Assistance to Firefighters Program:
Distribution of Fire Grant Funding
Lennard G. Kruger
Specialist in Science and Technology Policy
February 14May 17, 2012
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 12th 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).
For FY2012, P.L. 112-74, the Consolidated Appropriations Act, provided $675 million for
firefighter assistance, including $337.5 million for AFG and $337.5 million for SAFER. The
Administration’s FY2013 budget proposed $670 million for firefighter assistance, including $335
million for AFG and $335 million for SAFER. The House Appropriations Committee FY2013 bill
also provides $670 million for firefighter assistance ($335 million for AFG, $335 million for
SAFER), while the Senate Appropriations Committee bill provides $675 million ($337.5 million
for AFG, $337.5 million for SAFER).
On March 10, 2011, S. 550, the Fire Grants Authorization Act of 2011 was introduced into the
112th CongressSenate. Previously in the 111th Congress, reauthorization legislation for AFG and SAFER
was was
passed by the House, but was not passed by the Senate. Debate over the reauthorization
reflected reflected
a competition for funding between career/urban/suburban departments and
volunteer/rural
departments. The urgency of this debate was 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.
On June 22, 2011, H.R. 2269, the Fire Grants Reauthorization Act of 2011, was introduced into
the 112th CongressHouse. H.R. 2269 is virtually identical to House legislation that was passed in the
111th 111th
Congress.
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
Contents
Background...................................................................................................................................... 1
Assistance to Firefighters Grant Program........................................................................................ 1
Reauthorization Act of 2004...................................................................................................... 1
Current Reauthorization ............................................................................................................ 2
House Reauthorization Bill: 111th Congress........................................................................ 3
Senate Reauthorization Bill................................................................................................. 6
Appropriations........................................................................................................................... 9
FY2011.............................................................................................................................. 10
FY2012.............................................................................................................................. 11
FY2013.............................................................................................................................. 12
Fire Station Construction Grants in the ARRA.............................................................................. 13
SAFER Grants ............................................................................................................................... 13
Program Evaluation ....................................................................................................................... 14
Distribution of Fire Grants............................................................................................................. 15
Issues in the 112th Congress........................................................................................................... 17
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 ................................... 7
Table 3. Appropriations for Firefighter Assistance, FY2001-FY2012........................................... 10
Table 4. Recent and Proposed Appropriations for Firefighter Assistance ..................................... 10
Table 5. State-by-State Distribution of FireAFG Grants, FY2001-FY2010 .......................................... 17 18
Table 6. State-by-State Distribution of SAFER Grants, FY2005-FY2010 .................................... 19
Table 7. Requests and Awards for Fire GrantAFG Funding, FY2009 FY2010............................................................ 21
Contacts
Author Contact Information........................................................................................................... 23
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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 Floyd D. Spence National Defense Authorization Act (P.L. 106398).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.
Reauthorization Act of 2004
On October 28, 2004, the President signed the FY2005 Ronald W. Reagan 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 2004 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 §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 Ronald W. Reagan National Defense Authorization Act.
Current Reauthorization
The most recent authorization of AFG expired on September 30, 2009; the authorization of
SAFER expired September 30, 2010. Previously in the 111th Congress, reauthorization legislation
for AFG and SAFER was passed by the House, but was not passed by the Senate. In the 112th
Congress, the Senate reauthorization bill for AFG and SAFER has been reintroduced as S. 550. The
The House bill has been reintroduced as H.R. 2269.
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House Reauthorization Bill: 111th Congress
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 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; the organization suggested the following
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
3
See http://science.house.gov/publications/hearings_markups_details.aspx?NewsID=2539.
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://gop.science.house.gov/Media/hearings/ets09/july8/oconnor.pdf.
4
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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
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 reflected a competition
for funding primarily between career/urban/suburban departments and volunteer/rural
departments. The urgency of this debate was heightened by 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.
On October 13, 2009, H.R. 3791, the Fire Grants Reauthorization Act of 2009, was introduced by
Representative Mitchell. The legislation reflected 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
6
Ibid.
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,
http://democrats.science.house.gov/Media/file/Commdocs/hearings/2009/Tech/8jul/Carriger_Testimony.pdf.
8
Ibid.
7
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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.
H.R. 3791, as passed by the House, would have authorized AFG at a level of $1 billion per year
through FY2014 and included 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
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•
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.
H.R. 3791 also reauthorized the SAFER grant program at a level of $1.196 billion per year
through FY2014. The legislation would have modified 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
On March 10, 2011, S. 550, the Fire Grants Authorization Act of 2011, was introduced by Senator
Lieberman, Chairmanchairman of the Senate Committee on Homeland Security and Governmental Affairs.
