[House Report 119-296]
[From the U.S. Government Publishing Office]
119th Congress } { Report
HOUSE OF REPRESENTATIVES
1st Session } { 119-296
======================================================================
ENHANCING STAKEHOLDER SUPPORT AND OUTREACH FOR
PREPAREDNESS GRANTS ACT
_______
September 15, 2025.--Committed to the Committee of the Whole House on
the State of the Union and ordered to be printed
_______
Mr. Garbarino, from the Committee on Homeland Security, submitted the
following
R E P O R T
[To accompany H.R. 4058]
[Including cost estimate of the Congressional Budget Office]
The Committee on Homeland Security, to whom was referred
the bill (H.R. 4058) to amend the Homeland Security Act of 2002
to enhance outreach for the Urban Area Security Initiative and
the State Homeland Security Grant Program of the Department of
Homeland Security, 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.............................................. 2
Background and Need for Legislation.............................. 2
Hearings......................................................... 2
Committee Consideration.......................................... 3
Committee Votes.................................................. 3
Committee Oversight Findings..................................... 3
C.B.O. Estimate, New Budget Authority, Entitlement Authority, and
Tax Expenditures............................................... 3
Federal Mandates Statement....................................... 4
Duplicative Federal Programs..................................... 4
Statement of General Performance Goals and Objectives............ 5
Congressional Earmarks, Limited Tax Benefits, and Limited Tariff
Benefits....................................................... 5
Advisory Committee Statement..................................... 5
Applicability to Legislative Branch.............................. 5
Section-by-Section Analysis of the Legislation................... 5
Changes in Existing Law Made by the Bill, as reported............ 5
Purpose and Summary
H.R. 4058, the ``Enhancing Stakeholder Support and Outreach
for Preparedness Grants Act,'' requires the Administrator of
the Federal Emergency Management Agency (FEMA) to, on an
ongoing basis, provide stakeholder outreach, engagement,
education, technical assistance, and support, prior to, during,
and after the awarding of Urban Area Security Initiative (UASI)
grants and State Homeland Security Program (SHSP) grants. This
includes conducting annual surveys and other feedback
mechanisms to gather input from State, local, Tribal, and
territorial stakeholders, and incorporate this feedback into
future SHSP and UASI grant funding opportunities.
This legislation additionally requires the Government
Accountability Office (GAO) to submit a report within two years
on the effectiveness of FEMA's outreach and support efforts
related to these grant programs and requires the FEMA
Administrator to submit a report to Congress on stakeholder
outreach and engagement efforts within three years of enactment
of the Act.
Background and Need for Legislation
FEMA's Grant Programs Directorate provides preparedness
funding to assist States, localities, urban areas, tribal, and
territorial governments, and non-profit agencies in
strengthening the nation's ability to prevent, protect against,
respond to, and recover from terrorist attacks, major
disasters, and other emergencies. The SHSP and the UASI are
risk-based grants that assist state, local, tribal and
territorial efforts in preventing, protecting against,
mitigating, responding to and recovering from acts of terrorism
and other threats.
In Fiscal Year 2020, the Department of Homeland Security
introduced National Priority Areas (NPAs) to both SHSP and UASI
to target funding toward evolving threats. In January 2024, the
GAO released a report that examined how FEMA establishes and
makes changes to NPAs.\1\ The GAO made two recommendations: DHS
should fully document the rationale and process for making
changes to the National Priority Areas; and FEMA should conduct
targeted outreach to stakeholders.\2\
---------------------------------------------------------------------------
\1\GAO. DHS Implemented National Priority Areas but Could Better
Document and Communicate Changes. January 2024. https://www.gao.gov/
assets/24106327.pdf.
\2\Id.
---------------------------------------------------------------------------
H.R. 4058 codifies GAO's recommendations by requiring the
FEMA Administrator to employ annual surveys and other feedback
mechanisms to gather input from State, local, Tribal, and
territorial stakeholders, and incorporate this feedback into
future SHSP and UASI grant funding opportunities. The bill
requires the FEMA Administrator to submit a report to Congress
on stakeholder outreach and engagement and requires GAO to
submit a report on the effectiveness of FEMA's outreach and
support efforts related to these grant programs.
Hearings
The Committee has not held a hearing that guided the
development of this legislation in the 119th Congress.
Committee Consideration
The Committee met on June 25, 2025, a quorum being present,
to consider H.R. 4058 and ordered the measure to be favorably
reported to the House by voice vote.
Committee Votes
Clause 3(b) of rule XIII requires the Committee to list the
recorded votes on the motion to report legislation and
amendments thereto.
