Assistance to Firefighters Program:
Distribution of Fire Grant Funding
Lennard G. Kruger
Specialist in Science and Technology Policy
March 20, 2014
Congressional Research Service
7-5700
www.crs.gov
RL32341

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 14th year. The Fire Act statute was reauthorized in 2012 (Title
XVIII of P.L. 112-239) and provides new 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).
The Consolidated Appropriations Act, 2014 (P.L. 113-76), signed into law on January 17, 2014,
funds AFG at $340 million and SAFER at $340 million. The Administration’s FY2014 budget
proposed $670 million for firefighter assistance, including $335 million for AFG and $335
million for SAFER.
The 113th Congress is considering FY2015 budget appropriations for AFG and SAFER. As is the
case with many federal programs, concerns 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 local budgetary cutbacks that many fire
departments are facing.

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Assistance to Firefighters Program: Distribution of Fire Grant Funding

Contents
Background ...................................................................................................................................... 1
Assistance to Firefighters Grant Program ........................................................................................ 1
Fire Grants Reauthorization Act of 2012 ................................................................................... 1
Appropriations ........................................................................................................................... 4
FY2013 ................................................................................................................................ 5
FY2014 ................................................................................................................................ 6
FY2015 ................................................................................................................................ 7
Fire Station Construction Grants in the ARRA ................................................................................ 7
SAFER Grants ................................................................................................................................. 8
Program Evaluation ......................................................................................................................... 8
Reports Mandated by Fire Grants Reauthorization Act of 2012 ............................................... 9
Distribution of Fire Grants ............................................................................................................. 10
Issues in the 113th Congress ........................................................................................................... 12

Tables
Table 1. Key Provisions of Fire Grant Reauthorization ................................................................... 2
Table 2. Appropriations for Firefighter Assistance, FY2001-FY2014 ............................................. 4
Table 3. Recent and Proposed Appropriations for Firefighter Assistance ....................................... 5
Table 4. State-by-State Distribution of AFG Grants, FY2001-FY2012 ......................................... 12
Table 5. State-by-State Distribution of SAFER Grants, FY2005-FY2012 .................................... 14
Table 6. Requests and Awards for AFG Funding, FY2010 ............................................................ 15

Contacts
Author Contact Information........................................................................................................... 17

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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, there did not exist
a dedicated program, exclusively for firefighters, which provided federal money directly to local
fire departments to help address a wide variety of equipment, training, and other firefighter-
related needs.
Assistance to Firefighters Grant Program
During the 106th Congress, many in the fire community asserted that local fire departments
require and deserve greater support from the federal government. The Assistance to Firefighters
Grant Program (AFG), 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. 106-
398).1 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.
Since its establishment, the Assistance to Firefighters Grant program has been reauthorized twice.
The first reauthorization was Title XXXVI of the FY2005 Ronald W. Reagan National Defense
Authorization Act (P.L. 108-375), which authorized the program through FY2009. The second
and current reauthorization is Title XVIII, Subtitle A of the FY2013 National Defense
Authorization Act (P.L. 112-239), which authorizes the program through FY2017 and modifies
program rules for disbursing grant money.
Fire Grants Reauthorization Act of 2012
On January 2, 2013, the President signed P.L. 112-239, the FY2013 National Defense
Authorization Act. Title XVIII, Subtitle A is the Fire Grants Reauthorization Act of 2012, which
authorizes the fire grant program through FY2017. Table 1 provides a summary of key provisions
of the 2012 reauthorization, and provides a comparison with the previous statute.

1 “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. Key Provisions of Fire Grant Reauthorization
Previous Statute
Fire Grant Reauthorization Act of 2012
(15 U.S.C. 2229 and 15 U.S.C. 2229a)
(Title XVIII of P.L. 112-239)
Grant money allocation
volunteer and combination fire departments shall receive
not less than 25% to career fire departments
a proportion of the total grant funding that is not less
than the proportion of the U.S. population that those
not less than 25% to volunteer fire departments
departments protect
not less than 25% to combination and paid-on-call fire
departments
not less than 10% for open competition among career,
volunteer, combination, and paid-on-cal fire departments
5% (minimum) to fire prevention and safety grants
not less than 10% to fire prevention and safety grants
no fire prevention and safety grant may exceed $1.5
million
includes establishment of fire-safety research centers to
conduct research to improve firefighter health and safety
no fire prevention and safety grant may be provided to
the Association of Community Organizations for Reform
Now (ACORN)
3.5% (minimum) to EMS provided by fire departments
not less than 3.5% to EMS provided by fire departments
and nonaffiliated EMS organizations
and nonaffiliated EMS organizations
2% (maximum) to nonaffiliated EMS organizations
not more than 2% to nonaffiliated EMS organizations

