Assistance to Firefighters Program:
Distribution of Fire Grant Funding
Lennard G. Kruger
Specialist in Science and Technology Policy
July 13September 7, 2010
Congressional Research Service
7-5700
www.crs.gov
RL32341
CRS Report for Congress
Prepared for Members and Committees 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 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 tenth year. 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.
P.L. 111-83, the FY2010 Department of Homeland Security appropriations bill, provided $810
million for firefighter assistance, including $390 million for AFG and $420 million for SAFER.
The Administration’s FY2011 budget proposed $305 million for AFG (a 22% decrease from the
FY2010 level) and $305 million for SAFER (a 27% decrease). The total amount requested for
firefighter assistance (AFG and SAFER) was $610 million, a 25% decrease from FY2010.
Meanwhile, on November 18, 2009, the House passed H.R. 3791, the Fire Grants Reauthorization
Act of 2009, which would reauthorize AFG and SAFER through FY2014 and modify the
distribution of fire grant funds. On April 27, 2010, S. 3267, the Fire Grants Reauthorization Act
of 2010, was introduced and referred to the Senate Committee on Homeland Security and
Governmental Affairs. On April 28, the Committee ordered S. 3267 to be reported with an
amendment favorably. Debate over the AFG reauthorization has reflected a competition for
funding between career/urban/suburban departments and volunteer/rural departments. The
urgency of this debate could be heightened by the proposed reduction of overall AFG funding in
FY2011, and the economic downturn in many local communities increasingly hard pressed to
allocate funding for their local fire departments.
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
Contents
Background ................................................................................................................................1
Assistance to Firefighters Grant Program ....................................................................................1
First Reauthorization.............................................................................................................1
Second Reauthorization.........................................................................................................2
House Reauthorization Bill, H.R. 3791............................................................................4
Senate Reauthorization Bill, S. 3267 ...............................................................................6
Appropriations ......................................................................................................................8
FY2010...........................................................................................................................9
FY2011......................................................................................................................... 10
Fire Station Construction Grants in the ARRA........................................................................... 11
SAFER Grants .......................................................................................................................... 11
Program Evaluation .................................................................................................................. 12
Distribution of Fire Grants ........................................................................................................ 13
Issues in the 111th Congress....................................................................................................... 15
Tables
Table 1. Major Provisions of the Assistance to Firefighters Grant Program
Reauthorization Act of 2004.....................................................................................................2
Table 2. Comparison of Selected Provisions in Fire Grant Reauthorization ..................................6
Table 3. Appropriations for Firefighter Assistance, FY2001-FY2010 ...........................................9
Table 4. Recent and Proposed Appropriations for Firefighter Assistance ......................................9
Table 5. State-by-State Distribution of Fire Grants, FY2001-FY2008FY2009....................................... 1516
Table 6. State-by-State Distribution of SAFER Grants, FY2005-FY2008.................................. 1718
Table 7. Requests and Awards for Fire Grant Funding, FY2008FY2009 ................................................. 19
Contacts
Author Contact Information ...................................................................................................... 2021
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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. Although federally funded training programs existed (and continue to exist)
through the National Fire Academy, and although federal money was 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 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 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.
First 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 reauthorized the fire grant program through FY2009. Table 1
provides a summary of key provisions of the first 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 of 2004
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
Second Reauthorization
The current authorization of AFG expired on September 30, 2009; the authorization of SAFER
expires September 30, 2010. On July 8, 2009, the House Committee on Science and Technology,
Subcommittee on Technology & Innovation, held a hearing on the reauthorization of the FIRE
grant programs (both AFG and SAFER).3 Testimony was heard from FEMA and many of the
major fire service organizations including the International Association of Fire Chiefs (IAFC), the
3
See http://science.house.gov/publications/hearings_markups_details.aspx?NewsID=2539.
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International Association of Fire Fighters (IAFF), the National Volunteer Fire Council (NVFC),
and the National Fire Protection Association (NFPA).
A major issue surrounding the fire grant reauthorization is whether the current distribution of fire
grant funds should be altered. Under current law, the majority of funding goes to rural and
volunteer fire departments. This is the case because individual fire departments throughout the
nation apply directly for funding, and there are many more volunteer and rural fire departments
than career and urban/suburban fire departments.4 In general, career departments tend to protect
the more densely populated urban and suburban areas, while volunteer departments tend to
protect more rural areas.
Testimony presented by the International Association of Fire Fighters (IAFF), representing career
(paid) firefighters, argued that under current law, “the overwhelming majority of FIRE grants are
awarded to fire departments that protect a relatively small percentage of the population.”5
According to IAFF, a greater proportion of funding should go to career fire departments
protecting the more densely populated suburban and urban areas, and suggested the following
changes in the fire act statute:
•
professional, volunteer, and combination departments should each be guaranteed
at least 30% of total grant funding each year (under current statute, volunteer and
combination departments must receive no less than 55% of funding; in practice
career departments have received about 20% of AFG funding);
•
funding caps for a single grant should be raised to $10 million for communities
of 1 million population or more, $5 million for communities of 500,000 or more,
$2 million for communities of 100,000 or more, and $1 million for communities
with populations under 100,000 (current statutory caps are $2.75 million for
populations over 1 million, $1.75 million for populations over 500,000, and $1
million for populations under 500,000); and
•
the local match requirement for fire grants should be set at 15% for all applicants,
with DHS having the authority to waive the match requirement for needy
departments (the current statutory matching requirements are 20% for
populations over 50,000, 10% for populations over 20,000, and 5% for
populations less than 20,000).6
On the other hand, testimony from the National Volunteer Fire Council (NFVC) stated that its
main priority for reauthorization of AFG (as well as SAFER) is to extend the programs without
substantial changes, and that “the programs are well-run, distributing funding in an efficient
manner to the most deserving awardees.”7 NVFC argued that volunteer departments are
4
According to the National Fire Protection Association (NFPA), there are an estimated 30,185 fire departments in the
United States (2007 data). Of those, 7.5% are career departments, 5.8% are mostly career, 16.5% are mostly volunteer,
and 70.1% are all volunteer. Most career firefighters (74%) are in communities that protect 25,000 or more people,
while most volunteer firefighters (95%) are in departments that protect fewer than 25,000, and more than half are
located in small, rural departments that protect fewer than 2,500 people.
5
Kevin O’Connor, Assistant to the General President, International Association of Fire Fighters, testimony before the
House Subcommittee on Technology and Innovation, Committee on Science and Technology, July 8, 2009, p. 3,
http://democratsgop.science.house.gov/Media/file/Commdocs/hearings/2009/Tech/8jul/O’Connor_Testimonyhearings/ets09/july8/oconnor.pdf.
