Document ID: FEMA-2015-0028-0001
Agency: fema
Document Type: Notice
Title: Assistance to Firefighters Grant Program
Posted Date: 2015-12-22T05:00Z

[Federal Register Volume 80, Number 245 (Tuesday, December 22, 2015)]
[Notices]
[Pages 79601-79605]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-31905]

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DEPARTMENT OF HOMELAND SECURITY

Federal Emergency Management Agency

[Docket ID: FEMA-2015-0028]

Assistance to Firefighters Grant Program

AGENCY: Federal Emergency Management Agency (FEMA), Department of 
Homeland Security (DHS).

ACTION: Notice of availability of grant application and application 
deadline.

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SUMMARY: As required by the Federal Fire Prevention and Control Act of 
1974, as amended, the Administrator of the Federal Emergency Management 
Agency (FEMA) is publishing this notice describing the Fiscal Year (FY) 
2015 Assistance to Firefighters Grant (AFG) Program application 
process, deadlines, and award selection criteria. This notice explains 
the differences, if any, between these guidelines and those recommended 
by representatives of the national fire service leadership during the 
annual meeting of the Criteria Development Panel, which was held 
October 27-28, 2014. The application period for the FY 2015 AFG Program 
will be held December 7, 2015 through January 15, 2015, and will be 
announced on the AFG Web site (www.fema.gov/firegrants), as well as 
www.grants.gov.

DATES: Grant applications for the Assistance to Firefighters Grants 
will be accepted electronically at https://portal.fema.gov, from 
December 7, 2015, at 8 a.m. Eastern Standard Time to January 15, 2015, 
at 5:00 p.m. Eastern Standard Time.

ADDRESSES: Assistance to Firefighters Grants Branch, DHS/FEMA, 800 K 
Street NW., MS 3620, Washington, DC 20472-3620.

FOR FURTHER INFORMATION CONTACT: Catherine Patterson, Branch Chief, 
Assistance to Firefighters Grant Branch, 1-866-274-0960.

SUPPLEMENTARY INFORMATION: The AFG Program makes grants directly to 
fire departments, nonaffiliated emergency medical services (EMS) 
organizations, and state fire training academies (SFTAs) for the 
purpose of enhancing the abilities of first responders to protect the 
health and safety of the public, as well as the first-responder 
personnel facing fire and fire-related hazards.
    Applications for the FY 2015 AFG Program will be submitted and 
processed online at https://portal.fema.gov. Before the application 
period starts, the FY 2015 AFG Notice of Funding Opportunity 
Announcement (NOFO) will be published on the AFG

[[Page 79602]]

Web site (www.fema.gov/firegrants). Applicants will also be able to 
access additional information on the AFG Web site, including a list of 
Frequently Asked Questions (FAQs), a ``Get Ready Guide,'' and a ``Quick 
Reference Guide.'' It is likely that approximately 10,000 to 15,000 
applications will be submitted for FY 2015 AFG Program grant funds. 
FEMA anticipates that it will be able to award approximately 3,000 
grants with the available grant funding.