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). On May 18, 2011, the Senate Committee on Homeland
Security and Governmental Affairs ordered S. 550 to be reported with two amendments (S.Rept.
112-28). One . One
approved amendment is a requirement that the inspector general of DHS submit to
Congress a
report detailing whether and to what degree the grant programs are duplicative. The
other adopted
amendment would sunset both AFG and SAFER grant programs on October 1,
2016, requiring
the programs to subsequently be reauthorized past that date in order to continue.
Table 2 shows a comparison of selected provisions in S. 550 (as reported), H.R. 2269 (as
introduced), and current law (15 U.S.C. 2229 and 15 U.S.C. 2229a).
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Table 2. Comparison of Selected Provisions in Fire Grant Reauthorization
Current Law (15 U.S.C. 2229
and 15 U.S.C. 2229a)
H.R. 2269 as introduced
S. 550 as reported
Grant money allocation
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
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
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Current Law (15 U.S.C. 2229
and 15 U.S.C. 2229a)
H.R. 2269 as introduced
5% for populations less than 20K
No match requirement for non-fire
department prevention and
firefighter safety grants
S. 550 as reported
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.
Authorizations
FY2005—$900 million
FY2012—$1 billion
FY2012—$950 million
FY2006—$950 million
FY2013—$1 billion
FY2007—$1 billion
FY2014—$1 billion
FY2008—$1 billion
FY2015—$1 billion
FY2009—$1 billion
FY2016—$1 billion
for each of FY2013 – FY2016, 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.
sunset: authority to award grants
shall expire on October 1, 2016
SAFER
grant period is 4 years, grantees are
required to retain for at least 1 year
beyond the termination of their
grants those firefighter positions
hired under the grant
shortens the grant period to three
3 years,
grant recipients are required
to to
retain for at least the entire 3
years years
of the grant period those
firefighter firefighter
positions hired under the
grant
shortens the grant period to three
3 years,
grantees are required to retain
for at
least 1 year beyond the
termination termination
of their grants those
firefighter firefighter
positions 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
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Current Law (15 U.S.C. 2229
and 15 U.S.C. 2229a)
H.R. 2269 as introduced
S. 550 as reported
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
authorized for 7 years starting at $1
billion in FY2004, ending at $1.194
billion in FY2010
reauthorizes the SAFER grant
program FY2012 through FY2016 at
a level of $1.194 billion per year
reauthorizes the SAFER grant
program FY2012 through FY2016 at
a level of $950 million per year, with
each year adjusted for inflation
authority to make grants shall lapse
10 years from November 24, 2003
authority to make grants shall lapse
10 years after date of enactment
authority to award grants shall
expire on October 1, 2016
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 (SLP) as part of the First
Responder Assistance Programs (FRAP).
The fire grant program is in its 12th 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). 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-FY2012
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
$810 million
FY2011
$405 million
$405 million
$810 million
FY2012
$337.5 million
$337.5 million
$675 million
Total
$5.944 billion
$1.851 billion
a.
$210 million
$210 million
$985 million
$8.005 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)
FY2010FY2011
(Admin.
request)
FY2010FY2011
(P.L.
111-83)
FY2011112-10)
FY2012
(Admin.
request)
FY2011FY2012
(P.L.
112-10)
FY201274)
FY2013
(Admin.
request)
FY2012
(P.L.
112-74)
FY2013
(Admin.
requestFY2013
(House
Approp.
Comm.)
FY2013
(Senate
Approp.
Comm.)
FIRE
Grants
(AFG)
170
390
305
405
250
337.5
335
SAFER
Grants
420
420335
337.5
SAFER
Grants
305
405
420
337.5
335
Total
590
810335
337.5
Total
610
810
670
675
670
670
675
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
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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.”9
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.
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.
H.R. 1, the Full-Year Continuing Appropriations Act, 2011, as introduced on February 11, 2011,
would have provided $300 million to AFG and zero funding for SAFER. However, on February
16, 2011, H.Amdt. 22338 (offered by Representative Pascrell and agreed to by the House by a vote
of of
318-113) restored AFG to $390 million and SAFER to $420 million (the FY2010 levels). H.R.
1 1
was passed by the House on February 18, 2011. S.Amdt. 149 to H.R. 1—which was rejected by
the full Senate on March 9, 2011—would have funded AFG at $405 million and SAFER at $405
million.
Subsequently, the full-year continuing appropriation bill for FY2011, which was signed into law
on April 15, 2011 (Department of Defense and Continuing Appropriations Act, 2011, P.L. 112-10)
11210), funded AFG at $405 million and SAFER at $405 million for FY2011. P.L. 112-10 also contained
contained language that removes FY2011 SAFER cost-share requirements and allows SAFER
grants to be
used to rehire laid-off firefighters and fill positions eliminated through attrition.