6
Ibid.
7
Jack Carriger, First Vice Chairman of the National Volunteer Fire Council, testimony before the House Subcommittee
on Technology and Innovation, Committee on Science and Technology, July 8, 2009, p. 3,
(continued...)
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concentrated in rural communities with smaller tax bases and higher poverty rates, that “DHS
needs assessments have consistently shown that equipment training and apparatus needs are most
acute in volunteer departments,”8 and that since 2001 DHS first responder grants for terrorism
and disaster response have predominantly gone to urban areas.
Meanwhile, other suggested reauthorization changes to the AFG statute made by the July 8
hearing witnesses included:
•
establish DHS waiver authority for the existing local match requirement for
economically challenged jurisdictions (IAFC);
•
establish centers of excellence in fire safety research (IAFC);
•
allow larger grants for regional projects (IAFC);
•
eliminate the cost-share requirement for fire departments in the Fire Prevention
and Firefighter Safety grant program (NFPA and IAFF);
•
designate a minimum of 5% of funding for fire service-based emergency medical
services (NFPA);
•
utilize funds for training and equipment to meet the latest applicable national
voluntary consensus standards available at the time of application (NFPA); and
•
make state training agencies (e.g. state fire academies) eligible for AFG funding
(NVFC).
As manifested in the July 8 hearing, debate over the AFG reauthorization is likely to reflect a
competition for funding primarily between career/urban/suburban departments and
volunteer/rural departments. The urgency of this debate will likely be heightened by probable
reductions in FY2010 AFG funding and by the economic downturn in many local communities
increasingly hard pressed to allocate funding for their local fire departments.
House Reauthorization Bill, H.R. 3791
On October 13, 2009, H.R. 3791, the Fire Grants Reauthorization Act of 2009, was introduced by
Representative Mitchell. The legislation reflects an agreement reached among the major fire
service organizations on the reauthorization language. H.R. 3791 was referred to the House
Committee on Science and Technology, and approved (amended) by the Subcommittee on
Technology and Innovation on October 14, 2009, and by the full Committee on October 21, 2009.
H.R. 3791 was reported (amended) by the Committee on November 7, 2009 (H.Rept. 111-333,
Part I). H.R. 3791 was amended and passed by the House on November 18, 2009. Adopted
amendments included: directing DHS to conduct a survey of fire department compliance with
firefighter safety standards; requiring DHS to give added consideration to applications from areas
with high unemployment; making river rescue organizations eligible for funding; expanding AFG
scope to include equipment that reduces water use; and prohibiting earmarking of funds
appropriated under the act.
(...continued)
http://democrats.science.house.gov/Media/file/Commdocs/hearings/2009/Tech/8jul/Carriger_Testimony.pdf.
8
Ibid.
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H.R. 3791, as passed by the House, would authorize AFG at a level of $1 billion per year through
FY2014 and includes the following major provisions:
•
Grant Money Distribution—directs that grant money should be allocated (to the
extent that there are eligible applicants) as follows: 25% of AFG funding to
career fire departments, 25% to volunteer fire departments, 25% to combination
fire departments, 10% (minimum) for fire prevention, safety, and research grants,
2% (maximum) for volunteer non-fire service EMS and rescue, 3% (maximum)
for fire service training academies, and 10% to be competitive between career,
volunteer and combination departments;
•
Grant Caps – sets maximum individual grant levels at $9 million for jurisdictions
with populations over 2.5 million, $6 million for populations between 1 million
and 2.5 million, $3 million for populations between 500,000 and 1 million, $2
million for populations between 100,000 and 500,000, and $1 million for
populations under 100,000;
•
Matching Requirements—keeps the existing 5% matching requirement for
communities of 20K or less, sets the matching requirement for all other
jurisdictions at 10%, and allows an economic hardship waiver whereby in
“exceptional circumstances” DHS may waive or reduce the matching
requirements;
•
Maintenance of Expenditures – amends the existing maintenance of expenditures
provision to require applicants to maintain budgets at 80% of the average over
the past two years, also allows an economic hardship waiver whereby in
“exceptional circumstances” DHS may waive or reduce the maintenance of
expenditures requirements;
•
Fire Prevention, Research, and Safety Grants—increases available funding from
5% to 10% of total, raises grant maximum from $1 million to $1.5 million,
eliminates the matching requirement for fire departments, and prohibits any
funding to the Association of Community Organizations for Reform Now
(ACORN);
•
University Fire Safety Research Centers – as part of the fire prevention, research,
and safety grants, authorizes DHS to establish no more than three university fire
safety research centers with funding of any one center at not more than $2
million per fiscal year;
•
State Fire Training Academies – allows DHS to award up to 3% of grant funding
to state fire training academies, with individual grants not to exceed $1 million;
•
Voluntary Consensus Standards – directs that grants used for training should be
limited to training that complies with applicable national voluntary consensus
standards, unless a waiver has been granted; and
•
Survey and Task Force on Firefighter Safety – directs DHS to conduct a
nationwide survey to assess whether fire departments are in compliance with the
national voluntary consensus standards for staffing, training, safe operations,
personal protective equipment, and fitness; establishes a Task Force to Enhance
Firefighter Safety to make recommendations to Congress on ways to increase
compliance with firefighter safety standards.
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H.R. 3791 also reauthorizes the SAFER grant program at a level of $1.196 billion per year
through FY2014. The legislation would modify the SAFER grant program by shortening the grant
period to three years, establishing a 20% local matching requirement for each year, removing the
existing federal funding cap per hired firefighter, making national organizations eligible for
recruitment and retention funds, and allowing DHS in the case of economic hardship to waive
cost share requirements, the three year grant period, and/or maintenance of expenditure
requirements.
Senate Reauthorization Bill, S. 3267
On April 27, 2010, S. 3267, the Fire Grants Reauthorization Act of 2010, was introduced and
referred to the Senate Committee on Homeland Security and Governmental Affairs. On April 28,
the Committee ordered S. 3267 to be reported with an amendment favorably. S. 3267 was
reported on July 28, 2010 (S.Rept. 111-235). The Senate bill,
while similar to the House bill, has
a higher nonfederal match requirement for communities over
50K and higher match requirements
for fire prevention and safety grants. Regarding SAFER, the
Senate bill has a higher match
requirement for hiring grants and would continue to require
applicants to retain hired firefighters
for at least one year after the grant expires (unless a waiver
is obtained). For both AFG and
SAFER, certain changes to current law made by the Senate bill
would sunset on October 1, 2015.
