FY_2025_EMPG_NOFO-08-05-25_clean_508ed.pdf

1 | P a g e FEMA Version 25-02

The Department of Homeland Security (DHS)

Notice of Funding Opportunity (NOFO)

Fiscal Year 2025 Emergency Management Performance Grant Program

Fraud, waste, abuse, mismanagement, and other criminal or noncriminal misconduct related to this program may be reported to the Office of Inspector General (OIG) Hotline. The toll-free numbers to call are 1 (800) 323-8603 and TTY 1 (844) 889-4357.

Contents

1. Basic Information A. Agency Name B. NOFO Title C. Announcement Type D. Funding Opportunity Number E. Assistance Listing Number F. Expected Total Funding G. Anticipated Number of Awards H. Expected Award Range I. Projected Application Start Date J. Projected Application End Date K. Anticipated Funding Selection Date L. Anticipated Award Date M. Projected Period of Performance Start Date N. Projected Period of Performance End Date O. Executive Summary P. Agency Contact

2. Eligibility A. Eligible Entities/Entity Types B. Project Type Eligibility C. Requirements for Personnel, Partners, and Other Parties D. Maximum Number of Applications E. Additional Restrictions F. References for Eligibility Factors within the NOFO G. Cost Sharing Requirement H. Cost Share Description, Type and Restrictions I. Cost Sharing Calculation Example J. Required information for verifying Cost Share

3. Program Description A. Background, Program Purpose, and Program History B. Goals, Objectives, and Priorities C. Program Rationale D. Federal Assistance Type E. Performance Measures and Targets

2 | P a g e

F. Program-Specific Unallowable Costs G. General Funding Requirements H. Indirect Costs (Facilities and Administrative Costs) I. Management and Administration (M&A) Costs J. Pre-Award Costs K. Beneficiary Eligibility L. Participant Eligibility M. Authorizing Authority N. Appropriation Authority O. Budget Period P. Prohibition on Covered Equipment or Services

4. Application Contents and Format A. Pre-Application, Letter of Intent, and Whitepapers B. Application Content and Format C. Application Components D. Program-Specific Required Documents and Information E. Post-Application Requirements for Successful Applicants

5. Submission Requirements and Deadlines A. Address to Request Application Package B. Application Deadline C. Pre-Application Requirements Deadline D. Post-Application Requirements Deadline E. Effects of Missing the Deadline

6. Intergovernmental Review A. Requirement Description and State Single Point of Contact

7. Application Review Information A. Threshold Criteria B. Application Criteria C. Financial Integrity Criteria D. Supplemental Financial Integrity Criteria and Review E. Reviewers and Reviewer Selection F. Merit Review Process G. Final Selection

8. Award Notices A. Notice of Award B. Pass-Through Requirements C. Note Regarding Pre-Award Costs D. Obligation of Funds E. Notification to Unsuccessful Applicants

9. Post-Award Requirements and Administration A. Administrative and National Policy Requirements B. DHS Standard Terms and Conditions C. Financial Reporting Requirements D. Programmatic Performance Reporting Requirements E. Closeout Reporting Requirements

3 | P a g e

F. Disclosing Information per 2 C.F.R. § 180.335 G. Reporting of Matters Related to Recipient Integrity and Performance H. Single Audit Report I. Monitoring and Oversight J. Program Evaluation K. Additional Performance Reporting Requirements L. Termination of the Federal Award M. Best Practices N. Payment Information O. Immigration Conditions

10. Other Information A. Period of Performance Extension B. Other Information

11. Appendix A: Allowable Costs A. Planning B. Organization C. Equipment D. Training and Exercises E. Travel F. Construction and Renovation G. Acquisition of Real Property H. Leasing of Real Property I. Operational Overtime J. Whole Community Preparedness K. Maintenance and Sustainment L. Amendments for EMPG Program Costs

12. Appendix B: EMPG Program Work Plan

13. Appendix C: EMPG Requirements Matrix

14. Appendix D: FY 2025 EMPG Program Allocations

4 | P a g e

1. Basic Information

A. Agency Name

U.S. Department of Homeland Security (DHS), Federal Emergency

Management Agency (FEMA)

B. NOFO Title

Fiscal Year 2025 Emergency Management Performance Grant

(EMPG) Program

C. Announcement

Type

Initial

D. Funding

Opportunity Number

DHS-25- GPD-042-01-99

E. Assistance Listing

Number

97.042

F. Expected Total

Funding

$319.5 million

See Appendix D for the FY 2025 EMPG Program Allocations

G. Anticipated

Number of Awards

56 awards

H. Expected Award

Range

$825,152 – $24,392,241

I. Projected

Application Start

Date

07/28/25 09:00 a.m. Eastern Time (ET)

J. Projected

Application End Date

08/11/2025 05:00 p.m. Eastern Time (ET)

K. Anticipated

Funding Selection

Date

No later than August 23, 2025

L. Anticipated

Award Date

No later than September 30, 2025

M. Projected Period of Performance Start

Date

10/01/2024

N. Projected Period of Performance End

Date

09/30/2027

5 | P a g e

O. Executive

Summary

The Fiscal Year (FY) 2025 Emergency Management Performance

Grant (EMPG) Program is one of the grant programs that constitute

DHS/FEMA’s focus on all-hazards emergency preparedness, including the evolving threats and risks associated with natural disasters. EMPG Program funding is awarded to the 56 states and territories using a population-based allocation methodology. The main purpose of the program is to support the emergency management needs of state, local, tribal, and territorial governments, primarily through investments in planning, training, and exercise activities and to help cover the salaries of emergency management personnel.