However, P.L.
112-10 did not remove the requirement that SAFER grants fund a firefighter
position for four
years, with the fifth year funded wholly by the grant recipient. The law also did
not waive the cap
of $100K per firefighter hired by a SAFER grant.
FY2012
The Administration’s FY2012 budget proposed $670 million for firefighter assistance, including
$250 million for AFG and $420 million for SAFER. According to the budget proposal, the
request would fund 2,200 firefighter positions and approximately 5,000 AFG grants. The FY2012
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
The Department of Homeland Security Appropriations, 2012, bill (H.R. 2017) was reported by
the House Appropriations Committee on May 26, 2011. The House Committee bill would have
provided $350 million for firefighter assistance, including $200 million for AFG and $150 million
for SAFER. The House Appropriations bill report (H.Rept. 112-91) directed FEMA to continue
9
Office of Management and Budget, Appendix: Budget of the United States Government, FY2011, p. 557.
Office of Management and Budget, Appendix: Budget of the United States Government, FY2012, p. 538.
10
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granting funds directly to local fire departments and to include the United States Fire
Administration during the grant decision process. FEMA was also directed to maintain an allhazards focus and was prohibited from limiting beyond current law the list of eligible activities,
including those related to wellness.
During the House floor consideration of H.R. 2017, two firefighter assistance amendments were
adopted. The first amendment (offered by Mr. LaTourette and Mr. Pascrell, and agreed to by a
recorded vote of 333-87) raised FY2012 funding levels to $335 million for AFG and $335 million
for SAFER. The total level for firefighter assistance ($670 million) is equal to the level requested
by the Administration.
The second amendment (offered by Mr. Price of North Carolina and agreed to by a recorded vote
of 264-157) prohibited enforcement of various SAFER requirements for grantees. These waivers
would allow FY2012 SAFER grants to be used to rehire laid-off firefighters and fill positions
eliminated through attrition, remove cost-share requirements, allow grants to extend longer than
the current five year duration, and permit the amount of funding per position at levels exceeding
the current limit of $100,000.
The Department of Homeland Security Appropriations, 2012, bill (H.R. 2017) was passed by the
House on June 2, 2011.
On September 7, 2011, the Senate Appropriations Committee approved $750 million for
firefighter assistance in FY2012 (S.Rept. 112-74), which is a 12% increase over the House-passed
level. The total included $375 million for AFG and $375 million for SAFER. As does the House
bill, the Senate bill also waived or prohibited SAFER requirements in FY2012.
P.L. 112-74, the Consolidated Appropriations Act, FY2012, provided $675 million for firefighter
assistance, including $337.5 million for AFG and $337.5 million for SAFER. The conference
report directed FEMA to continue funding applications according to local priorities and those
established by the USFA, to maintain an all hazards focus, and to continue the current grant
application and review process as specified in the House report.
FY2013
The Administration’s FY2013 budget proposed $670 million for firefighter assistance, including
$335 million for AFG and $335 million for SAFER. This is a decrease of $5 million from the
FY2012 level. The Firefighter Assistance Grants would be categorized under First Responder
Assistance Programs (FRAP), one of three activities under FEMA’s State and Local Programs
(SLP) appropriation.
Historically, DHS has requested that a percentage of AFG funding (up to 5%) be set aside for
management and administration of the grant program. Starting in FY2013, grant administration
(for AFG and SAFER) would be shifted to the SLP Management and Administration office.
According to DHS, this will make an additional $28.8 million of the Firefighter Assistance
appropriation available for grants.
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On May 16, 2012, The House Appropriations Committee approved its version of the FY2013
Department of Homeland Security appropriations bill. The Committee mark is identical to the
Administration requested level—$335 million for AFG and $335 million for SAFER. However,
the Committee denied the Administration’s request to shift AFG and SAFER into the State and
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Local Programs account. The Committee report directed FEMA to continue granting funds
directly to local fire departments and to include the United States Fire Administration during the
grant decision process. FEMA was also directed to maintain an all-hazards focus and was
prohibited from limiting beyond current law the list of eligible activities, including those related
to wellness. The Committee continued the requirement for peer review and directed FEMA to
provide official notifications to rejected applicants who do not meet the criteria for peer review.
On May 15, 2012, the Senate Homeland Security Appropriations Subcommittee approved $675
million for firefighter assistance for FY2013. This level includes $337.5 million for AFG and
$337.5 million for SAFER. The Senate level is identical to the FY2012 level.