not more than 3% to State training academies, no more
than $1 million per state academy in any fiscal year

not more than 25% for purchasing vehicles
Grant recipient limits
populations over 1 million—lesser of $2.75 million or
$9 million—over 2.5m population
0.5% of total appropriation
$6 million—1m to 2.5m population
populations of 500K to 1 million—$1.75 million
$3 million—500K to 1m population
populations under 500K—$1 million
$2 million—100K to 500K population
no single grant can exceed 0.5% of total funds
appropriated for a single fiscal year
$1 million—under 100K population
DHS can waive the funding limits for populations up to 1
FEMA may not award a grant exceeding 1% of all
million in instances of extraordinary need; however the
available grant funds, unless FEMA determines
lesser of $2.75 million or 0.5% limit cannot be waived
extraordinary need
Nonfederal match requirements
20% for populations over 50,000
15% for populations over 1 million
10% for populations 20,000 to 50,000
10% for populations 20,000 to 1 mil ion
5% for populations less than 20,000
5% for populations under 20,000
No match requirement for non-fire department
5% match required for fire prevention and safety grants
prevention and firefighter safety grants
Maintenance of expenditures
requires applicants to maintain expenditures at the same
requires applicants to maintain expenditures at or above
level as the average over the preceding two fiscal years
80% of the average over the preceding two fiscal years

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Previous Statute
Fire Grant Reauthorization Act of 2012
(15 U.S.C. 2229 and 15 U.S.C. 2229a)
(Title XVIII of P.L. 112-239)
Economic hardship waivers
no economic hardship waivers available
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 levels
FY2005—$900 million
FY2013—$750 million
FY2006—$950 million
for each of FY2014-FY2017, an amount equal to the
amount authorized the previous fiscal year, increased by
FY2007—$1 billion
the percentage by which the Consumer Price Index for
FY2008—$1 billion
the previous fiscal year exceeds the preceding year.
FY2009—$1 billion

Congressionally Directed Spending
no funds may be used for any congressional y directed
no provision
spending item (as defined under the rules of the Senate
and the House of Representatives)
Sunset
the authority to award assistance and grants shall expire
none
five years after the date of enactment
SAFER grants
grant period is 4 years, grantees are required to retain
shortens the grant period to three years, with no
for at least 1 year beyond the termination of their grants
requirement that fire departments must retain SAFER
those firefighter positions hired under the grant
funded firefighters for an extra year
year 1—10% local match
year 1—25% local match
year 2—20% local match
year 2—25% local match
year 3—50% local match
year 3—65% local match
year 4—70% local match

total funding over 4 years for hiring a firefighter may not
for the first year, the amount of funding provided for
exceed $100K, adjusted annually for inflation
hiring a firefighter may not exceed 75% of the usual
annual cost of a first-year firefighter in that department
at the time the grant application was submitted
for the second year, the amount of funding provided for
hiring a firefighter may not exceed 75% of the usual
annual cost of a first-year firefighter in that department
at the time the grant application was submitted
for the third year, the amount of funding provided for
hiring a firefighter may not exceed 35% of the usual
annual cost of a first-year firefighter in that department
at the time the grant application was submitted
state, local, and Indian tribal governments eligible for
additionally makes national organizations eligible for
recruitment and retention funds
recruitment and retention funds

allows FEMA, in the case of economic hardship, to waive
cost share requirements, as well as the prohibition on
supplanting local funds and maintenance of expenditure
requirements (which would al ow grants to be used for
retention and rehiring laid-off firefighters)
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Previous Statute
Fire Grant Reauthorization Act of 2012
(15 U.S.C. 2229 and 15 U.S.C. 2229a)
(Title XVIII of P.L. 112-239)
authorized for 7 years starting at $1 billion in FY2004,
reauthorizes the SAFER grant program at $750 million
ending at $1.194 billion in FY2010
for FY2013; for each of FY2014-FY2017, 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
no funds may be used for any congressional y directed
spending item (as defined under the rules of the Senate
and the House of Representatives)
authority to make grants shall lapse 10 years from
the authority to award assistance and grants shall expire
November 24, 2003
five years after the date of enactment
Source: Fire Grants Reauthorization Act of 2012, Title VIII, Subtitle A of FY2013 National Defense
Authorization Act, P.L. 112-239.
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 14th year. Table 2 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 of 2009 (ARRA). Table 3 shows recent and
proposed appropriated funding for the AFG and SAFER grant programs.
Table 2. Appropriations for Firefighter Assistance, FY2001-FY2014