Appropriations

    In 2015, Congress appropriated $340,000,000 pursuant to the 
Department of Homeland Security Appropriations Act, 2014, Public Law 
113-6. From this amount, $306,000,000 will be made available for AFG 
awards. In addition, the authorizing statute requires that a minimum of 
10 percent of available funds be expended for Fire Prevention and 
Safety grants (FP&S), to be made directly to local fire departments and 
to local, regional, state, or national entities recognized for their 
expertise in the fields of fire prevention and firefighter safety 
research and development. Funds appropriated for FY 2015 will be 
available for obligation and award until September 30, 2016.
    The authorizing statute directs FEMA to administer the 
appropriations according to the following requirements:
     Career (fire department): Not less than 25 percent of 
available grant funds.
     Volunteer (fire department): Not less than 25 percent of 
available grant funds.
     Combination (fire department) and departments using paid-
on-call firefighting personnel--not less than 25 percent of available 
grant funds.
     Open Competition: Career, volunteer, and combination fire 
departments and fire departments using paid-on-call firefighting 
personnel--not less than 10 percent of available grant funds awarded.
     Emergency Medical Services Providers: Fire departments and 
nonaffiliated EMS organizations; not less than 3.5 percent of available 
grants funds awarded, with nonaffiliated EMS providers receiving no 
more than 2 percent of the total available grant funds.
     State Fire Training Academies (SFTAs): No more than 3 
percent of available grant funds shall be collectively awarded to state 
fire training academy applicants, with a maximum of $500,000 to be 
awarded per applicant.
     Vehicles: Not more than 25 percent of available grant 
funds may be used for the purchase of vehicles; 10 percent of the total 
vehicle funds will be dedicated to funding ambulances. The allocation 
of funding will be distributed as equally as possible among urban, 
suburban, and rural community applicants. The remaining Vehicle 
Acquisition funds will be awarded competitively without regard to 
community classification.
     Micro Grants: This is a voluntary funding limitation 
choice made by the applicant for requests submitted for Operations and 
Safety Grant Component Program; it is not an additional funding 
opportunity. Micro Grants are awards that have a federal participation 
(share) that does not exceed $25,000. Only fire departments and 
nonaffiliated EMS organizations are eligible to choose Micro Grants, 
and the only eligible Micro Grants activities are Training, Equipment, 
PPE, and Wellness and Fitness. Applicants that select Micro Grants as a 
funding opportunity may receive additional consideration for award. If 
an applicant selects Micro Grants in their application, they will be 
limited in the total amount of funding their organization can be 
awarded; if they are requesting funding in excess of $25,000 federal 
participation, they should not select Micro Grants.

Background of the AFG Program

    Since 2001, the AFG Program has helped firefighters and other first 
responders to obtain critically needed equipment, protective gear, 
emergency vehicles, training, and other resources needed to protect the 
public and emergency personnel from fire and related hazards. FEMA 
awards the grants on a competitive basis to the applicants that best 
address the AFG Program's priorities and provide the most compelling 
justification. Applications that best address the Program's priorities 
will be reviewed by a panel composed of fire service personnel.

Application Evaluation Criteria

    Prior to making a grant award, FEMA is required by 31 U.S.C. 3321 
and 41 U.S.C. 2313 to review information available through any Office 
of Management and Budget (OMB)-designated repositories of government-
wide eligibility qualification or financial integrity information. 
Therefore, application evaluation criteria may include the following 
risk based considerations of the applicant: (1) Financial stability; 
(2) quality of management systems and ability to meet management 
standards; (3) history of performance in managing federal award; (4) 
reports and findings from audits; and (5) ability to effectively 
implement statutory, regulatory, or other requirements.
    FEMA will rank all complete and submitted applications based on how 
well they match program priorities for the type of jurisdiction(s) 
served. Answers to activity-specific questions provide information used 
to determine each application's ranking relative to the stated program 
priorities.
    Funding priorities and criteria for evaluating AFG applications are 
established by FEMA based on the recommendations from the Criteria 
Development Panel (CDP). The CDP is comprised of fire service 
professionals that make recommendations to FEMA regarding the creation 
of new or the modification of previously established funding 
priorities, as well as developing criteria for awarding grants. The 
content of the NOFO reflects implementation of the CDP's 
recommendations with respect to the priorities and evaluation criteria 
for awards.
    The nine major fire service organizations represented on the CDP 
are:
     International Association of Fire Chiefs
     International Association of Fire Fighters
     National Volunteer Fire Council
     National Fire Protection Association
     National Association of State Fire Marshals
     International Association of Arson Investigators
     International Society of Fire Service Instructors
     North American Fire Training Directors
     Congressional Fire Service Institute

Review and Selection Process

    AFG applications are reviewed through a multi-phase process. First, 
applications are electronically pre-scored and ranked; then scored 
competitively by (no less than three) members of the Peer Review Panel. 
Applications are also evaluated through a series of internal FEMA 
review processes for completeness, adherence to programmatic 
guidelines, technical feasibility, and anticipated effectiveness of the 
proposed project(s). The review process is outlined below:

1. Pre-Scoring Process

    The application undergoes an electronic pre-scoring process based 
on established program priorities listed within the NOFO. Application 
narratives are not reviewed during pre-scoring. Request details and 
budget information should comply with program guidance and statutory 
funding limitations. The pre-score is 50 percent of the total 
application score.