No recorded votes were requested during consideration of
H.R. 4058.
Committee Oversight Findings
In compliance with clause 3(c)(1) of rule XIII, the
Committee advises that the findings and recommendations of the
Committee, based on oversight activities under clause 2(b)(1)
of rule X, are incorporated in the descriptive portions of this
report.
Congressional Budget Office Estimate, New Budget Authority, Entitlement
Authority, and Tax Expenditures
With respect to the requirements of clause 3(c)(2) of rule
XIII and section 308(a) of the Congressional Budget Act of
1974, and with respect to the requirements of clause 3(c)(3) of
rule XIII and section 402 of the Congressional Budget Act of
1974, the Committee adopts as its own the estimate of any new
budget authority, spending authority, credit authority, or an
increase or decrease in revenues or tax expenditures contained
in the cost estimate prepared by the Director of the
Congressional Budget Office.
H.R. 4058 would require the Federal Emergency Management
Agency (FEMA) to expand technical assistance, outreach,
training, and other support activities that the agency
currently provides under the State Homeland Security Grant
Program and the Urban Area Security Initiative. Both programs
provide grants to state governments to address terrorism and
other security threats by funding security operations,
planning, training, equipment purchases, and other activities.
The bill would require FEMA to conduct annual surveys to
gather feedback from state, local, and tribal governments about
their needs, the grant process, and the effectiveness of the
agency's outreach efforts. FEMA would need to report to the
Congress on its implementation of the bill within three years
of enactment. Finally, H.R. 4058 would require the Government
Accountability Office (GAO), within two years of enactment, to
assess the effectiveness of FEMA's assistance to interested
parties throughout the lifecycle of grants made for both
programs.
The costs of the legislation, detailed in Table 1, fall
within budget function 450 (community and regional
development).
Table 1.--ESTIMATED INCREASES IN SPENDING SUBJECT TO APPROPRIATION UNDER H.R. 4058
----------------------------------------------------------------------------------------------------------------
By fiscal year, millions of dollars--
----------------------------------------------------------
2025 2026 2027 2028 2029 2030 2025-2030
----------------------------------------------------------------------------------------------------------------
Estimated Authorization.............................. 0 2 2 2 2 2 10
Estimated Outlays.................................... 0 1 2 2 2 2 9
----------------------------------------------------------------------------------------------------------------
Under current law, FEMA currently commits the equivalent of
nine full-time employees to provide outreach and technical
assistance to state and local governments under the two
programs but does not administer annual surveys. Using
information from the agency and based on the costs of similar
administrative activities, CBO expects that FEMA would need
seven employees, at an average annual cost of about $205,000 in
2025, to administer the annual surveys and increase assistance.
Accounting for anticipated inflation and $2 million for
contracts to support those activities, CBO estimates that
FEMA's cost to implement the bill would total $8 million over
the 2025-2030 period. In addition, CBO estimates that the GAO
assessment would cost $1 million.
In total, CBO estimates that implementing the bill would
cost $9 million over the 2025-2030 period. Any related spending
would be subject to the availability of appropriated funds.
The CBO staff contact for this estimate is Sean
Christensen. The estimate was reviewed by H. Samuel Papenfuss,
Deputy Director of Budget Analysis.
Phillip L. Swagel,
Director, Congressional Budget Office.
Federal Mandates Statement
The Committee adopts as its own the estimate of Federal
mandates prepared by the Director of the Congressional Budget
Office pursuant to section 423 of the Unfunded Mandates Reform
Act of 1995.
Duplicative Federal Programs
Pursuant to clause 3(c) of rule XIII, the Committee finds
that H.R. 4058 does not contain any provision that establishes
or reauthorizes a program known to be duplicative of another
Federal program.
Statement of General Performance Goals and Objectives
Pursuant to clause 3(c)(4) of rule XIII, the objective of
H.R. 4058 is to amend the Homeland Security Act of 2002 to
increase stakeholder outreach with regard to the State Homeland
Security Grant program and the Urban Area Security Initiative.
Congressional Earmarks, Limited Tax Benefits, and Limited Tariff
Benefits
In compliance with rule XXI, this bill, as reported,
contains no congressional earmarks, limited tax benefits, or
limited tariff benefits as defined in clause 9(d), 9(e), or
9(f) of rule XXI.
Advisory Committee Statement
No advisory committees within the meaning of section 5(b)
of the Federal Advisory Committee Act were created by this
legislation.