P. Agency Contact

a. Program Office Contact

FEMA has assigned region specific Preparedness Officers for the

EMPG Program. If you do not know your Preparedness Officer, reference FEMA Regional Grant Program Office or contact FEMA

Grants News by e-mail at fema-grants-news@fema.dhs.gov OR by phone at (800) 368-6498, Monday through Friday, 9:00 AM – 5:00

PM ET.

b. FEMA Grants News

This channel provides general information on all FEMA grant programs and maintains a comprehensive database containing key personnel contact information at the federal, state, and local levels.

FEMA Grants News Team is reachable at fema-grants-news@fema.dhs.gov OR (800) 368-6498, Monday through Friday, 9:00 AM – 5:00 PM ET.

c. Grant Programs Directorate (GPD) Award Administration

Division

GPD’s Award Administration Division (AAD) provides support regarding financial matters and budgetary technical assistance. AAD can be contacted at ASK-GMD@fema.dhs.gov.

d. FEMA Regional Offices

FEMA Regional Offices also may provide fiscal support, including pre- and post-award administration and technical assistance. FEMA

Regional Office contact information is available at https://www.fema.gov/fema-regional-contacts.

e. Civil Rights

Consistent with Executive Order 14173, Ending Illegal

Discrimination & Restoring Merit-Based Opportunity, the FEMA

Office of Civil Rights is responsible for ensuring compliance with and enforcement of federal civil rights obligations in connection with https://www.fema.gov/about/organization/regions mailto:fema-grants-news@fema.dhs.gov mailto:fema-grants-news@fema.dhs.gov mailto:fema-grants-news@fema.dhs.gov mailto:ASK-GMD@fema.dhs.gov https://www.fema.gov/fema-regional-contacts

6 | P a g e programs and services conducted by FEMA. They are reachable at

FEMA-CivilRightsOffice@fema.dhs.gov.

f. Environmental Planning and Historic Preservation

The FEMA Office of Environmental Planning and Historic

Preservation (OEHP) provides guidance and information about the

EHP review process to FEMA programs and recipients and subrecipients. Send any inquiries regarding compliance for FEMA grant projects under this NOFO to FEMA-OEHP-

NOFOQuestions@fema.dhs.gov.

g. FEMA GO

For technical assistance with the FEMA GO system, please contact the

FEMA GO Helpdesk at femago@fema.dhs.gov or (877) 585-3242, Monday through Friday, 9:00 AM – 6:00 PM ET.

h. FEMA Preparedness Toolkit

The FEMA Preparedness Toolkit (PrepToolkit) provides access to tools and resources needed to implement the National Preparedness

System and provide a collaborative space for communities completing the Unified Reporting Tool (URT). Recipients complete and submit their Threat and Hazard Identification and Risk Assessment (THIRA) and Stakeholder Preparedness Review (SPR), and other required assessments using the PrepToolkit. For assistance, contact support@preptoolkit.fema.dhs.gov.

i. Preparedness Grants Manual

Recipients seeking guidance on policies and procedures for managing preparedness grants should reference the Preparedness Grants Manual at Preparedness Grants Manual.

2. Eligibility

A. Eligible

Entities/Entity Types

Only the following entities or entity types are eligible to apply.

a. Applicants

1. Eligible Applicants

State or territorial governments (the State Administrative Agency

[SAA] or the state’s Emergency Management Agency [EMA]).

2. Applicant Eligibility Criteria

All 56 states and territories (collectively “state or territory”) are eligible to apply for FY 2025 EMPG Program funds. Either the SAA or the EMA is eligible to apply directly to FEMA for EMPG Program mailto:FEMA-CivilRightsOffice@fema.dhs.gov mailto:FEMA-OEHP-NOFOQuestions@fema.dhs.gov mailto:FEMA-OEHP-NOFOQuestions@fema.dhs.gov mailto:ASK-GMD@fema.dhs.gov mailto:ASK-GMD@fema.dhs.gov mailto:femago@fema.dhs.gov https://preptoolkit.fema.gov/ mailto:support@preptoolkit.fema.dhs.gov https://www.fema.gov/media-library/assets/documents/178291

7 | P a g e funds on behalf of each state or territory. However, only one application will be accepted from each state or territory.

b. Subapplicants

Subapplicants and subawards are allowed.

Subapplicants should not have foreign nationals or noncitizens included. If a subapplicant has foreign nationals, they must be properly vetted and must adhere to all government statutes, policies, and procedures including “staff American, stay in America” and security requirements.

See the Preparedness Grants Manual for further information on requirements or restrictions related to subawards/subrecipients.

c. All Recipients – Compliance with Federal Immigration Laws

An immigration term and condition may be material to the

Department of Homeland Security’s decision to make this grant award, and the Department of Homeland Security may take any remedy for noncompliance, including termination, if the state or territorial recipient or any local government subrecipient fails to comply with this term and condition. No final agency determination has been made as of the date of this publication.

B. Project Type

Eligibility

a. Unallowable Project Types

See Section 3.F “Program-Specific Unallowable Costs” for more information on unallowable project types.

b. Allowable Project Types

Allowable costs for EMPG made in support of the national priorities must fall into the categories of planning, organization, equipment, training, or exercises (POETE).

Please see Appendix A for more information on allowable costs.

