
the Assistance to Firefighters Grant Program.
Although authorized for FY2004, SAFER did not receive an appropriation in FY2004. The
program received its initial appropriation of $65 million in FY2005, followed by $109 million in
FY2006, $115 million in FY2007, $190 million in FY2008, and $210 million in FY2009. To date,
the Bush Administration has requested zero funding for SAFER in all years of the program’s
existence. Table 2 shows recent funding for firefighter assistance, including both SAFER and
FIRE grants.
Table 2. Appropriations for Firefighter Assistance
(millions of dollars)
FY2008
(P.L. 110-161)
FY2009
Admin.
request
FIRE Grants
560
300
565
170
SAFER Grants
190
0
210
420
Total
750
300
775
590
FY2009
(P.L. 110-329)
FY2010 Admin.
Request
FY2005
The Bush Administration requested no funding for SAFER grants in FY2005. On June 17, 2004,
Representative Curt Weldon offered a floor amendment to the FY2005 Homeland Security
Appropriations bill (H.R. 4567) which would provide $50 million for SAFER grants in FY2005.
The amendment was adopted and the bill was subsequently passed by the House on June 18,
2004. On September 14, 2004, the Senate adopted an amendment offered by Senator Dodd to
H.R. 4567 which would provide $100 million for the SAFER Act. The final Conference
Agreement on H.R. 4567 (H.Rept. 108-774) provided SAFER Act grants with $65 million for
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FY2005. The FY2005 Homeland Security Appropriations bill (P.L. 108-334) was signed by the
President on October 18, 2004.
FY2006
The Administration’s budget proposal requested zero funding for SAFER. 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 $50 million for SAFER Act grants.
During House consideration of H.R. 2360, an amendment was adopted on the House floor
(H.Amdt. 134 offered by Representative Sabo) which added $25 million for SAFER grants. The
House passed H.R. 2360 on May 17, 2005. The total House appropriation was $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 $65 million for SAFER
Act grants. After adopting S.Amdt. 1133 (offered by Senator Gregg) during floor debate, the
Senate passed (on July 14, 2005) its version of H.R. 2360 which provided $115 million for
SAFER act grants. The Conference agreement for H.R. 2360 (H.Rept. 109-241) provided $110
million for SAFER grants. 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 SAFER to $109 million.
FY2007
The Administration’s budget proposal requested no funding for SAFER Act grants. The budget
justification stated: “the Administration has not requested funds for SAFER Grants in FY2007 on
the grounds that local public safety agencies should assume responsibility for funding the
appropriate number of personnel, and that Federal-funding for hiring local responders puts newlyfunded personnel at risk once grant dollars phase out.”
On May 17, 2006, the House Appropriations Committee approved $40 million for SAFER grants
in FY2007 (H.Rept. 109-476). On May 25, during floor consideration of the FY2007 Department
of Homeland Security appropriations bill (H.R. 5441), the House approved an amendment offered
by Mr. Sabo which increased FY2007 funding to $110 million for SAFER grants. An additional
House amendment added $2.1 million for a total of $112.1 million for SAFER. H.R. 5441 was
passed by the House on June 6, 2006. On June 29, 2006, the Senate Appropriations Committee
approved $115 million for SAFER (S.Rept. 109-273). On July 13, the Senate approved by
Unanimous Consent an amendment sponsored by Senator Dodd which increased FY2007 funding
to $127.5 million for SAFER grants. H.R. 5441 was passed by the Senate on July 13, 2006. The
Conference Agreement, announced on September 25, 2006, provided $115 million for SAFER.
The FY2007 Department of Homeland Security appropriations bill was signed into law (P.L. 109295) on October 4, 2006.
FY2008
The Administration’s budget proposal requested no funding for SAFER Act grants in FY2008.