AFG
SAFER
SCGa Total
FY2001 $100
million

$100 million
FY2002 $360
million

$360 million
FY2003 $745
million

$745 million
FY2004 $746
million

$746 million
FY2005 $650
million $65
million
$715 million
FY2006 $539
million $109
million
$648 million
FY2007 $547
million $115
million
$662 million
FY2008 $560
million $190
million
$750 million
FY2009 $565
million $210
million $210
million $985 million
FY2010 $390
million $420
million
$810 million
FY2011 $405
million $405
million
$810 million
FY2012 $337.5
million $337.5
million
$675 million
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AFG
SAFER
SCGa Total
FY2013 $321
million $321
million
$642 million
FY2014 $340
million $340
million
$680 million
Total
$6.60 billion
$2.51 billion
$210 million
$9.32 billion
a. Assistance to Firefighters Fire Station Construction Grants (SCG) grants were funded by the American
Recovery and Reinvestment Act (P.L. 111-5).

Table 3. Recent and Proposed Appropriations for Firefighter Assistance
(millions of dollars)
FY2013
FY2014
FY2015
(Admin.
FY2013
(Admin.
FY2014
(Admin.

request)
(P.L. 113-6)
request)
(P.L. 113-76)
request)
FIRE Grants (AFG)
335
321a
335
340
335
SAFER Grants
335
321a
335
340
335
Total
670 642a 670
680
670
a. Post-sequester level according to U.S. Department of Homeland Security Fiscal Year 2013 Post-Sequestration
Operating Plan.
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.
On May 16, 2012, the House Appropriations Committee approved its version of the FY2013
Department of Homeland Security appropriations bill (H.R. 5855). While the committee mark is
identical to the Administration requested level—$335 million for AFG and $335 million for
SAFER—the committee denied the Administration’s request to shift AFG and SAFER into the
State and Local Programs account. Unlike the Administration request, H.R. 5855 would designate
up to 4.7% of the amount appropriated to firefighter assistance for program administration. The
committee report (H.Rept. 112-492) 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.
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During floor action on June 6, 2012, an amendment was offered by Representative Runyan to
increase funding for AFG and SAFER by $2.5 million each, taking its $5 million offset from the
Office of the Under Secretary for Management. The amendment passed by voice vote, bringing
the firefighter assistance account to $675 million ($337.5 million AFG, $337.5 million SAFER),
which is identical to the FY2012 level. H.R. 5855 was passed by the House on June 7, 2012.
On May 22, 2012, the Senate Appropriations Committee approved $675 million for firefighter
assistance for FY2013 (S. 3216). This level includes $337.5 million for AFG and $337.5 million
for SAFER. The Senate level is identical to the FY2012 level. Like the House, the committee
denied the Administration’s request to shift AFG and SAFER into the State and Local Programs
account. However, the committee has included program and administration costs separately under
the FEMA “Salaries and Expenses” account. The committee report (S.Rept. 112-169) noted that
under this scenario, the entire appropriation of $675 million would be used for grants, while
administrative costs ($33.75 million) would be funded by the Salaries and Expenses account. The
committee report also directed DHS to continue the practice of funding applications according to
local priorities and those established by the USFA, and to continue direct funding to fire
departments and the peer review process.
The Consolidated and Further Continuing Appropriations Act, 2013 (P.L. 113-6) funds AFG and
SAFER at $337.055 million each (equal to the FY2012 level minus a 0.1% across-the-board
reduction). Additionally, AFG and SAFER are subject to sequestration. Both programs are part of
the State and Local Programs budget account within FEMA, which is subject to a 5.0% cut from
the FY2013 level. According to DHS, AFG and SAFER are cut by 5%, which yields FY2013
budget levels of $320.92 million for AFG and $320.92 million for SAFER.2 However, the amount
of grant money available for AFG and SAFER is expected to be virtually unchanged from
FY2012. This is because P.L. 113-6 provides that administrative costs are to be derived from the
FEMA Salaries and Expense account, rather than (as is typically the case) from a 5% carve-out
from the firefighter assistance (AFG and SAFER) appropriations account.
FY2014
The Administration’s FY2014 budget proposed $670 million for firefighter assistance, including
$335 million for AFG (of which $20 million supports Fire Prevention and Safety) and $335
million for SAFER. Funding for management and administration would be drawn from a separate
FEMA account (Salaries and Expenses). 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.
On May 29, 2013, the House Appropriations Committee approved its version of the FY2014
Department of Homeland Security appropriations bill (H.R. 2217). The committee recommended
$675 million for firefighter assistance ($337.5 million for AFG, $337.5 million for SAFER).
Funding for management and administration would be drawn from the FEMA Salaries and
Expenses account. The committee again denied the Administration’s request to shift AFG and
SAFER into the State and Local Programs account. The committee report (H.Rept. 113-91)
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

