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Assistance to Firefighters Program:
Distribution of Fire Grant Funding
Lennard G. Kruger
Specialist in Science and Technology Policy
June 118, 2009
Congressional Research Service
7-5700
www.crs.gov
RL32341
CRS Report for Congress
Prepared for Members and Committees of Congress
c11173008
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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 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. A related program is the Staffing for Adequate Fire and
Emergency Response Firefighters (SAFER) program, which provides grants for hiring, recruiting,
and retaining firefighters.
The fire grant program is now in its ninth year. Over $4.8 billion has been appropriated to the fire
grant program since FY2001. The Fire Act statute was reauthorized in 2004 (Title XXXVI of P.L.
108-375) 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 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).
On February 17, 2009, the President signed P.L. 111-5, the American Recovery and Reinvestment
Act (ARRA) of 2009. The ARRA included an additional $210 million in firefighter assistance
grants for modifying, upgrading, or constructing state and local non-federal fire stations, provided
that 5% be set aside for program administration and provided that no grant shall exceed $15
million. The application period for ARRA Assistance to Firefighters Fire Station Construction Grants
(SCG) grants opened on June 11 and will
(FSC) grants is expected to open on June 8 and close on July 10, 2009.
For FY2010, the Obama Administration is proposing $170 million for fire grants, a 70% decrease
from the FY2009 level, and $420 million for SAFER, double the amount appropriated in
FY2009. The total amount requested for firefighter assistance (AFG and SAFER) is $590 million,
a 24% decrease from FY2009. The House FY2010 Department of Homeland Security
appropriations bill (H.R. 2892; H.Rept. 111-157) provided $800 million for firefighter assistance,
including $380 million for AFG and $420 million for SAFER.
The Obama Administration’s FY2010 budget proposal for firefighter assistance is likely to
receive heightened scrutiny from the fire community, given what was viewed as inadequate past
budget proposals by the Bush Administration, and 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 assistance to firefighters grant
program reauthorization bill, which is expected to be considered during the first session of the
111th Congress.
This report will be updated as events warrant.
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
Contents
Background ................................................................................................................................1
Assistance to Firefighters Grant Program ....................................................................................1
Reauthorization.....................................................................................................................1
Appropriations ......................................................................................................................2
FY2009...........................................................................................................................3
FY2010...........................................................................................................................4
Fire Station Construction Grants in the ARRA.............................................................................45
SAFER Grants ............................................................................................................................5
Program Evaluation ....................................................................................................................6
Distribution of Fire Grants ..........................................................................................................7
Issues in the 111th Congress.........................................................................................................9
Tables
Table 1. Major Provisions of the Assistance to Firefighters Grant Program
Reauthorization Act .................................................................................................................2
Table 2. Appropriations for Firefighter Assistance, FY2001-FY2009 ...........................................3
Table 3. Recent and Proposed Appropriations for Firefighter Assistance ......................................3
Table 4. Appropriations for SAFER Program, FY2005-FY2009 ..................................................6
Table 5. State-by-State Distribution of Fire Grants, FY2001-FY2007FY2008.........................................9
Table 65. State-by-State Distribution of SAFER Grants, FY2005-FY2007FY2008.................................. 11
Table 76. Requests and Awards for Fire Grant Funding, FY2007FY2008 ................................................. 13
Contacts
Author Contact Information ...................................................................................................... 14
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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. WhileAlthough federally funded training programs existed (and continue to exist)
through the National Fire Academy, and whilealthough federal money was available to first responders for
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
local fire departments to help address a wide variety of equipment, training, and other firefighterrelated 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), 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).2 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.
Reauthorization
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 current reauthorization.
1
For a list of federal programs providing assistance to state and local first responders, see CRS Report R40246,
Department of Homeland Security Assistance to States and Localities: A Summary and Issues for the 111th Congress,
by Shawn Reese.
