[Federal Register Volume 83, Number 29 (Monday, February 12, 2018)]
[Notices]
[Pages 6042-6046]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2018-02703]


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DEPARTMENT OF HOMELAND SECURITY

Federal Emergency Management Agency

[Docket ID: FEMA-2018-0008]


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: Pursuant to the Federal Fire Prevention and Control Act of 
1974, as amended, the Administrator of FEMA is publishing this notice 
describing the Fiscal Year (FY) 2017 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 February 27, 2017. The application 
period for the FY 2017 AFG Program was December 26, 2017, through 
February 2, 2018, and was announced on the AFG website at www.fema.gov/firegrants, as well as at www.grants.gov.

DATES: Grant applications for the Assistance to Firefighters Grant 
Program were accepted electronically at https://portal.fema.gov, from 
December 26, 2017, through February 2, 2018, at 5:00 p.m. Eastern 
Standard Time.

ADDRESSES: Assistance to Firefighters Grant Branch, DHS/FEMA, 400 C 
Street SW, 3N, Washington, DC 20472-3635.

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

SUPPLEMENTARY INFORMATION: The AFG Program awards grants directly to 
fire departments, nonaffiliated emergency medical services (EMS) 
organizations, and State fire training academies (SFTAs) for the 
purpose of enhancing the health and safety of first responders and 
improving their abilities to protect the public from fire and fire-
related hazards.
    Applications for the FY 2017 AFG Program will be submitted and 
processed online at https://portal.fema.gov. Before the application 
period starts, the FY 2017 AFG Notice of Funding Opportunity (NOFO) was 
published on the AFG website. The AFG website provides additional 
information and materials useful to applicants including Frequently 
Asked Questions, a Get Ready Guide, and a Quick Reference Guide. Based 
on past AFG application periods, FEMA anticipates the receipt of 10,000 
to 15,000 applications for the FY 2017 AFG Program, and the ability to 
award approximately 2,500 grants.

Congressional Appropriations

    For the FY 2017 AFG Program, Congress appropriated $345,000,000 
(Department of Homeland Security Appropriations Act, 2017, Pub. L. 115-
31). From this amount, $310,500,000 will be made available for AFG 
awards. In addition, the Federal Fire Prevention and Control Act of 
1974, as amended (15 U.S.C. 2229), requires that a minimum of 10 
percent of available funds be expended for Fire Prevention and Safety 
Grants (FP&S). FP&S awards will 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 
2017 will be available for obligation and award until September 30, 
2018.
    The Federal Fire Prevention and Control Act of 1974 further directs 
FEMA to administer these 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/or combination 
fire departments and departments using paid-on-call firefighting 
personnel): Not less than 10 percent of available grant funds awarded.
     Emergency Medical Services Providers including 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: Not more than 3 percent of 
available grant funds shall be collectively awarded to State fire 
training academy applicants, with a maximum of $500,000 per applicant.
     Vehicles: Not more than 25 percent of available grant 
funds may be used for the purchase of vehicles; 10 percent of those 
vehicle funds will be dedicated to the funding of ambulances. Vehicle 
funds will be distributed as equally as possible among urban, suburban, 
and rural community applicants.
     Micro Grants: This is a voluntary funding limitation 
choice made by the applicant for requests submitted within the 
Operations and Safety activity; 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 requests are for Training, 
Equipment, Personal Protective Equipment (PPE), and Wellness and 
Fitness activities. Applicants that select Micro Grants as a funding 
opportunity may receive additional consideration for

[[Page 6043]]

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, AFG 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 
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 AFG priorities, as identified in the 
Application Evaluation Criteria, will be reviewed by a panel composed 
of fire service personnel.
    AFG has three program activities:

 Operations and Safety
 Vehicle Acquisition
 Regional Projects

    The priorities for each activity are fully outlined in the NOFO.

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 awards; (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). 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 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. All 
applications are electronically pre-scored and ranked based on how well 
they align with the funding priorities outlined in this notice. 
Applications with the highest pre-score rankings are then scored 
competitively by (no less than three) members of the Peer Panel Review 
process. Applications will also be 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). Below is the process by which 
applications will be reviewed:

1. Pre-Scoring Process

    The application undergoes an electronic pre-scoring process based 
on established program priorities listed within the NOFO and answers to 
activity specific questions within the online application. 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.

2. Peer Review Panel Process

    Applications with the highest pre-score will undergo peer review. 
The peer review is comprised of fire service representatives 
recommended by CDP national organizations. The panelists assess the 
merits of each application based on the narrative section of the 
application, including the evaluation elements listed in the Narrative 
Evaluation Criteria below. Panelists will independently score each 
project within the application, discuss the merits and/or shortcomings 
of the application with his or her peers, and document the findings. A 
consensus is not required. The panel score is 50 percent of the total 
application score.