The FY2008 budget justification stated that the federal government already spends “billions of
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dollars in annual support to train, exercise, and equip State and local public safety personnel,
including firefighters, so that they are adequately prepared to respond to a terrorist attack or other
major incident.” The budget justification argued that “a federally funded hiring program for
firefighters risks replacing State and local funding for general purpose public safety staffing with
federal resources, and therefore does not forward the Federal goal of enhancing local
preparedness capabilities.”
On June 5, 2007, the House Appropriations Committee approved the FY2008 appropriations bill
for the Department of Homeland Security (H.R. 2638; H.Rept. 110-181). The bill would provide
$230 million for SAFER grants. The Committee also expressed concern that large numbers of
applications never reach the peer review stage. The Government Accountability Office (GAO)
was directed to review the application and award process for fire and SAFER grants, and FEMA
was directed to peer review all grant applications that meet basic eligibility requirements. On
June 15, 2007, the House passed H.R. 2638, including an amendment adding $5 million to the
SAFER account. Thus, the final House-passed bill would provide $235 million for SAFER.
On June 14, 2007, the Senate Appropriations Committee approved its version of the FY2008
appropriations bill for the Department of Homeland Security (S.Rept. 110-84), providing $140
million for SAFER. On July 26, 2007, the Senate passed H.R. 2638, including an amendment
adding $5 million to the SAFER account. Thus, the final Senate-passed bill would provide $145
million for SAFER.
On December 26, 2007, the President signed the Consolidated Appropriations Act of 2008 (P.L.
110-161), which provided $190 million for SAFER grants. As stated in the Joint Explanatory
Statement accompanying P.L. 110-161, GAO was directed to review the application and award
process for fire and SAFER grants, and FEMA was directed to peer review all grant applications
that meet criteria established by FEMA and the fire service. Those criteria necessary for peerreview 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 rank-ordered, and funded following the rank order.
FY2009
The Administration’s budget proposal again Table 2
shows the appropriations history for firefighter assistance, including SAFER, AFG, and the Fire
Station Construction (FSC) grants provided in the American Recovery and Reinvestment Act
(ARRA). The Bush Administration requested no funding for SAFER in each its budget proposals
for FY2005 through FY2009. Table 3 shows recent and proposed FY2010 appropriated funding
for the SAFER and AFG grant programs.
Table 2. Appropriations for Firefighter Assistance, FY2001-FY2009
AFG
SAFER
SCGa
Total
FY2001
$100 million
$100 million
FY2002
$360 million
$360 million
FY2003
$745 million
$745 million
FY2004
$746 million
$746 million
FY2005
$650 million
$65 million
$715 million
FY2006
$539 million
$109 million
$648 million
FY2007
$547 million
$115 million
$662 million
FY2008
$560 million
$190 million
$750 million
FY2009
$565 million
$210 million
$210 million
$985 million
Total
$4.812 billion
$689 million
$210 million
$5.711 billion
a.
Assistance to Firefighters Fire Station Construction Grants (SCG) grants were funded by the American
Recovery and Reinvestment Act (P.L. 111-5).
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Table 3. Recent and Proposed Appropriations for Firefighter Assistance
(millions of dollars)
FIRE Grants
(AFG)
SAFER
Grants
Total
FY2009
(Admin.
request)
FY2009
(P.L. 110-329)
FY2010
(Admin.
request)
FY2010
(H.Rept. 111157)
FY2010
(S.Rept. 11131)
300
565
170
380
380
0
210
420
420
420
300
775
590
800
800
FY2009
The Bush Administration’s budget proposal requested no funding for SAFER Act grants in
FY2009. The FY2009 budget justification stated that the federal government already spends
“billions of dollars in annual support to train, exercise, and equip state and local public safety
personnel, including firefighters, so that they are adequately prepared to respond to a terrorist
attack or other major incident.” The budget justification argued that federal support “has been
directed in order to better focus scarce resources on enhancing target capabilities, and to avoid
supplanting basic public safety investments at the state and local level” and that “a federally
funded hiring program for firefighters risks replacing state and local funding for general purpose
public safety staffing with federal resources, and therefore does not forward the common goal of
enhancing national preparedness capabilities.”
