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I. TITLE: Purchase of Ballistic Protective Equipment (BPE) for Fire and Emergency 

Medical Services (EMS) Personnel in Support of Active Shooter and Mass Casualty 

Incidents (AS/MCIs).

II. DATE OF ISSUANCE: April 10, 2014

III. POLICY STATEMENT: State Administrative Agencies (SAAs) and tribal 

governments are authorized and encouraged to use Homeland Security Grant 

Program (HSGP) and Tribal Homeland Security Grant Program (THSGP) funding 

to enable the purchase of BPE for fire/rescue and EMS personnel whose duties may 

include response to AS/MCIs and entry into a “warm zone” to support the rapid 

triage, treatment, and extrication of the wounded. In addition to funding the 

necessary equipment, HSGP and THSGP funding may also be used to support 

associated AS/MCI planning, training, and exercise requirements. This policy does 

not affect the use of HSGP and THSGP funding to support tactical law 

enforcement (LE) teams (i.e., LE teams qualified for “hot zone “entry) as funding 

used for this purpose remains an allowable expense.

IV. PURPOSE: State, tribal, and local authorities must be prepared to respond to 

AS/MCIs. In addition to developing the necessary LE response capabilities, they 

must build sufficient public safety resources and capabilities to quickly triage, 

treat, and evacuate victims located within or near an AS/MCI area. Providing fire 

and EMS teams with proper BPE, along with the requisite training, directly 

supports this critical capability. To that end, this policy provides clarity on the 

authorized use of HSGP funding and THSGP funding. Furthermore, FEMA

encourages SAAs and tribal governments to allocate such funding to support 

development of AS/MCI capabilities and specifically to support the purchase of 

BPE and the associated AS/MCI planning and training for fire and EMS personnel.

This policy is not intended to address the tactical aspects of AS/MCI planning, 

training, and operations. Rather, the focus of the policy is on establishing funding 

eligibility criteria in support of AS/MCI response preparedness. Preparedness and 

operational guidelines for fire and EMS personnel can be found on the U.S. Fire 

Administration website at: 

http://www.usfa.fema.gov/downloads/pdf/publications/active_shooter_guide.pdf.
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V. SCOPE AND EXTERNAL AUDIENCE: This policy shall apply to all currently 

open HSGP awards and to all future HSGP and THSGP awards. SAAs should 

refer to Grant Programs Directorate (GPD) Information Bulletin #379 titled 

Guidance to State Administrative Agencies to Expedite the Expenditure of Certain 

DHS/FEMA Grant Funding, issued on Feb. 17, 2012, for guidance on re-scoping and 

reallocating open awards

(http://www.fema.gov/pdf/government/grant/bulletins/info379.pdf). 

Emergency Managers, Fire Chiefs and Fire Commanders, EMS Chiefs, On-Scene 

Incident Commanders, Police and Special Weapons and Tactics (SWAT) Team 

Commanders, Bomb Squad Commanders, Public Health entities who oversee 

occupational and workplace safety, and all state, tribal, and local homeland 

security planners and grants managers should be made aware of this new 

equipment allowability. 

VI. AUTHORITY: This policy is governed by the following authority: 

§ 2008 of the Homeland Security Act of 2002, as amended (Pub. L. 107-296) (6 U.S.C. 

§ 609)

VII. OBJECTIVES: The objective of this policy is to authorize the use of HSGP and 

THSGP funding to support the proper training and equipping of fire/rescue and 

EMS personnel who may be required to deploy to an AS/MCI incident and enter a

potentially unsecure area where an ongoing ballistic or explosive threat exists and 

where rapid triage, treatment, and extrication of the wounded may be necessary. 

VIII. DEFINITIONS, ABBREVIATIONS, AND FORMATTING: 

A. Definitions

1) Active Shooter and Mass Casualty Incident (AS/MCI): This is a general 

term intended to cover active shooter incidents involving one or more 

subjects who participate in an ongoing, random or systematic shooting 

spree, demonstrating their intent to harm others with the objective of mass 

murder.
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2) Hot Zone: Area where there is a known hazard or a direct and immediate 

life threatening situation, i.e., any uncontrolled area where an “active 

shooter” could directly engage a rescue team. 

3) Warm Zone: Area of indirect threat, i.e. an area where LE officials have

either cleared or isolated the threat to a level of minimal or mitigated risk. 

This area can be considered clear but not secure. 

4) Ballistic Protective Equipment (BPE): Ballistic protective gear, including 

body armor, for the head and body; i.e., vests, gloves, knee pads, helmets, 

and shields.