Applicability to the Legislative Branch
The Committee finds that H.R. 4058 does not relate to the
terms and conditions of employment or access to public services
or accommodations within the meaning of section 102(b)(3) of
the Congressional Accountability Act.
Section-by-Section Analysis of the Legislation
Section 1. Short title
This section states that the Act may be cited as the
``Enhancing Stakeholder Support and Outreach for Preparedness
Grants Act.''
Section 2. DHS grant outreach
This section requires the Administrator of the FEMA to, on
an ongoing basis, provide stakeholder outreach, engagement,
education, technical assistance, and support, prior to, during,
and after the awarding of UASI grants and SHSP grants. This
includes conducting annual surveys and other feedback
mechanisms to gather input from State, local, Tribal, and
territorial stakeholders, and incorporate this feedback into
future SHSP and UASI grant funding opportunities.
Additionally, this section requires the GAO to submit a
report within two years on the effectiveness of FEMA's outreach
and support efforts related to these grant programs.
Further, this section requires the FEMA Administrator to
submit a report to Congress on stakeholder outreach and
engagement efforts within three years of enactment of the Act.
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 (new matter is
printed in italics and existing law in which no change is
proposed is shown in roman):
HOMELAND SECURITY ACT OF 2002
* * * * * * *
TITLE XX--HOMELAND SECURITY GRANTS
* * * * * * *
Subtitle A--Grants to States and High-Risk Urban Areas
* * * * * * *
SEC. 2003. URBAN AREA SECURITY INITIATIVE.
(a) Establishment.--There is established an Urban Area
Security Initiative to provide grants to assist high-risk urban
areas in preventing, preparing for, protecting against, and
responding to acts of terrorism.
(b) Assessment and Designation of High-Risk Urban Areas.--
(1) In general.--The Administrator shall designate
high-risk urban areas to receive grants under this
section based on procedures under this subsection.
(2) Initial assessment.--
(A) In general.--For each fiscal year, the
Administrator shall conduct an initial
assessment of the relative threat,
vulnerability, and consequences from acts of
terrorism faced by each eligible metropolitan
area, including consideration of--
(i) the factors set forth in
subparagraphs (A) through (H) and (K)
of section 2007(a)(1); and
(ii) information and materials
submitted under subparagraph (B).
(B) Submission of information by eligible
metropolitan areas.--Prior to conducting each
initial assessment under subparagraph (A), the
Administrator shall provide each eligible
metropolitan area with, and shall notify each
eligible metropolitan area of, the opportunity
to--
(i) submit information that the
eligible metropolitan area believes to
be relevant to the determination of the
threat, vulnerability, and consequences
it faces from acts of terrorism; and
(ii) review the risk assessment
conducted by the Department of that
eligible metropolitan area, including
the bases for the assessment by the
Department of the threat,
vulnerability, and consequences from
acts of terrorism faced by that
eligible metropolitan area, and remedy
erroneous or incomplete information.
(3) Designation of high-risk urban areas.--
(A) Designation.--
(i) In general.--For each fiscal
year, after conducting the initial
assessment under paragraph (2), and
based on that assessment, the
Administrator shall designate high-risk
urban areas that may submit
applications for grants under this
section.
(ii) Additional areas.--
Notwithstanding paragraph (2), the
Administrator may--
(I) in any case where an
eligible metropolitan area
consists of more than 1
metropolitan division (as that
term is defined by the Office
of Management and Budget)
designate more than 1 high-risk
urban area within a single
eligible metropolitan area; and
(II) designate an area that
is not an eligible metropolitan
area as a high-risk urban area
based on the assessment by the
Administrator of the relative
threat, vulnerability, and
consequences from acts of
terrorism faced by the area.
(iii) Rule of construction.--Nothing
in this subsection may be construed to
require the Administrator to--
(I) designate all eligible
metropolitan areas that submit
information to the
Administrator under paragraph
(2)(B)(i) as high-risk urban
areas; or
(II) designate all areas
within an eligible metropolitan
area as part of the high-risk
urban area.
(B) Jurisdictions included in high-risk urban
areas.--
(i) In general.--In designating high-
risk urban areas under subparagraph
(A), the Administrator shall determine
which jurisdictions, at a minimum,
shall be included in each high-risk
urban area.
(ii) Additional jurisdictions.--A
high-risk urban area designated by the
Administrator may, in consultation with
the State or States in which such high-
risk urban area is located, add
additional jurisdictions to the high-
risk urban area.
(c) Application.--
(1) In general.--An area designated as a high-risk
urban area under subsection (b) may apply for a grant
under this section.