On June 19, 2008, the Senate Appropriations Committee approved the FY2009 appropriations bill
for the Department of Homeland Security (S. 3181; S.Rept. 110-396). The bill provided $190
million for SAFER grants. This is the same funding level approved for FY2008. The Committee
directed DHS to continue the present practice of funding applications according to local priorities
and those established by the U.S. Fire Administration, and further directed DHS to continue direct
funding to fire departments and the peer review process.
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On June 24, 2008, the House Appropriations Committee approved its version of the FY2009
appropriations for the Department of Homeland Security, and reported its bill on September 18,
2008 (H.R. 6947; H.Rept. 110-862). The Committee provided $230 million for SAFER grants.
The Committee directed FEMA to continue granting funds directly to local fire departments and
to include the U.S. Fire Administration during the grant administration process, while also
maintaining an all-hazards focus and not limiting the list of eligible activities. The Committee
would continue the requirement that FEMA peer review grant applications that meet criteria
established by FEMA and the fire service, rank order applications according to peer review, fund
applications according to their rank order, and provide official notification detailing why
applications do not meet the criteria for review. The Committee also directed FEMA to encourage
regional applications.
The Consolidated Security, Disaster Assistance, and Continuing Appropriations Act, 2009 (P.L.
110-329)—which contains the FY2009 Department of Homeland Security Appropriations Act—
provided $210 million for SAFER. The DHS explanatory statement directed FEMA to continue
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the present practice of funding applications according to local priorities and those established by
the USFA.
FY2010
For FY2010, the Obama Administration is proposingproposed $420 million for SAFER, double the
amount amount
appropriated in FY2009. According to the budget justification, this increase will enable
fire fire
departments to increase staffing and deployment capabilities to attain 24-hour staffing and
ensure ensure
that communities have adequate protection from fire and fire-related hazards.
Modifications of SAFER in the ARRA and the
FY2009 Supplemental Appropriations Bill
Both the House and Senate Appropriations Committees have approved $420 million for SAFER
in FY2010. According to the House Appropriations Committee (H.Rept. 111-157), the additional
funding is part of a targeted and temporary effort to “stem the tide of layoffs and ensure our
communities are protected by an adequate number of firefighters.” The Committee directed
FEMA to consider the prospect and occurrence of firefighter layoffs at a local fire department
when evaluating SAFER grant applications.
Modifications of SAFER Program for FY2009 and
FY2010
With the economic turndown adversely affecting budgets of local governments, concerns have
arisen that modifications to the SAFER statute may be necessary to enable fire departments to
more effectively participate in the program. The American Recovery and Reinvestment Act of
2009 (P.L. 111-5) included a provision (section 603) that waives the matching requirements for
SAFER grants awarded in fiscal years 2009 and 2010.Currently, 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.
On May 7, 2009, the House Appropriations Committee approved the FY2009 Supplemental
Appropriations bill. Included is a provision waiving Legislation introduced into the 111th Congress, H.R.
2759, would waive those cost-share requirements for SAFER grants already awarded in FY2008.
Additionally, H.R. 2346, the FY2009 Supplemental Appropriations Act, passed by the House and
Senate and presented to the President for signing, includes a provision (section 605) giving the
Secretary of Homeland Security authority to waive certain limitations and restrictions in the
SAFER statute. For grants awarded in FY2009 and FY2010, the legislation wouldwaivers will permit
grantees to use
SAFER funds to rehire laid-off firefighters and fill positions eliminated through
attrition, would will
allow grants to extend longer than the current five year duration, and would
will permit the amount of
funding per position at levels exceeding the current limit of $110,000.
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Staffing for Adequate Fire and Emergency Response: The SAFER Grant Program100,000.
Because of the statutory modifications made to SAFER’s applicant eligibility criteria in the
ARRA and the FY2009 Supplemental Appropriations Act, the FY2009 SAFER application round
is expected to commence later in the year than usual, likely sometime in the fall of 2009.