2 Department of Homeland Security, U.S. Department of Homeland Security Fiscal Year 2013 Post-Sequestration
Operating Plan, April 26, 2013, p. 17.
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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.
During floor action on June 5, 2013, an amendment was offered by Representative Runyan to
increase funding for AFG and SAFER by $2.5 million each, taking its $5 million offset from the
Office of the Under Secretary for Management. The amendment passed by voice vote, bringing
the firefighter assistance account to $680 million ($340 million AFG, $340 million SAFER). H.R.
2217 was passed by the House on June 6, 2013.
On July 18, 2013, the Senate Appropriations Committee approved $675 million for firefighter
assistance for FY2013 (S.Rept. 113-77). This level included $337.5 million for AFG and $337.5
million for SAFER. As did the House, the Senate Appropriations Committee denied the
Administration’s request to shift AFG and SAFER into the State and Local Programs account,
and included language that continues waivers to various SAFER restrictions and limitations. The
Committee directed DHS to continue the present practice of funding applications according to
local priorities and those established by the USFA, and to continue direct funding to fire
departments and the peer review process. The Committee also stated its expectation that funding
for rural fire departments remain consistent with their previous five-year history, and that FEMA
shall brief the Committee if there is an anticipated fluctuation.
The Consolidated Appropriations Act, 2014 (P.L. 113-76), signed into law on January 17, 2014,
funds AFG at $340 million and SAFER at $340 million. As was the case in FY2013,
administrative costs are to be derived from the FEMA Salaries and Expense account.
FY2015
The Administration’s FY2014 budget proposed $670 million for firefighter assistance, including
$335 million for AFG and $335 million for SAFER. Funding for management and administration
would be drawn from a separate FEMA account (Salaries and Expenses). 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.
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
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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.3 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.fema.gov/rules-tools/
assistance-firefighters-station-construction-grants.
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
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. 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.”4 Another evaluation of
the fire grant program was released by the DHS Office of Inspector General in September 2003.
The report concluded that the program “succeeded in achieving a balanced distribution of funding
through a competitive grant process,”5 and made a number of specific recommendations for
improving the program.

3 Detailed SCG application statistics are available at http://www.firegrantsupport.com/docs/2009AFSCGAppStats.pdf.
4 For full report see http://www.usfa.fema.gov/downloads/pdf/affgp-fy01-usda-report.pdf.
5 Department of Homeland Security, Office of Inspections, Evaluations, and Special Reviews, “A Review of the
Assistance to Firefighters Grant Program,” OIG-ISP-01-03, September 2003, p. 3. Available at http://www.dhs.gov/
xoig/assets/mgmtrpts/OIG_Review_Fire_Assist.pdf.
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At the request of DHS, the National Academy of Public Administration conducted a study to help
identify potential new strategic directions for the Assistance to Firefighters Grant program and to
provide advice on how to effectively plan, manage, and measure program accomplishments.
Released in April 2007, the report recommended consideration of new strategic directions related
to national preparedness, prevention vs. response, social equity, regional cooperation, and
emergency medical response. According to the report, the “challenge for the AFG program will
be to support a gradual shift in direction without losing major strengths of its current management
approach—including industry driven priority setting and its well-respected peer review process.”6
The 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.7 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.8
Reports Mandated by Fire Grants Reauthorization Act of 2012
P.L. 112-239 mandates reports and studies on the AFG and SAFER programs, as well as on the
state of the fire service.
• FEMA is directed to develop a performance assessment system to evaluate AFG
and SAFER grants. FEMA shall submit annual reports to Congress providing