2
“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
Grant recipient limits:
populations over 1 million—lesser of $2.75 million or 0.5% of total appropriation
populations of 500K to 1 million—$1.75 million
populations under 500K—$1 million
no single grant can exceed 0.5% of total funds appropriated for a single fiscal year
DHS can waive the funding limits for populations up to 1 million in instances of extraordinary need; however the
lesser of $2.75 million or 0.5% limit cannot be waived
Nonfederal match requirements:
20% for populations over 50K
10% for populations 20K to 50K
5% for populations less than 20K
No match requirement for non-fire department 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
Source: Assistance to Firefighters Grant Program Reauthorization Act of 2004, Section XXXVI of P.L. 108-375,
FY2005 National Defense Authorization Act
Appropriations
From FY2001 through FY2003, the Assistance to Firefighters Grant (AFG) Program (as part of
USFA/FEMA) received its primary appropriation through the VA-HUD-Independent Agencies
Appropriation Act. In FY2004, the Assistance to Firefighters Program began to receive its annual
appropriation through the House and Senate Appropriations Subcommittees on Homeland
Security. The fire grant program is in its ninth year. Table 2 shows the appropriations history for
firefighter assistance, including AFG, SAFER, and the fire station construction grants provided in
Fire Station Construction (FSC) grants
provided in the American Recovery and Reinvestment Act (ARRA). Over $4.8 billion has been appropriated
appropriated to the AFG program since FY2001, its initial year. Table 3 shows recent and proposed
proposed appropriated funding for the AFG and SAFER grant programs.
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Table 2. Appropriations for Firefighter Assistance, FY2001-FY2009
AFG
SAFER
ARRAaSCGa
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.
The American Recovery and Reinvestment Act (P.L. 111-5) provided $210 million in the firefighter
assistance account for fire station construction grantsAssistance to Firefighters Fire Station Construction Grants (SCG) grants were funded by the American
Recovery and Reinvestment Act (P.L. 111-5).
Table 3. Recent and Proposed Appropriations for Firefighter Assistance
(millions of dollars)
FY2008
(P.L. 110-161
FIRE Grants
(AFG)
FY2009
(Admin.
request)
FY2009
(P.L. 110-329)
FY2010
(Admin.
request
FIRE Grants
(AFG)
560
)
FY2010
(House)
300
565
170
SAFER
Grants
190380
0
210
420
Total
750420
300
775
590
800
SAFER
Grants
Total
FY2009
The Bush Administration proposed $300 million for fire grants in FY2009, a 46% cut from the
FY2008 level of $560 million. No funding was proposed for SAFER grants. The total request for
firefighter assistance was 60% below the FY2008 level for fire and SAFER grants combined.
According to the budget justification, “the Administration believes that $287 million is an
appropriate level of funding given the availability of significant amounts of funding for first
responder preparedness missions from other DHS grant programs which are coordinated with
state and local homeland security strategies and, unlike AFG, are allocated on the basis of risk.”
Priority would be given to applications that enhance capabilities needed for terrorism response
and other major incidents. Funding would only be available for critical response equipment,
training, and personal protective gear, and would not be available for wellness/fitness activities or
modifications to facilities for firefighter safety.
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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 would provide
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$750 million for firefighter assistance, including $560 million for fire grants and $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. Additionally, $3 million was made
available for foam firefighter equipment used in remote areas.
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 would provide $800 million for firefighter
assistance, consisting of $570 million for fire grants and $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 $775 million for firefighter assistance, including $565 million for fire grants and $210
million for SAFER. The DHS explanatory statement directed FEMA to continue the present
practice of funding applications according to local priorities and those established by the USFA.
FY2010
For FY2010, the Obama Administration is proposing $170 million for AFG, a 70% decrease from
the FY2009 level, and $420 million for SAFER, double the amount appropriated in FY2009. The
total amount requested for firefighter assistance (AFG and SAFER) is $590 million, a 24%
decrease from FY2009. The FY2010 budget proposal states that the firefighter assistance grant
process “will give priority to applications that enhance capabilities for terrorism response and
other major incidents.”3
The House FY2010 Department of Homeland Security appropriations bill (H.R. 2892; H.Rept.
111-157) provided $800 million for firefighter assistance, including $380 million for AFG and
$420 million for SAFER. Although the SAFER level matches the Administration’s request, the
AFG level is more than twice what the Administration proposed. According to the Committee
Report, the Administration’s request of $170 million for AFG “is woefully inadequate given the
vast needs of fire departments across the nation for equipment.” The Committee directed FEMA
to continue granting funds to local fire departments, include the United States Fire Administration
in the grant decision process, and maintain an all-hazard focus while prohibiting the limiting of
eligible activities including wellness.