Implementation of the SAFER Program
Prior to FY2007, the SAFER grant program was administered by the Office of Grants and
Training within the Preparedness Directorate of the Department of Homeland Security (DHS).
However, Title VI of the Conference Agreement on the DHS appropriations bill (P.L. 109-295;
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H.Rept. 109-699), the Post Katrina Emergency Management Reform Act of 2006, transferred
most of the existing Preparedness Directorate (including SAFER and fire grants) back to an
enhanced FEMA.
FY2005 was the initial year of SAFER grants. In the FY2005 round, a total of 2954 applications
were received requesting $1.142 billion in federal funds, including $835.9 million for hiring,
$147.7 million for recruitment and retention, and $158.2 million from combination fire
departments for both hiring and recruitment and retention. The average federal share requested
was $511,886 for hiring, $146,711 for recruitment and retention, and $503,837 for hiring and
recruitment/retention.10 After evaluating applications in a peer review process, DHS awarded 162
SAFER grants for the FY2005 round, totaling $64.370 million.11
In the FY2006 round, a total of 1727 applications were received requesting $738 million in
federal funds, including $562 million for hiring, $88 million for recruitment and retention, and
$87 million from combination fire departments for both hiring and recruitment and retention. 12
For the FY2006 round, 265 SAFER awards have been granted, totaling $105.142 million.13 Table
3 shows the state-by-state distribution of SAFER grant funds, FY2005 through FY2007.
In the FY2007 round, a total of 1503 applications were received requesting $706 million in
federal funds, including $562 million for hiring, $47 million for recruitment and retention, and
$97 million from combination fire departments for both hiring and recruitment and retention. 14 As
of September 5, 2008, 257 awards have been granted, totaling $102.581 million. The application
period for the FY2008 round ran from May 27 through June 27, 2008. For the latest information
on applicant eligibility criteria, as well as FY2008 application procedures, guidelines, tutorials,
deadlines and awards, see the official SAFER grant program website at
Table 4 shows the state-by-state distribution of SAFER grant funds, from FY2005 through
FY2008. Of the total federal share requested for FY2008, 34.4% was requested by all paid/career
departments, 14.7% by all volunteer, 19.2% by combination (majority paid/career), and 28.1% by
combination (majority volunteer).10 The most recent SAFER annual report (for FY2006) shows
that grants for hiring accounted for 84.3% of the total federal share awarded. The majority of
SAFER funds awarded in FY2006 went to career departments and suburban areas.11 For the latest
information and updates on the application for and awarding of SAFER grants, see the official
SAFER grant program website at http://www.firegrantsupport.com/safer/.
Issues in the 111th Congress
The Obama Administration’s FY2010 budget proposal for SAFER is likely to receive heightened
scrutiny, given the national economic downturn and local budgetary cutbacks that many fire
departments are now facing. Concerns over local fire departments’ budgetary problems may also
10
Department of Homeland Security, Preparedness Directorate, Office of Grants and Training, 2005 SAFER
Application Statistics, available at http://www.firegrantsupport.com/docs/2005SAFERApps.pdf.
11
Department of Homeland Security, Preparedness Directorate, Office of Grants and Training, 2005 SAFER Awards,
available at http://www.firegrantsupport.com/safer/awards/05/.
12
Department of Homeland Security, Preparedness Directorate, Office of Grants and Training, 2006 SAFER
Application Statistics, available at http://www.firegrantsupport.com/docs/2006SAFERApps.pdf.
13
Department of Homeland Security, Preparedness Directorate, Office of Grants and Training, 2005 SAFER Awards,
available at http://www.firegrantsupport.com/safer/awards/06/.
14
Department of Homeland Security, Preparedness Directorate, Office of Grants and Training, 2007 SAFER
Application Statistics, available at http://www.firegrantsupport.com/docs/2007SAFERApps.pdf.