6 National Academy of Public Administration, Assistance to Firefighters Grant Program: Assessing Performance,
April 2007, p. xvii. Available at http://www.napawash.org/pc_management_studies/
Fire_Grants_Report_April2007.pdf.
7 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.
8 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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information on its performance assessment system, an evaluation of AFG and
SAFER grant effectiveness, and recommendations for legislative changes to
improve grant effectiveness.
• The Comptroller General is directed to submit a report to Congress assessing the
effect of the amendments to the AFG and SAFER statute made by the Fire Grants
Reauthorization of 2012.
• The United States Fire Administration (USFA) is directed to conduct a study on
the level of compliance with national voluntary consensus standards for staffing,
training, safe operations, personal protective equipment, and fitness among the
fire services of the United States.
• The Secretary of Homeland Security is directed to establish a Task Force to
Enhance Firefighter Safety, which will review the USFA study on fire service
standards and develop a plan to enhance firefighter safety by increasing fire
service standards compliance. The Task Force will report its findings to Congress
and DHS.
• USFA is directed to conduct a study and report on the needs of the fire service.
Distribution of Fire Grants
The AFG statute prescribes different purposes for which fire grant money may be used. These are
training firefighting personnel; creating rapid intervention teams; certifying fire inspectors and
building inspectors whose responsibilities include fire safety inspections and who are associated
with a fire department; establishing wellness and fitness programs, including mental health
programs; funding emergency medical services (EMS) provided by fire departments and
nonaffiliated EMS organizations; acquiring firefighting vehicles; acquiring firefighting
equipment; acquiring personal protective equipment; modifying fire stations, fire training
facilities, and other facilities for health and safety; educating the public about arson prevention
and detection; providing incentives for the recruitment and retention of volunteer firefighters; and
supporting other activities as FEMA determines appropriate. FEMA has the discretion to decide
which of those purposes will be funded for a given grant year. Since the program commenced in
FY2001, the majority of fire grant funding has been used by fire departments to purchase
firefighting equipment, personal protective equipment, and firefighting vehicles.
Eligible applicants are limited primarily to fire departments (defined as an agency or organization
that has a formally recognized arrangement with a state, local, or tribal authority to provide fire
suppression, fire prevention, and rescue services to a population within a fixed geographical
area). Emergency Medical Services (EMS) activities are eligible for fire grants, including a
limited number 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 fire departments; national, state, local, tribal, or
nonprofit organizations recognized for their fire safety or prevention expertise; and to institutions
of higher education, national fire service organizations, or national fire safety organizations to
establish and operate fire safety research centers. For official program and application guidelines,
frequently-asked-questions, the latest awards announcements, and other information, see the
Assistance to Firefighters Grant program web page at http://www.fema.gov/welcome-assistance-
firefighters-grant-program.
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The FIRE Act statute provides overall guidelines on how fire grant money will be distributed.
Previously, the law directed 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). Reflecting concerns that
career fire departments (which are primarily in urban and suburban areas) were not receiving
adequate levels of funding, the Fire Grants Authorization Act of 2012 alters the distribution
formula, directing that not less than 25% of annual AFG funding go to career fire departments,
not less than 25% to volunteer fire departments, not less than 25% to combination and paid-on-
call fire departments, and not less than 10% for open competition among career, volunteer,
combination, and paid-on-call fire departments. Additionally, P.L. 112-239 raises award caps (up
to $9 million) and lowers matching requirements for fire departments serving higher population
areas.
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).9 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.10
Additionally, each fire department that applies is classified as either urban, suburban, or rural. In
FY2010, 75.1% of applications were received from rural fire departments, 17.7% from suburban,
and 7.2% from urban. This translated into rural departments requesting 66.7% of federal funds,
suburban departments requesting 21.5%, and urban departments requesting 11.8%.11
Finally, in an effort to maximize the diversity of awardees, the geographic location of an applicant
(using states as the basic geographic unit) is used as a deciding factor in cases where applicants
have similar qualifications. Table 4 shows a state-by-state breakdown of fire grant funding for
FY2001 through FY2012, while Table 5 shows a state-by-state breakdown of SAFER grant
funding for FY2005 through FY2012. Table 6 provides an in-depth look at the FY2010 fire
grants, showing, for each state, the number of fire grant applications, the total amount requested,
the total amount awarded, and the amount of funds awarded as a percentage of funds requested.
As Table 6 shows, the entire pool of fire department applicants received about 13% of the funds
they requested in FY2010. This compares to 16% in FY2009, 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 the amount of federal funds requested have

9 15 U.S.C. 2229(b)(9).
10 44 CFR Part 152.6(c).
11 FEMA, FY2010 Assistance to Firefighter Grant Application Statistics, available at http://www.fema.gov/media-
library/assets/documents/26138?fromSearch=fromsearch&id=5744.
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Assistance to Firefighters Program: Distribution of Fire Grant Funding

trended upward over the years, while appropriations for the fire grant program have typically
declined over the same period.
Issues in the 113th Congress
The 113th Congress is considering FY2015 budget appropriations for AFG and SAFER. As is the
case with many federal programs, concerns 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 local budgetary cutbacks that many fire
departments are now facing.
The 113th Congress will also likely examine the impact of new grant distribution guidelines
mandated by P.L. 112-239, the Fire Grant Authorization Act of 2012. The continuing issue is how
effectively grants are being distributed and used to protect the health and safety of the public and
firefighting personnel against fire and fire-related hazards.
Table 4. State-by-State Distribution of AFG Grants, FY2001-FY2012
(millions of dollars)

FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08 FY09 FY10 FY11 FY12 Total
AL
3.085 12.503 23.329 25.097 20.836 22.027 19.903 23.332 19.966 14.591 18.591 11.943 215.203
AK
1.303 2.641 5.242 2.522 3.111 0.754 2.454 0.990 0.935 0.568 0.568 1.375 22.463
AZ
1.37 3.6 7.490 9.808 7.905 4.041 4.932 5.440 4.716 2.873 4.952 3.781 60.908
AR
1.337 4.635 10.675 13.680 10.402 7.699 7.799 7.107 8.174 5.111 4.253 4.009 84.881
CA
5.905 18.978 30.060 29.793 25.631 17.856 18.730 26.198 23.644 21.764 35.334 21.467 275.36
CO 1.003 3.968 6.168 5.585 6.073 3.213 4.742 2.490 6.11 3.369 5.213 2.175 50.109
CT
1.828 4.675 10.841 9.991 7.287 5.479 6.630 6.925 5.231 3.166 3.67 4.085 69.808
DE
0.132 0.372 1.096 1.755 1.161 1.107 0.518 0.231 1.251 0.282 0.366 0.199 8.47
DC
0 0.22
0 0 0.453
0 0.376
1.171
0 0.368
1.38
0 3.968
FL
2.865 10.16 16.344 15.969 17.922 6.787 8.288 6.
738 12.581 12.557 16.2 9.782 136.193
GA
2.375 6.079 13.791 11.857 10.168 8.887 9.068 7.959 8.981 6.192 5.174 5.849 96.38
HI
0
1.182 0.947 0.864 1.205 0.264 0.436 0.772 0.609 0.261 1.534 0.433 8.507
ID
0.916 2.744 6.001 4.828 4.684 2.712 4.297 2.687 2.883 2.361 0.439 2.069 36.621
IL
2.417 13.398 28.810 27.238 25.433 21.120 21.923 21.325 25.24 14.809 12.753 12.508 226.974
IN
2.703 8.739 20.456 18.646 15.779 14.447 13.831 13.092 15.179 10.759 7.728 4.696 146.055
IA
1.301 7.284 16.087 16.430 13.119 10.064 9.298 9.877 9.695 5.818 6.629 2.978 108.58
KS
1.153 5.118 10.850 10.211 7.165 4.984 5.502 3.928 6.682 3.055 3.072 2.947 64.667
KY
2.215 7.896 19.832 16.150 14.215 13.308 13.081 17.153 13.108 8.081 5.426 4.686 135.151
LA
3.344 10.084 12.248 11.101 11.630 6.935 5.473 7.033 8.073 4.414 6.337 3.369 90.041
ME
1.296 4.319 10.323 10.031 6.124 6.702 5.486 4.904 3.462 1.348 2.118 1.296 57.409
MD 0.739 4.08 8.153 10.227 8.771 10.368 7.712 5.525 5.221 4.545 4.524 6.848 76.713
MA
2.301 8.386 15.715 13.958 13.529 8.957 11.644 9.532 11.957 8.083 10.679 9.365 124.106
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FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08 FY09 FY10 FY11 FY12 Total
MI
2.815 8.948 17.247 20.005 15.088 15.798 15.399 15.482 18.045 9.502 16.904 12.714 167.947
MN 2.133 8.149 17.510 18.609 14.894 14.718 16.600 13.082 17.253 18.923 10.638 5.398 157.907
MS
1.763 6.755 15.679 11.329 9.856 7.885 8.052 7.761 8.436 5.66 3.694 2.617 89.487
MO 3.079 10.291 19.573 17.757 14.246 13.202 10.611 11.589 12.973 9.21 7.594 4.79 134.915
MT
1.164 3.726 8.361 7.271 6.656 5.839 7.330 4.670 5.179 3.204 0.725 1.44 55.565
NE
1.034 2.392 7.820 6.577 5.116 4.399 4.443 4.324 4.341 0.441 1.378 0.674 42.939
