FEMAPreparedness GrantsManualFEMA Grant Programs DirectorateVersion 2, February 2021Preparedness Grants Manual February 20211
Table of ContentsTable of Contents2About the Federal Emergency Management Agency (FEMA)7Overview of FEMAOverview of Preparedness Grant ProgramsHomeland Security Grant Program (HSGP)Tribal Homeland Security Grant Program (THSGP)Nonprofit Security Grant Program (NSGP)Transit Security Grant Program (TSGP)Intercity Bus Security Grant Program (IBSGP)Intercity Passenger Rail (IPR) Program – AmtrakPort Security Grant Program (PSGP)Emergency Management Performance Grant (EMPG) Program7777888888Foreword9The National Preparedness Goal9Pre-Award Application and Submission10Pre-Submission InformationAgreeing to Terms and Conditions of the AwardAddress to Request Application PackageSteps Required to Obtain a Unique Entity Identifier, Register in the System for Award Management(SAM), and Submit an ApplicationElectronic DeliveryHow to Register to Apply through Grants.govHow to Submit an Initial Application to DHS/FEMA via Grants.govSubmitting the Final Application in ND GrantsTimely Receipt Requirements and Proof of Timely SubmissionContent and Form of Application SubmissionIntergovernmental ReviewFunding Restrictions and Allowable Costs101011Award Determination and Obligation20AllocationsRisk MethodologyApplication Evaluation CriteriaSupplemental Financial Integrity ReviewReview and Selection ProcessFederal Award Administration InformationNotice of AwardPass-Through Requirements2020202121212122Preparedness Grants Manual February 20211112121416161717172
Administrative and National Policy Requirements22Post-Award Management and Implementation26ReportingFederal Financial Reporting RequirementsFederal Financial Report (FFR)Financial Reporting Periods and Due DatesProgram Performance Reporting RequirementsPerformance Progress Report (PPR)Program Performance Reporting Periods and Due DatesAdditional Programmatic Reporting Requirements and InformationBiannual Strategy Implementation Report (BSIR)Closeout Reporting RequirementsAdministrative CloseoutDisclosing Information per 2 C.F.R. § 180.335Reporting of Matters Related to Recipient Integrity and PerformanceSingle Audit Report2626262627272727272828292929Additional Information30Monitoring and OversightOverviewFinancial Monitoring Overview and ApproachProgrammatic Monitoring Overview and ApproachEnvironmental Planning and Historic Preservation (EHP)Case Studies and Use of Grant-Funded Resources During Real-World Incident OperationsConflicts of Interest in the Administration of Federal Awards or SubawardsProcurement IntegrityImportant Changes to Procurement Standards in 2 C.F.R Part 200Competition and Conflicts of InterestSupply Schedules and Purchasing ProgramsTermination ProvisionsPeriod of Performance (POP) ExtensionsActions to Address NoncomplianceAuditsPayment InformationDisability nal Campaigns and Programs45Whole Community PreparednessActive Shooter PreparednessSoft Targets and Crowded PlacesCommunity LifelinesStrategic Framework for Countering Terrorism and Targeted Violence4545464647Program Appendix A: Homeland Security Grant Program (HSGP)A-1Alignment of HSGP to the National Preparedness SystemA-1Preparedness Grants Manual February 20213
HSGP Funding GuidelinesReporting on the Implementation of the National Preparedness SystemIdentifying and Assessing Risk and Estimating Capability RequirementsBuilding and Sustaining CapabilitiesNational Incident Management System (NIMS) ImplementationPlanning to Deliver CapabilitiesValidating CapabilitiesFusion CentersFusion Center Performance MeasuresContinuity of OperationsGovernanceSupplemental SHSP and UASI GuidanceSupplemental OPSG Program GuidanceOPSG Operational GuidanceHSGP Supplemental MaterialSupplemental Emergency Communications GuidanceProgram Appendix B: Tribal Homeland Security Grant Program (THSGP)Alignment of THSGP to the National Preparedness SystemTHSGP Funding GuidelinesTHSGP PrioritiesAllowable CostsTHSGP Investment Modifications – Changes in Scope or 27A-31A-34A-36A-42A-44B-1B-1B-4B-4B-4B-12Program Appendix C: Nonprofit Security Grant Program (NSGP)C-1NSGP Funding GuidelinesNSGP PrioritiesAllowable CostsNSGP Investment Modifications – Changes in Scope or ObjectivePass-Through RequirementsDUNS/SAM Requirements for Recipients and SubrecipientsC-1C-1C-1C-7C-8C-8Program Appendix D: Transit Security Grant Program (TSGP)D-1TSGP Funding GuidelinesPre-Award CostsTSGP PrioritiesSecurity Plan RequirementsAllowable Direct CostsAllowable Indirect CostsUnallowable CostsMaintenance and Sustainment CostsEncouraged Use of Certain Products Produced in the United StatesD-1D-1D-1D-1D-2D-12D-12D-12D-13Program Appendix E: Intercity Bus Security Grant Program (IBSGP)E-1IBSGP PrioritiesPre-Award CostsE-1E-1Preparedness Grants Manual February 20214
