Indian General Assistance Program (GAP) Request for Proposals

Region 10 of the US Environmental Protection Agency (EPA) is currently soliciting applications for the FY 2004 Indian General Assistance Program from federally-recognized Tribes and tribal consortia.

CFDA Number 66-926 Indian Environmental General Assistance Program
Important Dates Solicitation mailed by Region 10 -- December 5, 2003
GAP Application postmark deadline -- February 20, 2004
GAP Workplan for PPG postmark deadline -- February 20, 2004
Tentative award decisions -- March 24, 2004
Final revision deadline -- May 21, 2004
Grant awards completed -- September 30, 2004

It is EPA policy to work with Tribes on a government-to-government basis to enhance environmental protection in Indian Country and tribal communities. In 1992, Congress passed the Indian Environmental General Program Act which authorizes EPA to provide General Assistance Program (GAP) grants to federally-recognized Tribes and tribal consortia for planning, developing, and establishing environmental protection programs in Indian Country, as well as developing and implementing solid and hazardous waste programs on tribal lands. The goal of this program is to assist Tribes in developing the capacity to manage their own environmental protection programs and to develop and implement solid and hazardous waste programs in accordance with individual tribal needs and applicable federal laws and regulations.

Congress, the Office of Inspector General (IG) and the Office of Management and Budget (OMB) have raised concerns about the lack of clarity or documentation showing how EPA grant funds have been spent or are expected to be spent, and the lack of evidence that EPA grants produce environmental outcomes and results. It is extremely important and required that recipients of EPA grants document environmental results and outputs that help measure tribal successes toward achieving GAP goals. FY 2005 GAP workplans will require the identification of anticipated grant outputs and outcomes. Please refer to Attachment B for details on grant workplan and reporting requirements.

1. Capacity-Building Activities
Capacity building through this program may include developing the appropriate administrative and legal infrastructure, establishing tribal technical capability, and planning and establishing an integrated tribal environmental management program to be implemented through other EPA program-specific grants. Examples of capacity-building activities include, but are not limited to:
A. Developing legal capability such as an assessment and revision of existing tribal codes, policies and ordinances, or the development of new codes, policies and ordinances to prevent environmental degradation on tribal lands.
B. Developing administrative capability through assessing and modifying existing financial and administrative systems to ensure adequate tracking of grant funds.
C. Developing a sustainable and integrated tribal environmental program by hiring and maintaining environmental staff positions, attending environmental trainings, workshops and conferences and participating in emergency response planning.
2. Solid and Hazardous Waste Implementation Activities
GAP funds can be used for implementation of tribal solid and hazardous waste programs. Implementation of solid and hazardous waste activities may include, but are not limited to:
A. Removal of abandoned vehicles, scrap metals and used tires;
B. Planning and conducting of household hazardous waste cleanups;
C. Establishing recycling collection areas and support facilities; and
D. Open dump cleanups.
Please note that implementation projects that involve ground disturbing, precedent setting, or highly controversial activities may be subject to the National Environmental Policy Act (NEPA) compliance. When NEPA compliance is necessary, GAP workplans must contain appropriate compliance activities such as the evaluation of project impacts.

1. Individual Tribes
It is EPA policy to work with Tribes on a government-to-government basis. The primary purpose of GAP grants is to develop the capacity of Tribes to administer environmental protection programs. For this reason, grants to individual tribal governments are the top funding priority of the GAP program.

2. Tribal Consortia Programs for the Benefit of Multiple Tribes
Funding for consortia will be considered after the funding needs of individual Tribes are met. Region 10 has found it necessary to establish this guideline when funding consortia for the following reasons: 1) the Region receives its GAP funding allocation based on the number of Tribes in the Region, not Tribes and consortia; and 2) in the past, the funding amounts requested by Tribes and consortia applying for GAP grants has exceeded the amount allocated to the Region, resulting in overall reduction in the amount of funding available to individual Tribes.