(2) Minimum contents of application.--In an
application for a grant under this section, a high-risk
urban area shall submit--
(A) a plan describing the proposed division
of responsibilities and distribution of funding
among the local and tribal governments in the
high-risk urban area;
(B) the name of an individual to serve as a
high-risk urban area liaison with the
Department and among the various jurisdictions
in the high-risk urban area; and
(C) such information in support of the
application as the Administrator may reasonably
require.
(3) Annual applications.--Applicants for grants under
this section shall apply or reapply on an annual basis.
(4) State review and transmission.--
(A) In general.--To ensure consistency with
State homeland security plans, a high-risk
urban area applying for a grant under this
section shall submit its application to each
State within which any part of that high-risk
urban area is located for review before
submission of such application to the
Department.
(B) Deadline.--Not later than 30 days after
receiving an application from a high-risk urban
area under subparagraph (A), a State shall
transmit the application to the Department.
(C) Opportunity for state comment.--If the
Governor of a State determines that an
application of a high-risk urban area is
inconsistent with the State homeland security
plan of that State, or otherwise does not
support the application, the Governor shall--
(i) notify the Administrator, in
writing, of that fact; and
(ii) provide an explanation of the
reason for not supporting the
application at the time of transmission
of the application.
(5) Opportunity to amend.--In considering
applications for grants under this section, the
Administrator shall provide applicants with a
reasonable opportunity to correct defects in the
application, if any, before making final awards.
(d) Distribution of Awards.--
(1) In general.--If the Administrator approves the
application of a high-risk urban area for a grant under
this section, the Administrator shall distribute the
grant funds to the State or States in which that high-
risk urban area is located.
(2) State distribution of funds.--
(A) In general.--Not later than 45 days after
the date that a State receives grant funds
under paragraph (1), that State shall provide
the high-risk urban area awarded that grant not
less than 80 percent of the grant funds. Any
funds retained by a State shall be expended on
items, services, or activities that benefit the
high-risk urban area.
(B) Funds retained.--A State shall provide
each relevant high-risk urban area with an
accounting of the items, services, or
activities on which any funds retained by the
State under subparagraph (A) were expended.
(3) Interstate urban areas.--If parts of a high-risk
urban area awarded a grant under this section are
located in 2 or more States, the Administrator shall
distribute to each such State--
(A) a portion of the grant funds in
accordance with the proposed distribution set
forth in the application; or
(B) if no agreement on distribution has been
reached, a portion of the grant funds
determined by the Administrator to be
appropriate.
(4) Certifications regarding distribution of grant
funds to high-risk urban areas.--A State that receives
grant funds under paragraph (1) shall certify to the
Administrator that the State has made available to the
applicable high-risk urban area the required funds
under paragraph (2).
(e) Authorization of Appropriations.--There are authorized to
be appropriated for grants under this section--
(1) $850,000,000 for fiscal year 2008;
(2) $950,000,000 for fiscal year 2009;
(3) $1,050,000,000 for fiscal year 2010;
(4) $1,150,000,000 for fiscal year 2011;
(5) $1,300,000,000 for fiscal year 2012; and
(6) such sums as are necessary for fiscal year 2013,
and each fiscal year thereafter.
(f) Outreach and Technical Assistance.--The Administrator
shall, on an ongoing basis, provide stakeholder outreach,
engagement, education, technical assistance, and support, prior
to, during, and after the awarding of grants under this
section, including relating to the following:
(1) Conducting annual surveys to collect feedback
from State, local, Tribal, and territorial stakeholders
on the awarding of such grants and the effectiveness of
the Administrator's outreach efforts.
(2) Summaries of the surveys conducted pursuant to
paragraph (1) and other State, local, Tribal, and
territorial feedback and how such feedback was
incorporated into subsequent grant notices of funding
opportunities.
(3) Other feedback mechanisms that the Administrator
determines appropriate.
SEC. 2004. STATE HOMELAND SECURITY GRANT PROGRAM.
(a) Establishment.--There is established a State Homeland
Security Grant Program to assist State, local, and tribal
governments in preventing, preparing for, protecting against,
and responding to acts of terrorism.
(b) Application.--
(1) In general.--Each State may apply for a grant
under this section, and shall submit such information
in support of the application as the Administrator may
reasonably require.
(2) Minimum contents of application.--The
Administrator shall require that each State include in
its application, at a minimum--
(A) the purpose for which the State seeks
grant funds and the reasons why the State needs
the grant to meet the target capabilities of
that State;
(B) a description of how the State plans to
allocate the grant funds to local governments
and Indian tribes; and
(C) a budget showing how the State intends to
expend the grant funds.