Allowable Direct CostsIndirect Costs (Facilities and Administration [F&A])Unallowable CostsOther Allowable CostsEncouraged Use of Certain Products Produced in the United StatesE-1E-7E-8E-8E-9Program Appendix F: Intercity Passenger Rail (IPR) ProgramF-1IPR Funding GuidelinesIPR PrioritiesSecurity Plan RequirementsAllowable CostsOperational ActivitiesFunding Availability for OPacksSpecific Guidance on EDCTEDCT Submission RequirementsRequirements for Small Unmanned Aircraft SystemsCybersecurity ProjectsCapital (Construction) Projects GuidanceTraining and Awareness CampaignsManagement and Administration (M&A)Indirect CostsUnallowable CostsMaintenance and Sustainment CostsEncouraged Use of Certain Products Produced in the United F-12F-12F-13Program Appendix G: Port Security Grant Program (PSGP)G-1PSGP Funding GuidelinesPSGP PrioritiesLimitations on FundingAllowable Direct CostsAllowable Indirect CostsUnallowable CostsMaintenance and Sustainment CostsPort-Wide Risk Management PlansSample Memorandum of Understanding/Agreement (MOU/MOA)Program Appendix H: Emergency Management Performance Grant ProgramAlignment of the EMPG Program to the National Preparedness SystemImplementation of the National Preparedness SystemLogistics PlanningEvacuation PlanningDisaster Housing PlanningState Disaster Recovery CoordinatorDisaster Financial Management Policies and ProceduresTraining and ExercisesReviewing and Updating Planning ProductsPreparedness Grants Manual February 5H-5H-7H-7H-9H-125
Additional ConsiderationsProgram Performance Reporting RequirementsH-13H-13EMPG Program Funding GuidelinesH-15Allowable CostsPlanningContinuity truction and RenovationAcquisition of Real PropertyLeasing of Real PropertyMaintenance and SustainmentUnallowable -24EMPG Program Work PlanH-25Preparedness Grants Manual February 20216
About the Federal Emergency ManagementAgency (FEMA)Overview of FEMAFEMA has helped people before, during, and after disasters for more than 40 years. FEMA remainscommitted to building and developing a culture of preparedness across the country and unifying all levelsof community and government in an integrated approach to emergency management. FEMA is part of alarger team of federal agencies, state, local, tribal, and territorial (SLTT) governments, and nongovernmental partners that share responsibility for emergency management and national preparedness.Those closest to impacted areas are the true first responders during any emergency or disaster—individuals, families, neighbors, and local communities. FEMA’s role is to coordinate federal resources tosupplement SLTT capabilities. FEMA does this by coordinating through the levels of government,meaning that states and their local political subdivisions, tribes, and territories are our primary partners.Overview of Preparedness Grant ProgramsFEMA has the statutory authority to deliver numerous disaster and non-disaster financial assistanceprograms in support of its mission, and that of the Department of Homeland Security, largely throughgrants and cooperative agreements. These programs account for a significant amount of the federal fundsfor which FEMA is accountable. FEMA officials are responsible and accountable for the properadministration of these funds pursuant to federal laws and regulations, Office of Management and Budgetcirculars, and federal appropriations law principles. FEMA has developed this Manual to provideadditional direction on grant policy and implementation for the following grant programs:Homeland Security Grant Program (HSGP)The HSGP includes a suite of risk-based grants to assist SLTT efforts in preventing, preparing for,protecting against, and responding to acts of terrorism. The grants under HSGP include: State Homeland Security Program (SHSP)SHSP assists state, local, tribal, and territorial efforts to build, sustain, and deliver the capabilitiesnecessary to prevent, prepare for, protect against, and respond to acts of terrorism.Urban Area Security Initiative (UASI)UASI assists high-threat, high-density urban areas’ efforts to build, sustain, and deliver thecapabilities necessary to prevent, prepare for, protect against and respond to acts of terrorism.Operation Stonegarden (OPSG)OPSG supports enhanced cooperation and coordination among Customs and Border Protection(CBP), United States Border Patrol (USBP), and federal, state, local, tribal, and territorial lawenforcement agencies to improve overall border security. OPSG provides funding to support jointefforts to secure the United States’ borders along routes of ingress/egress to and frominternational borders, to include travel corridors in states bordering Mexico and Canada, as wellas states and territories with international water borders. SLTT law enforcement agencies utilizetheir own law enforcement authorities to support the border security mission and do not receiveany additional authority as a result of participation in OPSG.Tribal Homeland Security Grant Program (THSGP)The THSGP provides funding directly to eligible tribes to strengthen their capacity to prevent, preparefor, protect against, and respond to potential terrorist attacks.Preparedness Grants Manual February 20217