NV
0.282 1.446 3.312 1.405 1.946 0.857 1.530 0.687 0.855 1.437 0.564 0.459 14.78
NH
0.594 1.887 4.584 5.694 4.563 3.307 3.219 2.723 2.834 1.496 1.69 1.209 33.8
NJ
2.596 6.339 19.982 16.488 14.691 12.386 13.266 13.201 15.502 9.687 10.402 8.569 143.109
NM 1.455 3.463 5.048 3.653 2.259 1.461 1.367 1.101 1.605 1.632 2.122 1.796 26.962
NY
3.978 14.728 34.320 35.030 36.009 33.804 22.664 30.204 23.235 13.367 10.253 14.595 272.187
NC
1.949 10.239 22.864 22.360 19.315 18.309 20.031 18.460 20.881 13.137 13.864 13.583 194.992
ND 0.546 2.613 5.105 3.391 2.673 2.459 3.100 3.297 2.527 1.594 0.71 0.316 28.331
OH 2.731 13.742 26.997 29.107 27.344 25.380 26.433 26.938 33.164 20.168 23.281 20.617 275.902
OK
1.864 4.939 10.540 10.393 8.757 10.852 7.220 6.875 7.239 3.527 3.187 2.142 77.535
OR
1.596 4.892 9.896 10.122 10.014 9.288 5.943 8.438 5.986 6.332 5.59 2.693 80.79
PA
2.89 16.97 45.179 47.898 39.233 41.259 43.610 41.041 37.231 19.623 26.227 21.358 382.519
RI
0.407 1.507 2.327 1.917 2.129 2.025 0.855 1.395 2.46 1.533 2.314 3.75 22.619
SC
1.554 5.257 11.832 14.150 10.544 8.028 10.470 11.040 11.227 8.684 4.948 6.774 104.508
SD
0.904 3.142 5.602 4.693 3.570 2.989 2.474 2.069 2.527 0.753 1.135 0.292 30.15
TN
2.46 11.509 19.306 18.686 15.047 11.209 12.955 16.074 13.311 11.259 6.268 5.37 143.454
TX
3.697 15.644 29.264 30.118 23.480 18.035 17.691 20.458 19.469 9.941 11.031 7.887 206.715
UT
0.9 2.754 4.628 3.880 2.188 2.213 3.378 0.934 2.295 2.985 0.883 0.987 28.025
VT
0.451 1.971 5.163 4.747 2.071 1.456 1.820 1.046 1.974 0.689 0.498 0.775 22.661
VA
2.066 8.79 15.816 16.668 14.357 8.317 10.403 8.370 6.405 5.991 3.5
5.763 106.446
WA 1.535 7.544 18.808 19.565 15.763 16.150 12.951 13.050 10.064 7.961 7.341 8.01 138.742
WV 1.067 3.966 9.942 9.133 10.143 5.838 7.164 7.238 5.331 5.074 2.173 2.232 69.301
WI
2.077 7.518 18.234 19.668 17.685 13.994 19.439 15.216 15.17 9.569 8.635 9.344 156.549
WY 1.09 1.612 3.507 1.811 2.032 1.197 1.645 1.023 1.427 0.086 0.488 0.179 16.097
PR
0.657 0.382 1.643 1.140 1.104 0.528 0.019 0.074 1.154 0
0.876 0.024 7.601
MP
0.145
0.225
0 0 0.220
0.172
0 0 0 0 0 0 0.762
GU
0 0.016
0 0 0 0.287
0 0 0 0 0 0.422
0.725
AS
0.164
0 0 0.284
0 0 0 0 0 0 0 0 0.448
VI
0.741
0 0.544
0 0 0 0 0.233
0 0 0 0 1.518
91.97 334.41 695.09 679.29 585.59 491.35 494.20 492.50 503.79 337.84 345.85 282.64 5334.55
Source: Department of Homeland Security.
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Table 5. State-by-State Distribution of SAFER Grants,
FY2005-FY2012
(millions of dollars)