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 (§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 October 1,
2010, 119 SCG grants were awarded, totaling $207.461 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 February 15, 2011, the Firefighting Investment, Renewal, and Employment Act or FIRE Act
(H.R. 716) was introduced to authorize $210 million for each of fiscal years 2012 through 2016
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
11
Detailed SCG application statistics are available at http://www.firegrantsupport.com/docs/2009AFSCGAppStats.pdf.
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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 $1 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%
11
Detailed SCG application statistics are available at http://www.firegrantsupport.com/docs/2009AFSCGAppStats.pdf.
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in the second year, 50% in the third year, and 30% in the fourth year. The grantee must commit to
retaining the firefighter or firefighters hired with the SAFER grant for at least one additional year
after the federal money expires. Total federal funding for hiring a firefighter over the four-year
grant period may not exceed $100,000, although that total may be adjusted for inflation. While
the majority of hiring grants will be awarded to career and combination fire departments, the
SAFER Act specifies that 10% of the total SAFER appropriation be awarded to volunteer or
majority-volunteer departments for the hiring of personnel.
Additionally, at least 10% of the total SAFER appropriation is set aside for recruitment and
retention grants, which are available to volunteer and combination fire departments for activities
related to the recruitment and retention of volunteer firefighters. Also eligible for recruitment and
retention grants are local and statewide organizations that represent the interests of volunteer
firefighters. No local cost sharing is required for recruitment and retention grants.
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
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
12
For full report see http://www.usfa.fema.gov/downloads/pdf/affgp-fy01-usda-report.pdf.
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.
13
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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.”14
12
For full report see http://www.usfa.fema.gov/downloads/pdf/affgp-fy01-usda-report.pdf.
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.
13
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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.
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.
In June 2011, the National Fire Protection Association (NFPA) released its Third Needs
Assessment of the U.S. Fire Service, which seeks to identify gaps and needs in the fire service,
and measures the impact that fire grants have had on filling those gaps and needs. According to
the study:
Needs have declined to a considerable degree in a number of areas, particularly personal
protective and firefighting equipment, two types of resource that received the largest shares
of funding from the Assistance to Firefighters grants (AFG). Declines in needs have been
more modest in some other important areas, such as training, which have received much
smaller shares of AFG grant funds.16
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
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.
16
National Fire Protection Association, Third Needs Assessment of the U.S. Fire Service, June 2011, abstract. Available
at http://www.nfpa.org/assets/files//2011NeedsAssessment.pdf.
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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
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.
16
National Fire Protection Association, Third Needs Assessment of the U.S. Fire Service, June 2011, abstract. Available
at http://www.nfpa.org/assets/files//2011NeedsAssessment.pdf.
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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
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
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).17 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.18
According to the FY2011 Program Guidance for the Assistance to Firefighters Program, career
(paid) departments will compete against other career departments for up to 47% of the available
funding, while volunteer and combination departments will compete for at least 53% of the
17
18
15 U.S.C. 2229(b)(9).
44 CFR Part 152.6(c).
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available funding.19 However, given that less than 10% of fire grant applications are historically
received from career departments, funding levels are likely not to reach the 47% ceiling for career
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.20
17
15 U.S.C. 2229(b)(9).
44 CFR Part 152.6(c).
19
For the FY2011 round of awards, no less than 33.5% of AFG funds must be awarded to combination departments,
and no less than 19.5% of AFG funds must be awarded to all-volunteer departments. See Department of Homeland
Security, Assistance to Firefighters Grants, Guidance and Application Kit, Section I, August 2011, p. 41.
20
Department of Homeland Security, Grant Programs Directorate, Grant Development and Administration Division,
Report on Fiscal Year 2006 Assistance to Firefighters Grants, p. 11.
18
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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 FY2010, while Table 6 shows a state-by-state breakdown of SAFER grant
funding for FY2005 through FY2010. Table 7 provides an in-depth look at the FY2009FY2010 fire
grants, showing, for each state, the number of fire departments in each state,21 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 1613% of the funds
they requested in FY2009FY2010. This compares to 16% in FY2009, 15% in 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 thesethe years, while appropriations for the fire grant program
have have typically declined over the
same period.
Issues in the 112th Congress
Because the 111th Congress did not enact the Fire Grants Reauthorization Act, the 112th Congress
may revisit the issue, and may consider whether and how to modify the reauthorization bills. On
March 10, 2011, S. 550, the Fire Grants Authorization Act of 2011, was introduced; on May 18,
2011, S. 550 was ordered to be reported by the Committeecommittee. On June 22, 2011, a House version of
the Fire Grants Reauthorization Act of 2011 (H.R. 2269) was introduced. 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
possible reductions of overall AFG funding and the economic downturn in many local
communities increasingly hard pressed to allocate funding for their local fire departments.