Nonprofit Security Grant Program (NSGP)The NSGP provides funding for physical security enhancements and other security-related activities tononprofit organizations that are at high risk of a terrorist attack. The NSGP also seeks to integrate thepreparedness activities of nonprofit organizations with broader state and local preparedness efforts.Transit Security Grant Program (TSGP)The TSGP provides funds to eligible public transportation systems (which include intra-city bus, ferries,and all forms of passenger rail) to protect critical transportation infrastructure and the travelling publicfrom terrorism, and to increase transportation infrastructure resilience.Intercity Bus Security Grant Program (IBSGP)The IBSGP provides funds to eligible private operators of intercity over-the-road bus transportationsystems to protect critical transportation infrastructure and travelling public from acts of terrorism, and toincrease transportation infrastructure resilience.Intercity Passenger Rail (IPR) Program – AmtrakThe IPR provides funds to the National Railroad Passenger Corporation (Amtrak) to protect criticaltransportation infrastructure and the travelling public from terrorism, and to increase transportationinfrastructure resilience.Port Security Grant Program (PSGP)The PSGP provides funding to port authorities, facility operators, and state and local agencies foractivities associated with implementing Area Maritime Security Plans, facility security plans, and otherport-wide risk management efforts.Emergency Management Performance Grant (EMPG) ProgramThe EMPG Program provides funds to assist state, local, tribal, and territorial emergency managementagencies in obtaining the resources required for implementation of the National Preparedness System andthe National Preparedness Goal of a secure and resilient nation.Preparedness Grants Manual February 20218
ForewordFEMA has developed this Preparedness Grants Manual to guide applicants and grant recipients on howto manage their grants and other resources. Recipients seeking guidance on policies and procedures formanaging preparedness grants should reference this Manual for further information on both programspecific information as well as overall guidance on rules and regulations that guide the propermanagement of FEMA grants.The National Preparedness GoalThe National Preparedness Goal (the Goal) is “[a] secure and resilient Nation with the capabilitiesrequired across the whole community to prevent, protect against, mitigate, respond to, and recover fromthe threats and hazards that pose the greatest risk.” See Department of Homeland Security, NationalPreparedness Goal, Second Edition, 1 (Sept. 2015). The Goal essentially defines what it means for allcommunities to be prepared collectively for the threats and hazards that pose the greatest risk to thenation. The Goal identifies 32 distinct activities, called core capabilities, needed to address the risks. TheGoal organizes these core capabilities into five categories, called mission areas. Some core capabilitiesapply to more than one mission area. For example, the first three core capabilities—Planning, PublicInformation and Warning, and Operational Coordination—are cross-cutting capabilities, meaning theyapply to each of the five mission areas. The Goal describes the five mission areas as follows: Prevention: Prevent, avoid or stop an imminent, threatened or actual act of terrorism.Protection: Protect our citizens, residents, visitors, and assets against the greatest threats andhazards in a manner that allows our interests, aspirations and way of life to thrive.Mitigation: Reduce the loss of life and property by lessening the impact of future disasters.Response: Respond quickly to save lives, protect property and the environment, and meet basichuman needs in the aftermath of an incident.Recovery: Recover through a focus on the timely restoration, strengthening and revitalization ofinfrastructure, housing and a sustainable economy, as well as the health, social, cultural, historic,and environmental fabric of communities affected by an incident.The mission areas and core capabilities organize the activities and tasks performed before, during, andafter disasters into a framework for achieving the goal of a secure and resilient Nation. Resilience is thedesired outcome, defined in the Goal as the “ability to adapt to changing conditions and withstand andrapidly recover from disruption due to emergencies.” Id. at A-2. For more information about the Goal, goto cipients will use the National Preparedness System to build, sustain, and deliver these core capabilities.The components of the National Preparedness System are: Identifying and Assessing Risk, EstimatingCapability Requirements, Building and Sustaining Capabilities, Planning to Deliver Capabilities,Validating Capabilities, and Reviewing and Updating. Additional information on the NationalPreparedness System is available at http://www.fema.gov/national-preparedness-system. Additionaldetails regarding the National Preparedness System and how it is supported by these grant programs canbe found in the program-specific appendices.Preparedness Grants Manual February 20219