3
Office of Management and Budget, Appendix: Budget of the United States Government, FY2010, p. 547.
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Fire Station Construction Grants in the ARRA
Since its inception, the traditional fire grant program has provided money specifically for health
and safety related modifications of fire stations, but has not funded major upgrades, renovations,
or construction. The American Recovery and Reinvestment Act (ARRA) of 2009 (P.L. 111-5)
provided an additional $210 million in firefighter assistance grants for modifying, upgrading, or
constructing state and local non-federal fire stations, provided that 5% be set aside for program
administration and provided that no grant shall exceed $15 million. The Conference Report
(H.Rept. 111-16) cited DHS estimates that this spending would create 2,000 jobs. The ARRA also
3
Office of Management and Budget, Appendix: Budget of the United States Government, FY2010, p. 547.
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included a provision (section 603) that waived the matching requirement for SAFER grants
funded by appropriations in fiscal years 2009 and 2010.
The application period for ARRA Assistance to Firefighters Fire Station Construction (FSC)
grants is expected to openGrants
(SCG) opened on June 811 and will close on July 10, 2009. DHS estimates receiving 5,000
to to
10,000 applications requesting over $30 billion in requested funding. Of this, DHS anticipates
awarding approximately 100 grants. There is no cost share requirement for FSCSCG grants.
Eligible applicants are non-federal fire departments that provide fire protection services to local
communities. Ineligible applicants include federal fire departments, EMS or rescue organizations,
airport fire departments, for-profit fire departments, fire training centers, emergency
communications centers, auxiliaries and fire service organizations or associations, and search and
rescue teams or similar organizations without fire suppression responsibilities. Details on eligible
and ineligible items for funding, other allowable costs, and detailed application guidelines are
available at http://www.firegrantsupport.com/docs/2009AFSCGguidance.pdf.
SAFER Grants
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.
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
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.
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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 American Recovery and Reinvestment Act of 2009 (P.L. 111-5) included a provision (section
603) that waives the matching requirement for SAFER grants in fiscal years 2009 and 2010.
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Table 4 shows the SAFER program’s appropriations history. $479 million has been appropriated
to the SAFER program since FY2005, its initial year. For For
more information on the SAFER
program, see CRS Report RL33375, Staffing for Adequate Fire
and Emergency Response: The
SAFER Grant Program, by Lennard G. Kruger.
Table 4. Appropriations for SAFER Program, FY2005-FY2009
Fiscal year
Appropriation
FY2005
$65 million
FY2006
$109 million
FY2007
$115 million
FY2008
$190 million
FY2009
$210 million
Total
$689 million
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.”4 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,”5 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.”6
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. 7
4
For full report see http://www.usfa.fema.gov/downloads/pdf/affgp-fy01-usda-report.pdf.
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. 3. Available at http://www.dhs.gov/
xoig/assets/mgmtrpts/OIG_Review_Fire_Assist.pdf.
6
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.
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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. 7
7
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
(continued...)
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The Consolidated Appropriations Act of 2008 (P.L. 110-161), in the accompanying Joint
Explanatory Statement, directed the Government Accountability Office (GAO) to review the
application and award process for fire and SAFER grants. Additionally, FEMA was directed to
peer review grant applications that best address the program’s priorities and criteria as 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 rank-ordered, and funded following the rank order.
Distribution of Fire Grants
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 for health and safety; 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.
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 hospitals.
Additionally, a separate competition is held for fire prevention and firefighter safety research and
development grants, which are available to national, state, local, or community fire prevention or
safety organizations (including, but not limited to, fire departments). For official program
guidelines, frequently-asked-questions, the latest awards announcements, and other information,
see the Assistance to Firefighters Grant program web page at http://www.firegrantsupport.com/.
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
7
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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(currently 55%). The Assistance to Firefighters Grant Program Reauthorization Act of 2004 (Title
XXXVI of P.L. 108-375) 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
(...continued)
http://www.whitehouse.gov/omb/expectmore/detail/10001071.2007.html.
