59–006 

114TH CONGRESS REPORT " ! HOUSE OF REPRESENTATIVES 2d Session 114–544 

BULLETPROOF VEST PARTNERSHIP GRANT PROGRAM 

REAUTHORIZATION ACT OF 2015 

MAY 10, 2016.—Committed to the Committee of the Whole House on the State of 

the Union and ordered to be printed 

Mr. GOODLATTE, from the Committee on the Judiciary, 

submitted the following 

R E P O R T 

[To accompany S. 125] 

[Including cost estimate of the Congressional Budget Office] 

The Committee on the Judiciary, to whom was referred the bill 

(S. 125) to amend title I of the Omnibus Crime Control and Safe 

Streets Act of 1968 to extend the authorization of the Bulletproof 

Vest Partnership Grant Program through fiscal year 2020, and for 

other purposes, having considered the same, reports favorably 

thereon without amendment and recommends that the bill do pass. 

CONTENTS 

Page 

Purpose and Summary ............................................................................................ 1 

Background and Need for the Legislation ............................................................. 2 

Hearings ................................................................................................................... 2 

Committee Consideration ........................................................................................ 2 

Committee Votes ...................................................................................................... 2 

Committee Oversight Findings ............................................................................... 2 

New Budget Authority and Tax Expenditures ...................................................... 2 

Congressional Budget Office Cost Estimate .......................................................... 3 

Duplication of Federal Programs ............................................................................ 5 

Disclosure of Directed Rule Makings ..................................................................... 5 

Performance Goals and Objectives ......................................................................... 5 

Advisory on Earmarks ............................................................................................. 5 

Section-by-Section Analysis .................................................................................... 5 

Changes in Existing Law Made by the Bill, as Reported ..................................... 6 

Purpose and Summary 

S. 125, the ‘‘Bulletproof Vest Partnership Grant Act of 2015,’’ 

(the ‘‘Act’’) amends the Omnibus Crime Control and Safe Streets 


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Act of 1968 to extend through FY2020 the grant program for armored vests for law enforcement officers. The Act was previously 

authorized but the authorization lapsed in 2012, though it has received annual appropriations since 2012. 

Background and Need for the Legislation 

Since 1999, the Bulletproof Vest Partnership Grant (BVP) program has awarded more than 13,000 jurisdictions a total of $393 

million in Federal funds for the purchase of over one million vests 

(1,197,348 as of December, 2014). BVP is a critical resource for 

state and local jurisdictions that saves lives. Based on data collected and recorded by the Department of Justice (DOJ), in FY 

2012, protective vests were directly attributable to saving the lives 

of at least 33 law enforcement and corrections officers in 20 different states, an increase of 13.7% over FY 2011. At least 14 of 

those life-saving vests had been purchased, in part, with BVP 

funds. Awarded funds may only be used for the latest National Institute of Justice (NIJ)-compliant armored vests. 

Many agencies from throughout the country have received this 

money. The BVP program was previously authorized at $50 million 

per year. Despite its authorization expiring at the end of FY 2012, 

the program has continued to be appropriated at $22.5 million per 

year. This bill authorizes the fund at $25 million per year and extends the authorization through 2020. 

Hearings 

The Committee on the Judiciary held no hearings on S. 125. 

Committee Consideration 

On April 20, 2016, the Committee met in open session and ordered the bill S. 125 favorably reported, without amendment, by 

voice vote, a quorum being present. 

Committee Votes 

In compliance with clause 3(b) of rule XIII of the Rules of the 

House of Representatives, the Committee advises that there were 

no recorded votes during the Committee’s consideration of S. 125. 

Committee Oversight Findings 

In compliance with clause 3(c)(1) of rule XIII of the Rules of the 

House of Representatives, the Committee advises that the findings 

and recommendations of the Committee, based on oversight activities under clause 2(b)(1) of rule X of the Rules of the House of Representatives, are incorporated in the descriptive portions of this report. 

New Budget Authority and Tax Expenditures 

Clause 3(c)(2) of rule XIII of the Rules of the House of Representatives is inapplicable because this legislation does not provide new 

budgetary authority or increased tax expenditures. 