Consortia workplans should meet the needs of Tribes without duplicating individual tribal efforts. Workplans that directly benefit and build tribal environmental capacity will be given the highest consideration for funding. These activities may include: conducting technical trainings and workshops; coordinating conferences; and providing technical support and assistance to individual tribal programs at a regional or statewide level.

In FY 2003, EPA Region 10 was awarded approximately $19.5 million and funded 185 Tribes and tribal consortia in Alaska, Idaho, Oregon, and Washington. Our goal is to continue to provide funds to existing grantees as well as to support new applicants. Actual award amounts will be based on funds available, the number of Tribes and consortia submitting complete applications, and the amount of unexpended funds remaining in existing GAP programs. Funding is in no way guaranteed to applicants.

New or first-time applicants should request no less than $75,000 but no more than $110,000 in base funding to support their first year project. Amendments to existing grants will typically range from $90,000 to $110,000. There is no non-federal match requirement under GAP. GAP project periods may not exceed four years. At the end of the four-year project, Tribes and consortia may apply for new grants, but the project must focus in a new environmental medium. For this solicitation, Region 10 is only considering workplans and budgets that extend up to two years.

Tribes with two or more EPA programs that have demonstrated satisfactory performance under these programs may be eligible to apply for a Performance Partnership Grant (PPG). PPGs are formed by incorporating funds from at least two eligible EPA grants into a single grant, which can decrease the administrative burden and increase program flexibility for the Tribe. Please note that Tribes applying for PPGs must adhere to the same timeline for submitting their GAP workplans as those Tribes applying for individual GAP grants. Please contact your Tribal Coordinator, or the Region 10 Tribal Office at 800-424-4372 for more information about PPGs.

Applicants are not required to provide any share of GAP project costs.

Federally-recognized Tribes and tribal consortia are eligible to receive funds under GAP. A tribal consortium is defined as a partnership between two or more Tribes authorized by the governing bodies of those Tribes to apply for and receive assistance under the GAP program. A tribal consortium is eligible to receive grants if the consortium can adequately document compliance with the following requirements:
1. A majority of its members meet the eligibility requirements to receive GAP grants;
2. All members that meet the eligibility requirements authorize the consortium to apply for and receive the grant; and
3. Only members that meet eligibility requirements will directly benefit from the grant project and the consortium will agree to a grant condition to that affect.

1. Solicitation
This solicitation for FY 2004 GAP applications will be distributed in hardcopy by mail to all known eligible applicants in Region 10. Additionally, this notice may be distributed electronically to known e-mail addresses of potential applicants. The Region 10 Application Kit is enclosed for your use.

2. Applications
GAP applications must be postmarked no later than Friday, February 20, 2004 and must contain the following required information to be considered:
A. Narrative Discussion, to include:
1. Description of geographic location;
2. Statutory authority citation (Indian Environmental General Assistance Program Act of 1992);
3. Description of environmental need and issues;
4. Description of Tribe’s or consortium’s capability to manage federal grants, including where the environmental staff fits into the applicant’s organizational structure and, if a continuing grantee, the administrative, programmatic and financial progress made to date under the GAP grant;
5. Description of immediate- and long-term environmental goals; and
6. Description of a demonstrated environmental or human health need.
B. General Workplan Requirements, to contain the following elements:
1. Workplan components to be funded under the grant;
2. The estimated work years and estimated funding amounts for each workplan component;
3. The workplan commitments for each workplan component, and a time frame for their accomplishment;
4. A performance evaluation process and reporting schedule in accordance with 40 CFR 35.515;
5. Identification of grant outputs and outcomes; and
6. Description of applicant and EPA roles and responsibilities in carrying out the workplan commitments.

Workplans that do not contain the required elements will not be approved. Please see Attachment B for more information on these elements.

C. Two-year Workplans
Current GAP recipients who have demonstrated satisfactory performance under past and/or their current grants, and who are applying for a new grant or have at least two more eligible years under their existing grants are strongly encouraged to develop a two-year work plan and budget. If funding is available, two-year workplans will be funded. A separate workplan and budget must be included for each year.