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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).8 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 department. In these instances where we are
making decisions based on geographic location, we will use States as the basic geographic
unit.9
According to the FY2009 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. 10 However, given that less than 10% of fire grant applications are historically
received from career departments, funding levels are likely not to reach the 45% ceiling for career
departments. Additionally, each fire department that applies is classified as either urban,
suburban, or rural. In FY2005FY2006, 4.3% of the total number of fire grant awards went to urban areas,
17.8% to suburban areas, and 77.7% to rural areas. Of the total amount of federal funding
awarded, 7.7% went to urban areas, 18.2% to suburban areas, and 73.9% to rural areas.11
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. Table 54 shows a state-by-state breakdown of fire grant funding for
FY2001 through FY2007FY2008, while Table 65 shows a state-by-state breakdown of SAFER grant
funding for FY2005 through FY2007FY2008. Table 76 provides an in-depth look at the FY2007FY2008 fire
grants, showing, for each state, the number of fire departments in each state,12 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 6 shows, the entire pool of fire department
applicants received about 14% of the funds they requested in FY2008. This is down from 16% in
FY2007, 21% in FY2006, 22% in FY2005, 28% in FY2004, and 34% in FY2003. This reflects
the fact that the number of applications and federal funds requested have trended upward over
these years, while appropriations for the fire grant program have declined over the same period.
8
15 U.S.C. 2229(b)(9).
44 CFR Part 152.6(c).
10
For the FY2008 round of awards, no less than 34% of AFG funds must be awarded to combination departments, and
no less than 21% of AFG funds must be awarded to all-volunteer departments. See Department of Homeland Security,
Fiscal Year 2009 Assistance to Firefighters Grants: Guidance and Application Kit, April 2009, p. 25.
11
Department of Homeland Security, Grant Programs Directorate, Grant Development and Administration Division,
Report on Fiscal Year 2006 Assistance to Firefighters Grants, p. 11.
12
The fire grant program sets a limit of up to three applications per fire department per year (a vehicle application, an
application for operations and safety, and a regional application). 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.
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awarded as a percentage of funds requested. As Table 7 shows, the entire pool of fire department
applicants received, to date, about 16% of the funds they requested in FY2007. This is down from
21% in FY2006, 22% in FY2005, 28% in FY2004, and 34% in FY2003. This reflects the fact that
the number of applications and federal funds requested have trended upward over these years,
while appropriations for the fire grant program have declined over the same period.
Issues in the 111th Congress
The Obama Administration’s FY2010 budget proposal for firefighter assistance is likely to
receive heightened scrutiny from the fire community, given what was viewed as inadequate past
budget proposals by the Bush Administration, and 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 assistance to firefighters grant
program reauthorization bill, which is expected to be considered during the first session of 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 54. State-by-State Distribution of Fire Grants,
FY2001-FY2007FY2008
(millions of dollars)
FY2001
FY2002
FY2003
FY2004
FY2005
FY2006
FY2007
FY2008
Total
AL
3.085
12.503
23.329
25.097
20.836
22.027
19.903
126.7822.276
149.056
AK
1.303
2.641
5.242
2.522
3.111
0.754
2.454
18.0270.990
19.017
AZ
1.37
3.6
7.490
9.808
7.905
4.041
4.932
39.1464.793
43.939
AR
1.337
4.635
10.675
13.680
10.402
7.699
7.799
56.2276.680
62.907
CA
5.905
18.978
30.060
29.793
25.631
17.856
18.730
146.95324.071
171.024
CO
1.003
3.968
6.168
5.585
6.073
3.213
4.742
30.7522.265
33.017
CT
1.828
4.675
10.841
9.991
7.287
5.479
6.630
46.7316.781
53.512
DE
0.132
0.372
1.096
1.755
1.161
1.107
0.518
0.220
6.361
6.141
DC
0
0.22
0
0
0.453
0
0.376
1.049.376
1.171
2.22
FL
2.865
10.16
16.344
15.969
17.922
6.787
8.288
78.3356. 549
84.883
GA
2.375
6.079
13.791
11.857
10.168
8.887
9.068
62.2257.669
69.894
HI
0
1.182
0.947
0.864
1.205
0.264
0.436
4.8980.772
5.67
ID
0.916
2.744
6.001
4.828
4.684
2.712
4.297
26.1822.428
28.61
IL
2.417
13.398
28.810
27.238
25.433
21.120
21.923
140.33919.961
160.3
IN
2.703
8.739
20.456
18.646
15.779
14.447
13.831
94.60112.134
106.735
IA
1.301
7.284
16.087
16.430
13.119
10.064
9.298
73.5838.805
82.388
KS
1.153
5.118
10.850
10.211
7.165
4.984
5.502
44.9833.624
48.607
KY
2.215
7.896
19.832
16.150
14.215
13.308
13.081
86.69716.384
103.081
LA
3.344
10.084
12.248
11.101
11.630
6.935
5.473
60.8155.978
66.793
ME
1.296
4.319
10.323
10.031
6.124
6.702
5.486
44.281
Congressional Research Service
9
.
Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2001
FY2002
FY2003
FY2004
FY2005
FY2006
FY2007
Total4.490
48.771
MD
0.739
4.08
8.153
10.227
8.771
10.368
7.712
50.055.393
55.443
MA
2.301
8.386
15.715
13.958
13.529
8.957
11.644
74.498.520
83.01
MI
2.815
8.948
17.247
20.005
15.088
15.798
15.399
95.313.895
109.195
MN
2.133
8.149
17.510
18.609
14.894
14.718
16.600
92.61311.833
104.446
MS
1.763
6.755
15.679
11.329
9.856
7.885
8.052
61.3197.480
68.799
Congressional Research Service
0
0
0.453
0
9
Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2001
FY2002
FY2003
FY2004
FY2005
FY2006
FY2007
FY2008
Total
MO
3.079
10.291
19.573
17.757
14.246
13.202
10.611
88.75910.772
99.531
MT
1.164
3.726
8.361
7.271
6.656
5.839
7.330
40.3474.112
44.459
NE
1.034
2.392
7.820
6.577
5.116
4.399
4.443
31.7813.981
35.762
NV
0.282
1.446
3.312
1.405
1.946
0.857
1.530
10.7780.687
11.465
NH
0.594
1.887
4.584
5.694
4.563
3.307
3.219
23.8482.623
26.471
NJ
2.596
6.339
19.982
16.488
14.691
12.386
13.266
85.74811.702
97.45
NM
1.455
3.463
5.048
3.653
2.259
1.461
1.367
18.7060.912
19.618
NY
3.978
14.728
34.320
35.030
36.009
33.804
22.664
180.53327.901
208.434
NC
1.949
10.239
22.864
22.360
19.315
18.309
20.031
115.06716.806
131.873
ND
0.546
2.613
5.105
3.391
2.673
2.459
3.100
19.8872.944
22.831
OH
2.731
13.742
26.997
29.107
27.344
25.380
26.433
151.73424.795
176.529
OK
1.864
4.939
10.540
10.393
8.757
10.852
7.220
54.5656.278
60.843
OR
1.596
4.892
9.896
10.122
10.014
9.288
5.943
51.7518.185
59.936
PA
2.89
16.97
45.179
47.898
39.233
41.259
43.610
237.03937.401
274.44
RI
0.407
1.507
2.327
1.917
2.129
2.025
0.855
11.1671.378
12.545
SC
1.554
5.257
11.832
14.150
10.544
8.028
10.470
61.83510.257
72.092
SD
0.904
3.142
5.602
4.693
3.570
2.989
2.474
23.3741.933
25.307
TN
2.46
11.509
19.306
18.686
15.047
11.209
12.955
91.17215.529
106.701
TX
3.697
15.644
29.264
30.118
23.480
18.035
17.691
137.92918.382
156.311
UT
0.9
2.754
4.628
3.880
2.188
2.213
3.378
19.9410.909
20.85
VT
0.451
1.971
5.163
4.747
2.071
1.456
1.820
17.6791.046
18.725
VA
2.066
8.79
15.816
16.668
14.357
8.317
10.403
76.4177.738
84.155
WA
1.535
7.544
18.808
19.565
15.763
16.150
12.951
92.31611.361
103.677
WV
1.067
3.966
9.942
9.133
10.143
5.838
7.164
47.2536.642
53.895
WI
2.077
7.518
18.234
19.668
17.685
13.994
19.439
98.61513.862
112.477
WY
1.09
1.612
3.507
1.811
2.032
1.197
1.645
12.8941.023
13.917
PR
0.657
0.382
1.643
1.140
1.104
0.528
0.019
0.074
5.547
5.473
MP
0.145
0.225
0
0
0.220
0.172
0
0
0.762
GU
0
0.016
0
0
0
0.287
0
0
0.303
AS
0.164
0
0VI
0.284
0
0
0
0.448
VI
0.741
0
0.544
0
0
0
0
1.285
Tot.