Table 2 shows a comparison of selected provisions in the
Senate bill, the House bill, and current
law (15 U.S.C. 2229 and 15 U.S.C. 2229a).
Table 2. Comparison of Selected Provisions in Fire Grant Reauthorization
Current Law
H.R. 3791 as passed by House
S. 3267
Grant money distribution
volunteer and combination fire
departments shall receive a
proportion of the total grant funding
that is not less than the proportion
of the U.S. population that those
departments protect
25% to career fire departments
25% to volunteer fire departments
no less than 25% to career fire
departments
25% to combination fire departments
no less than 25% to volunteer fire
departments
10% competitive between career,
volunteer, and combination
departments
no less than 25% to combination and
paid-on-call fire departments
5% (minimum) to fire prevention and
safety grants
10% (minimum) to fire prevention
and safety grants (includes fire safety
research centers)
10% (minimum) to fire prevention
and safety grants (includes fire safety
research centers)
3.5% (minimum) to EMS provided by
fire departments and nonaffiliated
EMS organizations
2% (maximum) to volunteer non-fire
service EMS
3.5% (minimum) to EMS provided by
fire departments and nonaffiliated
EMS organizations
2% (maximum) to nonaffiliated EMS
organizations
2% (maximum) to nonaffiliated EMS
organizations
3% (maximum) to State fire training
academies, no more than 1 grant and
$1 million per state in a fiscal year
3% (maximum) to State training
academies, no more than $1 million
per state academy in any fiscal year
Joint or Regional applications—two
or more entities may submit an
application to fund a joint or regional
program or initiative, including
acquisition of shared equipment or
vehicles
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Current Law
H.R. 3791 as passed by House
S. 3267
Grant recipient limits
populations over 1 million—lesser of
$2.75 million or 0.5% of total
appropriation
$9 million—over 2.5m population
$9 million—over 2.5m population
$6 million—1m to 2.5m population
$6 million—1m to 2.5m population
populations of 500K to 1 million—
$1.75 million
$3 million—500K to 1m population
$3 million—500K to 1m population
$2 million—100 to 500K population
$2 million—100 to 500K population
populations under 500K—$1 million
$1 million—under 100K population
$1 million—under 100K population
DHS can waive funding limits for
populations up to 2.5 million in
instances of extraordinary need
FEMA may not award a grant
exceeding 1% of all available grant
funds, unless FEMA determines
extraordinary need
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 over 20K
15% for populations over 50K
10% for populations 20K to 50K
5% for populations under 20K
10% for populations 20K to 50K
5% for populations less than 20K
No match requirement for non-fire
department prevention and
firefighter safety grants
5% for populations under 20K
No match requirement for all fire
prevention and firefighter safety
grants
5% match required for fire
prevention and safety grants
Maintenance of expenditures
requires applicants to maintain
expenditures at the same level as the
average over the preceding two fiscal
years
requires applicants to maintain
expenditures at or above 80% of the
average over the preceding two fiscal
years
requires applicants to maintain
expenditures at or above 80% of the
average over the preceding two fiscal
years
Economic hardship waivers
no economic hardship waivers
available
waivers available for nonfederal
matching and maintenance of
expenditures requirements, DHS will
develop economic hardship waiver
criteria in consultation with experts
and interests representing the fire
service and State and local
governments
waivers available for nonfederal
matching and maintenance of
expenditures requirements, FEMA
will develop economic hardship
waiver guidelines considering
unemployment rates, percentages of
individuals eligible to receive food
stamps, and other factors as
appropriate.
Authorization
FY2005—$900 million
FY2010—$1 billion
FY2011—$950 million
FY2006—$950 million
FY2011—$1 billion
FY2007—$1 billion
FY2012—$1 billion
FY2008—$1 billion
FY2013—$1 billion
FY2009—$1 billion
FY2014—$1 billion
for each of FY2012 – FY2015, an
amount equal to the amount
authorized the previous fiscal year,
increased by the percentage by
which the Consumer Price Index for
the previous fiscal year exceeds the
preceding year.
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Current Law
H.R. 3791 as passed by House
S. 3267
SAFER
grant period is 4 years, grantees are
required to retain for at least 1 year
beyond the termination of their
grants those firefighters hired under
the grant
shortens the grant period to three
years, grant recipients are required
to retain for at least the entire 3
years of the grant period those
firefighters hired under the grant
shortens the grant period to three
years, grantees are required to retain
for at least 1 year beyond the
termination of their grants those
firefighters hired under the grant
year 1—10% local match
year 2—20% local match
year 3—50% local match
year 4—70% local match
establishes a 20% local matching
requirement for each year
establishes a 25% local matching
requirement for each year
total funding over 4 years for hiring a
firefighter may not exceed $100K,
adjusted annually for inflation
removes the existing federal funding
cap per hired firefighter
the amount of funding provided for
hiring a firefighter in any fiscal year
may not exceed 75% of the usual
annual cost of a first-year firefighter
in that department
state, local, and Indian tribal
governments eligible for recruitment
and retention funds
additionally makes national
organizations eligible for recruitment
and retention funds
additionally makes national
organizations eligible for recruitment
and retention funds
allows DHS in the case of economic
hardship to waive cost share
requirements, the required
retention period, the prohibition on
supplanting local funds, and/or
maintenance of expenditure
requirements
allows DHS in the case of economic
hardship to waive cost share
requirements, the required
retention period, the prohibition on
supplanting local funds, and/or
maintenance of expenditure
requirements
reauthorizes the SAFER grant
program FY2010 through FY2014 at
a level of $1.196 billion per year
reauthorizes the SAFER grant
program FY2011 through FY2015 at
a level of $950 million per year, with
each year adjusted for inflation
authorized for 7 years starting at $1
billion in FY2004, ending at $1.194
billion in FY2010
Source: Compiled by CRS.
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. Within the DHS/FEMA budget, the firefighter assistance account (which includes both
AFG and SAFER) is located within State and Local Programs as part of the State and Regional
Preparedness Program.
The fire grant program is in its tenth year. Table 3 shows the appropriations history for firefighter
assistance, including AFG, SAFER, and the Fire Station Construction Grants (SCG) provided in
the American Recovery and Reinvestment Act (ARRA). Over $5.2 billion has been appropriated
to the AFG program since FY2001, its initial year. Table 4 shows recent and proposed
appropriated funding for the AFG and SAFER grant programs.
