link to page 1 
April 15, 2020
Funding for Firefighters for COVID-19 Response
COVID-19 is a contagious disease caused by a novel
Figure 1. IAFC COVID-19 Dashboard
coronavirus that originated in China in late 2019. It spread
U.S. firefighters affected by the coronavirus (April 10, 2020)
rapidly around the globe, and on March 11, 2020, the
World Health Organization declared the situation a
pandemic. In the United States, by the end of March 2020,
the disease had spread to all 50 states, the District of
Columbia, and all U.S. territories except American Samoa.
Firefighter personnel providing emergency medical services
(EMS) serve as first responders to calls for help from those
who are infected. Challenges for firefighters, many of
whom are volunteers, include a lack of personal protective
equipment (PPE) and a high likelihood of exposure to the
virus. This can lead to health impacts and staffing shortages
due to long quarantine or recovery periods. Congress has
Source: International Association of Fire Chiefs (IAFC), “COVID-19
provided emergency funding to assist firefighters
Fire and Emergency Medical Services Personnel Impact Dashboard,”
responding to COVID-19 calls, and additional
accessed April 10, 2020, https://iafc.maps.arcgis.com/ apps/
congressional action may be considered.
opsdashboard/index.html#/ 3813d2f872224d8a93c52f05cd392b8c.
Impact of COVID-19 on Firefighter
Notes: This graphic shows data from 2,193 U.S. fire departments
Personnel
reporting COVID-19 data to the IAFC, as of April 10, 2020. Per the
U.S. Fire Administration, there are about 27,000 fire departments in
As the coronavirus spreads across the United States, people
the United States. Most (71%) are al -volunteer and may have limited
are turning to doctors, hospitals, and other health facilities
capacity to report data. Hence, data may not reflect al U.S. firefighter
for diagnosis and treatment. People displaying early or mild
personnel affected. EMS= Emergency Medical Services, including
symptoms are often sent home to isolate, rest, and recover.
Emergency Medical Technicians (EMT) and paramedics.
Some people develop serious or life-threatening symptoms
and call 9-1-1, where call takers may dispatch local fire
The guidance recommended the use of PPE, procedures for
departments to assist. Firefighter personnel, who include
treating and transporting patients, and decontamination
emergency medical technicians (EMTs) and paramedics,
procedures. However, as the virus spread globally and
provide emergency medical services to people in their
supply chains became strained, fire departments have had
homes and may transport them to hospitals. Firefighter
difficulty finding the recommended PPE and supplies. In a
personnel can be exposed to and infected by the virus
survey of 288 fire departments conducted by the IAFC, fire
through these close interactions.
departments indicated their highest priority needs were N95
respirator masks, gowns, surgical masks, decontamination
As the number of U.S. COVID-19 cases has increased, the
supplies, eye protection, and gloves, in that order (as of
number of firefighters affected has as well. The
April 10), and 90% indicated that they had altered
International Association of Fire Chiefs (IAFC) developed
procedures as a result of shortages.
a dashboard to show the number of firefighter personnel
exposed, quarantined, and diagnosed with COVID-19 in the
Since firefighters can be exposed on the job, at home, and
United States. On March 13, 2020, when IAFC launched
in the community, departments are monitoring personnel
the dashboard, there were 44 fire departments reporting, 55
for signs of the virus to avoid transmission to others in the
personnel exposed, 46 in quarantine, and 1 diagnosed with
community and in firehouses. Some fire departments isolate
the coronavirus. On April 10, 2020, there were almost
staff who may have been exposed to the virus, which can
2,200 fire departments reporting, over 10,500 personnel
lead to staffing shortages. While the CDC has issued
exposed, 4,852 in quarantine, and 575 firefighter personnel
guidance advising that essential workers may be permitted
tested and diagnosed with the coronavirus (Figure 1).
to continue work following potential exposure to COVID-
19 provided they are asymptomatic and are monitored, the
In March 2020, the U.S. Centers for Disease Control and
IAFC is pressing for prioritization of testing for firefighters
Prevention (CDC) released Interim Guidance for
to determine if a firefighter has the coronavirus and needs
Emergency Medical Services (EMS) Systems and 911
to be isolated and treated or can return to work.
Public Safety Answering Points (PSAPs) for COVID-19 in
the United States, which provides recommendations for
COVID-19 Funding for Firefighter
EMS workers responding to suspected COVID-19 calls.