For costs that do not explicitly fit within one of the mentioned categories, recipients should consult their Regional EMPG Program

Manager to determine whether the cost is allowable under the award.

In addition to the descriptions and references in Appendix A, applicants should refer to the Preparedness Grants Manual.

C. Requirements for

Personnel, Partners, and Other Parties

An application submitted by an otherwise eligible non-federal entity

(i.e., the applicant) may be deemed ineligible when the person that submitted the application is not: 1) a current employee, personnel, https://www.fema.gov/grants/preparedness/manual

8 | P a g e official, staff, or leadership of the non-federal entity; and 2) duly authorized to apply for an award on behalf of the non-federal entity at the time of application.

Further, the Authorized Organization Representative (AOR) must be a duly authorized current employee, personnel, official, staff or leadership of the recipient and provide an email address unique to the recipient at the time of application and upon any change in assignment during the period of performance. Consultants or contractors of the recipient are not permitted to be the AOR of the recipient.

Subapplicants should not have foreign nationals or noncitizens included. If a subapplicant has foreign nationals, they must be properly vetted and must adhere to all government statutes, policies, and procedures including “staff American, stay in America” and security requirements.

Subapplicants/subrecipients must submit short bios and resumes. This should include the type of entity, organizational leadership, and board members along with the both the names and addresses of the individuals. Resumes are subject to approval.

D. Maximum

Number of

Applications

The maximum number of applications that can be submitted is:

1. One per state or territory.

E. Additional

Restrictions

Applicants/subapplicants or recipients/subrecipients are required to certify their compliance with federal statutes, DHS directives, policies, and procedures.

a. National Incident Management System (NIMS) Implementation

Applicants/subapplicants or recipients/subrecipients are required to certify their compliance with federal statutes, DHS directives, policies, and procedures.

Prior to allocation of any federal preparedness awards, recipients must ensure and maintain adoption and implementation of NIMS. The list of objectives used for progress and achievement reporting is on

FEMA’s website at https://www.fema.gov/emergency-managers/nims/implementation-training.

Relatedly, as a post-award requirement for FY 2025, all recipients and subrecipients in the 50 states and the District of Columbia must work toward achieving the Phase 3 National Qualification System (NQS) implementation objectives. In addition to executing their

Implementation Plan, all jurisdictions shall work towards issuing https://www.fema.gov/emergency-managers/nims/implementation-training https://www.fema.gov/emergency-managers/nims/implementation-training

9 | P a g e

Position Task Books to designated incident workforce personnel and ensure those personnel show progress in working toward task endorsements and minimum training requirements.

Please see the Preparedness Grants Manual for more information on

NIMS and NQS implementation requirements.

b. Public Alert and Warning Preparedness

When applying EMPG funding to exercises, grant recipients and subrecipients shall include exercise objectives centered on practicing and validating their plans and procedures for sending emergency alerts to the public through the FEMA Integrated Public Alert and Warning

System (IPAWS). Exercise objectives for public alert and warning should include practice of analysis and decision-making in sending an alert to the public; public alert message writing; procedures for coordination, review, and approval to send the alert; and practice in sending an alert though the IPAWS. Moreover, recipients should clearly outline how they will integrate public alert and warning tests into preparedness efforts and broader exercises. This may include detailed plans for integration and application of the IPAWS Exercise

Starter Kit for emergency management planning, completion of training on the IPAWS Message Design Dashboard (MDD) alert message writing tool, and/or plans for incorporating routine IPAWS public alert testing, drills, and exercises as part of overarching preparedness initiatives. Recipients and subrecipients should develop

After-Action Reports and Improvement Plans following drills and exercises that identify gaps and successes and define changes to continue to improve their capabilities to alert the public during emergent incidents that present a risk to the safety of the people and property in their communities. Additional information on IPAWS, including best practices, is available at Integrated Public Alert &

Warning System | FEMA.gov.

c. Emergency Management Assistance Compact (EMAC)

Membership

In support of the National Preparedness Goal (the Goal), EMPG

Program recipients must belong to, be located in, or act as an EMAC temporary member state, except for American Samoa and the

Commonwealth of the Northern Mariana Islands, which are not currently subject to these requirements, though FEMA encourages

EMAC membership regardless. All assets supported in part or entirely with FY 2025 EMPG Program funding must, where applicable, be readily deployable to support emergency or disaster operations per existing EMAC agreements.

https://www.fema.gov/emergency-managers/practitioners/integrated-public-alert-warning-system https://www.fema.gov/emergency-managers/practitioners/integrated-public-alert-warning-system https://www.fema.gov/emergency-managers/national-preparedness/goal

10 | P a g e

d. Government Continuity Capabilities Planning

Recipients are expected to work toward developing continuity plans for the assured performance of government essential functions and services as well as associated supporting activities. These plans should be consistent with the Continuity Guidance Circular and associated

Continuity Assessment Tool. For additional information on continuity programs, guidance, and technical assistance, refer to the FEMA

Continuity Resource Toolkit or contact FEMA at FEMA-

CGC@fema.dhs.gov.

F. References for

Eligibility Factors within the NOFO

Please see the following references provided below:

1. “Responsiveness Review Criteria” subsection

2. “Financial Integrity Criteria” subsection

3. “Supplemental Financial Integrity Criteria and Review” subsection

4. FEMA may/will request financial information such as

Employer Identification Number (EIN) and bank information as part of the potential award selection. This will apply to everyone proposed, including subrecipients.