Meanwhile, the Second Sessionsecond session of the 112th Congress is considering the Administration’s FY2013
request for AFG and SAFER. As is the case with many federal programs, concerns in the 112th
Congress over the federal budget deficit could impact budget levels for AFG and SAFER. At the
same time, firefighter assistance budgets will likely receive heightened scrutiny from the fire
community, given the national economic downturn and local budgetary cutbacks that many fire
departments are now facing.
Table 5. State-by-State Distribution of Fire
19
For the FY2011 round of awards, no less than 33.5% of AFG funds must be awarded to combination departments,
and no less than 19.5% of AFG funds must be awarded to all-volunteer departments. See Department of Homeland
Security, Assistance to Firefighters Grants, Guidance and Application Kit, Section I, August 2011, p. 41.
20
Department of Homeland Security, Grant Programs Directorate, Grant Development and Administration Division,
Report on Fiscal Year 2006 Assistance to Firefighters Grants, p. 11.
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Table 5. State-by-State Distribution of AFG Grants, FY2001-FY2010
(millions of dollars)
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10
Total
AL
3.085
12.503
23.329
25.097
20.836
22.027
19.903
23.332
19.966
14.591
184.669
AK
1.303
2.641
5.242
2.522
3.111
0.754
2.454
0.990
0.935
0.568
20.52
AZ
1.37
3.6
7.490
9.808
7.905
4.041
4.932
5.440
4.716
2.873
52.175
AR
1.337
4.635
10.675
13.680
10.402
7.699
7.799
7.107
8.174
5.111
76.619
21
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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FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10
Total
CA
5.905
18.978
30.060
29.793
25.631
17.856
18.730
26.198
23.644
21.860CA
5.905
18.978
30.060
29.793
25.631
17.856
18.730
26.198
23.644
21.764
218.655
CO
1.003
3.968
6.168
5.585
6.073
3.213
4.742
2.490
6.11
3.369
42.721
CT
1.828
4.675
10.841
9.991
7.287
5.479
6.630
6.925
5.231
3.166
62.053
DE
0.132
0.372
1.096
1.755
1.161
1.107
0.518
0.231
1.251
0.282
7.905
DC
0
0.22
0
0
0.453
0
0.376
1.171
0
0.368
2.588
FL
2.865
10.16
16.344
15.969
17.922
6.787
8.288
6. 738
12.581
12.557
110.211
GA
2.375
6.079
13.791
11.857
10.168
8.887
9.068
7.959
8.981
6.192
85.357
HI
0
1.182
0.947
0.864
1.205
0.264
0.436
0.772
0.609
0.261
6.54
ID
0.916
2.744
6.001
4.828
4.684
2.712
4.297
2.687
2.883
2.361
34.113
IL
2.417
13.398
28.810
27.238
25.433
21.120
21.923
21.325
25.24
14.809
201.713
IN
2.703
8.739
20.456
18.646
15.779
14.447
13.831
13.092
15.179
10.759
133.631
IA
1.301
7.284
16.087
16.430
13.119
10.064
9.298
9.877
9.695
5.818
98.973
KS
1.153
5.118
10.850
10.211
7.165
4.984
5.502
3.928
6.682
3.055
58.648
KY
2.215
7.896
19.832
16.150
14.215
13.308
13.081
17.153
13.108
8.081
125.039
LA
3.344
10.084
12.248
11.101
11.630
6.935
5.473
7.033
8.073
4.414
80.335
ME
1.296
4.319
10.323