[[Page 79603]]

2. Peer Review Panel Process

    Applications with the highest pre-score will be evaluated by a peer 
review process. The peer review is comprised of fire service 
representatives recommended by CDP national organizations. The 
panelists assess the merits of each application with respect to the 
detail provided in the narrative section of the application, including 
the evaluation elements listed in the Narrative Evaluation Criteria 
below. The panel will independently score each project within the 
application, discuss the merits and/or shortcomings of the application, 
and document its findings. A consensus is not required. The panel score 
is 50 percent of the total application score.

3. Technical Evaluation Process

    The highest ranked applications are deemed within the fundable 
range. Applications that are in the fundable range undergo both a 
technical review by a subject matter expert (SME), as well as a FEMA 
program office review prior to being recommended for award. The FEMA 
program office will assess the request with respect to costs, 
quantities, feasibility, eligibility, and recipient responsibility 
prior to recommending an application for award.
    Once the technical evaluation process is complete, the cumulative 
score for each application will be determined and a final ranking of 
applications will be generated. FEMA will award grants based on this 
final ranking and the required funding limitations in statute.

Narrative Evaluation Criteria

1. Financial Need (25%)

    Applicants should describe their financial need and how consistent 
it is with the intent of the AFG Program. This statement should include 
details describing the applicant's financial distress, summarizing 
budget constraints, unsuccessful attempts to secure other funding, and 
proving the financial distress is out of their control.

2. Project Description and Budget (25%)

    This statement should clearly explain the applicant's project 
objectives and the relationship between those objectives and the 
applicant's budget and risk analysis. The applicant should describe the 
various activities applied for with respect to any program priority or 
facility modifications, ensuring they are consistent with project 
objectives, the applicant's mission, and any national, state, and/or 
local requirements. Applicants should link the proposed expenses to 
operations and safety, as well as the completion of the project goals

3. Operations and Safety/Cost Benefit (25%)

    Applicants should describe how they plan to address the operations 
and personal safety needs of their organization, including cost 
effectiveness and sharing assets. This statement should also include 
details about gaining the maximum benefits from grant funding by citing 
reasonable or required costs, such as specific overhead and 
administrative costs. The applicant's request should also be consistent 
with their mission and identify how funding will benefit their 
organization and personnel.

4. Statement of Effect/Impact on Daily Operations (25%)

    This statement should explain how this funding request will enhance 
the organization's overall effectiveness. It should address how this 
request will improve daily operations and reduce the organization's 
common risk(s). Applicants should include how frequently the requested 
item(s) will be used and in what capacity. Applicants should also 
indicate how the requested item(s) will help the community and increase 
the organization's ability to save additional lives and property.

Eligible Applicants

    Fire Departments: Fire departments operating in any of the 56 
states, which includes any state of the United States, the District of 
Columbia, the Commonwealth of the Northern Mariana Islands, the U.S. 
Virgin Islands, Guam, American Samoa, the Commonwealth of Puerto Rico; 
or, any federally recognized Indian tribe or tribal organization are 
eligible applicants. A fire department is an agency or organization 
having a formally recognized arrangement with a state, territory, 
local, or tribal authority (city, county, parish, fire district, 
township, town, or other governing body) to provide fire suppression to 
a population within a geographically fixed primary first due response 
area.
    Nonaffiliated EMS organizations: Nonaffiliated EMS organizations 
operating in any of the 56 states, which includes any state of the 
United States, the District of Columbia, the Commonwealth of the 
Northern Mariana Islands, the U.S. Virgin Islands, Guam, American 
Samoa, the Commonwealth of Puerto Rico; or, any federally recognized 
Indian tribe or tribal organization are eligible applicants. A 
nonaffiliated EMS organization is an agency or organization that is a 
public or private nonprofit emergency medical services entity providing 
medical transport, that is not affiliated with a hospital and does not 
serve a geographic area in which emergency medical services are 
adequately provided by a fire department.
    FEMA considers the following as hospitals under the AFG program:
     Clinics
     Medical centers
     Medical college or university
     Infirmary
     Surgery centers
     Any other institution, association, or foundation 
providing medical, surgical, or psychiatric care and/or treatment for 
the sick or injured.
    State Fire Training Academies: A state fire training academy (SFTA) 
operating in any of the 56 states, which includes any state of the 
United States, the District of Columbia, the Commonwealth of the 
Northern Mariana Islands, the U.S. Virgin Islands, Guam, American 
Samoa, and the Commonwealth of Puerto Rico is an eligible applicant. 
Applicants must be designated either by legislation or by a Governor's 
declaration as the sole state fire service training agency within a 
state. The designated SFTA shall be the only state agency/bureau/
division, or entity within that state, to be an eligible AFG SFTA 
applicant.