G. Cost Sharing

Requirement

Applicants and subapplicants selected for this award must commit to an acceptable cost share agreement. Otherwise, they will not be funded.

H. Cost Share

Description, Type and Restrictions

The FY 2025 EMPG Program has a cost-share requirement. The recipient contribution can be cash (hard match) or third-party in-kind

(soft match). Eligible EMPG Program applicants shall agree to make available non-federal funds to carry out an EMPG Program award in an amount not less than 50% of the total project cost. In other words, the federal share applied toward the EMPG Program budget shall not exceed 50% of the total budget as submitted in the application and approved in the award. If the total project ends up costing more, the recipient is responsible for any additional costs; if the total project ends up costing less, the recipient may owe FEMA an amount required to ensure that the federal cost share is not in excess of 50%.

A state must at least equally match (cash or third party in-kind) the federal contribution pursuant to sections 611(j) and 613(a) of the

Robert T. Stafford Disaster Relief and Emergency Assistance Act

(Pub. L. No. 93-288), as amended, (42 U.S.C. §§ 5121 et seq.). Unless otherwise authorized by law, federal funds cannot be matched with other federal funds. The recipient’s contribution should be specifically identified. These non-federal contributions have the same eligibility requirements as the federal share.

https://www.fema.gov/emergency-managers/national-preparedness/continuity https://www.fema.gov/emergency-managers/national-preparedness/continuity mailto:FEMA-CGC@fema.dhs.gov mailto:FEMA-CGC@fema.dhs.gov

11 | P a g e

DHS/FEMA administers cost-matching requirements in accordance with 2 C.F.R. § 200.306. To meet matching requirements, the recipient contributions must be verifiable, reasonable, allowable, allocable, and necessary under the grant program, and in compliance with all applicable federal requirements and regulations.

I. Cost Sharing

Calculation Example

For example, if the federal award were at a 50% cost share and the total approved budget cost was $100,000, then:

• Federal share is 50% of $100,000 = $50,000

• Recipient share is 50% of $100,000 = $50,000

However, with this example, if the total cost ended up being $120,000, the federal share would remain at 50% of the total approved budget at the time of application of $100,000, or $50,000. If the total cost ended up being $80,000, then the 50% federal share would decrease to

$40,000, and the recipient cost share would be $40,000.

In accordance with 48 U.S.C. § 1469a, cost-match requirements are waived for the insular areas of the U.S. territories of American Samoa, Guam, the U.S. Virgin Islands, and the Commonwealth of the

Northern Mariana Islands.

J. Required information for verifying Cost Share

Applicants should submit the following cost share (or match) documents:

1. A detailed description of the source of the cost share/matching funds. If funds or services are to be provided by a third party for in-kind match, a dated letter of commitment is required to document the donation.

Please see the “Application Format and Contents” section for more details.

Maintenance of Effort

Not applicable.

12 | P a g e

3. Program Description

A. Background, Program Purpose, and Program History

The Fiscal Year (FY) 2025 Emergency Management Performance Grant (EMPG) Program provides funding to states or territorial governments to enhance their emergency management capabilities. The funding allows recipients to address risks and strengthen core emergency management functions.

Last year, all 56 states and territories were awarded EMPG Program funding, as were two

Compact of Free Association nations. For a full list of FY 2024 recipients, please refer to

Information Bulletin (IB) 517a.

B. Goals, Objectives, and Priorities

Goals: The goal of the FY 2025 EMPG Program is to provide funds to assist state, local, tribal, and territorial emergency management agencies to implement the National Preparedness System

(NPS) and to support the Goal of a secure and resilient nation.

Objectives: The EMPG funds will address the increasing range and complexity of disasters, support the wide variety of communities we serve, and complement the nation’s growing expectations of the emergency management community by meeting the following objectives:

1. Building or sustaining those preparedness capabilities that are identified as high priority through the Threat and Hazard Identification and Risk Assessment (THIRA)/Stakeholder

Preparedness Review (SPR) process and other relevant information sources (see Priorities section below);

2. Closing capability gaps that are identified in the state or territory’s most recent SPR; and

3. Building continuity capabilities to ensure governmental essential functions and services resilience.

DHS/FEMA requires EMPG Program recipients to complete a THIRA/SPR. Additional information on the THIRA/SPR process, including other NPS tools and resources, can be found at National Preparedness System | FEMA.gov and the Preparedness Grants Manual (FM-207-23-

001).

Priorities: All EMPG Program applicants are required to develop and submit a Work Plan as described in Appendix B below. All EMPG Program Work Plans will require final approval by the applicable FEMA Regional Administrator (RA). The applicant must work with the RA or designated Regional EMPG Program Manager to ensure that appropriate regional and state/territory priorities are effectively addressed in the Work Plan.

Priorities, and associated EMPG Program-funded projects, must be mutually agreed to by the recipient and RA. Identification of priorities and development of the EMPG Program Work Plan should involve a collaborative negotiation process through which a common set of priorities will emerge based on a combination of state/territory priorities, regional priorities, and national priorities (as outlined in the table below). State/territory priorities should be primarily driven by https://www.fema.gov/sites/default/files/documents/fema_gpd_ib-517a.pdf https://www.fema.gov/emergency-managers/national-preparedness/system https://www.fema.gov/emergency-managers/national-preparedness/system

13 | P a g e the THIRA/SPR process, as explained in the Objectives section above. Other relevant information sources, such as: 1) after-action reports (AARs) following exercises or real-world events; 2) audit and monitoring findings; 3) Hazard Mitigation Plans; and/or 4) other deliberate planning products may also be used to inform state/territory priorities. Additionally, states and territories are urged to consider the funding needs of local governments when developing their funding priorities. Regional priorities will be determined by the RA based on their unique knowledge of the region’s preparedness and emergency management needs, including broader insight into common capability gaps across the region and potential opportunities for economies of scale to capitalize on those commonalities. Regional priorities should also be based on an analysis of THIRA/SPR data and other information sources provided by the states/territories in their area(s) of responsibility. Ideally, all EMPG Program funded projects, as outlined in the approved FY 2025 EMPG Program Work Plan, will support the priorities identified through this approach.