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Table 3. Appropriations for Firefighter Assistance, FY2001-FY2010
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
FY2010
$390 million
$420 million
Total
$5.202 billion
$1.109 billion
a.
$210 million
$985 million
$810 million
$210 million
$6.521 billion
Assistance to Firefighters Fire Station Construction Grants (SCG) grants were funded by the American
Recovery and Reinvestment Act (P.L. 111-5).
Table 4. Recent and Proposed Appropriations for Firefighter Assistance
(millions of dollars)
FY2009
(Admin.
request)
FIRE Grants (AFG)
SAFER Grants
Total
FY2009
(P.L. 110329)
FY2010
(Admin.
request)
FY2010
(P.L. 11183)
FY2011
(Admin.
request)
FY2011
(H.
Subcomm.)
300
565
170
390
305
420
0
210
420
420
305
420
300
775
590
810
610
840
FY2010
For FY2010, the Obama Administration proposed $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) was $590 million, a 24%
decrease from FY2009. The FY2010 budget proposal stated that the firefighter assistance grant
process “will give priority to applications that enhance capabilities for terrorism response and
other major incidents.”9
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 matched the Administration’s request, the
AFG level was 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
9
Office of Management and Budget, Appendix: Budget of the United States Government, FY2010, p. 547.
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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.
The House passed H.R. 2892 on June 24, 2009. During floor consideration of H.R. 2892, the
House approved a manager’s amendment that added $10 million to the AFG account. Therefore,
the House-passed total for AFG was $390 million.
The Senate FY2010 Department of Homeland Security appropriations bill (S. 1298; S.Rept. 11131) provided $800 million for firefighter assistance, including $380 million for AFG and $420
million for SAFER. The Appropriations Committee directed DHS to continue funding
applications according to local priorities and priorities established by the United States Fire
Administration, and to continue direct funding to fire departments and the peer review process.
The Senate passed H.R. 2892 on July 9, 2009. During floor consideration, the Senate adopted an
amendment (S.Amdt. 1458) that added $10 million to the AFG account. Therefore, the Senatepassed total for AFG was also $390 million.
The Conference Report for the Department of Homeland Security Appropriations Act, 2010
(H.Rept. 111-298) was passed by the House on October 15. H.Rept. 111-298 provided $390
million for AFG and $420 million for SAFER, identical to the levels in both the House and
Senate-passed H.R. 2892. The Conferees directed FEMA to continue the present practice of
funding applications according to local priorities and those established by the USFA, to maintain
an all-hazards focus, to grant funds for eligible activities in accordance with the authorizing
statute, and to continue the current grant application and review process as specified in the House
report. The Conference Report was passed by the House on October 15, by the Senate on October
20, and signed into law, P.L. 111-83, on October 28, 2009.
Meanwhile, on December 16, 2009, the House considered legislation intended to create jobs and
passed the Senate amendment to H.R. 2847, which would provide $500 million in additional
FY2010 funding for SAFER. H.R. 2847 directs that any unused funds may be transferred to AFG
after notification to the House and Senate appropriations committees.
FY2011
The Administration’s FY2011 budget proposed $305 million for AFG (a 22% decrease from the
FY2010 level) and $305 million for SAFER (a 27% decrease). The total amount requested for
firefighter assistance (AFG and SAFER) was $610 million, a 25% decrease from FY2010. The
FY2011 budget proposal stated that the firefighter assistance grant process “will give priority to
applications that enhance capabilities for terrorism response and other major incidents.”10
On June 24, 2010, the House Subcommittee on Homeland Security Appropriations approved
$840 million for firefighter assistance, including $420 million for AFG and $420 million for
SAFER.
10
Office of Management and Budget, Appendix: Budget of the United States Government, FY2011, p. 557.
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On July 19, 2010, the Senate Appropriations Committee approved $810 million for firefighter
assistance (including $390 million for AFG and $420 million for SAFER), the same level as
FY2010 and 33% more than the Administration proposal. In the bill report (S.Rept. 111-222), the
Committee directed DHS to continue funding applications according to local priorities and
priorities established by the United States Fire Administration, and to continue direct funding to
fire departments and the peer review process. The Committee also directed FEMA to submit the
U.S. Fire Service Needs Assessment, and to brief the Committee regarding the implementation of
the recommendations of the recent GAO report (GAO-10-64) on additional actions which would
improve the grants process.
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
included a provision (section 603) that waived the matching requirement for SAFER grants
funded by appropriations in FY2009 and FY2010.
The application period for ARRA Assistance to Firefighters Fire Station Construction Grants
(SCG) opened on June 11 and closed on July 10, 2009. There is no cost share requirement for
SCG 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.
DHS/FEMA received 6,025 SCG applications for $9.9 billion in federal funds.11 As of June 11,
2010, 112 SCG grants have been awarded, totaling $200.8 million to fire departments within the
United States. A complete list of SCG awards is available at http://www.firegrantsupport.com/
content/html/scg/Awards09.aspx/.
On July 26, 2010, the Firefighting Investment, Renewal, and Employment Act or FIRE Act (H.R.
5858) was introduced to authorize $210 million for each of fiscal years 2011 through 2015 for
competitive grants for modifying, upgrading, or constructing nonfederal fire stations.
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).
11
Detailed SCG application statistics are available at http://www.firegrantsupport.com/docs/2009AFSCGAppStats.pdf.
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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
11
Detailed SCG application statistics are available at http://www.firegrantsupport.com/docs/2009AFSCGAppStats.pdf.
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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 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 FY2009 and FY2010.
Additionally, the FY2009 Supplemental Appropriations Act (P.L. 111-32) included 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, waivers will
permit grantees to use SAFER funds to rehire laid-off firefighters and fill positions eliminated
through attrition, will allow grants to extend longer than the current five year duration, and will
permit the amount of funding per position at levels exceeding the current limit of $100,000.
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.
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.”12 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
12
For full report see http://www.usfa.fema.gov/downloads/pdf/affgp-fy01-usda-report.pdf.
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through a competitive grant process,”13 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
12
For full report see http://www.usfa.fema.gov/downloads/pdf/affgp-fy01-usda-report.pdf.
13
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.
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approach—including industry driven priority setting and its well-respected peer review
process.”14
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.
In October 2009, GAO sent a report to Congress finding that FEMA has met most statutory
requirements for awarding fire grants.15 GAO recommended that FEMA establish a procedure to
track EMS awards, ensure that grant priorities are better aligned with application questions and
scoring values, and provide specific feedback to rejected applicants.