Ineligibility

     FEMA considers two or more separate fire departments or 
nonaffiliated EMS organizations sharing facilities as being one 
organization. If two or more organizations share facilities, and each 
organization submits an application in the same program area, FEMA may 
deem all of those program area applications to be ineligible to avoid 
any duplication of benefits.
     Fire-based EMS organizations are not eligible to apply as 
nonaffiliated EMS organizations. Fire-based EMS training and equipment 
must be requested by a fire department under the AFG component program 
Operations and Safety.

Statutory Limits to Funding

    Congress has enacted statutory limits to the amount of funding that 
a grantee may receive from the AFG Program in any single fiscal year 
(15 U.S.C. 2229(c)(2)) based on the population served. Awards will be 
limited based on the size of the population protected by the applicant, 
as indicated below. Notwithstanding the annual limits stated below, the 
FEMA Administrator may not award a grant in an amount that exceeds one 
percent of the available grants funds in such fiscal year, except

[[Page 79604]]

where it is determined that such recipient has an extraordinary need 
for a grant in an amount that exceeds the one percent aggregate limit.
     In the case of a recipient that serves a jurisdiction with 
100,000 people or fewer, the amount of available grant funds awarded to 
such recipient shall not exceed $1 million in any fiscal year.
     In the case of a recipient that serves a jurisdiction with 
more than 100,000 people but not more than 500,000 people, the amount 
of available grant funds awarded to such recipient shall not exceed $2 
million in any fiscal year.
     In the case of a recipient that serves a jurisdiction with 
more than 500,000 but not more than 1 million people, the amount of 
available grant funds awarded to such recipient shall not exceed $3 
million in any fiscal year.
     In the case of a recipient that serves a jurisdiction with 
more than 1 million people but not more than 2,500,000 people, the 
amount of available grant funds awarded to such recipient shall not 
exceed $6 million for any fiscal year, but is subject to the one 
percent aggregate cap of $3,400,000 for FY 2015.
     In the case of a recipient that serves a jurisdiction with 
more than 2,500,000 people, the amount of available grant funds awarded 
to such recipient shall not exceed $9 million in any fiscal year, but 
is subject to the one percent aggregate cap of $3,400,000 for FY 2015.
     FEMA may not waive the caps on the maximum amount of 
available grant funds awarded based upon population.
    The cumulative total of the federal share of awards in Operations 
and Safety, Regional and Vehicle Acquisition activities will be 
considered when assessing award amounts and any limitations thereto. 
Applicants may request funding up to the statutory limit on each of 
their applications.
    For example, an applicant that serves a jurisdiction with more than 
100,000 people but not more than 500,000 people may request up to $2 
million on their Operations and Safety Application and up to $2 million 
on their Vehicle Acquisition Request. However, should both grants be 
awarded, the applicant would have to choose which award to accept if 
the cumulative value of both applications exceeds the statutory limits.