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Congressional Budget Office Cost Estimate 

In compliance with clause 3(c)(3) of rule XIII of the Rules of the 

House of Representatives, the Committee sets forth, with respect to 

the bill, S. 125, the following estimate and comparison prepared by 

the Director of the Congressional Budget Office under section 402 

of the Congressional Budget Act of 1974: 

U.S. CONGRESS, CONGRESSIONAL BUDGET OFFICE, Washington, DC, May 6, 2016. 

Hon. BOB GOODLATTE, CHAIRMAN, 

Committee on the Judiciary, 

House of Representatives, Washington, DC. 

DEAR MR. CHAIRMAN: The Congressional Budget Office has prepared the enclosed cost estimate for S. 125, the ‘‘Bulletproof Vest 

Partnership Grant Program Reauthorization Act of 2015.’’ 

If you wish further details on this estimate, we will be pleased 

to provide them. The CBO staff contact is Mark Grabowicz, who 

can be reached at 226–2860. 

Sincerely, 

KEITH HALL, 

DIRECTOR. 

Enclosure 

cc: Honorable John Conyers, Jr. 

Ranking Member 

S. 125—Bulletproof Vest Partnership Grant Program 

Reauthorization Act of 2015. 

As ordered reported by the House Committee on the Judiciary 

on April 20, 2016. 

SUMMARY

S. 125 would authorize the appropriation of $25 million annually 

over the 2016–2020 period for the Bulletproof Vest Partnership 

Grant program. Under this program, the Department of Justice 

makes grants to State, local, and tribal law enforcement agencies 

to purchase bulletproof vests. 

Assuming appropriation of the authorized amounts, CBO estimates that implementing S. 125 would cost $80 million over the 

2016–2021 period. Pay-as-you-go procedures do not apply to this 

legislation because enacting it would not affect direct spending or 

revenues. 

CBO estimates that enacting S. 125 would not increase net direct 

spending or on-budget deficits in any of the four consecutive 10- 

year periods beginning in 2027. 

S. 125 contains no intergovernmental or private-sector mandates 

as defined in the Unfunded Mandates Reform Act (UMRA). 


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ESTIMATED COST TO THE FEDERAL GOVERNMENT

The estimated budgetary impact of S. 125 is shown in the following table. The costs of this legislation fall within budget function 750 (administration of justice). 

By Fiscal Year, in Millions of Dollars 

2016 2017 2018 2019 2020 2021 2016– 

2021 

INCREASES IN SPENDING SUBJECT TO APPROPRIATION 

Authorization Level 1 3 25 25 25 25 0 103 

Estimated Outlays 0 6 14 18 22 20 80 

1. The act would authorize the appropriation of $25 million for 2016 for the Bulletproof Vest Partnership Grant program. The Congress has already appropriated $22.5 million for that program for 2016. 

BASIS OF ESTIMATE

For this estimate, CBO assumes that S. 125 will be enacted in 

2016, that the specified amounts will be appropriated each year 

(except for 2016), and that outlays will follow the historical rate of 

spending for the authorized program. The Congress appropriated 

$22.5 million for the Bulletproof Vest Partnership Grant program 

for fiscal year 2016; thus, we estimate that the act would authorize 

additional funding of $2.5 million for that year. 

PAY-AS-YOU-GO CONSIDERATIONS

None. 

INTERGOVERNMENTAL AND PRIVATE-SECTOR IMPACT

S. 125 contains no intergovernmental or private-sector mandates 

as defined in UMRA. Assuming appropriation of the authorized 

amounts, State, local, and tribal governments would receive $103 

million to purchase bulletproof vests. Any costs to those governments would be incurred voluntarily as a condition of receiving 

Federal assistance. 

PREVIOUS CBO ESTIMATE

On April 6, 2015, CBO transmitted a cost estimate for S. 125 as 

reported by the Senate Committee on the Judiciary on March 26, 

2015. That version of the legislation would provide $30 million annually over the 2016–2020 period for the Bulletproof Vest Partnership Grant program. Differences in the budgetary effects of the two 

versions of the legislation reflect the fact that since the last estimate was prepared, $22.5 million was appropriated for the program for 2016. 