B. Abbreviations

1) AEL: Authorized Equipment List 

2) AS/MCI: Active Shooter and Mass Casualty Incidents

3) BPE: Ballistic Protective Equipment

4) EMS: Emergency Medical Services 

5) FEMA: Federal Emergency Management Agency

6) GPD: FEMA Grant Programs Directorate 

7) HSGP: Homeland Security Grant Program

8) IC: Incident Commander

9) LE: Law Enforcement

10) NTED: FEMA National Training and Education Division

11) SAA: State Administrative Agency

12) THIRA: Threat and Hazard Identification and Risk Assessment 

IX. POLICY DETAILS: BPE is essential for the safety of first responders, such as 

fire/rescue and EMS personnel, who may be called upon to support LE teams

during an active shooter incident, and enter an unsecured active shooter area 

(warm or hot zone). Fire/rescue and EMS personnel who are not members of a 

tactical LE response team have traditionally not entered an active shooter area 

until the “all clear sign” is given by the Incident Commander (IC). However, 

expert analysis of recent AS/MCI incidents has revealed the value of having

medical and rescue personnel who are properly trained and equipped to enter the 

warm zone to maximize victim survival. FEMA therefore encourages first 

responder agencies to develop this capability. This policy allows state, tribal, and 
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local response agencies to procure BPE for fire/rescue and EMS personnel using 

HSGP and THSGP funds for these purposes and for the purposes described in 

sections III and IV, above. In addition to the purchase of required equipment, HSGP 

and THSGP funding may be used to support the associated AS/MCI planning, 

training, and exercise requirements. 

State and local fire and EMS organizations are encouraged to establish joint 

interagency plans, policies, and procedures that address AS/MCI response 

operations. The development of such doctrine should be coordinated among the 

fire/EMS response organizations; LE, public safety, and private sector responder 

agencies; and regionally with hospitals and receiving medical facilities. In 

addition, fire and EMS personnel should be properly trained and qualified in the 

use of the ballistic protection equipment and AS/MCI tactics and procedures. 

Interagency training and exercises are highly encouraged. As a condition of 

funding, such investments should directly link to capability targets and resource 

requirements identified by the State, Tribe, or relevant Urban Area Threat and 

Hazard Identification and Risk Assessment (THIRA) and related capability gaps as 

identified in the State Preparedness Report. 

Agencies can learn more about developing a program related to AS/MCI 

coordinated response by contacting the FEMA National Training and Education

Division (NTED). Course catalog and scheduling information can be accessed 

through https://www.firstrespondertraining.gov/content.do. The Grant Programs

Directorate (GPD) can provide information on how other jurisdictions in the 

country have used HSGP funding to establish this capability in their response and 

recovery protocols for all hazards events. Agencies also are encouraged to review 

GPD Policy FP 207-008-064-1 titled Review and Approval Requirements for Training 

Courses Funded Through Preparedness Grants, issued on Sept. 10, 2013 for further 

guidance (http://www.fema.gov/media-library/assets/documents/34856). 

The Authorized Equipment List (AEL), which is located at 

https://www.llis.dhs.gov/knowledgebase/ael, provides information on allowable 

equipment expenditures for the various preparedness grant programs, including 

BPE and other personal protective equipment. SAAs and tribal governments must 

ensure that BPE purchased with HSGP and THSGP funds meets the applicable 

standards outlined in the AEL, including NIJ Standard-0101.06, Ballistic Resistance 
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of Body Armor, which is cited as a mandatory standard. The publication can be 

found at: http://www.nij.gov/publications/pages/publicationdetail.aspx?ncjnumber=223054. GPD will update the AEL to reflect the expanded 

authorization as detailed in this policy.

X. ROLES AND RESPONSIBILITIES: SAAs and tribal governments are asked to 

disseminate this information with their stakeholders as soon as possible. State, tribal,

and local agencies will need to anticipate and plan for their agency’s equipment 

procurement and training needs. Additionally, response agencies, including 

fire/rescue and EMS organizations, may need to develop new policies and procedures 

to effectively implement the guidance and recommendations contained in this policy.

XI. MONITORING AND EVALUATION: The acquisition of BPE and related 

training expenses will be monitored by GPD through desk reviews and site visits. 

SAAs are encouraged to report these purchases in the Biannual Strategy 

Implementation Report (BSIR). Planned purchases should also be reported in 

future HSGP and THSGP applications.

XII. RESPONSIBLE OFFICE: FEMA Grant Programs Directorate

XIII. SUPERSESSION: This policy does not supersede other policy on the subject.

XIV. REVIEW DATE: This policy expires three years from the date of issuance in 

accordance with Directive 112-12. 

 

Brian Kamoie

Assistant Administrator for Grant Programs