Cost Sharing and Maintenance of Effort

    Grantees must share in the costs of the projects funded under this 
grant program as required by 15 U.S.C. 2229(k)(1) and in accordance 
with applicable federal regulations governing grants in effect at the 
time a grant is awarded to a grantee, but they are not required to have 
the cost-share at the time of application nor at the time of award. 
However, before a grant is awarded, FEMA will contact potential 
awardees to determine whether the grantee has the funding in hand or if 
the grantee has a viable plan to obtain the funding necessary to 
fulfill the cost-sharing requirement.
    In general, an eligible applicant seeking a grant shall agree to 
make available non-federal funds equal to not less than 15 percent of 
the grant awarded. However, the cost share will vary as follows based 
on the size of the population served by the organization:
     Applicants serving areas with populations above 20,000 but 
not more than 1 million shall agree to make available non-federal funds 
equal to not less than 10 percent of the total project cost.
     Applicants that serve populations of 20,000 or less must 
match the Federal grant funds with an amount of non-federal funds equal 
to 5 percent of the total project cost.
    The cost share of state fire training academies and joint/regional 
projects will be based on the entire state or region, not the 
population of the host organization.
    On a case by case basis, FEMA may allow grantees that already own 
assets (equipment or vehicles) to use the trade-in allowance/credit 
value of those assets as ``cash'' for the purpose of meeting the cost-
share obligation of their AFG award. In-kind cost-share matches are not 
allowed.
    Grant recipients under this grant program must also agree to a 
maintenance of effort requirement as required by 15 U.S.C. 2229(k)(3) 
(referred to as a ``maintenance of expenditure'' requirement in that 
statute). A grant recipient shall agree to maintain during the term of 
the grant the applicant's aggregate expenditures relating to the 
activities allowable under the NOFO at not less than 80 percent (80%) 
of the average amount of such expenditures in the two (2) fiscal years 
preceding the fiscal year in which the grant amounts are received.
    In cases of demonstrated economic hardship, and on the application 
of the grant recipient, the Administrator of FEMA may waive or reduce a 
grant recipient's cost share requirement or maintenance of expenditure 
requirement. As required by statute, the Administrator of FEMA has 
established guidelines for determining what constitutes economic 
hardship and published these guidelines at FEMA's Web site 
(www.fema.gov/grants).
    Prior to the start of the FY 2015 AFG application period, FEMA will 
conduct applicant workshops and/or Internet webinars to inform 
potential applicants about the AFG Program. In addition, FEMA will 
provide applicants with information at the AFG Web site (www.fema.gov/firegrants) to help them prepare quality grant applications. The AFG 
Help Desk will be staffed throughout the application period to assist 
applicants with the automated application process as well as assistance 
with any questions they have. Applicants can reach the AFG Help Desk 
through a toll-free telephone number (1-866-274-0960) or electronic 
mail (firegrants@dhs.gov).

Application Process

    Organizations may submit one application per application period in 
each of the three AFG Program areas, e.g., one application for 
Operations and Safety, one for Vehicle Acquisition, and/or a separate 
application to be a Joint/Regional Project host. If an organization 
submits more than one application for any single AFG Program area, 
e.g., two applications for Operations and Safety, two for Vehicles, 
etc.; either intentionally or unintentionally, FEMA will deem all 
applications submitted by that organization for the particular program 
to be ineligible for funding.
    Applicants will be advised to access the application electronically 
at https://portal.fema.gov. The application will also be accessible 
from the U.S. Fire Administration's Web site (http://www.usfa.fema.gov) 
and http://www.grants.gov. New applicants will be required to register 
and establish a username and password for secure access to their 
application. Applicants that applied for any previous AFG funding 
opportunities will be required to use their previously established 
usernames and passwords.
    In completing the application, applicants will be asked to provide 
relevant information on their organization's characteristics, call 
volume, and existing capabilities. Applicants will be asked to answer 
questions about their grant request that reflect the AFG funding 
priorities, which are described below. In addition, each applicant must 
complete four separate narratives for each project or grant activity 
requested.

System for Award Management (SAM)

    In 2012, the System for Award Management (SAM) replaced the Central 
Contractor Registry (CCR). Per 2 CFR 25.200, all grant applicants and 
recipients are now required to register in https://SAM.gov, which is 
available free of charge. They must maintain validated information in 
SAM that is

[[Page 79605]]

consistent with the data provided in their AFG grant application and in 
the Dun & Bradstreet (DUNS) database. AFG will not accept any 
application, process any awards, consider any payment or amendment 
requests, or consider any amendment until the applicant or grantee has 
complied with the requirements to provide a valid DUNS number and an 
active SAM registration with current information. The banking 
information, employer identification number (EIN), organization/entity 
name, address, and DUNS number provided in the application must match 
the information that provided in SAM.