(3) Annual applications.--Applicants for grants under
this section shall apply or reapply on an annual basis.
(c) Distribution to Local and Tribal Governments.--
(1) In general.--Not later than 45 days after
receiving grant funds, any State receiving a grant
under this section shall make available to local and
tribal governments, consistent with the applicable
State homeland security plan--
(A) not less than 80 percent of the grant
funds;
(B) with the consent of local and tribal
governments, items, services, or activities
having a value of not less than 80 percent of
the amount of the grant; or
(C) with the consent of local and tribal
governments, grant funds combined with other
items, services, or activities having a total
value of not less than 80 percent of the amount
of the grant.
(2) Certifications regarding distribution of grant
funds to local governments.--A State shall certify to
the Administrator that the State has made the
distribution to local and tribal governments required
under paragraph (1).
(3) Extension of period.--The Governor of a State may
request in writing that the Administrator extend the
period under paragraph (1) for an additional period of
time. The Administrator may approve such a request if
the Administrator determines that the resulting delay
in providing grant funding to the local and tribal
governments is necessary to promote effective
investments to prevent, prepare for, protect against,
or respond to acts of terrorism.
(4) Exception.--Paragraph (1) shall not apply to the
District of Columbia, the Commonwealth of Puerto Rico,
American Samoa, the Commonwealth of the Northern
Mariana Islands, Guam, or the Virgin Islands.
(5) Direct funding.--If a State fails to make the
distribution to local or tribal governments required
under paragraph (1) in a timely fashion, a local or
tribal government entitled to receive such distribution
may petition the Administrator to request that grant
funds be provided directly to the local or tribal
government.
(d) Multistate Applications.--
(1) In general.--Instead of, or in addition to, any
application for a grant under subsection (b), 2 or more
States may submit an application for a grant under this
section in support of multistate efforts to prevent,
prepare for, protect against, and respond to acts of
terrorism.
(2) Administration of grant.--If a group of States
applies for a grant under this section, such States
shall submit to the Administrator at the time of
application a plan describing--
(A) the division of responsibilities for
administering the grant; and
(B) the distribution of funding among the
States that are parties to the application.
(e) Minimum Allocation.--
(1) In general.--In allocating funds under this
section, the Administrator shall ensure that--
(A) except as provided in subparagraph (B),
each State receives, from the funds
appropriated for the State Homeland Security
Grant Program established under this section,
not less than an amount equal to--
(i) 0.375 percent of the total funds
appropriated for grants under this
section and section 2003 in fiscal year
2008;
(ii) 0.365 percent of the total funds
appropriated for grants under this
section and section 2003 in fiscal year
2009;
(iii) 0.36 percent of the total funds
appropriated for grants under this
section and section 2003 in fiscal year
2010;
(iv) 0.355 percent of the total funds
appropriated for grants under this
section and section 2003 in fiscal year
2011; and
(v) 0.35 percent of the total funds
appropriated for grants under this
section and section 2003 in fiscal year
2012 and in each fiscal year
thereafter; and
(B) for each fiscal year, American Samoa, the
Commonwealth of the Northern Mariana Islands,
Guam, and the Virgin Islands each receive, from
the funds appropriated for the State Homeland
Security Grant Program established under this
section, not less than an amount equal to 0.08
percent of the total funds appropriated for
grants under this section and section 2003.
(2) Effect of multistate award on state minimum.--Any
portion of a multistate award provided to a State under
subsection (d) shall be considered in calculating the
minimum State allocation under this subsection.
(f) Authorization of Appropriations.--There are authorized to
be appropriated for grants under this section--
(1) $950,000,000 for each of fiscal years 2008
through 2012; and
(2) such sums as are necessary for fiscal year 2013,
and each fiscal year thereafter.
(g) Outreach and Technical Assistance.--The Administrator
shall, on an ongoing basis, provide stakeholder outreach,
engagement, education, technical assistance, and support, prior
to, during, and after the awarding of grants under this
section, including relating to the following:
(1) Conducting annual surveys to collect feedback
from State, local, Tribal, and territorial stakeholders
on the awarding of such grants and the effectiveness of
the Administrator's outreach efforts.
(2) Summaries of the surveys conducted pursuant to
paragraph (1) and other State, local, Tribal, and
territorial feedback and how such feedback was
incorporated into subsequent grant notices of funding
opportunities.
(3) Other feedback mechanisms that the Administrator
determines appropriate.
* * * * * * *
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