Personnel
On March 27, 2020, President Trump signed the
Coronavirus Aid, Relief, and Economic Security (CARES)
https://crsreports.congress.gov
Funding for Firefighters for COVID-19 Response
Act (P.L. 116-136), which appropriates more than $2
the COVID-19 supplemental ($100 million), not all fire
trillion to sustain the nation during the COVID-19
departments that apply may receive funding through AFG.
pandemic. The act provides specific funding for
firefighters, including:
Third, current AFG program requirements may inhibit the
use of this supplemental grant funding for COVID-19
$100 million for the Assistance to Firefighter Grants
response. For example, under the current AFG program, no
(AFG) Program to provide funding to fire departments
grant funds may be used for salaries or overtime wages, or
for COVID-19 expenses, including PPE, supplies, and
costs incurred before the grant was awarded. AFG funds
reimbursements related to the response.
may not be used for expendable supplies (e.g., medical
gowns, gloves, disinfectants). AFG requires applicants to
$7 million for the U.S. Forest Service (USFS) to provide
provide matching funds, which may be challenging for fire
PPE and baseline testing for USFS/wildland firefighters.
departments, particularly small, rural, and volunteer fire
departments. FEMA may alter program requirements to
COVID-19 Funding for State and Local
extend the use of AFG funds for COVID-19 related costs,
Entities
but until guidance is issued, it is difficult to predict which
CARES also provides state and local entities responding to
requirements may be waived and how other aspects, such as
the COVID-19 crisis with funding that could potentially
reimbursements, may be handled.
assist local fire departments, including:
Fourth, while significant funding was provided under the
$100 million for the Emergency Management
CARES Act, much of it is funneled through state and local
Performance Grant (EMPG) Program, which provides
entities. Thus, there is no certainty that fire departments
funding for state emergency management agencies
will receive supplies from these entities. For example, state
(EMA) for COVID-19 planning and preparedness costs,
EMAs are to receive funding through the EMPG, and may
including the purchase of PPE and emergency supplies.
purchase PPE and supplies; fire departments can request
supplies from the state EMA but, given competing
$45 billion for the Disaster Relief Fund to reimburse
demands, there is no certainty that fire departments will
states and local entities for COVID-19 costs, including
receive supplies. In an IAFC survey, 55% of 288 fire
overtime and backfill costs, PPE, supplies such as
departments surveyed reported that states had advised them
disinfectants and medical supplies, and apparatus usage.
that they could not supply requested items (April 10, 2020).
The federal government covers 75% of these costs.
Congressional Considerations
$100 billion for the Department of Health and Human
As Congress considers additional actions to support the
Services to reimburse eligible healthcare providers for
COVID-19 response, it may consider the needs of local fire
eligible healthcare expenses. This may include
departments providing emergency medical services to
unreimbursed costs incurred by fire departments and
people in communities. Options for assistance could include
EMS agencies in transporting a patient to a hospital.
the following:
At least $16 billion to augment the Strategic National
Providing additional funding specifically for fire
Stockpile (SNS) supplies of PPE and other medical items,
departments, similar to the $850 million for the Edward
which are distributed to states for use by local health
Byrne Memorial Justice Assistance Grant program
agencies, hospitals and other healthcare providers during
included in the CARES Act to provide funding to state
emergencies.
and local governments to assist with the criminal justice
system’s COVID-19 response.
Challenges with Funding
Following the appropriation of funds for these programs,
Adding provisions to new or existing laws to require or
implementation challenges may remain.
encourage state and local recipients of COVID-19
funding to consider, prioritize, or designate a portion of
First, the distribution of funding will take time. For
their funding or supplies for firefighter needs.
example, to award AFG funds, the Federal Emergency
Management Agency (FEMA) must issue a grant notice;
Dedicating supplies from the SNS.
fire departments must apply; applications must undergo
peer review; and grant agreements must be signed before
Permitting flexibilities in grants, such as allowing state
funds are made available. For fire departments facing
and local grantees to repurpose federal grant funding to
shortfalls in PPE, supplies, and funding, AFG grants may
meet firefighter needs; approving waivers of cost-share;
not be awarded in time to address immediate needs.
allowing purchase of expendable supplies; and expanding
the economic hardship waiver during the emergency.
Second, AFG is a competitive grant program, which means
that not all applicants may receive funding. In the annual
Prioritizing firefighters for virus testing so they can either
grant cycle, Congress appropriates three times the amount
be treated or cleared so that they may return to work.
of funding for AFG—$350 million each year for the past
several years—than provided by CARES, and FEMA
Jill C. Gallagher, Analyst in Telecommunications Policy
consistently receives more in requests than it has funding to
Brian E. Humphreys, Analyst in Science and Technology
support. Thus, it is likely that, given the level of funding for
Policy
https://crsreports.congress.gov
Funding for Firefighters for COVID-19 Response
IF11507
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11507 · VERSION 1 · NEW