ESTIMATE PREPARED BY

Federal Costs: Mark Grabowicz 

Impact on State, Local, and Tribal Governments: Rachel Austin 

Impact on the Private Sector: Paige Piper/Bach 


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ESTIMATE APPROVED BY: 

H. Samuel Papenfuss 

Deputy Assistant Director for Budget Analysis 

Duplication of Federal Programs 

No provision of S. 125 establishes or reauthorizes a program of 

the Federal Government known to be duplicative of another Federal program, a program that was included in any report from the 

Government Accountability Office to Congress pursuant to section 

21 of Public Law 111–139, or a program related to a program identified in the most recent Catalog of Federal Domestic Assistance. 

Disclosure of Directed Rule Makings 

The Committee estimates that S. 125 specifically directs to be 

completed no specific rule makings within the meaning of 5 U.S.C. 

§ 551. 

Performance Goals and Objectives 

The Committee states that pursuant to clause 3(c)(4) of rule XIII 

of the Rules of the House of Representatives, S. 125 will protect police officers’ lives throughout the country by providing a grant program for bulletproof vests. 

Advisory on Earmarks 

In accordance with clause 9 of rule XXI of the Rules of the House 

of Representatives, S. 125 does not contain any congressional earmarks, limited tax benefits, or limited tariff benefits as defined in 

clause 9(e), 9(f), or 9(g) of Rule XXI. 

Section-by-Section Analysis 

Section 1—Bill Title. This section sets forth the short title of the 

bill as the ‘‘Bulletproof Vest Partnership Grant Program Reauthorization Act of 2015.’’ 

Section 2—Authorization. This section reauthorizes the Bulletproof Vest Partnership Grant Program for fiscal years 2016 

through 2020 at $25,000,000 each year. The Program’s previous authorization expired in fiscal year 2012. 

Section 3—Expiration of Previously Appropriated Funds. A 2012 

GAO Report identified a $30 million unobligated, undisbursed balance in the account at DOJ’s Office of Justice Programs. Since 

then, all BVP balances older than two fiscal years (approximately 

$17 million) were de-obligated and applied to the FY13 rescission. 

This section provides a mechanism to prevent a future backlog. It 

requires that any funds not obligated by December 31, 2022, be 

transferred to the General Fund of the Treasury not later than 

January 31, 2023. The roughly 2 year buffer between authorization 

expiring and funds being returned to Treasury conforms to the 2 

year use period provided to grantees under DOJ regulations. 

Section 4—Sense of Congress on Two-Year Limitation on Funds. 

This section is a Sense of Congress that funds appropriated for this 

program should be used within 2 years of the appropriation. This 

section is to encourage DOJ to use BVP funds within 2 years. DOJ 


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has already implemented GAO’s recommendations to prevent future undisbursed balances. 

Section 5—Matching Funds Limitation. This section prohibits 

grantees from using other Federal funds as their matching funds. 

This codifies DOJ practice which disallows grant recipients from 

using Federal money to pay for the matching funds requirement. 

Section 6—Requirements for Vests or Body Armor Purchased with 

Federal Funds. This section requires that vests purchased through 

this program comply with requirements set forth by the partnership, and that law enforcement agencies have written mandatory 

wear policies and use funds to purchase vests that meet any performance standards established by the Director of the Bureau of 

Justice Assistance. 

Section 7—Uniquely Fitted Vests. This section adds to the list of 

existing grant priorities vests that are uniquely fitted for officers, 

including vests uniquely fitted to individual female officers. 

Changes in Existing Law Made by the Bill, as Reported 

In compliance with clause 3(e) of rule XIII of the Rules of the 

House of Representatives, changes in existing law made by the bill, 

as reported, are shown as follows (existing law proposed to be omitted is enclosed in black brackets, new matter is printed in italics, 

and existing law in which no change is proposed is shown in 

roman): 

OMNIBUS CRIME CONTROL AND SAFE STREETS ACT 

OF 1968 

* * * * * * * 

TITLE I—JUSTICE SYSTEM IMPROVEMENT 

* * * * * * * 

PART E—BUREAU OF JUSTICE ASSISTANCE GRANT PROGRAMS

* * * * * * * 

Subpart 3—Administrative Provisions 

* * * * * * * 

GENERAL PROVISIONS

SEC. 521. (a) The Bureau shall prepare both a ‘‘Program Brief’’ 

and ‘‘Implementation Guide’’ document for proven programs and 

projects to be funded under this part. 