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
13
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.
14
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.
15
U.S. Government Accountability Office, Fire Grants: FEMA Has Met Most Requirements for Awarding Fire
Grants, but Additional Actions Would Improve Its Grant Process, GAO-10-64, October 2009, http://www.gao.gov/
new.items/d1064.pdf.
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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 and combination 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 (34% for combination, 21% for all-volunteer). 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
14
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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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).1516 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.1617
According to the FY2009FY2010 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. 1718 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
16
17
15 U.S.C. 2229(b)(9).
44 CFR Part 152.6(c).
18
For the FY2010 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 all-volunteer departments. See Department of Homeland Security,
Fiscal Year 2010 Assistance to Firefighters Grants: Guidance and Application Kit, April 2010, p. 26.
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
departments. Additionally, each fire department that applies is classified as either urban,
suburban, or rural. In FY2006, 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.1819
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 5 shows a state-by-state breakdown of fire grant funding for
FY2001 through FY2008FY2009, while Table 6 shows a state-by-state breakdown of SAFER grant
funding for FY2005 through FY2008. Table 7 provides an in-depth look at the FY2008FY2009 fire
grants, showing, for each state, the number of fire departments in each state,1920 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 7 shows, the entire pool of fire department
applicants received about 1516% 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
15
15 U.S.C. 2229(b)(9).
44 CFR Part 152.6(c).
17
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.
18
Department of Homeland Security, Grant Programs Directorate, Grant Development and Administration Division,
Report on Fiscal Year 2006 Assistance to Firefighters Grants, p. 11.
19
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.
16
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FY2009. This compares to 15% in
FY2008, 16% in FY2007, 21% in FY2006, 22% in FY2005, 28% in FY2004, and 34% in
FY2003. The downward trend 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 Administration’s FY2011 budget proposal, if approved, would constitute the lowest funding
level for AFG since FY2001, the initial year of the program. During the second session of the
111th Congress, the proposed FY2011 budget decrease will likely received heightened scrutiny
from the fire community, given the national economic downturn and local budgetary cutbacks
that many fire departments are now facing.
Meanwhile, on November 18, 2009, the House passed H.R. 3791, the Fire Grants Reauthorization
Act of 2009, which would reauthorize AFG and SAFER through FY2014 and modify the
distribution of fire grant funds. On April 27, 2010, S. 3267, the Fire Grants Reauthorization Act
of 2010, was introduced and referred to the Senate Committee on Homeland Security and
Governmental Affairs, which ordered S. 3267 to be reported with an amendment favorably on
April 28. S. 3267 was reported on July 28, 2010 (S.Rept. 111-235). Debate over the AFG
reauthorization has reflected a competition for funding between
career/urban/suburban
departments and volunteer/rural departments. The urgency of this debate
could be heightened by
the proposed reduction of overall AFG funding in FY2011, and the
economic downturn in many
local communities increasingly hard pressed to allocate funding for
their local fire departments.
Table 5. State-by-State Distribution of Fire Grants,
FY2001-FY2008
(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
23.332
150.112
AK
1.303
2.641
5.242
2.522
3.111
0.754
2.454
0.990
19.017
AZ
1.37
3.6
7.490
9.808
7.905
4.041
4.932
5.440
44.586
AR
1.337
4.635
10.675
13.680
10.402
7.699
7.799
7.107
63.334
CA
5.905
18.978
30.060
29.793
25.631
17.856
18.730
26.198
173.151
CO
1.003
3.968
6.168
5.585
6.073
3.213
4.742
2.490
33.242
CT
1.828
4.675
10.841
9.991
7.287
5.479
6.630
6.925
53.656
DE
0.132
0.372
1.096
1.755
1.161
1.107
0.518
0.231
6.372
DC
0
0.22
0
0
0.453
0
0.376
1.171
2.22
FL
2.865
10.16
16.344
15.969
17.922
6.787
8.288
6. 738
85.073
GA
2.375
6.079
13.791
11.857
10.168
8.887
9.068
7.959
70.184
HI
0
1.182
0.947
0.864
1.205
0.264
0.436
0.772
5.67
ID
0.916
2.744