91.972
334.417
Congressional Research Service
695.121
679.305
585.619
491.375
494.221
3372.03
10
.
Assistance to Firefighters Program: Distribution of Fire Grant Funding
Source: Department of Homeland Security. As of March 27, 2009, FY2008 grants continue to be awarded. For
the latest state-by-state statistics for FY2008 fire grants, see http://www.firegrantsupport.com/afg/awards/08/
2008afg_winners_states.aspx
Table 6741
0
Tot
91.972
334.417
0
0.544
695.121
0.284
0
679.305
0
0
0
0
0
0.448
0
0
0
0
1.285
585.619
491.375
494.221
454.403 3826.433
Source: Department of Homeland Security. FY2008 awards data current as of June 10, 2009.
Congressional Research Service
10
Assistance to Firefighters Program: Distribution of Fire Grant Funding
Table 5. State-by-State Distribution of SAFER Grants,
FY2005-FY2007FY2008
(millions of dollars)
FY2005
FY2006
FY2007
FY2008
Total
Alabama
1.611
6.215
4.236
12.0626.418
Alaska
1.051
0.205
0.418
1.674438
3.112
Arizona
1.560
3.559
4.428
9.5474.337
13.884
Arkansas
0.394
1.820
0.377
2.5911.873
4.464
California
5.221
5.212
4.259
14.6923.738
Colorado
1.584
3.479
1.730
6.7931.642
8.435
Connecticut
0.130
0.191
0.856
1.1770.949
2.126
Delaware
0
0.135
0
0.135398
0.533
District of Columbia
0
0
0
0
0
Florida
6.576
9.329
6.217
22.12218.378
40.5
Georgia
5.354
2.085
2.842
10.28111.103
21.384
Hawaii
0
0
0
01.626
1.626
Idaho
0.063
0.621
0.626
0.309
1.619
1.31
Illinois
1.340
4.463
9.933
15.7363.035
18.771
Indiana
0
0.099
2.687
2.7864.877
7.663
Iowa
0.169
0.144
0.980
1.293288
2.581
Kansas
0.667
0.045
1.029
1.741465
3.206
Kentucky
0.152
2.890
0.429
3.4711.335
4.806
Louisiana
3.430
3.078
4.728
11.2363.743
14.979
Maine
0.081
0
0.316
0.397535
0.932
Maryland
0.096
1.862
1.526
3.484171
6.655
Massachusetts
1.300
2.079
4.372
7.7511.823
9.574
Michigan
1.759
0.592
0
2.3510.655
3.006
Minnesota
0.300
1.089
0.375
1.7640.491
2.255
Mississippi
0.756
0.594
0.115
1.4650.875
2.34
Missouri
1.467
3.547
4.551
9.5651.549
11.114
Montana
0.034
0.255
2.635
2.924748
5.672
Nebraska
0
0.873
0.632
1.505951
3.456
Nevada
1.500
1.714
0.632
0
3.846
New Hampshire
0.400
1.035
1.528
2.963
Congressional Research Service
11
.
Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2005
FY2006
FY2007
Total0.008
2.971
New Jersey
6.374
3.971
2.953
13.2983.724
17.022
New Mexico
0
3.123
1.309
0.108
4.544.432
New York
1.540
2.991
2.845
7.3763.579
10.955
North Carolina
2.155
5.533
5.371
13.059
North Dakota
0
0.609
0
0.609
Ohio
1.319
1.881
2.255
5.455
Oklahoma
0.147
0.699
0.531
1.377
Oregon
1.710
2.141
2.649
6.5
Pennsylvania
1.244
1.475
2.633
5.352
Rhode Island
0.400
0
0.105
0.505
South Carolina
0.456
0.863
3.218
4.537
South Dakota
0.063
0.311
0.211
0.585
Tennessee
2.700
2.719
3.683
9.102
Texas
0.951
10.961
8.779
20.691
Utah
0.900
3.312
2.098
6.31
Vermont
0
0.621
0.632
1.253
Virginia
2.091
3.554
0.782
6.427
Washington
2.298
2.897
7.340
12.535
West Virginia
0
0.187
0.681
0.868
Wisconsin
0
0.072
1.223
1.295
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 Palua
0
0
0
0
Total
61.356
105.142
113.665
280.163
Source: Department of Homeland Security. As of March 27, 2009, FY2008 grants continue to be awarded. For
the latest state-by-state statistics for FY2008 fire grants, see http://www.firegrantsupport.com/safer/awards/08/
2008safer_winners_states.aspx
Congressional Research Service
12
.