(b) The functions, powers, and duties specified in this part to 

be carried out by the Bureau shall not be transferred elsewhere in 

the Department of Justice unless specifically hereafter authorized 

by the Congress by law. 

(c)(1) Notwithstanding any other provision of law, a grantee 

that uses funds made available under this part to purchase an 

armor vest or body armor shall— 


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(A) comply with any requirements established for the use of 

grants made under part Y; 

(B) have a written policy requiring uniformed patrol officers to wear an armor vest or body armor; and 

(C) use the funds to purchase armor vests or body armor 

that meet any performance standards established by the Director of the Bureau of Justice Assistance. 

(2) In this subsection, the terms ‘‘armor vest’’ and ‘‘body armor’’ 

have the meanings given such terms in section 2503. 

* * * * * * * 

PART J—FUNDING

AUTHORIZATION OF APPROPRIATIONS

SEC. 1001. (a)(1) There is authorized to be appropriated 

$30,000,000 for fiscal year 1992 and $33,000,000 for each of the fiscal years 1994 and 1995 to carry out the functions of the Bureau 

of Justice Statistics. 

(2) There is authorized to be appropriated $30,000,000 for fiscal year 1992 and $33,000,000 for each of the fiscal years 1994 and 

1995 to carry out the functions of the National Institute of Justice. 

(3) There are authorized to be appropriated such sums as may 

be necessary for fiscal year 1992 and $28,000,000 for each of the 

fiscal years 1994 and 1995 to carry out the remaining functions of 

the Office of Justice Programs and the Bureau of Justice Assistance other than functions under parts D, E, F, G, L, M, N, O, P, 

Q, or R or EE. 

(4) There are authorized to be appropriated for each fiscal year 

such sums as may be necessary to carry out part L of this title. 

(5) There are authorized to be appropriated such sums as may 

be necessary for fiscal year 1992 and $1,000,000,000 for each of the 

fiscal years 1994 and 1995 to carry out the programs under parts 

D and E (other than chapter B of subpart 2) (other than chapter 

B of subpart 2 of part E) of this title. 

(6) There are authorized to be appropriated such sums as may 

be necessary for fiscal year 1992, $245,000,000 for fiscal year 1993, 

and such sums as may be necessary for fiscal year 1994 and 1995 

to carry out chapter B of subpart 2 of part E of this title. 

(7) There is authorized to be appropriated to carry out part N 

$1,000,000 for each of fiscal years 2001 through 2005. 

(8) There are authorized to be appropriated such sums as may 

be necessary for fiscal year 1992, $16,500,000 for fiscal year 1993, 

and such sums as may be necessary for fiscal year 1994 and 1995. 

(9) There are authorized to be appropriated to carry out part 

O— 

(A) $24,000,000 for fiscal year 1996; 

(B) $40,000,000 for fiscal year 1997; 

(C) $50,000,000 for fiscal year 1998; 

(D) $60,000,000 for fiscal year 1999; and 

(E) $66,000,000 for fiscal year 2000. 

(10) There are authorized to be appropriated $10,000,000 for 

each of the fiscal years 1994, 1995, and 1996 to carry out projects 

under part P. 


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(11)(A) There are authorized to be appropriated to carry out part Q, to remain available until expended $1,047,119,000 for each 

of fiscal years 2006 through 2009. 

(B) Of funds available under part Q in any fiscal year, up to 

3 percent may be used for technical assistance under section 

1701(d) or for evaluations or studies carried out or commissioned 

by the Attorney General in furtherance of the purposes of part Q. 

Of the remaining funds, 50 percent shall be allocated for grants 

pursuant to applications submitted by units of local government or 

law enforcement agencies having jurisdiction over areas with populations exceeding 150,000 or by public and private entities that 

serve areas with populations exceeding 150,000, and 50 percent 

shall be allocated for grants pursuant to applications submitted by 

units of local government or law enforcement agencies having jurisdiction over areas with populations 150,000 or less or by public and 

private entities that serve areas with populations 150,000 or less. 

In view of the extraordinary need for law enforcement assistance 

in Indian country, an appropriate amount of funds available under 

part Q shall be made available for grants to Indian tribal governments or tribal law enforcement agencies. 