Through the priority development and negotiation process, each region and state/territory should discuss state/territory, regional, and national priorities. Converging their processes for identifying priorities and reaching consensus on a common set of shared priorities helps the region and each state/territory to realize economies of scale. As a result of these negotiations, the region and state/territory should reach a consensus on three-to-five priorities each recipient will focus on addressing and improving in its EMPG Program Work Plan.

Federal regulations outlined in 2 C.F.R. Part 200 require federal awarding agencies to measure recipient performance to show achievement of program goals and objectives, share lessons learned, improve program outcomes, and foster adoption of promising practices (see 2 C.F.R. §

200.301, Performance Measurement). For FY 2025, there is a continuing emphasis on priorities-based investments. Additionally, recipients must set outcome-oriented performance goals for closing capability gaps related to the three-to-five agreed-upon priorities, aligning funding with high-priority strategic preparedness needs. An outcome-oriented approach will allow recipients to define success, benchmark their projects, and measure their progress in building capability.

Recipients will be able to use this to generate a feedback cycle. If projects are not achieving desired outcomes, recipients will have a basis for revisiting plans and assessments and adjusting their projects and other investments.

When developing state/territory priorities, applicants should consider the following national priorities:

• Extreme Weather Resilience; and

• Readiness

a. Extreme Weather Resilience

Extreme weather is one of the greatest challenges facing emergency managers today. To meet this challenge, the emergency management field needs to anticipate the increasing demands generated by more extreme and frequent disasters, from wildfires and coastal storms to inland flooding. Additionally, emergency managers must learn to manage and support weather-related emergencies such as drought and extreme heat. The emergency management community must

14 | P a g e aim to strengthen capabilities for extreme weather events by better understanding extreme weather risks and identifying mitigation strategies and other preparedness actions necessary to address those risks. This includes expanded training and capacity-building for emergency managers and first responders at the state and local level. Additionally, emergency managers at the federal, state, territorial, tribal, and local levels need to undertake targeted efforts to increase resilience in the most disaster vulnerable communities.

Extreme weather resilience requires a whole-community approach. The whole community is an inclusive approach to emergency preparedness and management through the inclusion of individuals and families, including those with access and functional needs; businesses; faith-based and community organizations; non-profit groups; schools and academia; media outlets;

and all levels of government, including state, local, tribal, territorial, and federal partners.

Extreme weather events can cause both acute and chronic impacts; communities must be resilient against threats as varied as extreme flooding, drought, hurricanes, and wildfires. Community resilience requires expanding partnerships, especially with community-based organizations that are on the ground before disasters strike and well after. Emergency management partners must support the preparedness needs of disaster vulnerable communities to mitigate the impacts of future disasters.

Many communities are faced with aging infrastructure, which can increase risk from major disasters. To have the greatest impact, FEMA encourages smart investments in system-based, community-wide projects to protect those with the most severe and persistent risk. Communities can better target investments to the most transformational projects when they better understand the unique risks posed by extreme weather events.

The future disaster environment will not resemble that of the past, or even what is experienced today. To build long-term resilience, communities must understand their future risk and have the resources and capacity to reduce that risk. Even within the same geographic area, different communities will face differing levels of risk due to their unique demographic, economic, and physical characteristics. It is important for the emergency management community to develop capacity to access and interpret accurate information about this localized risk, specifically in light of future conditions. This information will help communities better understand their own risks and identify the most appropriate resilience actions.

The more we build our partner’s resilience, the more prepared our nation will be, which positively influences the impact and severity of significant events. This approach enables disaster response efforts that are locally led, state managed, and federally supported.

b. Readiness

As disasters become more frequent, severe, and complex, the demands placed upon the emergency management community have increased dramatically. To adapt to this trend, FEMA and the emergency management community must expand our approach to readiness, preparedness, continuity, and resiliency by increasing the overall emergency management capabilities at the state and local government level, as well as the private sector, the nonprofit sector, and among individuals. The National Capability Targets provide a shared vision of the

15 | P a g e staff, expertise, tools, and resources required to build a prepared nation. Aligning state and local readiness plans to these targets will ensure agencies can continuously support the needs and priorities identified by whole community partners, in addition to continuity of government across all hazards.