10.031
6.124
6.702
5.486
4.904
3.462
1.348
53.995
MD
0.739
4.08
8.153
10.227
8.771
10.368
7.712
5.525
5.221
4.545
65.341
MA
2.301
8.386
15.715
13.958
13.529
8.957
11.644
9.532
11.957
8.083
104.062
MI
2.815
8.948
17.247
20.005
15.088
15.798
15.399
15.482
18.045
9.502
138.329
MN
2.133
8.149
17.510
18.609
14.894
14.718
16.600
13.082
17.253
18.923
141.871
MS
1.763
6.755
15.679
11.329
9.856
7.885
8.052
7.761
8.436
5.66
83.176
MO
3.079
10.291
19.573
17.757
14.246
13.202
10.611
11.589
12.973
9.21
122.531
MT
1.164
3.726
8.361
7.271
6.656
5.839
7.330
4.670
5.179
3.204
53.4
NE
1.034
2.392
7.820
6.577
5.116
4.399
4.443
4.324
4.341
0.441
40.887
NV
0.282
1.446
3.312
1.405
1.946
0.857
1.530
0.687
0.855
1.437
13.757
NH
0.594
1.887
4.584
5.694
4.563
3.307
3.219
2.723
2.834
1.496
30.901
NJ
2.596
6.339
19.982
16.488
14.691
12.386
13.266
13.201
15.502
9.687
124.138
NM
1.455
3.463
5.048
3.653
2.259
1.461
1.367
1.101
1.605
1.632
23.044
NY
3.978
14.728
34.320
35.030
36.009
33.804
22.664
30.204
23.235
13.367
247.339
NC
1.949
10.239
22.864
22.360
19.315
18.309
20.031
18.460
20.881
13.137
167.545
ND
0.546
2.613
5.105
3.391
2.673
2.459
3.100
3.297
2.527
1.594
27.305
OH
2.731
13.742
26.997
29.107
27.344
25.380
26.433
26.938
33.164
20.386
232.222
OK
1.864
4.939
10.540
10.393
8.757
10.852
7.220
6.875
7.239
3.527
72.206
OR
1.596
4.892
9.896
10.122
10.014
9.288
5.943
8.438
5.986
6.332
72.507
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10
Total
PA
2.89
16.97
45.179
47.898
39.233
41.259
43.610
41.041
37.231
19.677
334.988
RI
0.407
1.507
2.327
1.917
2.129
2.025
0.855
1.395
2.46
1.533
16.555
SC
1.554
5.257
11.832
14.150
10.544
8.028
10.470
11.040
11.227
8.684
92.786
SD
0.904
3.142
5.602
4.693
3.570
2.989
2.474
2.069
2.527
0.753
28.723
TN
2.46
11.509
19.306
18.686
15.047
11.209
12.955
16.074
13.311
11.259
131.816
TX
3.697
15.644
29.264
30.118
23.480
18.035
17.691
20.458
19.469
9.941
187.797
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY01
FY02
FY03
FY04
FY05
FY06
FY07
FY08
FY09
FY10
Total
UT
0.9
2.754
4.628
3.880
2.188
2.213
3.378
0.934
2.295
2.985
26.155
VT
0.451
1.971
5.163
4.747
2.071
1.456
1.820
1.046
1.974
0.689
21.388
VA
2.066
8.79
15.816
16.668
14.357
8.317
10.403
8.370
6.405
5.991
97.183
WA
1.535
7.544
18.808
19.565
15.763
16.150
12.951
13.050
10.064
7.961
123.391
WV
1.067
3.966
9.942
9.133
10.143
5.838
7.164
7.238
5.331
5.074
64.896
WI
2.077
7.518
18.234
19.668
17.685
13.994
19.439
15.216
15.17
9.569
138.57
WY
1.09
1.612
3.507
1.811
2.032
1.197
1.645
1.023
1.427
0.086
15.43
PR
0.657
0.382
1.643
1.140
1.104
0.528
0.019
0.074
1.154
0
6.701
MP
0.145
0.225
0
0
0.220
0.172
0
0
0
0.7
1.462
0.762
GU
0
0.016
0
0
0
0.287
0
0
0
0
0.303
AS
0.164
0
0
0.284
0
0
0
0
0
0
0.448
VI
0.741
0
0.544
0
0
0
0
0.233
0
0
1.518
91.97
334.41
695.12
679.30
585.61
491.37
494.22
492.52
503.25
338.91337.84
4706
Source: Department of Homeland Security. Current as of October 7, 2011.