6.001
4.828
4.684
2.712
4.297
2.687
28.869
IL
2.417
13.398
28.810
27.238
25.433
21.120
21.923
21.325
161.664
IN
2.703
8.739
20.456
18.646
15.779
14.447
13.831
13.092
107.693
IA
1.301
7.284
16.087
16.430
13.119
10.064
9.298
9.877
83.46
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FY2001
FY2002
FY2003
FY2004
FY2005
FY2006
FY2007
FY2008
Total
KS
1.153
5.118
10.850
10.211
7.165
4.984
5.502
3.928
48.911
KY
2.215
7.896
19.832
16.150
14.215
13.308
13.081
17.153
103.85
LA
3.344
10.084
12.248
11.101
11.630
6.935
5.473
7.033
67.848
ME
1.296
4.319
10.323
10.031
6.124
6.702
5.486
4.904
49.185
MD
0.739
4.08
8.153
10.227
8.771
10.368
7.712
5.525
55.575
MA
2.301
8.386
15.715
13.958
13.529
8.957
11.644
9.532
84.022
MI
2.815
8.948
17.247
20.005
15.088
15.798
15.399
15.482
110.782
MN
2.133
8.149
17.510
18.609
14.894
14.718
16.600
13.082
105.695
MS
1.763
6.755
15.679
11.329
9.856
7.885
8.052
7.761
69.08
MO
3.079
10.291
19.573
17.757
14.246
13.202
10.611
11.589
100.348
MT
1.164
3.726
8.361
7.271
6.656
5.839
7.330
4.670
45.017
NE
1.034
2.392
7.820
6.577
5.116
4.399
4.443
4.324
36.105
NV
0.282
1.446
3.312
1.405
1.946
0.857
1.530
0.687
11.465
NH
0.594
1.887
4.584
5.694
4.563
3.307
3.219
2.723
26.571
NJ
2.596
6.339
19.982
16.488
14.691
12.386
13.266
13.201
98.949
NM
1.455
3.463
5.048
3.653
2.259
1.461
1.367
1.101
19.807
NY
3.978
14.728
34.320
35.030
36.009
33.804
22.664
30.204
210.737
NC
1.949
10.239
22.864
22.360
19.315
18.309
20.031
18.460
133.527
ND
0.546
2.613
5.105
3.391
2.673
2.459
3.100
3.297
23.184
OH
2.731
13.742
26.997
29.107
27.344
25.380
26.433
26.938
178.672
OK
1.864
4.939
10.540
10.393
8.757
10.852
7.220
6.875
61.44
OR
1.596
4.892
9.896
10.122
10.014
9.288
5.943
8.438
60.189
PA
2.89
16.97
45.179
47.898
39.233
41.259
43.610
41.041
278.08
RI
0.407
1.507
2.327
1.917
2.129
2.025
0.855
1.395
12.562
SC
1.554
5.257
11.832
14.150
10.544
8.028
10.470
11.040
72.875
SD
0.904
3.142
5.602
4.693
3.570
2.989
2.474
2.069
25.443
TN
2.46
11.509
19.306
18.686
15.047
11.209
12.955
16.074
107.246
TX
3.697
15.644
29.264
30.118
23.480
18.035
17.691
20.458
158.387
UT
0.9
2.754
4.628
3.880
2.188
2.213
3.378
0.934
20.875
VT
0.451
1.971
5.163
4.747
2.071
1.456
1.820
1.046
18.725
VA
2.066
8.79
15.816
16.668
14.357
8.317
10.403
8.370
84.787
WA
1.535
7.544
18.808
19.565
15.763
16.150
12.951
13.050
105.366
WV
1.067
3.966
9.942
9.133
10.143
5.838
7.164
7.238
54.491
WI
2.077
7.518
18.234
19.668
17.685
13.994
19.439
15.216
113.831
WY
1.09
1.612
3.507
1.811
2.032
1.197
1.645
1.023
13.917
PR
0.657
0.382
1.643
1.140
1.104
0.528
0.019
0.074
5.547
MP
0.145
0.225
0
0
0.220
0.172
0
0
0.762
Congressional Research Service
16
Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2001
FY2002
FY2003
FY2004
FY2005
FY2006
FY2007
FY2008
Total
GU
0
0.016
0
0
0
0.287
0
0
0.303
AS
0.164
0
0
0.284
0
0
0
0
0.448
VI
0.741
0
0.544
0
0
0
0
0.233
1.518
Tot
91.972
334.417
695.121
679.305
585.619
491.375
494.221
492.527
3864.56
Source: Department of Homeland Security.
19
Department of Homeland Security, Grant Programs Directorate, Grant Development and Administration Division,
Report on Fiscal Year 2006 Assistance to Firefighters Grants, p. 11.
20
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.
Congressional Research Service
15
Assistance to Firefighters Program: Distribution of Fire Grant Funding
Table 5. State-by-State Distribution of Fire Grants,
FY2001-FY2009
(millions of dollars)
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
Total
AL
3.085
12.503
23.329
25.097
20.836
22.027
19.903
23.332
19.966
170.078
AK
1.303
2.641
5.242
2.522
3.111
0.754
2.454
0.990
0.935
19.952
AZ
1.37
3.6
7.490
9.808
7.905
4.041
4.932
5.440
4.716
49.302
AR
1.337
4.635
10.675
13.680
10.402
7.699
7.799
7.107
8.174
71.508
CA
5.905
18.978
30.060
29.793
25.631
17.856
18.730
26.198
23.644
196.795
CO
1.003
3.968
6.168
5.585
6.073
3.213
4.742
2.490
6.11
39.352
CT
1.828
4.675
10.841
9.991
7.287
5.479
6.630
6.925
5.231
58.887
DE
0.132
0.372
1.096
1.755
1.161
1.107
0.518
0.231
1.251
7.623
DC
0
0.22
0
0
0.453
0
0.376
1.171
0
2.22
FL
2.865
10.16
16.344
15.969
17.922
6.787
8.288
6. 738
12.581
97.654
GA
2.375
6.079
13.791
11.857
10.168
8.887
9.068
7.959
8.981
79.165
HI
0
1.182
0.947
0.864
1.205
0.264
0.436
0.772
0.609
6.279
ID
0.916
2.744
6.001
4.828
4.684
2.712
4.297
2.687
2.883
31.752
IL
2.417
13.398
28.810
27.238
25.433
21.120
21.923
21.325
25.24
186.904
IN
2.703
8.739
20.456
18.646
15.779
14.447
13.831
13.092
15.179
122.872
IA
1.301
7.284
16.087
16.430
13.119
10.064
9.298
9.877
9.695
93.155
KS
1.153
5.118
10.850
10.211
7.165
4.984
5.502
3.928
6.682
55.593
KY
2.215
7.896
19.832
16.150
14.215
13.308
13.081
17.153
13.108
116.958
LA
3.344
10.084
12.248
11.101
11.630
6.935
5.473
7.033
8.073
75.921
ME
1.296
4.319
10.323
10.031
6.124
6.702
5.486
4.904
3.462
52.647
MD
0.739
4.08
8.153
10.227
8.771
10.368
7.712
5.525
5.221
60.796