(16) There are authorized to be appropriated to carry out 

projects under part R— (A) $20,000,000 for fiscal year 1996; 

(B) $25,000,000 for fiscal year 1997; 

(C) $30,000,000 for fiscal year 1998; 

(D) $35,000,000 for fiscal year 1999; and 

(E) $40,000,000 for fiscal year 2000. 

(17) There are authorized to be appropriated to carry out the 

projects under part S— (A) $27,000,000 for fiscal year 1996; 

(B) $36,000,000 for fiscal year 1997; 

(C) $63,000,000 for fiscal year 1998; 

(D) $72,000,000 for fiscal year 1999; and 

(E) $72,000,000 for fiscal year 2000. 

(18) There is authorized to be appropriated to carry out part 

T $222,000,000 for each of fiscal years 2014 through 2018. 

(19) There is authorized to be appropriated to carry out part 

U $73,000,000 for each of fiscal years 2014 through 2018. Funds 

appropriated under this paragraph shall remain available until expended. 

(20) There are authorized to be appropriated to carry out part 

V, $10,000,000 for each of fiscal years 2001 through 2004. 

(21) There are authorized to be appropriated to carry out part 

W— 

(1) $2,500,000 for fiscal year 1996; 

(2) $4,000,000 for fiscal year 1997; 

(3) $5,000,000 for fiscal year 1998; 

(4) $6,000,000 for fiscal year 1999; and 

(5) $7,500,000 for fiscal year 2000. 

(22) There are authorized to be appropriated to carry out part 

X— 

(1) $1,000,000 for fiscal year 1996; 

(2) $3,000,000 for fiscal year 1997; 

(3) $5,000,000 for fiscal year 1998; 

(4) $13,500,000 for fiscal year 1999; and 


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(5) $17,500,000 for fiscal year 2000. 

ø(23) There are authorized to be appropriated to carry out part 

Y, $25,000,000 for each of fiscal years 1999 through 2001, and 

$50,000,000 for each of fiscal years 2002 through 2012.¿ 

(23) There is authorized to be appropriated to carry out part Y, 

$25,000,000 for each of fiscal years 2016 through 2020. 

(24) There are authorized to be appropriated to carry out part 

BB, to remain available until expended— 

(A) $35,000,000 for fiscal year 2001; 

(B) $85,400,000 for fiscal year 2002; 

(C) $134,733,000 for fiscal year 2003; 

(D) $128,067,000 for fiscal year 2004; 

(E) $56,733,000 for fiscal year 2005; 

(F) $42,067,000 for fiscal year 2006; 

(G) $20,000,000 for fiscal year 2007; 

(H) $20,000,000 for fiscal year 2008; and 

(I) $20,000,000 for fiscal year 2009. 

(25)(A) Except as provided in subparagraph (C), there are authorized to be appropriated to carry out part EE— 

(i) $50,000,000 for fiscal year 2002; 

(ii) $54,000,000 for fiscal year 2003; 

(iii) $58,000,000 for fiscal year 2004; and 

(iv) $60,000,000 for fiscal year 2005. 

(v) $70,000,000 for each of fiscal years 2007 and 2008. 

(v) $70,000,000 for fiscal year 2006. 

(B) The Attorney General shall reserve not less than 1 percent 

and not more than 4.5 percent of the sums appropriated for this 

program in each fiscal year for research and evaluation of this program. 

(C) No funds made available to carry out part EE shall be expended if the Attorney General fails to submit the report required 

to be submitted under section 2401(c) of title II of Division B of the 

21st Century Department of Justice Appropriations Authorization 

Act. 

(26) There are authorized to be appropriated to carry out 

part CC $10,000,000 for each of fiscal years 2009 and 2010. 

(b) Funds appropriated for any fiscal year may remain available for obligation until expended. 

(c) Notwithstanding any other provision of law, no funds appropriated under this section for part E of this title may be transferred or reprogrammed for carrying out any activity which is not 

authorized under such part. 

* * * * * * * 

PART Y—MATCHING GRANT PROGRAM FOR 

LAW ENFORCEMENT ARMOR VESTS 

SEC. 2501. PROGRAM AUTHORIZED. 