Table 6. State-by-State Distribution of SAFER Grants,
FY2005-FY2010
(millions of dollars)
FY2005
FY2006
FY2007
FY2008
FY2009
FY2010
Total
Alabama
1.611
6.215
4.236
7.314
4.288
8.531
32.195
Alaska
1.051
0.205
0.418
1.438
0.328
6.072
9.512
Arizona
1.560
3.559
4.428
6.613
6.768
10.357
33.285
Arkansas
0.394
1.820
0.377
3.834
0.976
2.206
9.607
California
5.221
5.212
4.259
4 .212
31.501
63.13
113.535
Colorado
1.584
3.479
1.730
2.02
0.955
3.384
13.152
Connecticut
0.130
0.191
0.856
3.92
2.214
3.496
10.807
Delaware
0
0.135
0
0.398
0
1.723
2.256
District of Columbia
0
0
0
0
0
0
0
Florida
6.576
9.329
6.217
17.185
24.105
17.721
81.133
Georgia
5.354
2.085
2.842
17.438
4.844
10.384
42.947
0
0
0
1.626
0
0.1
1.726
Idaho
0.063
0.621
0.626
0.774
1.336
2.897
6.317
IllinoisHawaii
Idaho
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2005
Illinois
FY2006
FY2007
FY2008
FY2009
FY2010
Total
1.340
4.463
9.933
5.85
2.496
10.848
34.93
0
0.099
2.687
4.577
8.295
9.931
25.589
Iowa
0.169
0.144
0.980
1.288
1.045
0.081
3.707
Kansas
0.667
0.045
1.029
1.872
2.806
2.285
8.704
Kentucky
0.152
2.890
0.429
2.466
0.338
0.893
7.168
Hawaii
Indiana
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2005
FY2006
FY2007
FY2008
FY2009
FY2010
Total
Louisiana
3.430
3.078
4.728
8.62
10.515
0.182
30.553
Maine
0.081
0
0.316
0.951
0.739
1.047
3.134
Maryland
0.096
1.862
1.526
3.171
4.429
2.145
13.229
Massachusetts
1.300
2.079
4.372
2.690
18.385
34.422
63.248
Michigan
1.759
0.592
0
0.628
13.286
22.493
38.758
Minnesota
0.300
1.089
0.375
3.246
1.256
0.789
7.055
Mississippi
0.756
0.594
0.115
1.608
0
1.209
4.282
Missouri
1.467
3.547
4.551
2.381
1.474
5.618
19.038
Montana
0.034
0.255
2.635
2.955
0.458
0.973
7.31
0
0.873
0.632
1.951
0.802
0.493
4.751
Nevada
1.500
1.714
0.632
0.086
0.577
2.459
6.968
New Hampshire
0.400
1.035
1.528
0.225
0
0.353
3.541
New Jersey
6.374
3.971
2.953
4.389
0.556
56.648
74.891
0
3.123
1.309
0.108
0.499
1.854
6.893
New York
1.540
2.991
2.845
4.412
8.227
18.239
38.254
North Carolina
2.155
5.533
5.371
18.183
2.256
6.375
39.873
0
0.609
0
1.518
1.517
2.139
5.783
Ohio
1.319
1.881
2.255
3.737
29.606
21.04
59.838
Oklahoma
0.147
0.699
0.531
2.782
0
9.127
13.286
Oregon
1.710
2.141
2.649
2.071
0.677
6.166
15.414
Pennsylvania
1.244
1.475
2.633
3.515
1.176
7.926
17.969
Rhode Island
0.400
0
0.105
0
1.561
4.249
6.315
South Carolina
0.456
0.863
3.218
8.158
2.41
2.064
17.169
South Dakota
0.063
0.311
0.211
0.552
0
0.648
1.785
Tennessee
2.700
2.719
3.683
1.856
1.148
7.374
19.48
Texas
0.951
10.961
8.779
19.06
3.158
12.65
55.559
Utah
0.900
3.312
2.098
3.955
1.824
4.583
16.672
0
0.621
0.632
0
0.119
0
1.372
Virginia
2.091
3.554
0.782
1.849
4.891
8.995
22.162
Washington
2.298
2.897
7.340
9.476
2.847
13.779
38.637
West Virginia
0
0.187
0.681
0.16
0.287
0.398
1.713
Wisconsin
0
0.072
1.223
4.502
0
0.12
5.917
Indiana
Nebraska
New Mexico
North Dakota
Vermont
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2005
FY2006
FY2007
FY2008
FY2009
FY2010
Total
Wyoming
0
0
0.316
2.329
0.263
0.997
3.905
Puerto Rico
0
0
0
0
0
0
0
Northern Mariana Islands
0
0
0
0
0
1.404
1.404
Marshall Islands
0
0
0
0
0
0
0
Guam
0
0
0
0
0
0
0
Nebraska
New Mexico
North Dakota
Vermont
Congressional Research Service
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
FY2005
FY2006
FY2007
FY2008
FY2009
FY2010
Total
American Samoa
0
0
0
0
0
0
0
Virgin Islands
0
0
0
0
0
0
0
Republic of Palau
0
0
0
0
0
0
0
61.356
105.142
113.665
203.964
207.258
413.017
1104.402
Total
Source: Department of Homeland Security. Current as of October 7, 2011.
