[Federal Register Volume 86, Number 70 (Wednesday, April 14, 2021)]
[Notices]
[Pages 19629-19634]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-07576]
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DEPARTMENT OF HOMELAND SECURITY
Federal Emergency Management Agency
[Docket ID: FEMA-2021-0012]
Assistance to Firefighters Grant Program
AGENCY: Federal Emergency Management Agency (FEMA), Department of
Homeland Security (DHS).
ACTION: Notice.
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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) 2020 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 December 11, 2019. The application
period for the FY 2020 AFG Program was January 4, 2021 through February
12, 2021, and was announced on the AFG website at: https://
www.fema.gov/
[[Page 19630]]
grants/preparedness/firefighters, as well as at www.grants.gov.
DATES: Grant applications for the FY 2020 AFG Program were accepted
electronically at https://go.fema.gov, from January 4, 2021, through
February 12, 2021, 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, non-affiliated 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 2020 AFG Program were submitted and
processed online at https://go.fema.gov. Before the application period
started, the FY 2020 AFG Program Notice of Funding Opportunity (NOFO)
was published on FEMA's AFG Program website. The AFG Program website
provides additional information and materials useful for FY 2020 AFG
Program applicants including Frequently Asked Questions, Application
Checklist, Get Ready Guide Narrative, Self-Evaluation Sheets for
Vehicle Acquisition and Operations Safety, and a Cost Share Calculator.
Based on past AFG Program application periods, FEMA anticipates
receiving 10,000 to 15,000 applications for the FY 2020 AFG Program,
and the ability to award approximately 2,000 grants.
Congressional Appropriations
For the FY 2020 AFG Program, Congress appropriated $355 million
(Consolidated Appropriations Act, 2020, Pub. L. 116-93). From this
amount, $319.5 million will be made available for FY 2020 AFG Program
awards. In addition, Section 33 of 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 (FP&S) Program grants. FP&S Program 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 2020 will be available for
obligation and award until September 30, 2021.
The Federal Fire Prevention and Control Act of 1974 further directs
FEMA to administer these appropriations according to the following
requirements:
Career fire departments: Not less than 25 percent of
available grant funds.
Volunteer fire departments: Not less than 25 percent of
available grant funds.
Combination fire departments 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.
EMS providers including fire departments and nonaffiliated
EMS organizations: Not less than 3.5 percent of available grant funds
awarded, with nonaffiliated EMS providers receiving no more than 2
percent of the total available grant funds.
SFTAs: Not more than 3 percent of available grant funds
shall be collectively awarded to SFTA applicants, with a maximum of $1
million 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 $50,000. 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 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 $50,000 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 obtain critically needed equipment, protective gear,
emergency vehicles, training, and other resources needed to protect
emergency personnel and the public 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 Program priorities,
as identified in the Application Evaluation Criteria, will be reviewed
by a peer review panel composed of fire service personnel.
The AFG Program 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. 3354,
as amended by the Payment Integrity Information Act of 2019, Public Law
116-117 (2020), 41 U.S.C. 2313, and 2 CFR 200.206 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 Program
applications are established by FEMA based on the recommendations from
the Criteria Development Panel (CDP). CDP is comprised of fire service
professionals who 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.
[[Page 19631]]
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 Program 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 a Peer Review
Panel. 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:
i. 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.
ii. 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 the organizations represented on the CDP. 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 independently score each
project within the application, discuss the merits and/or shortcomings
of the application with their peers, and document the findings. A
consensus is not required. The panel score is 50 percent of the total
application score.
iii. 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 statutorily
required funding limitations listed in this notice and the NOFO.
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. 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 on Daily Operations (25 Percent)
This statement should explain how these funds will enhance the
applicant's overall effectiveness. It should address how an award will
improve daily operations and reduce the applicant'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 help the community and increase the organization's ability to save
additional lives or property. Jurisdictions that demonstrate their
commitment and proactive posture to reducing fire risk, by explaining
their code enforcement (to include Wildland Urban Interface code
enforcement) and mitigation strategies (including whether or not the
jurisdiction has a FEMA-approved mitigation strategy) may receive
stronger consideration under this criterion.