Disaster mitigation, preparedness, response, and recovery are not the responsibility of just one agency. Rather, these functions are a shared responsibility requiring coordination of federal agencies, private and social sectors, state, local, tribal, and territorial governments, and other partners. The ability to support communities begins with how emergency management agencies help them prepare before a disaster occurs. This includes preparing for evolving concurrent, complex disasters, including response to potential national security emergencies. Through better coordination of pre-disaster programs, we can all help communities identify, prioritize, and plan to address their specific community-based threats, identify hazards and risks, and mitigate capability gaps. Together, federal assistance can be targeted to address areas of greatest national risk and increase support to the most at-risk communities thereby improving our Nation’s readiness.

c. Additional Guidance on EMPG Program Priorities

Recognizing that every state and territory has its own unique preparedness and emergency management needs, the national priorities outlined above should inform the identification of state/territory priorities and regional priorities when developing the common set of mutual priorities as agreed upon by the RA and each state/territory. Ideally, the regional and state/territory priorities will complement and support the national priorities. The only mandate stemming from these national priorities is the requirement for all EMPG Program recipients to develop and maintain a Distribution Management Plan as an annex to their existing Emergency

Operations Plan (EOP). See the Logistics Planning section of the Preparedness Grants Manual for additional details on this requirement.

The table below provides a high-level breakdown of the national priority areas, the associated core capabilities, as well as examples of project types for each area. Please see Appendix A of this NOFO for more detailed information about allowable costs for projects.

National Priority

Area

Associated Core

Capabilities 0F

Examples of Allowable Activities

Extreme Weather

Resilience

• Community Resilience

• Infrastructure Systems

• Long-Term

Vulnerability Reduction

• Planning

• Risk and Disaster

Resilience Assessment

• Threats and Hazards

Identification

• Development of/updates to disaster housing plans to incorporate and address weather-related data/projections/risks (e.g., ensure housing is not placed in potentially weather-related impacted areas and that housing solutions are weather-related resilient)

• Establishment of weather-related or resiliency positions within emergency management offices to assess weather-related risks, develop mitigation strategies, and support updating of EOPs

16 | P a g e

Associated Core

Capabilities 0F

Examples of Allowable Activities

• Development of evacuation plans in accordance with weather-related exacerbated risk (e.g., mass evacuation during catastrophic fast-moving events, like wildfires)

• Establishment of risk communication plans to inform all residents (including those with access and functional needs) about weather-related risks (e.g., what the communities can do at a local and individual level to prepare) and potential evacuations

• Development of internal plans (including response and recovery) that incorporate weather-related impact on emergency management resources (e.g., personnel, logistics)

• Development of weather-related literacy plans to enable communities to understand and prepare for their weather-related risks

• Conduct exercises that incorporate weather-related considerations into response and recovery efforts to increase weather-related literacy and prepare communities to respond to and recover from extreme weather disasters

• Incorporation of weather-related considerations into risk assessments (e.g., THIRA) and mitigation plans

• Creation of or updates to hazard fuel reduction and safety zone mapping to manage vegetation within a jurisdiction to minimize potential wildfire ignitions along the wildland interface, e.g., urban and/or rural

• Purchase/install standby generators to supply backup power for critical Emergency Operation Center electronic systems and equipment

Readiness:

Catastrophic

Disaster Housing

• Housing

• Planning

• Situational Assessment

• Infrastructure Systems

• Development of state-led disaster housing task force plan

• Establishment of State Disaster Recovery Coordinator

• Completion of State Housing Strategy template

• Assessment of accessible housing needs, including the unique risks and needs of disaster vulnerable communities

Readiness:

Disaster Financial

Management

• Planning

• Risk Management for

Protection Programs and

Activities

• Risk and Disaster

Resilience Assessment

• Community Resilience

• Economic Recovery

• Development of a plan for the sequencing of federal, nonprofit, and state disaster programs

• Development of a Disaster Financial Management Plan

Readiness:

Evacuation

Plan/Annex

• Planning

• Risk Management for

Protection Programs and

Activities

• Risk and Disaster

Resilience Assessment

• Threats and Hazards

Identification

• Assessment of evacuation capabilities and needs, including ensuring accessibility and effective communication for persons with disabilities and others with access and functional needs, and integration of these requirements into evacuation plans

• Development of/updates to evacuation plans

• Improvement of evacuation capabilities, such as transportation systems to support contraflow lanes

17 | P a g e

Associated Core

Capabilities 0F

Examples of Allowable Activities

• Operational

Coordination

• Long-Term

Vulnerability Reduction

• Critical Transportation

• Infrastructure Systems

• Conduct evacuation training and exercises

• Development of public awareness campaigns support evacuation plans

• (See https://www.fema.gov/emergency-managers/national-preparedness/plan/evacuation-shelter-in-place for additional guidance)

Readiness:

Logistics –

Distribution

Management

Planning

• Logistics and Supply

Chain Management

• Supply Chain Integrity and Security

• Development of/updates to a Distribution Management

Plan that addresses:

o State/local staging site plans o State/local commodity point of distribution site plans o Staging and Point of Distribution staffing strategies/plans o Transportation strategies/plans o Resource sourcing and accountability strategies/plans o Provision of critical emergency supplies for high risk communities

Readiness:

Continuity of

Government

• Planning

• Operational

Coordination

• All other core capabilities

• Continuity planning products for the continuance of essential functions and associated leadership

• Risk-based needs assessments based on the THIRA/SPR to inform risk mitigation efforts for ensuring continuity of essential functions and services

• Policy and legislation such as through executive orders and statutes setting forth resilience requirements for continuity of essential functions and services

• Public and private sector outreach and messaging regarding continuity resilience strategies

Readiness:

Resilient

Communications

• Operational

Communications

• Planning

• Public Information and

Warning

• Operational

Coordination

• Intelligence and

Information Sharing

• Cybersecurity

• Physical Protective

Measures

• Long-Term

Vulnerability Reduction

• Risk and Disaster

Resilience Assessment

• Threats and Hazards

Identification

• Infrastructure Systems

• Development of Statewide Communication

Interoperability Plans, Tactical Interoperable

Communications Plans, and Standard Operating

Procedures that address continuity and recovery of emergency communication systems