Table 7. Requests and Awards for Fire GrantAFG Funding, FY2009FY2010
State
Alabama
Number of
fire/EMS
departments
Number of
applications
Federal funds
requested
($millions)
Federal
funds
awarded
($millions)
Funds
awarded as
a %
of funds
requested
966
779
114.977
19.966
17.37%
Alaska
75
56
11.088
0.935
8.43%
Arizona
283
178
33.907
4.716
13.91%
Arkansas
826
420
51.329
8.174
15.92%
California
823
534
118.658
23.644
19.93%
Colorado
375
166
32.238
6.11
18.95%
Connecticut
401
253
42.249
5.231
12.38%
Delaware
77
34
5.219
1.251
23.97%
District of
Columbia
18
1
2.777
0
Florida
755
289
69.808
12.581
18.02%
Georgia
799
395
64.942
8.981
13.83%
Hawaii
20
3
0.867
0.609
70.24%
Idaho
212
116
17.805
2.883
16.19%
Illinois
1090
885
135.105
25.24
18.68%
Indiana
670
507
78.287
15.179
19.39%
Iowa
864
560
60.512
9.695
16.02%
Kansas
680
276
33.304
6.682
20.06%
Kentucky
796
630
89.445
13.108
14.65%
Louisiana
557
262
43.072
8.073
18.74%
Maine
431
307
38.283
3.462
9.04%
Maryland
418
205
32.181
5.221
16.22%
Massachusetts
408
349
68.931
11.957
17.35%
Michigan
865
776
114.942
18.045
15.70%
Minnesota
770
521
75.941
17.253
22.72%
Mississippi
756
435
57.183
8.436
14.75%
Congressional Research Service
0.00%
of funds
requested
674
96.316
14.591
15.15%
Alaska
45
9.954
0.568
5.71%
Arizona
126
27.556
2.873
10.43%
Arkansas
300
44.642
5.111
11.45%
California
455
105.692
21.764
20.59%
Colorado
162
30.098
3.369
11.19%
Connecticut
201
37.739
3.166
8.39%
21
3.569
0.282
7.90%
2
0.447
0.368
82.33%
Florida
253
55.369
12.557
22.68%
Georgia
298
49.05
6.192
12.62%
Delaware
District of Columbia
Hawaii
2
0.534
0.261
48.88%
Idaho
94
14.085
2.361
16.76%
Illinois
679
116.024
14.809
12.76%
Indiana
386
58.256
10.759
18.47%
Iowa
369
45.45
5.818
12.80%
Kansas
203
27.591
3.055
11.07%
Kentucky
451
72.725
8.081
11.11%
Louisiana
197
33.435
4.414
13.20%
Maine
192
24.753
1.348
5.45%
Maryland
162
28.625
4.545
15.88%
Congressional Research Service
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Assistance to Firefighters Program: Distribution of Fire Grant Funding
State
Number of
fire/EMS
departments
Number of
applications
Federal funds
requested
($millions)
Federal
funds
awarded
($millions)
Funds
awarded as
a %
of funds
requested
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%
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%
Ohio
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) of funds
requested
Massachusetts
301
57.184
8.083
14.14%
Michigan
551
84.256
9.502
11.28%
Minnesota
419
69.131
18.923
27.37%
Mississippi
335
44.81
5.66
12.63%
Missouri
428
53.502
9.21
17.21%
Montana
141
21.442
3.204
14.94%
Nebraska
133
17.792
0.441
2.48%
25
5.142
1.437
27.95%
New Hampshire
110
16.886
1.496
8.86%
New Jersey
484
87.821
9.687
11.03%
New Mexico
63
11.924
1.632
13.69%
Nevada
New York
975
136.33
13.367
9.80%
North Carolina
645
102.416
13.137
12.83%
North Dakota
91
13.401
1.594
11.89%
Ohio
950
156.989
20.168
12.85%
Oklahoma
241
31.97
3.527
11.03%
Oregon
171
30.766
6.332
20.58%
Pennsylvania
1641
229.005
19.623
8.57%
Rhode Island
57
14.264
1.533
10.75%
South Carolina
378
50.393
8.684
17.23%
South Dakota
117
16.182
0.753
4.65%
Tennessee
517
78.254
11.259
14.39%
Texas
593
94.696
9.941
10.50%
Utah
93
16.076
2.985
18.57%
Vermont
84
11.737
0.689
5.87%
Virginia
237
43.841
5.991
13.67%
Washington
275
46.474
7.961
17.13%
West Virginia
273
44.61
5.074
11.37%
Wisconsin
584
80.314
9.569
11.91%
Wyoming
35
3.623
0.086
2.37%
Puerto Rico
8
1.499
0
0.00%
Northern Marianas
1
0.56
0
0.00%
Virgin Islands
2
0.355
0
0.00%
Guam
1
0.224
0
0.00%
338
13.23%
Total
16,231
2555
Source: Department of Homeland Security.
Congressional Research Service
22
Assistance to Firefighters Program: Distribution of Fire Grant Funding
Author Contact Information
Lennard G. Kruger
Specialist in Science and Technology Policy
lkruger@crs.loc.gov, 7-7070
Congressional Research Service
23