FY2005 FY2006 FY2007 FY2008 FY2009 FY2010 FY2011 FY2012 Total
Alabama
1.611 6.215 4.236 7.314 4.288 8.531 1.293 6.923 40.411
Alaska
1.051 0.205 0.418 1.438 0.328 6.072 0.074 0.951 10.537
Arizona
1.560 3.559 4.428 6.613 6.768 10.357 2.809 7.895 43.989
Arkansas
0.394 1.820 0.377 3.834 0.976 2.206 1.136 1.019 11.762
California 5.221
5.212
4.259
4.212
31.501
63.13
56.356
49.992
219.883
Colorado
1.584 3.479 1.730 2.02 0.955 3.384 5.432 1.636 20.22
Connecticut
0.130 0.191 0.856 3.92 2.214 1.312 5.099 4.474 18.196
Delaware
0 0.135 0 0.398 0 1.723 0 0.946
3.202
District of
0 0 0 0 0 0 0
3.468
3.468
Columbia
Florida 6.576
9.329
6.217
17.185
24.105
17.721
30.494
26.243
137.87
Georgia
5.354 2.085 2.842 17.438 4.844 10.384 1.273 4.606 48.826
Hawai
0 0 0 1.626 0 0.1 0 0 1.726
Idaho
0.063 0.621 0.626 0.774 1.336 2.897 4.068 1.323 11.708
Illinois 1.340
4.463
9.933
5.85
2.496
10.848
2.456
5.704
43.09
Indiana
0 0.099 2.687 4.577 8.295 9.931 4.587 6.777 36.953
Iowa
0.169 0.144 0.980 1.288 1.045 0.081 1.604 0.08 5.391
Kansas
0.667 0.045 1.029 1.872 2.806 2.285 0.381 1.991 11.076
Kentucky
0.152 2.890 0.429 2.466 0.338 0.893 0.155 1.164 8.487
Louisiana 3.430
3.078
4.728
8.62
10.515
0.182
1.672
3.509
35.734
Maine
0.081 0 0.316 0.951 0.739 1.047 0.518 1.183 4.835
Maryland
0.096 1.862 1.526 3.171 4.429 2.145 4.299 2.488 20.016
Massachusetts 1.300 2.079
4.372 2.690
18.385
34.422
23.127
4.955
91.33
Michigan 1.759
0.592
0
0.628
13.286
22.493
47.646
25.161
111.565
Minnesota
0.300 1.089 0.375 3.246 1.256 0.789 4.463 0.797 12.315
Mississippi 0.756
0.594
0.115
1.608
0
1.209
0.488
0.093
4.863
Missouri
1.467 3.547 4.551 2.381 1.474 5.618 10.619 2.86 32.517
Montana
0.034 0.255 2.635 2.955 0.458 0.973 1.252 1.046 9.608
Nebraska
0 0.873 0.632 1.951 0.802 0.493 0 0.37 5.121
Nevada
1.500 1.714 0.632 0.086 0.577 2.459 13.438 2.702 23.108
New Hampshire
0.400
1.035
1.528
0.225
0
0.353
1.479
0.976
5.996
New
Jersey
6.374 3.971 2.953 4.389 0.556 56.648
18.073
34.462
127.426
New
Mexico
0 3.123 1.309 0.108 0.499 1.854 0
0 6.893
New
York
1.540 2.991 2.845 4.412 8.227 18.239 6.142 8.949 53.345
North
Carolina 2.155 5.533 5.371 18.183 2.256 6.375 5.833 2.472 48.178
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FY2005 FY2006 FY2007 FY2008 FY2009 FY2010 FY2011 FY2012 Total
North Dakota
0
0.609
0
1.518
1.517
2.139
0.048
0.066
5.897
Ohio 1.319
1.881
2.255
3.737
29.606
21.04
18.654
18.266
96.758
Oklahoma 0.147
0.699
0.531
2.782
0
9.127
1.435
0.676
15.397
Oregon
1.710 2.141 2.649 2.071 0.677 6.814 8.354 4.437 28.205
Pennsylvania
1.244 1.475 2.633 3.515 1.176 7.926 13.831
27.608
59.408
Rhode
Island 0.400 0 0.105 0 1.561
4.249
3.108
8.716
18.139
South
Carolina 0.456 0.863 3.218 8.158 2.41 2.064 2.147 4.757
24.073
South Dakota
0.063
0.311
0.211
0.552
0
0.648
0.255
0
2.04
Tennessee
2.700 2.719 3.683 1.856 1.148 7.374 0.993 3.034 23.507
Texas
0.951 10.961 8.779 19.06 3.158 12.65 2.881 5.225 63.665
Utah
0.900 3.312 2.098 3.955 1.824 4.583 0.208 0.598 17.478
Vermont
0 0.621
0.632 0 0.119 0 0 0 1.372
Virginia
2.091 3.554 0.782 1.849 4.891 8.995 4.978 9.883 37.023
Washington
2.298 2.897 7.340 9.476 2.847 13.779
16.139
13.293
68.069
West Virginia
0
0.187
0.681
0.16
0.287
0.398
0
0.46
2.173
Wisconsin 0
0.072
1.223
4.502
0
0.12
3.101
2.205
11.223
Wyoming
0
0 0.316 2.329 0.263 0.997 1.148 0 5.053
Puerto
Rico 0 0 0 0 0 0 0 0 0
Northern
Mariana Islands
0 0 0 0 0
1.404
0 0
1.404
Marshal
Islands
0 0 0 0 0 0 0 0 0
Guam
0 0 0 0 0 0 0 0 0
American
Samoa
0 0 0 0 0 0
0.474
0
0.474
Virgin
Islands 0 0 0 0 0 0 0 0 0
Republic of Palau
0
0
0
0
0
0
0
0
0
Total
61.356 105.142 113.665 203.964 207.258 410.833
334.03 316.439 1751.003
Source: Department of Homeland Security.
Table 6. Requests and Awards for AFG Funding, FY2010
Federal funds
Federal funds
Funds awarded as
Number of
requested
awarded
a % of funds
State
applications
($millions)
($millions)
requested
Alabama 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%
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Federal funds
Federal funds
Funds awarded as
Number of
requested
awarded
a % of funds
State
applications
($millions)
($millions)
requested
Connecticut 201
37.739
3.166
8.39%
Delaware 21
3.569
0.282
7.90%
District of Columbia
2
0.447
0.368
82.33%
Florida 253
55.369
12.557
22.68%
Georgia 298
49.05
6.192
12.62%
Hawai 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%
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%
Nevada 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%
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%
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