Pre-Award Application and SubmissionPre-Submission InformationThese instructions apply to the following programs: Homeland Security Grant Program1Tribal Homeland Security Grant ProgramNonprofit Security Grant ProgramTransit Security Grant ProgramIntercity Bus Security Grant ProgramIntercity Passenger Rail ProgramPort Security Grant ProgramEmergency Management Performance Grant ProgramAll applications must be received by the established deadline established in each program’s Notice ofFunding Opportunity (NOFO). The Non-Disaster (ND) Grants System has a date stamp that indicateswhen an application is submitted. Applicants will receive an electronic message confirming receipt oftheir submission. For additional information on how an applicant will be notified of application receipt,see the section titled “Timely Receipt Requirements and Proof of Timely Submission.”FEMA will not review applications that are received after the deadline nor will it consider theselate applications for funding. FEMA may, however, extend the application deadline on request for anapplicant who can demonstrate that good cause exists to justify extending the deadline. Good cause for anextension may include technical problems outside of the applicant’s control that prevent submission of theapplication by the deadline, other exigent or emergency circumstances, or statutory requirements forFEMA to make an award.Applicants experiencing technical problems outside of their control must notify the respectiveFEMA Preparedness Officer or Program Manager as soon as possible and before the applicationdeadline. Failure to timely notify FEMA of the issue that prevented the timely filing of the applicationmay preclude consideration of the award. “Timely notification” of FEMA means the following: prior tothe application deadline and within 48 hours after the applicant became aware of the issue.For additional assistance using the ND Grants System, please contact the ND Grants Service Desk at(800) 865-4076 or NDGrants@fema.dhs.gov. The ND Grants Service Desk is available Monday throughFriday, 9:00 a.m. – 6:00 p.m. ET. For programmatic or grants management questions, please contact yourPreparedness Officer or Program Manager. If applicants do not know their FEMA Preparedness Officeror if there are programmatic questions or concerns, please contact the Centralized Scheduling andInformation Desk (CSID) by phone at (800) 368-6498 or by e-mail at email@example.com, Mondaythrough Friday, 9:00 a.m. – 5:00 p.m. ET.Agreeing to Terms and Conditions of the AwardBy submitting an application, the applicant agrees to comply with the requirements of the applicableNOFO, this Manual, and the applicable appendix to this Manual, as well as the terms and conditions of itsaward should it receive an award.1Under this program, these instructions apply to SHSP, UASI, and OPSG.Preparedness Grants Manual February 202110
Address to Request Application PackageInitial applications are processed through the Grants.gov portal. Final applications are completed andsubmitted through FEMA’s ND Grants System. Application forms and instructions are available onGrants.gov; hard copies of the NOFO and associated application materials are not available. To accessthese materials, go to http://www.grants.gov, select “Applicants” then “Apply for Grants”. In order toobtain the application package, select “Download a Grant Application Package”. Enter the AssistanceListing (formerly CFDA) and/or the funding opportunity number located on the cover of the program’sNOFO, select “Download Package,” and then follow the prompts to download the application package. Inaddition, the following Telephone Device for the Deaf (TDD) and/or Federal Information Relay Service(FIRS) number available for this Notice and all relevant NOFOs is (800) 462-7585.Steps Required to Obtain a Unique Entity Identifier, Register in the Systemfor Award Management (SAM), and Submit an ApplicationApplying for an award under the programs covered by this Manual is a multi-step process and requirestime to complete. Applicants are encouraged to register early. The registration process can take four ormore weeks to be completed. Therefore, registration should be done with enough sufficient time to ensureit does not impact the applicant’s ability to meet required submission deadlines. Failure o
About the Federal Emergency Management Agency (FEMA) 7 Overview of FEMA 7 . to protect critical transportation infrastructure and the travelling public . Manual, and the terms and conditions of the award, FEMA must proceed to administratively close the
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FEMA GO User Manual Mitigation: Hazards 08/25/20 1 Introduction FEMA GO is one electronic application solution that houses the grant management functions for all of FEMA’s grant programs. This user manual addresses the Subapplication Development module for FEMA’s hazard mitigation grant programs.
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FEMA Benefit-Cost Analysis Fundamentals FEMA Emergency Support Function #6: Mass Care, Emergency Assistance, Housing, and Human Services FEMA Fundamentals of Emergency Management FEMA Fundamentals of Risk Management FEMA ICS-2
The Incident Complexity Guide is intended for use during planning, preparedness and training efforts to help organizations and jurisdictions improve their readiness to respond to real-world events. This guide can help those involved in preparedness make more fully informed planning, preparedness and training decisions.
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