• Conduct risk and vulnerability assessments associated with emergency communications systems, to include cybersecurity risks

• Adoption of cybersecurity performance goals (Cross-

Sector Cybersecurity Performance Goals | CISA )

• Conduct National Incident Management System (NIMS) compliant training, exercise, and evaluation activities to test emergency communications capabilities, to include testing of resiliency and continuity of communications

• Physical hardening of infrastructure systems and support emergency communications https://www.fema.gov/emergency-managers/national-preparedness/plan/evacuation-shelter-in-place https://www.fema.gov/emergency-managers/national-preparedness/plan/evacuation-shelter-in-place https://www.fema.gov/emergency-managers/national-preparedness/plan/evacuation-shelter-in-place https://www.cisa.gov/cpg https://www.cisa.gov/cpg

18 | P a g e

C. Program Rationale

The stated goals, objectives, and priorities of the EMPG Program support Section 662 of the

Post-Katrina Emergency Management Reform Act of 2006 (PKEMRA), Pub. L. No. 109-295

(codified as amended at 6 U.S.C. § 762); the Robert T. Stafford Disaster Relief and Emergency

Assistance Act, Pub. L. No. 93-288 (1974) (codified as amended at 42 U.S.C. §§ 5121-5207); the

Earthquake Hazards Reduction Act of 1977, Pub. L. No. 95-124 (codified as amended at 42

U.S.C. §§ 7701-7709); and the National Flood Insurance Act of 1968, Pub. L. No. 90448

(codified as amended at 42 U.S.C. §§ 4001-4131).

D. Federal Assistance Type

Grant

E. Performance Measures and Targets

Performance metrics for this program are as follows:

• Performance Measure 1: Percentage of capability-building projects that align to capability gaps identified by states, territories, and urban areas in their THIRA/SPR submissions (50%).

• Performance Measure 2: Percentage of high priority capabilities, as identified in

THIRA/SPR submissions, that are built or sustained prior to award closeout (50%).

• Performance Measure 3: Percentage of capability-building projects that address a high priority core capability as identified by THIRA/SPR submissions (50%).

• Performance Measure 4: Percentage of projects that build or sustain capabilities relating to the EMPG Program national priority areas and RA agreed-upon priorities (80%).

• Performance Measure 5: Percentage of Planning, Training, and/or Exercise related projects that align with closing address capability gaps as identified and documented in the state/territory’s most recent THIRA/SPR submission, Mitigation Plan, AARs, Audit/Monitoring Findings, Continuity Assessments, or Other Deliberate Plans (50%).

FEMA will analyze the above metrics through the review of state/territory SPR submissions, EMPG Program Work Plans, and required programmatic reports.

F. Program-Specific Unallowable Costs

Specific unallowable costs for EMPG include:

1. Grant funds may not be used for the purchase of firearms, ammunition, grenade launchers, bayonets, or weaponized aircraft, vessels, or vehicles of any kind with weapons installed;

2. Expenditures for weapons systems and ammunition;

3. Costs associated with hiring, equipping, training, etc. sworn public safety officers whose primary job responsibilities include fulfilling traditional public safety duties such as law enforcement, firefighting, emergency medical services, or other first responder duties;

4. Costs that supplant traditional public safety positions and responsibilities;

5. Activities and projects unrelated to the completion and implementation of the EMPG

Program; or

6. Clothing used for everyday wear by emergency management employees or other personnel.

19 | P a g e

Recipients should consult with their Regional EMPG Program Manager prior to making any investment that does not clearly meet the allowable expense criteria established in this NOFO and the Preparedness Grants Manual.

G. General Funding Requirements

Costs charged to federal awards (including federal and non-federal cost share funds) must comply with applicable statutes, rules and regulations, policies, this NOFO, the Preparedness

Grants Manual, and the terms and conditions of the federal award. This includes, among other requirements, that costs must be incurred, and products and services must be delivered within the budget period. See 2 C.F.R. § 200.403(h).

Recipients may not use federal funds or any cost share funds for the following activities:

1. Matching or cost sharing requirements for other federal grants and cooperative agreements (see 2 C.F.R. § 200.306).

2. Lobbying or other prohibited activities under 18 U.S.C. § 1913 or 2 C.F.R. § 200.450.

3. Prosecuting claims against the federal government or any other government entity (see 2

C.F.R. § 200.435).

See the Preparedness Grants Manual for more information on funding restrictions and allowable costs.

H. Indirect Costs (Facilities and Administrative Costs)

Indirect costs are allowed for recipients and subrecipients.

Indirect costs (IDC) are costs incurred for a common or joint purpose benefitting more than one cost objective and not readily assignable to specific cost objectives without disproportionate effort. Applicants with a current negotiated IDC rate agreement who desire to charge indirect costs to a federal award must provide a copy of their IDC rate agreement with their applications.

Not all applicants are required to have a current negotiated IDC rate agreement. Applicants that are not required to have a negotiated IDC rate agreement, but are required to develop an IDC rate proposal, must provide a copy of their proposal with their applications. Applicants without a current negotiated IDC rate agreement (including a provisional rate) and wish to charge the de minimis rate must reach out to FEMA for further instructions. Applicants who wish to use a cost allocation plan in lieu of an IDC rate proposal must reach out to FEMA for further instructions.