Assistance to Firefighters Program: Distribution of Fire Grant Funding
Table 7. Requests and Awards for Fire Grant Funding, FY2007
State
Alabama
Number of
fire/EMS
departmentsa
Number of
applications
Federal funds
requested
($millions)
Federal funds
awarded
($millions)
Funds awarded
as a % of funds
requested
958
720
91.230
19.903
21.8%
Alaska
72
72
13.759
2.454
17.8%
Arizona
281
166
36.489
4.932
13.5%
Arkansas
826
458
58.209
7.799
13.3%
California
802
499
100.560
18.730
18.6%
Colorado
371
197
29.258
4.742
16.2%
Connecticut
393
220
40.017
6.630
16.5%
Delaware
77
32
6.217
0.518
8.3%
District of
Columbia
18
2
0.418
0.376
89.9%
Florida
748
293
60.133
8.288
13.7%
Georgia
792
331
57.090
9.068
15.8%
Hawaii
18
4
1.168
0.436
37.3%
Idaho
211
111
18.762
4.297
22.9%
Illinois
1081
858
130.841
21.923
16.7%
Indiana
656
480
83.228
13.831
16.6%
Iowa
862
531
61.512
9.298
15.1%
Kansas
674
298
36.207
5.502
15.1%
Kentucky
797
618
86.117
13.081
15.1%
Louisiana
555
256
40.891
5.473
13.3%
Maine
426
300
41.620
5.486
13.1%
Maryland
408
202
40.003
7.712
19.2%
Massachusetts
407
339
65.842
11.644
17.6%
Michigan
858
755
107.539
15.399
14.3%
Minnesota
768
574
74.210
16.600
22.3%
Mississippi
756
498
64.418
8.052
12.4%
Missouri
862
587
76.915
10.611
13.7%
Montana
279
232
36.531
7.330
20.0%
Nebraska
485
201
23.130
4.443
19.2%
Nevada
159
27
6.640
1.530
23.0%
New
Hampshire
255
143
18.716
3.219
17.1%
New Jersey
1037
609
93.805
13.266
14.1%
New Mexico
337
99
14.804
1.367
9.2%
New York
1880
1238
162.786
22.664
13.9%
NorthCarolina
1407
721
112.471
20.032
17.8%
Congressional Research Service
13
.
Assistance to Firefighters Program: Distribution of Fire Grant Funding
Number of
fire/EMS
departmentsa
State
North Dakota
Number of
applications
Federal funds
requested
($millions)
Federal funds
awarded
($millions)
Funds awarded
as a % of funds
requested
322
163
20.217
3.100
15.3%
1332
984
160.235
26.433
16.4%
Oklahoma
772
478
59.814
7.221
12.0%
Oregon
358
202
31.343
5.943
18.9%
Pennsylvania
2624
2031
299.338
43.611
14.5%
Rhode Island
98
71
13.980
0.855
6.1%
South Carolina
591
381
53.721
10.471
19.4%
South Dakota
345
172
19.604
2.474
12.6%
Tennessee
642
634
84.878
12.955
15.2%
Texas
1873
826
128.511
17.691
13.7%
Utah
219
123
18.785
3.378
17.9%
Vermont
254
115
17.402
1.820
10.4%
Virginia
810
318
56.800
10.403
18.3%
Washington
538
359
74.687
12.951
17.3%
West Virginia
476
299
48.579
7.164
14.7%
Wisconsin
898
746
103.653
19.439
18.7%
Wyoming
134
45
8.843
1.645
18.6%
Ohio
Puerto Rico
Not available
109
7.420
0.019
0.2%
Northern
Marianas
Not available
1
0.204
0
0%
Guam
Not available
1
0.451
0
0%
Total
31,822
20,731
3100.309
494.221
15.94%
Source: Department of Homeland Security.
a.