Narrative Evaluation Criteria

1. Financial Need (25 Percent)

    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, summarized 
budget constraints, unsuccessful attempts to secure other funding, and 
proof that their financial distress is out of their control.

2. Project Description and Budget (25 Percent)

    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 
activities, including program priorities or facility modifications, 
ensuring consistency 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 Percent)

    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 Percent)

    This statement should explain how these funds will enhance the 
organization's overall effectiveness. It should address how an award 
will improve daily operations and reduce the organization's risks. 
Applicants should include how frequently the requested items will be 
used, and in what capacity. Applicants should also indicate how the 
requested items will

[[Page 6044]]

help the community and increase the organization's ability to save 
additional lives or property.

5. Technical Evaluation Process

    The highest ranked applications are considered within the fundable 
range. Applications that are in the fundable range undergo both a 
technical review by a subject matter expert, as well as a FEMA AFG 
Branch review prior to being recommended for an award. The FEMA AFG 
Branch 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 FEMA will generate a final ranking of applications. FEMA 
will award grants based on this final ranking and the required funding 
limitations in statute.

Eligible Applicants

    Fire Departments: Fire departments operating in any of the 56 
States and territories (which include any State of the United States, 
the District of Columbia, the Commonwealth of the Northern Mariana 
Islands, the Commonwealth of Puerto Rico, the U.S. Virgin Islands, 
Guam, or American Samoa) and federally recognized American Indian and 
Alaska native tribes, or any tribal organization, are eligible grant 
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 and territories (which include 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) and 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 colleges or universities
 Infirmaries
 Surgery centers
 Any other institutions, associations, or foundations providing 
medical, surgical, or psychiatric care and/or treatment for the sick or 
injured.

    State Fire Training Academies: A 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) are eligible applicants. Applicants must be designated either by 
legislation or by a Governor's declaration as the sole State fire 
service training agency within a State. To be eligible, the designated 
SFTA shall be the only State agency/bureau/division, or entity within 
that State.

Ineligibility

     To avoid a duplication of benefits, FEMA reserves the 
right to review all program areas for grant applications where two or 
more organizations share a single facility. To be eligible as a 
separate organization, two or more fire departments or nonaffiliated 
EMS organizations will have different funding streams, personnel 
rosters, or Employee Identification Numbers (EINs). If two or more 
organizations share facilities and each submits an application in the 
same program area (i.e. Equipment, Modify Facilities, Personal 
Protective Equipment, Training, and Wellness and Fitness Programs) FEMA 
will carefully review each program for eligibility.
     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.
     Eligible applicants may submit only one application for 
each activity (e.g., Operations and Safety or Regional), but may submit 
for multiple projects within each activity. Under the Vehicle Activity, 
applicants may submit one application for vehicles for their department 
and one separate application to host a Regional vehicle. Duplicate 
applications (more than one application in the same activity) may be 
disqualified.
     An Operations and Safety applicant may submit one 
application for an eligible project (i.e., turn out gear); it may not 
submit a Regional application for the same project.

Statutory Limits to Funding

    Congress has enacted statutory limits to the amount of funding that 
a grant recipient 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 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 $3,450,000 for FY 2017.
     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 $3,450,000 for FY 2017.
     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

[[Page 6045]]

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

    Grant recipients 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 at 2 CFR part 200, 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 grant recipient has 
the funding in hand or if the grant recipient 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 for SFTAs and joint/regional projects will be based 
on the population of the entire State or region, respectively, not the 
population of the host organization.
    On a case-by-case basis, FEMA may allow a grant recipient that may 
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 of the 
average amount of such expenditures in the two 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 will 
establish guidelines for determining what constitutes economic hardship 
and will publish these guidelines at FEMA's website www.fema.gov/grants.
    Prior to the start of the FY 2017 AFG application period, FEMA 
conducted applicant workshops and/or internet webinars to inform 
potential applicants about the AFG Program. In addition, FEMA provided 
applicants with information at the AFG website www.fema.gov/firegrants 
to help them prepare quality grant applications. The AFG Help Desk was 
staffed throughout the application period to assist applicants with the 
automated application process as well as assistance with any questions 
they had.
    Applicants can reach the AFG Help Desk through a toll-free 
telephone number during normal business hours (1-866-274-0960) or 
electronic mail [email protected].

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 accessed the grant application electronically at https://portal.fema.gov. The application was also accessible from the U.S. 
Fire Administration's website http://www.usfa.fema.gov and http://www.grants.gov. New applicants must register and establish a user name 
and password for secure access to the grant application. Previous AFG 
grant applicants must use their previously established user name and 
passwords.
    Applicants answered questions about their grant request that 
reflect the AFG funding priorities, described below. In addition, each 
applicant must complete four separate narratives for each project or 
grant activity requested. Grant applicants will also provide relevant 
information about their organization's characteristics, call volume, 
and existing organizational capabilities.