MA
2.301
8.386
15.715
13.958
13.529
8.957
11.644
9.532
11.957
95.979
MI
2.815
8.948
17.247
20.005
15.088
15.798
15.399
15.482
18.045
128.827
MN
2.133
8.149
17.510
18.609
14.894
14.718
16.600
13.082
17.253
122.948
MS
1.763
6.755
15.679
11.329
9.856
7.885
8.052
7.761
8.436
77.516
MO
3.079
10.291
19.573
17.757
14.246
13.202
10.611
11.589
12.973
113.321
MT
1.164
3.726
8.361
7.271
6.656
5.839
7.330
4.670
5.179
50.196
NE
1.034
2.392
7.820
6.577
5.116
4.399
4.443
4.324
4.341
40.446
NV
0.282
1.446
3.312
1.405
1.946
0.857
1.530
0.687
0.855
12.32
NH
0.594
1.887
4.584
5.694
4.563
3.307
3.219
2.723
2.834
29.405
NJ
2.596
6.339
19.982
16.488
14.691
12.386
13.266
13.201
15.502
114.451
NM
1.455
3.463
5.048
3.653
2.259
1.461
1.367
1.101
1.605
21.412
NY
3.978
14.728
34.320
35.030
36.009
33.804
22.664
30.204
23.235
233.972
NC
1.949
10.239
22.864
22.360
19.315
18.309
20.031
18.460
20.881
154.408
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
Total
ND
0.546
2.613
5.105
3.391
2.673
2.459
3.100
3.297
2.527
25.711
OH
2.731
13.742
26.997
29.107
27.344
25.380
26.433
26.938
33.164
211.836
OK
1.864
4.939
10.540
10.393
8.757
10.852
7.220
6.875
7.239
68.679
OR
1.596
4.892
9.896
10.122
10.014
9.288
5.943
8.438
5.986
66.175
PA
2.89
16.97
45.179
47.898
39.233
41.259
43.610
41.041
37.231
315.311
RI
0.407
1.507
2.327
1.917
2.129
2.025
0.855
1.395
2.46
15.022
SC
1.554
5.257
11.832
14.150
10.544
8.028
10.470
11.040
11.227
84.102
SD
0.904
3.142
5.602
4.693
3.570
2.989
2.474
2.069
2.527
27.97
TN
2.46
11.509
19.306
18.686
15.047
11.209
12.955
16.074
13.311
120.557
TX
3.697
15.644
29.264
30.118
23.480
18.035
17.691
20.458
19.469
177.856
UT
0.9
2.754
4.628
3.880
2.188
2.213
3.378
0.934
2.295
23.17
VT
0.451
1.971
5.163
4.747
2.071
1.456
1.820
1.046
1.974
20.699
VA
2.066
8.79
15.816
16.668
14.357
8.317
10.403
8.370
6.405
91.192
WA
1.535
7.544
18.808
19.565
15.763
16.150
12.951
13.050
10.064
115.43
WV
1.067
3.966
9.942
9.133
10.143
5.838
7.164
7.238
5.331
59.822
WI
2.077
7.518
18.234
19.668
17.685
13.994
19.439
15.216
15.17
129.001
WY
1.09
1.612
3.507
1.811
2.032
1.197
1.645
1.023
1.427
15.344
PR
0.657
0.382
1.643
1.140
1.104
0.528
0.019
0.074
1.154
6.701
MP
0.145
0.225
0
0
0.220
0.172
0
0
0
0.762
GU
0
0.016
0
0
0
0.287
0
0
0
0.303
AS
0.164
0
0
0.284
0
0
0
0
0
0.448
VI
0.741
0
0.544
0
0
0
0
0.233
0
1.518
91.972
334.41
695.12
679.30
585.61
491.37
494.22
492.52
503.25
4367.8
Source: Department of Homeland Security.
Congressional Research Service
17
Assistance to Firefighters Program: Distribution of Fire Grant Funding
Table 6. State-by-State Distribution of SAFER Grants,
FY2005-FY2008
(millions of dollars)
FY2005
FY2006
FY2007
FY2008
Total
Alabama
1.611
6.215
4.236
7.314
19.376
Alaska
1.051
0.205
0.418
1.438
3.112
Arizona
1.560
3.559
4.428
6.613
Arkansas
0.394
1.820
0.377
3.834
6.425
California
5.221
5.212
4.259
4 .212
18.904
Colorado
1.584
3.479
1.730
2.02
8.813
Connecticut
0.130
0.191
0.856
3.92
5.097
Delaware
0
0.135
0
0.398
0.533
District of Columbia
0
0
0
0
0
Florida
6.576
9.329
6.217
17.185
39.307
Georgia
5.354
2.085
2.842
17.438
27.719
Hawaii
0
0
0
1.626
1.626
Idaho
0.063
0.621
0.626
0.774
2.084
Illinois
1.340
4.463
9.933
5.85
21.586
Indiana
0
0.099
2.687
4.577
7.363
Iowa
0.169
0.144
0.980
1.288
2.581
Kansas
0.667
0.045
1.029
1.872
3.613
Kentucky
0.152
2.890
0.429
2.466
5.937
Louisiana
3.430
3.078
4.728
8.62
19.856
Maine
0.081
0
0.316
0.951
1.348
Maryland
0.096
1.862
1.526
3.171
6.655
Massachusetts
1.300
2.079
4.372
2.690
10.441
Michigan
1.759
0.592
0
0.628
2.979
Minnesota
0.300
1.089
0.375
3.246
5.01
Mississippi
0.756
0.594
0.115
1.608
3.073
Missouri
1.467
3.547
4.551
2.381
11.946
Congressional Research Service
16.16
17
Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2005
FY2006
FY2007
FY2008
Total
Montana
0.034
0.255
2.635
2.955
5.879
Nebraska
0
0.873
0.632
1.951
3.456
Nevada
1.500
1.714
0.632
0.086
3.932
New Hampshire
0.400
1.035
1.528
0.225
3.188
New Jersey
6.374
3.971
2.953
4.389
17.687
New Mexico
0
3.123
1.309
0.108
4.54
New York
1.540
2.991
2.845
4.412
11.788
North Carolina
2.155
5.533
5.371
18.183
31.242
Congressional Research Service
16.16
18
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
3.737
9.192
Oklahoma
0.147
0.699
0.531
2.782
4.159
Oregon
1.710
2.141
2.649
2.071
8.571
Pennsylvania
1.244
1.475
2.633
3.515
8.867
Rhode Island
0.400
0
0.105
0
0.505
South Carolina
0.456
0.863
3.218
8.158
12.695
South Dakota
0.063
0.311
0.211
0.552
1.137
Tennessee
2.700
2.719
3.683
1.856
10.958
Texas
0.951
10.961
8.779
Utah
0.900
3.312
2.098
3.955
Vermont
0
0.621
0.632
0
1.253
Virginia
2.091
3.554
0.782
1.849
8.276
Washington
2.298
2.897
7.340
9.476
22.011
West Virginia
0
0.187
0.681
0.16
1.028
Wisconsin
0
0.072
1.223
4.502
5.797
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
19.06
203.964
39.751
10.265
203.964
484.127
Source: Department of Homeland Security.