Data from http://firehouse.com, updated January 2008762
26.821
Congressional Research Service
18.48
18.43
11
Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2005
FY2006
FY2007
FY2008
Total
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
0.868
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.
Congressional Research Service
12
Assistance to Firefighters Program: Distribution of Fire Grant Funding
Table 6. Requests and Awards for Fire Grant Funding, FY2008
State
Alabama
Number of
fire/EMS
departments
Number of
applications
Federal funds
requested
($millions)
Federal
funds
awarded
($millions)
Funds
awarded as a %
of funds
requested
966
779
98.572
22.276
22.5%
Alaska
75
56
11.639
0.990
8.5%
Arizona
283
178
37.546
4.793
12.7%
Arkansas
826
420
57.787
6.680
11.5%
California
823
534
107.544
24.071
22.3%
Colorado
375
166
23.557
2.265
9.6%
Connecticut
401
253
48.993
6.781
13.8%
Delaware
77
34
6.658
0.220
3.3%
District of
Columbia
18
1
1.171
1.171
100.0%
Florida
755
289
61.767
6.549
10.6%
Georgia
799
395
65.445
7.669
11.7%
Hawaii
20
3
0.790
0.772
9.7%
Idaho
212
116
17.866
2.428
13.5%
Illinois
1090
885
139.872
19.961
14.2%
Indiana
670
507
79.752
12.134
15.2%
Iowa
864
560
66.413
8.805
13.2%
Kansas
680
276
36.251
3.624
10.0%
Kentucky
796
630
93.814
16.384
17.4%
Louisiana
557
262
43.389
5.978
13.7%
Maine
431
307
42.884
4.490
10.4%
Maryland
418
205
39.909
5.393
13.5%
Massachusetts
408
349
70.441
8.520
12.1%
Michigan
865
776
110.679
13.895
12.5%
Minnesota
770
521
66.066
11.833
17.9%
Mississippi
756
435
58.775
7.480
12.7%
Missouri
865
520
67.270
10.772
16.0%
Montana
283
193
25.466
4.112
16.1%
Nebraska
486
180
25.167
3.981
15.8%
Nevada
161
32
6.619
0.687
10.3%
New Hampshire
256
145
22.804
2.623
11.5%
New Jersey
1044
618
95.824
11.702
12.2%
New Mexico
341
91
16.717
0.912
5.4%
New York
1894
1315
186.879
27.901
14.9%
North Carolina
1411
728
111.791
16.806
15.0%
Congressional Research Service
13
Assistance to Firefighters Program: Distribution of Fire Grant Funding
State
North Dakota
Number of
fire/EMS
departments
Number of
applications
Federal funds
requested
($millions)
Federal
funds
awarded
($millions)
Funds
awarded as a %
of funds
requested
322
153
21.491
2.944
13.6%
1338
1062
171.359
24.795
14.4%
Oklahoma
772
397
52.973
6.278
11.8%
Oregon
360
231
37.603
8.185
21.7%
Pennsylvania
2635
2255
342.725
37.401
10.9%
Rhode Island
101
74
12.840
1.378
10.7%
South Carolina
592
419
59.058
10.257
17.3%
South Dakota
345
179
23.363
1.933
8.2%
Tennessee
649
660
92.595
15.529
16.7%
Texas
1883
775
132.007
18.382
13.9%
Utah
221
120
17.539
0.909
5.1%
Vermont
255
104
13.314
1.046
7.8%
Virginia
822
327
57.327
7.738
13.4%
Washington
543
357
67.575
11.361
16.8%
West Virginia
476
365
55.026
6.642
12.0%
Wisconsin
901
713
98.293
13.862
14.1%
Wyoming
135
51
7.779
1.023
13.1%
7
8
1.354
0.074
5.4
Ohio
Puerto Rico
Northern
Marianas
Not available
2
0.497
0
0
Virgin Islands
Not available
2
0.437
0
0
Guam
Not available
2
1.145
0
0
Total
30,185
21,015
3212.427
454.403
14.1%
Sources: Department of Homeland Security (FY2008 application and awards data as of 6/10/2009) and
firehouse.com (number of firehouse/EMS departments, updated June 2009).
Author Contact Information
Lennard G. Kruger
Specialist in Science and Technology Policy
lkruger@crs.loc.gov, 7-7070
Congressional Research Service
14