(a) IN GENERAL.—The Director of the Bureau of Justice Assistance is authorized to make grants to States, units of local government, and Indian tribes to purchase armor vests for use by State, 

local, and tribal law enforcement officers and State and local court 

officers. 


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(b) USES OF FUNDS.—Grants awarded under this section shall 

be— 

(1) distributed directly to the State, unit of local government, State or local court, or Indian tribe; and 

(2) used for the purchase of armor vests for law enforcement officers in the jurisdiction of the grantee. 

(c) PREFERENTIAL CONSIDERATION.—In awarding grants under 

this part, the Director of the Bureau of Justice Assistance may give 

preferential consideration, if feasible, to an application from a jurisdiction that— 

(1) has the greatest need for armor vests based on the percentage of law enforcement officers in the department who do 

not have access to a vest; 

(2) has, or will institute, a mandatory wear policy that requires on-duty law enforcement officers to wear armor vests 

whenever feasible; øand¿ 

(3) has a violent crime rate at or above the national average as determined by the Federal Bureau of Investigationø; 

or¿; and 

(4) provides armor vests to law enforcement officers that are 

uniquely fitted for such officers, including vests uniquely fitted 

to individual female law enforcement officers; or 

ø(4)¿ (5) has not received a block grant under the Local 

Law Enforcement Block Grant program described under the 

heading ‘‘Violent Crime Reduction Programs, State and Local 

Law Enforcement Assistance’’ of the Departments of Commerce, Justice, and State, the Judiciary, and Related Agencies 

Appropriations Act, 1998 (Public Law 105–119). 

(d) MINIMUM AMOUNT.—Unless all eligible applications submitted by any State or unit of local government within such State 

for a grant under this section have been funded, such State, together with grantees within the State (other than Indian tribes), 

shall be allocated in each fiscal year under this section not less 

than 0.50 percent of the total amount appropriated in the fiscal 

year for grants pursuant to this section, except that the United 

States Virgin Islands, American Samoa, Guam, and the Northern 

Mariana Islands shall each be allocated .25 percent. 

(e) MAXIMUM AMOUNT.—A qualifying State, unit of local government, or Indian tribe may not receive more than 5 percent of 

the total amount appropriated in each fiscal year for grants under 

this section, except that a State, together with the grantees within 

the State may not receive more than 20 percent of the total amount 

appropriated in each fiscal year for grants under this section. 

(f) MATCHING FUNDS.— 

(1) IN GENERAL.—The portion of the costs of a program 

provided by a grant under subsection (a)— 

(A) may not exceed 50 percent; and 

(B) shall equal 50 percent, if— 

(i) such grant is to a unit of local government with 

fewer than 100,000 residents; 

(ii) the Director of the Bureau of Justice Assistance determines that the quantity of vests to be purchased with such grant is reasonable; and 

(iii) such portion does not cause such grant to violate the requirements of subsection (e). 


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(2) INDIAN ASSISTANCE.—Any funds appropriated by Congress for the activities of any agency of an Indian tribal government or the Bureau of Indian Affairs performing law enforcement functions on any Indian lands may be used to provide the non-Federal share of a matching requirement funded 

under this subsection. 

(3) LIMITATION ON MATCHING FUNDS.—A State, unit of local 

government, or Indian tribe may not use funding received under 

any other Federal grant program to pay or defer the cost, in 

whole or in part, of the matching requirement under paragraph 

(1). 

ø(3)¿ (4) WAIVER.—The Director may waive in whole or in 

part, the match requirement of paragraph (1) in the case of fiscal hardship, as determined by the Director. 

(g) ALLOCATION OF FUNDS.—Funds available under this part 

shall be awarded, without regard to subsection (c), to each qualifying unit of local government with fewer than 100,000 residents. 

Any remaining funds available under this part shall be awarded to 

other qualifying applicants. 

(h) EXPIRATION OF APPROPRIATED FUNDS.— 

(1) DEFINITION.—In this subsection, the term ‘‘appropriated 

funds’’ means any amounts that are appropriated for any of fiscal years 2016 through 2020 to carry out this part. 

(2) EXPIRATION.—All appropriated funds that are not obligated on or before December 31, 2022 shall be transferred to the 

General Fund of the Treasury not later than January 31, 2023. 

* * * * * * * 

Æ 


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