Eligible Applicants
Fire Departments: Fire departments operating in any of the 50
States, as well as fire departments in 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.
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 50 States, as well as 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.
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
[[Page 19632]]
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: SFTAs operating in any of the 50
States, as well as the District of Columbia, the Commonwealth of the
Northern Mariana Islands, the U.S. Virgin Islands, Guam, American
Samoa, or the Commonwealth of Puerto Rico. Applicants must be
designated either by legislation or by a Governor's declaration as the
sole fire service training agency within a State, territory, or the
District of Columbia. The designated SFTA shall be the only agency/
bureau/division, or entity within that State, territory, or the
District of Columbia.
Ineligibility
To avoid a duplication of benefits, FEMA reserves the
right to review all program activities or 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 Employer Identification Numbers (EINs). If two or more
organizations share facilities and each submits an application in the
same program area (e.g., Equipment, Modify Facilities, PPE, Training,
and/or 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 Program component
program of Operations and Safety.
Eligible applicants may submit only one application for
each activity (e.g., Operations and Safety, Regional, etc.), 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 (ie.g., 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 based on the population served (15 U.S.C.
2229(c)(2)). 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 Administrator of FEMA may not award a
grant in an amount that exceeds one percent of the available grant
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 2.5 million people, the
amount of available grant funds awarded to such recipient is subject to
the one percent aggregate cap of $3.55 million for FY 2020, but FEMA
may waive this aggregate cap in individual cases where FEMA determines
that a recipient has an extraordinary need for a grant that exceeds the
aggregate cap; if FEMA waives the aggregate cap, the amount of grant
funds awarded to such recipient shall not exceed $6 million for any
fiscal year.
In the case of a recipient that serves a jurisdiction with
more than 2.5 million people, the amount of available grant funds
awarded to such recipient is subject to the one percent aggregate cap
of $3.55 million for FY 2020, but FEMA may waive this aggregate cap in
individual cases where FEMA determines that a recipient has an
extraordinary need for a grant that exceeds the aggregate cap; if FEMA
waives the aggregate cap, the amount of grant funds awarded to such
recipient shall not exceed $9 million for any fiscal year.
FEMA may not waive the population-based limits on the
amount of grant funds awarded as set by 15 U.S.C. 2229(c)(2)(A).
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
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
validates that the grant recipient has provided sufficient evidence
that the cost-share requirement will be fulfilled during the period of
the grant award.
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, with
exceptions to this general requirement for entities serving smaller
communities:
Applicants that serve populations of 20,000 or less shall
agree to make available non-Federal funds in an amount equal to not
less than 5 percent of the grant awarded.
Applicants serving areas with populations above 20,000,
but not more than 1 million, shall agree to make available non-Federal
funds in an amount equal to not less than 10 percent of the grant
awarded.
Applicants serving areas with populations above 1 million
shall agree to make available non-Federal funds in an amount equal to
not less than 15 percent of the grant awarded.
The cost share for SFTAs will apply the requirements above based on
the total population of the State.
The cost share for a regional application will apply the
requirements above based on the aggregate population of the primary
first due response areas
[[Page 19633]]
of the host and participating partner organizations that execute a
Memorandum of Understanding as described in Appendix B, Section J,
Regional projects, of the FY 2020 AFG Program NOFO.
On a case-by-case basis, FEMA may allow a grant recipient that may
already own assets (equipment or vehicles), acquired with non-Federal
cash, 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 Program 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 at the request of
the grant recipient, the Administrator of FEMA may waive or reduce a
grant recipient's cost share requirement or maintenance of expenditure
requirement. AFG Program applicants for FY 2020 must indicate at the
time of application whether they are requesting a waiver and whether
the waiver is for the cost share requirement, for the maintenance of
effort requirement, or both. As required by statute, the Administrator
of FEMA is required to establish guidelines for determining what
constitutes economic hardship. FEMA has published these guidelines at
FEMA's website: https://www.fema.gov/sites/default/files/2020-04/Eco_Hardship_Waiver_FPS_SAFER_AFG_IB_FINAL.pdf.