Congressional Research Service
7
Staffing for Adequate Fire and Emergency Response: The SAFER Grant Program
frame debate of the SAFER program reauthorization bill, which is expected to be considered
during the second session of the frame debate of the SAFER program reauthorization bill, which is expected to be considered
during the 111th Congress. Possible reauthorization issues might include
whether the scope and
size of the program should be altered, as well as how grant allocation rules
and criteria might be
modified.
Table 34. State-by-State Distribution of SAFER Grants,
FY2005-FY2007FY2008
(millions of dollars)
FY2005
FY2006
FY2007a
Alabama
2.010
6.216
3.822
12.048
Alaska
0.051
0.205
0.418
0.67410
11
FY2006
FY2007
FY2008
Total
Alabama
1.611
6.215
4.236
6.418
18.48
Alaska
1.051
0.205
0.418
1.438
3.112
Arizona
1.560
3.559
4.111
9.23428
4.337
13.884
Arkansas
0.405394
1.820
0.377
2.602
California
4.721
5.212
4.120
14.0531.873
4.464
California
5.221
5.212
4.259
3.738
Colorado
1.584
3.479
1.730
6.7931.642
8.435
Connecticut
0.130
0.191
0.190
0.809
1.19856
0.949
2.126
Delaware
0
0.134135
0
0.134398
0.533
District of Columbia
0
0
0
0
0
Florida
6.576
9.329
4.354
20.2596.217
18.378
40.5
Georgia
5.354
2.085
2.842
10.28111.103
21.384
Hawaii
0
0
0
0
Idaho
0.143
0.621
0.626
1.39
Illinois
1.640
4.463
9.407
15.51
Indiana
0
0.099
2.687
2.786
Iowa
0.169
0.144
0.980
1.293
Kansas
0.667
0.045
1.029
1.741
Kentucky
0.248
2.890
0.429
3.567
Louisiana
3.430
3.078
3.277
9.785
Maine
0.081
0
0.316
0.397
Maryland
0.096
1.862
1.526
3.484
Massachusetts
1.300
2.079
3.950
7.329
Michigan
0.959
0.592
0
1.551
Minnesota
0.300
1.089
0.375
1.764
Mississippi
0.756
0.594
0.115
1.465
Missouri
1.491
3.547
4.551
9.589
Montana
0.133
0.255
2.636
3.024
Nebraska
0
0.873
0.632
1.505
Nevada
1.555
1.714
0.632
3.901
New Hampshire
0.400
1.035
1.528
2.963
Congressional Research Service
Total
8
Staffing for Adequate Fire and Emergency Response: The SAFER Grant Program
FY2005
FY2006
FY2007a
New Jersey
6.374
3.971
1.688
12.033
New Mexico
0
3.123
0.360
3.483
New York
1.540
2.990
2.845
7.375
North Carolina
3.845
5.533
4.631
14.009
North Dakota
0
0.609
0
0.609
Ohio
1.344
1.881
2.256
5.481
Oklahoma
0.519
0.699
0.531
1.749
Oregon
1.710
2.141
2.650
6.501
Pennsylvania
1.345
1.475
2.633
5.453
Rhode Island
0.400
0
0.105
0.505
South Carolina
0.456
0.863
3.218
4.537
South Dakota
0.063
0.310
0.211
0.584
Tennessee
2.700
2.718
3.569
8.987
Texas
2.151
10.960
6.565
19.676
Utah
0.900
3.312
2.003
6.215
Vermont
0.099
0.621
0.632
1.352
Virginia
2.091
3.554
0.782
6.427
Washington
2.998
2.897
7.024
12.919
West Virginia
0
0.187
0.681
0.868
Wisconsin
0
0.072
1.012
1.084
Wyoming
0
0
0.316
0.316
Puerto Rico
0
0
0
0
Northern Mariana Islands
0
0
0
0
Marshall Islands
0
0
0
0
Guam
0
0
0
0
American Samoa
0
0
0
0
Virgin Islands
0
0
0
0
Republic of Palau
0
0
0
0
Total
64.370
105.142
102.581
Total
272.093
Source: Department of Homeland Security.
a.