D. Special Projects
Applicants that want an opportunity to receive additional funds for unmet needs should supplement their base workplans with additional tasks or projects. Special Projects components and costs should be detailed in a separate workplan and budget narrative. If funds are available after tentative awards are determined, EPA will consider the supplemental tasks that are identified in the application. The evaluation criteria listed in this notice will be used to determine funding Special Projects and tasks. Costs of Special Projects should be reflected in the total cost of the project on the Application for Federal Assistance (SF 424) and as a separate but additional Grant Function, Program or Activity in Section B-Budget Categories of the Budget Information-Non-Construction Programs (SF 424A) form.

Additionally, EPA is seeking to sponsor the FY 2004 Tribal Leaders Summit in the fall of 2004. Following the current rotation schedule, this event should be coordinated and hosted by a Tribe or tribal consortia in Alaska. If you are an Alaskan Tribe or consortia interested in undertaking this activity, please include this request as a GAP Special Project. Please refer to Attachment C of this package for more information.

Finally, Tribes and tribal consortia interested in applying for GAP funds for a Direct Implementation Cooperative Agreement (DITCA) can do so under a GAP Special Project. DITCAs can be used to carry out activities that will assist EPA with the implementation of federal environmental programs for Tribes if the Tribe itself does not have an environmental program in place. This authority is intended to provide flexibility for Tribes and EPA, by offering an additional approach to the “treatment in a manner similar to states” (TAS) process of involving Tribes in federal environmental management. Please contact your Tribal Coordinator, or the Region 10 Tribal Office at 800-424-4372 for more information about DITCAs.

E. Budget Narrative
A Budget Narrative, broken out by federal object categories (see Section B-Budget Categories of the Budget Information-Non-Construction Programs, SF 424A) and by each year of the project (and Special Projects, if applicable), must be included in the application.

F. Government Endorsement
For individual Tribes, a tribal resolution or other official documentation (such as a letter on tribal letterhead with the signature of the duly authorized representative) endorsing the application should be included in the application. For tribal consortia, tribal resolutions or other official documentation from each GAP-eligible member Tribe must be submitted within 60 days of the application deadline.

G. Required Federal and EPA Forms
All applicants must submit the following:
1. Application for Federal Assistance (SF 424)
Please note that effective October 1, 2003, a Dun and Bradstreet Data Universal Numbering System (DUNS) number must be included on every SF 424. Please see Attachment D for more information about the DUNS number requirement.
2. Budget Information-Non-Construction Programs (SF 424A)

For new applicants or those continuing grantees applying for a new award (start of a new four year project), please also submit:
1. Assurances-Non-Construction Programs (SF 424B)
2. Pre-award Compliance Review Report (EPA Form 4700-4)
3. Certification Regarding Debarment, Suspension, and Other Responsibility Matters (EPA Form 5700-49)
All application forms can be found in the enclosed Region 10 Application Kit. Additionally, the Federal forms can also be found and completed on-line at http://www.whitehouse.gov/omb/grants/grants_forms.html.
3. Application
Applicants must submit complete applications in order to receive funding. Applications must contain all of the required elements listed above. Final revisions must be submitted no later than May 21, 2004.

4. Funding Decision Notification Letters
After EPA reviews grant applications and makes preliminary funding decisions, the Region 10 Tribal Office will send out tentative award letters as well as denial letters. We anticipate distributing these letters by Wednesday, March 24, 2004.

5. Grant Award
Grant awards will be finalized no later than September 30, 2004.

Proposals will be evaluated based on the following factors:
1. Completeness of the application based on the requirements of this solicitation notice;
2. Demonstration of risks to human health and the environment;
3. The strength of activities intended to build tribal capacity to address long-term environmental risks and needs; and
4. Management capability and past performance, if applicable.
Please keep the application short, clear, and concise. Be sure to include all of the information requested in this solicitation. A sample workplan format, which contains all required elements, is included in Attachment B of this package for your use. Please number all workplan and budget narrative pages. Also consider denoting original application and any subsequent revision dates on the workplan and budget narrative.