System for Award Management (SAM)

    Per 2 CFR 25.200, all federal grant applicants and recipients must 
register in https://SAM.gov. SAM is the Federal Government's System for 
Awards Management, and registration is free of charge. Applicants must 
maintain current information in SAM that is consistent with the data 
provided in their AFG grant application and in the Dun & Bradstreet 
(DUNS) database. FEMA may not accept any application, process any 
awards, and consider any payment or amendment requests, unless the 
applicant or grant recipient has complied with the requirements to 
provide a valid DUNS number and an active SAM registration. The grant 
applicant's banking information, EIN, organization/entity name, 
address, and DUNS number must match the same information provided in 
SAM.

Criteria Development Panel (CDP) Recommendations

    If there are any differences between the published AFG guidelines 
and the recommendations made by the CDP, FEMA must explain them and 
publish the information in the Federal Register prior to awarding any 
grant under the AFG Program. For FY 2017, FEMA accepted, and will 
implement, all of the CDP's recommendations for the prioritization of 
eligible activities.

Adopted Recommendations for FY 2017

Equipment/Personal Protection Equipment

    The FY 2017 NOFO revises and, in some places changes, the 
priorities for applications submitted for equipment and PPE 
acquisitions under the Operations and Safety Activity. Under these 
changes, the FY 2017 NOFO and application now include questions 
designed to solicit pertinent information from the applicant with 
regard to the purpose of the request. The criteria are designed to be 
easier to understand and will assist FEMA in obtaining the necessary 
information to assess the application request. The numerical scores for 
each activity line item requested are based on objective criteria in 
order to reduce the subjectivity of the category itself. The following 
changes for 2017 are as follows:

 The purposes for applicant's request to acquire equipment have 
been revised. These new purposes for FY 2017 are ranked by priority as 
follows:
     Obtain equipment to achieve

[[Page 6046]]

minimum operational and deployment standards for existing missions 
(high),
     Replace inoperable/broken/damaged to current standard 
(high),
     Replace obsolete/non-compliant to upgraded technology 
(medium),
     Increase supply for minimum service requirement due to 
community growth (low),
     Obtain equipment for new mission (low).
 The purposes for an applicant's request to acquire personal 
protective gear have been revised. These new purposes for FY 2017 are 
ranked by priority as follows:
     Replace damaged broken inoperable equipment to current 
standard (high),
     Replace obsolete/non-compliant to upgrade technology 
(medium),
     Increase supply for new hires and/or existing firefighters 
that do not have one set of turnout gear (PPE) or allocated seated 
positions (high).
 Call volume is a consideration, but only between like 
departments, i.e. career, combination, and/or volunteer. Additional 
consideration for call volume can contribute to the justification of a 
new risk and/or the primary first due response area or region.
 Age of equipment terminology changed from ``medium'' to 
``intermediate.'' This was done to avoid confusion within similar name 
in other parts of the NOFO, i.e. (Medium) priority.
 Vehicle mounted exhaust systems are now listed under the 
equipment activity.
 Fire departments and SFTA will have separate lists of 
allowable equipment that each type of entity may apply for and acquire 
with AFG funds.
 The following items are now considered a ``medium'' priority 
for fire department applicants: Props, simulators, mobile data 
terminals (MDT), and computers used in training and mobile computing 
devices used on scene.
 EMS training aids with an age category of ``short'' (5-7 year 
life expectancy) are now eligible expense for FY 2017 (i.e., CPR 
mannequins, airway training equipment, IVs, etc.).
 Monitoring and sampling devices are now categorized as 
``Sampling Devices.'' This was done to avoid confusion within similar 
specialized monitoring devices, for use in ``medium'' and ``low'' 
priorities.
 Tow vehicles are now listed under a separate chart in the 
equipment section to clarify the priority levels between application 
types, i.e. fire department and SFTA.
 Nozzles, appliances, foam inductors are all high priorities 
and listed in one category. These items were combined and defined with 
an age category of ``long.''

Wellness and Fitness Micro Grants

 Wellness and Fitness activities are now eligible when applying 
for a Micro Grant.
 Cancer screening is now available under the Wellness & Fitness 
activity.
 All NFPA 1583 training has been moved to Wellness & Fitness. 
This request was previously requested under ``Training.''

Vehicles

 Quint apparatus has been added as a high priority in the 
Vehicle Acquisition activity.

    Authority: 15 U.S.C. 2229.

    Dated: February 5, 2018.
Brock Long,
Administrator, Federal Emergency Management Agency.
[FR Doc. 2018-02703 Filed 2-9-18; 8:45 am]
 BILLING CODE 9111-64-P