Changes to Criteria Development Panel (CDP) Recommendations

    FEMA must explain any differences between the published guidelines 
and the recommendations made by the CDP and publish this information in 
the Federal Register prior to making any grants under the AFG Program. 
For FY 2015, FEMA accepted and is implementing all of the CDP's 
recommendations.

New for FY 2015

    Uniform Administrative Requirements, Cost Principles, and Audit 
Requirements for Federal Awards--On December 26, 2014, DHS adopted the 
Office of Management and Budget's (OMB) Uniform Administrative 
Requirements, Cost Principles, and Audit Requirements for Federal 
Awards in 2 CFR part 200 that establishes a uniform set of mandatory 
requirements for federal awards to non-federal entities. These 
requirements apply to all awards made after December 26, 2014, 
including all FY 2014 and FY 2015 AFG awards. This regulation (also 
commonly referred to as the ``Super Circular'' or ``Omni Circular'') is 
available at: http://www.ecfr.gov/cgi-bin/text-idx?SID=c1e355be139798e0c2583b0136a0fae7&mc=true&tpl=/ecfrbrowse/Title02/2cfrv1_02.tpl#0.
    A crosswalk that highlights policy changes, clarifications, and 
updates to policy provisions, is available at: https://www.whitehouse.gov/sites/default/files/omb/fedreg/2013/uniform-guidance-crosswalk-from-predominate-source-in-existing-guidance.pdf.
    Equipment Priorities for Nonaffiliated EMS Organizations--As the 
basic mission of nonaffiliated EMS organizations is to provide Basic 
Life Support (BLS)/Advanced Life Support (ALS) care and transport in 
support of the public and emergency responders; all rescue/extrication 
equipment will now be considered a Medium priority for EMS 
organizations.
    Product Lifecycles--Historically, for most eligible equipment 
(i.e., hose, ladders, hand tools, etc.), the highest funding priority 
is for equipment that is 15 years or older in age, or obsolete by 
default per a recognized standard (e.g., NFPA 1851: Standard on 
Selection, Care, and Maintenance of Protective Ensembles for Structural 
Fire Fighting and Proximity Fire Fighting). However, for FY 2015, the 
useful operational life of EMS technology-based equipment has been 
adjusted to an 8-year replacement lifecycle in many cases.
    Transitioning Titles in Emergency Medical Services--The US 
Department of Transportation, under the National EMS Scope of Practice 
Model, is in the process of changing titles for EMS providers. Under 
this program, the titles below are changing, and FEMA will incorporate 
these changes into each grant cycle.
     First Responder to Emergency Medical Responder (EMR)
     Emergency Medical Technician-Basic (EMT-B) to Emergency 
Medical Technician (EMT)
     Emergency Medical Technician Intermediate/85 (EMT-I) to 
Advanced EMT (AEMT)
     Emergency Medical Technician Intermediate/99 to Paramedic
     EMT-Paramedic (EMT-P) to Community Paramedics (Paramedics 
with Primary Care certification)

Funding Priorities

    The funding priorities, recommended by a panel of representatives 
from the nation's fire service leadership, have been accepted by DHS 
for the purposes of implementing the AFG Program, are outlined in the 
Fiscal Year 2015 Notice of Funding Opportunity. Graphical charts, with 
rating criteria, have been created to easily depict whether activities 
were a (H) High, (M) Medium or (L) Low funding priority. These rating 
criteria provide an understanding of the AFG Program's priorities and 
the expected cost-effectiveness of any proposed project(s).

Administrative Costs

    Panelists will assess the administrative costs requested in each 
application and determine whether the request is reasonable and in the 
best interest of the Program.

    Authority: 15 U.S.C. 2229.

    Dated: December 12, 2015.
W. Craig Fugate,
Administrator, Federal Emergency Management Agency.
[FR Doc. 2015-31905 Filed 12-21-15; 8:45 am]
BILLING CODE 9111-78-P