Prior to the start of the FY 2020 AFG Program application period,
FEMA conducted applicant internet webinars to inform potential
applicants about the AFG Program. In addition, FEMA provided applicants
with information at the AFG Program website: https://www.fema.gov/grants/preparedness/firefighters to help them prepare quality grant
applications. The AFG Program Help Desk is staffed throughout the
application period to assist applicants with the automated application
process as well as assistance with any questions.
Applicants can reach the AFG Program 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 activities (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 activity
(e.g., two applications for Operations and Safety, two for Vehicles,
etc.), either intentionally or unintentionally, both applications may
be disqualified.
Applicants accessed the grant application electronically at https://go.fema.gov. The application is 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
Program applicants must use their previously established user name and
passwords.
Applicants are expected to answer questions about their grant
request that reflect the AFG Program 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 at 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 Program grant application and in the Dun &
Bradstreet (DUNS) database. FEMA may not accept any application,
process any awards, or 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 Recommendations
If there are any differences between the published AFG Program
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 2020, FEMA accepted,
and will implement, all but two of the CDP's recommendations for the
prioritization of eligible activities.
Adopted Recommendations for FY 2020
The FY 2020 AFG Program NOFO contains some changes to definitions,
descriptions, and priority categories. Changes to the FY 2020 AFG
Program NOFO include:
Under Sections D--Application and Submission Information,
E--Application Review Information, F--Federal Award Administration
Information, G--DHS Awarding Agency Contact and Resource. Information,
and H--Additional Information:
[cir] Various grants management changes due to the recent OMB
revision to 2 CFR In particular, changes regarding SAM registration,
performance measures, procurement, closeout, and termination are
included.
Under Federal Award Information:
[cir] Period of performance for AFG Program awards is 24 months.
Under Supporting Definitions:
[cir] Paid on-call/Stipend departments are added to the definition
for Combination Fire Department.
Under Application Tips:
[cir] Explanation of AFG Program-approved seated riding positions
was added.
Under Training Activity:
[cir] Rental of Audio/Visual equipment was added as eligible
activity.
Under Operations and Safety Activity:
[cir] Radio over internet Protocol (RoIP) communication equipment
was added as a Medium Priority.
[cir] Integrated thermal imaging cameras were added to the
ineligible list under the PPE category.
Under Modifications to Facility Activity:
[cir] Intruder alerting systems and deployment notification systems
were added as ineligible.
Under Regional Applications:
[cir] Guidance requiring purchases from same vendor added.
Under Environmental Planning and Historic Preservation
(EHP):
[cir] Updated process for EHP added.
Under Award Administration Information (Appendix C):
[[Page 19634]]
[cir] Updated process for Economic Hardship Waiver added.
[cir] Excess Funds Restrictions specifies High Priority items as
eligible under this option.
[cir] Updated instruction on supporting documentation is added for
advance and reimbursement payment request.
Recommendations Not Adopted for FY 2020
The CDP recommended that fire departments implement a
requirement where National Fire Protection Association (NFPA) standards
listed as 1582 physicals become a requirement for all awards. FEMA
recommends evaluating the impact of this requirement prior to
implementation. Data on fire departments' abilities to meet this
standard was collected in the FY 2020 application. It will not be
considered during the application review.
The CDP recommended that FEMA adopt new definitions for
career and combination departments to align with NFPA changes in the
1710 and 1720 standards. FEMA is unable to adopt this recommendation as
it conflicts with statutory definitions.
Authority: 15 U.S.C. 2229.
Robert Fenton,
Senior Official Performing the Duties of the FEMA Administrator,
Federal Emergency Management Agency.
[FR Doc. 2021-07576 Filed 4-13-21; 8:45 am]
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