As it relates to the IDC for subrecipients, a recipient must follow the requirements of 2 C.F.R. §§

200.332 and 200.414 in approving the IDC rate for subawards. See the Preparedness Grants

Manual for information on establishing indirect cost rates.

a. Unrecovered Indirect Costs

In accordance with 2 C.F.R. § 200.306(c) “[u]nrecovered indirect costs, including indirect costs on cost sharing or matching may be included as part of cost sharing or matching only with the prior approval of the Federal awarding agency. Unrecovered indirect cost means the difference between the amount charged to the Federal award and the amount which could have been charged to the Federal award under the non-Federal entity’s approved negotiated indirect cost https://www.fema.gov/media-library/assets/documents/178291 https://www.fema.gov/media-library/assets/documents/178291 https://www.fema.gov/media-library/assets/documents/178291 https://www.ecfr.gov/current/title-2/subtitle-A/chapter-II/part-200/subpart-E/subject-group-ECFRea20080eff2ea53/section-200.403 https://www.ecfr.gov/current/title-2/subtitle-A/chapter-II/part-200/subpart-D/section-200.306 https://uscode.house.gov/view.xhtml?req=granuleid:USC-1999-title18-section1913&num=0&edition=1999 https://www.ecfr.gov/current/title-2/subtitle-A/chapter-II/part-200/subpart-E/subject-group-ECFRed1f39f9b3d4e72/section-200.450 https://www.ecfr.gov/current/title-2/subtitle-A/chapter-II/part-200/subpart-E/subject-group-ECFRed1f39f9b3d4e72/section-200.435 https://www.fema.gov/media-library/assets/documents/178291 https://www.ecfr.gov/current/title-2/subtitle-A/chapter-II/part-200/subpart-D/subject-group-ECFR031321e29ac5bbd/section-200.332 https://www.ecfr.gov/current/title-2/subtitle-A/chapter-II/part-200/subpart-D/subject-group-ECFR031321e29ac5bbd/section-200.332 https://www.ecfr.gov/current/title-2/subtitle-A/chapter-II/part-200/subpart-E/subject-group-ECFRd93f2a98b1f6455/section-200.414

20 | P a g e rate.” Therefore, unrecovered indirect costs may be applied to meet cost share requirements of the EMPG Program grant with the approval of the Regional Grants Division. To meet the cost sharing requirements, the recipient’s indirect costs contributions must be verifiable, reasonable, allocable, necessary, and otherwise allowable under the grant program, and in compliance with all applicable Federal requirements and regulations.

I. Management and Administration (M&A) Costs

Per FEMA policy, M&A costs are allowed for both states and territories and local-level

Emergency Management Agencies (EMAs). A state or territory EMA may use up to 5% of the

EMPG Program award for M&A purposes. In addition, local EMAs may retain and use up to 5% of the amount they receive from the state for local M&A purposes. If the SAA is not the state or territory-level EMA, the SAA is not eligible to retain funds for M&A costs.

M&A activities are those defined as directly relating to the management and administration of

EMPG Program funds, such as financial management, reporting, and program and financial monitoring. Some examples of M&A costs include grants management training for M&A staff, equipment and supplies for M&A staff to administer the EMPG Program grant, travel costs for

M&A staff to attend conferences or training related to the EMPG Program, travel costs for the

M&A staff to conduct subrecipient monitoring, contractual services to support the M&A staff with M&A activities, and auditing costs related to the grant award to the extent required or permitted by statute or 2 C.F.R. Part 200. Characteristics of M&A expenses can include the following: 1) direct costs that are incurred to administer a particular Federal award; 2) identifiable and unique to each Federal award; 3) charged based on the activity performed for that particular Federal award; and 4) not duplicative of the same costs that are included in the approved Indirect Cost Rate Agreement, if applicable.

M&A costs are not overhead costs but are necessary direct costs incurred in direct support of the federal award or as a consequence of it, such as travel, meeting-related expenses, and salaries of full/part-time staff in direct support of the program. As such, M&A costs can be itemized in financial reports. They are directly related to managing and administering the award, such as financial management, reporting, and program and financial monitoring. It should be noted that salaries of state and local emergency managers are not typically categorized as M&A costs unless the state or local EMA chooses to assign personnel to specific M&A activities.

J. Pre-Award Costs

Pre-award costs are not allowed.

K. Beneficiary Eligibility

There are no program requirements. See Section 2 for additional eligibility information. This

NOFO and any subsequent federal awards create no rights or causes of action for any beneficiary.

L. Participant Eligibility

There are no program requirements. This NOFO and any subsequent federal awards create no rights or causes of action for any participant.

21 | P a g e

M. Authorizing Authority

Section 662 of the Post-Katrina Emergency Management Reform Act of 2006 (PKEMRA), Pub.

L. No. 109-295 (codified as amended at 6 U.S.C. § 762); the Robert T. Stafford Disaster Relief and Emergency Assistance Act, Pub. L. No. 93-288 (1974) (codified as amended at 42 U.S.C. §§

5121-5207); the Earthquake Hazards Reduction Act of 1977, Pub. L. No. 95-124 (codified as amended at 42 U.S.C. §§ 7701-7709); and the National Flood Insurance Act of 1968, Pub. L.

No. 90448 (codified as amended at 42 U.S.C. §§ 4001-4131).

N. Appropriation Authority

Full-Year Continuing Appropriations and Extensions Act, 2025, Pub. L. No. 119-4, § 1101.

O. Budget…