Congressional Research Service
18
Assistance to Firefighters Program: Distribution of Fire Grant Funding
Table 7. Requests and Awards for Fire Grant Funding, FY2008FY2009
State
Alabama
Number of
fire/EMS
departments
Number of
applications
Federal funds
requested
($millions)
Federal
funds
awarded
($millions)
Funds
awarded as a %
of funds
requested
966
779
98.572
23.332
23.7114.977
19.966
17.37%
Alaska
75
56
11.639
0.990
8.5%
Arizona
283
178
37.546
5.440
14.9%
Arkansas
826
420
57.787
7.107
12.3%
California
823
534
107.544
26.198
24.4%
Colorado
375
166
23.557
2.490
10.6%
Connecticut
401
253
48.993
6.925
14.1%
Delaware
77
34
6.658
0.231
3.5%
District of
Columbia
18
1
1.171
1.171
Florida
755
289
61.767
6. 738
10.9%
Georgia
799
395
65.445
7.959
12.2%
Hawaii
20
3
0.790
0.772
97.7%
Idaho
212
116
17.866
2.687
15.0%
Illinois
1090
885
139.872
21.325
15.2%
Indiana
670
507
79.752
13.092
16.4%
Iowa
864
560
66.413
9.877
14.9%
Kansas
680
276
36.251
3.928
10.8%
Kentucky
796
630
93.814
17.153
18.3%
Louisiana
557
262
43.389
7.033
16.2%
Maine
431
307
42.884
4.904
11.4%
Maryland
418
205
39.909
5.525
13.8%
Massachusetts
408
349
70.441
9.532
13.5%
Michigan
865
776
110.679
15.482
14.0%
Minnesota
770
521
66.066
13.082
19.8%
Mississippi
756
435
58.775
7.761
13.2%
Missouri
865
520
67.270
11.589
17.2%
Montana
283
193
25.466
4.670
18.3%
Nebraska
486
180
25.167
4.324
17.2%
Nevada
161
32
6.619
0.687
10.4%
New Hampshire
256
145
22.804
2.723
11.9%
New Jersey
1044
618
95.824
13.201
13.8%
New Mexico
341
91
16.717
1.101
6.6%
New York
1894
1315
186.879
30.204
16.2%
North Carolina
1411
728
111.791
18.460
16.5%
Congressional Research Service
100%
19
Assistance to Firefighters Program: Distribution of Fire Grant Funding
State
North Dakota
Number of
fire/EMS
departments
Number of
applications
Federal funds
requested
($millions)
Federal
funds
awarded
($millions)
Funds
awarded as a %
of funds
requested
322
153
21.491
3.297
15.3%
1338
1062
171.359
26.938
15.7%
Oklahoma
772
397
52.973
6.875
13.0%
Oregon
360
231
37.603
8.438
22.4%
Pennsylvania
2635
2255
342.725
41.041
12.0%
Rhode Island
101
74
12.840
1.395
10.9%
South Carolina
592
419
59.058
11.040
18.7%
South Dakota
345
179
23.363
2.069
8.8%
Tennessee
649
660
92.595
16.074
17.3%
Texas
1883
775
132.007
20.458
15.5%
Utah
221
120
17.539
0.934
5.3%
Vermont
255
104
13.314
1.046
7.8%
Virginia
822
327
57.327
8.370
14.6%
Washington
543
357
67.575
13.050
19.3%
West Virginia
476
365
55.026
7.238
13.1%
Wisconsin
901
713
98.293
15.216
15.5%
Wyoming
135
51
7.779
1.023
13.1%
7
8
1.354
0.074
5.5%
Northern
Marianas
Not available
2
0.497
0
0%
Virgin Islands
Not available
2
0.437
0.233
Guam
Not available
2
1.145
0
Total
30,185
21,015
3212.427
Ohio
Puerto Rico
492.527
53.3%
0%
15.3088
0.935
8.43%
Arizona
283
178
33.907
4.716
13.91%
Arkansas
826
420
51.329
8.174
15.92%
California
823
534
118.658
23.644
19.93%
Congressional Research Service
19
Assistance to Firefighters Program: Distribution of Fire Grant Funding
State
Number of
fire/EMS
departments
Number of
applications
Federal funds
requested
($millions)
Federal
funds
awarded
($millions)
Funds
awarded as a %
of funds
requested
Colorado
375
166
32.238
6.11
18.95%
Connecticut
401
253
42.249
5.231
12.38%
Delaware
77
34
5.219
1.251
23.97%
District of
Columbia
18
1
2.777
0
Florida
755
289
69.808
12.581
18.02%
Georgia
799
395
64.942
8.981
13.83%
Hawaii
20
3
0.867
0.609
70.24%
Idaho
212
116
17.805
2.883
16.19%
Illinois
1090
885
135.105
25.24
18.68%
Indiana
670
507
78.287
15.179
19.39%
Iowa
864
560
60.512
9.695
16.02%
Kansas
680
276
33.304
6.682
20.06%
Kentucky
796
630
89.445
13.108
14.65%
Louisiana
557
262
43.072
8.073
18.74%
Maine
431
307
38.283
3.462
9.04%
Maryland
418
205
32.181
5.221
16.22%
Massachusetts
408
349
68.931
11.957
17.35%
Michigan
865
776
114.942
18.045
15.70%
Minnesota
770
521
75.941
17.253
22.72%
Mississippi
756
435
57.183
8.436
14.75%
Missouri
865
520
77.004
12.973
16.85%
Montana
283
193
29.121
5.179
17.78%
Nebraska
486
180
22.743
4.341
19.09%
Nevada
161
32
6.162
0.855
13.88%
New Hampshire
256
145
25.849
2.834
10.96%
New Jersey
1044
618
93.849
15.502
16.52%
New Mexico
341
91
20.932
1.605
7.67%
New York
1894
1315
175.848
23.235
13.21%
North Carolina
1411
728
122.919
20.881
16.99%
North Dakota
322
153
16.141
2.527
15.66%
1338
1062
155.248
33.164
21.36%
Oklahoma
772
397
51.534
7.239
14.05%
Oregon
360
231
36.695
5.986
16.31%
Pennsylvania
2635
2255
296.739
37.231
12.55%
Rhode Island
101
74
14.173
2.46
17.36%
Ohio
Congressional Research Service
0.00%
20
Assistance to Firefighters Program: Distribution of Fire Grant Funding
State
Number of
fire/EMS
departments
Number of
applications
Federal funds
requested
($millions)
Federal
funds
awarded
($millions)
Funds
awarded as a %
of funds
requested
South Carolina
592
419
67.334
11.227
16.67%
South Dakota
345
179
21.155
2.527
11.95%
Tennessee
649
660
96.677
13.311
13.77%
Texas
1883
775
137.322
19.469
14.18%
Utah
221
120
14.46
2.295
15.87%
Vermont
255
104
10.377
1.974
19.02%
Virginia
822
327
59.621
6.405
10.74%
Washington
543
357
63.019
10.064
15.97%
West Virginia
476
365
49.557
5.331
10.76%
Wisconsin
901
713
92.114
Wyoming
135
51
7.748
1.427
18.42%
7
8
8.233
1.154
14.02%
0.268
0
0.00%
Puerto Rico
15.17
16.47%
Northern
Marianas
Not available
2
Virgin Islands
Not available
2
0.565
0
0.00%
Guam
Not available
2
1.524
0
0.00%
Total
30,185
21,015
3167.966
503.253
15.89%
Sources: Department of Homeland Security 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
2021