Grants awarded as of September 5, 2008.
Congressional Research Service
9
Staffing for Adequate Fire and Emergency Response: The SAFER Grant Program
Author Contact Information
Lennard G. Kruger
Specialist in Science and Technology Policy
lkruger@crs.loc.gov, 7-7070
Congressional Research Service
101.626
1.626
18.43
Latest SAFER application statistics are available at http://www.firegrantsupport.com/docs/2008SAFERApps.pdf.
A complete statistical run-down is available at http://www.firegrantsupport.com/docs/2006SAFERReport.pdf.
Congressional Research Service
6
Staffing for Adequate Fire and Emergency Response: The SAFER Grant Program
FY2005
FY2006
FY2007
FY2008
Total
Idaho
0.063
0.621
0.626
0.309
1.619
Illinois
1.340
4.463
9.933
3.035
18.771
Indiana
0
0.099
2.687
4.877
7.663
Iowa
0.169
0.144
0.980
1.288
2.581
Kansas
0.667
0.045
1.029
1.465
3.206
Kentucky
0.152
2.890
0.429
1.335
4.806
Louisiana
3.430
3.078
4.728
3.743
14.979
Maine
0.081
0
0.316
0.535
0.932
Maryland
0.096
1.862
1.526
3.171
6.655
Massachusetts
1.300
2.079
4.372
1.823
9.574
Michigan
1.759
0.592
0
0.655
3.006
Minnesota
0.300
1.089
0.375
0.491
2.255
Mississippi
0.756
0.594
0.115
0.875
2.34
Missouri
1.467
3.547
4.551
1.549
11.114
Montana
0.034
0.255
2.635
2.748
5.672
Nebraska
0
0.873
0.632
1.951
3.456
Nevada
1.500
1.714
0.632
0
3.846
New Hampshire
0.400
1.035
1.528
0.008
2.971
New Jersey
6.374
3.971
2.953
3.724
17.022
New Mexico
0
3.123
1.309
0.108
4.54
New York
1.540
2.991
2.845
3.579
10.955
North Carolina
2.155
5.533
5.371
13.762
26.821
North Dakota
0
0.609
0
1.518
2.127
Ohio
1.319
1.881
2.255
3.520
8.975
Oklahoma
0.147
0.699
0.531
0.622
1.999
Oregon
1.710
2.141
2.649
2.015
8.515
Pennsylvania
1.244
1.475
2.633
2.283
7.635
Rhode Island
0.400
0
0.105
0
0.505
South Carolina
0.456
0.863
3.218
5.373
9.91
South Dakota
0.063
0.311
0.211
0.048
0.633
Tennessee
2.700
2.719
3.683
1.176
10.278
Texas
0.951
10.961
8.779
12.575
33.266
Utah
0.900
3.312
2.098
4.512
10.822
Vermont
0
0.621
0.632
0
1.253
Virginia
2.091
3.554
0.782
1.374
7.801
Washington
2.298
2.897
7.340
8.336
20.871
West Virginia
0
0.187
0.681
0
Congressional Research Service
0.868
7
Staffing for Adequate Fire and Emergency Response: The SAFER Grant Program
FY2005
FY2006
FY2007
FY2008
Total
Wisconsin
0
0.072
1.223
4.227
5.522
Wyoming
0
0
0.316
2.329
2.645
Puerto Rico
0
0
0
0
0
Northern Mariana Islands
0
0
0
0
0
Marshall Islands
0
0
0
0
0
Guam
0
0
0
0
0
American Samoa
0
0
0
0
0
Virgin Islands
0
0
0
0
0
Republic of Palua
0
0
0
0
0
Total
61.356
105.142
113.665
152.847
433.01
Source: Department of Homeland Security. FY2008 awards data current as of June 11, 2009.
Author Contact Information
Lennard G. Kruger
Specialist in Science and Technology Policy
lkruger@crs.loc.gov, 7-7070
Congressional Research Service
8