National Juvenile 

Firesetter/Arson

Control and

Prevention Program

FA-239/June 1994
The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration i 
The National Juvenile Firesetter/Arson Control and Prevention Program 

ii Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

ACKNOWLEDGEMENTS 

Several individuals and numerous organizations contributed to this volume. We would like to 

thank Travis Cain of the Office of Juvenile Justice and Delinquency Prevention, and Thomas Minnich of 

the U.S. Fire Administration for recognizing the seriousness of the juvenile arson problem and for 

persisting in efforts to gain federal support for this important developmental initiative. They continue to 

provide helpful guidance to the project. Clifford Karchmer and his able colleagues at the Police Executive 

Research Forum conducted the initial analysis of program survey information and gathered valuable 

information on the response of the justice system to juvenile firesetting and arson. 

In addition, we would like to thank the members of the National Juvenile Firesetter/Arson 

Partnership: Stephen Austin; Jim Estepp; Francis McGarry; Nancy Campbell; James McMullen; Art 

Glatfelter; Evelyn Davis; Rick Gilman; Robert Savitt; Robert Rubel; Michael Valentine; James Breiling; 

Patricia Mieszala; Kenneth Fineman; Carol Connor; and Houston Campbell. The Partnership provided 

invaluable insights and assistance throughout the development of the program materials. Blair Bourque, 

Roberta Cronin, and Mei Han of the American Institutes for Research conducted a thorough and impartial 

assessment of these materials and their recommendations helped shape the final program materials. 

Without the unfailing cooperation and assistance of the staff of the many juvenile firesetter 

programs surveyed and visited during the development of these materials, this manual would not have been 

possible. The staff of the thirteen programs visited by ISA during the assessment stage were particularly 

generous with their time and materials, and we wish to thank all of them. 

This project was supported by grant number 87-JS-CX-K104 awarded to the Institute 

of Social Analysis by the Office of Juvenile Justice and Delinquency Prevention and 

the U.S. Fire Administration. Points of view or opinions stated in this document are 

those of the authors and do not necessarily represent the official positions or policies 

of the Office of Juvenile Justice and Delinquency Prevention or the U.S. Fire 

Administration. 

Federal Emergency Management Agency/United States Fire Administration iii 
The National Juvenile Firesetter/Arson Control and Prevention Program 

iv Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

TABLE OF CONTENTS

PAGE

U.S. Fire Administration Mission Statement...................................................................................... i 

Acknowledgements ............................................................................................................................ iii 

Table of Contents ............................................................................................................................... v 

EXECUTIVE SUMMARY......................................................................................................... 1 

USERS' GUIDE .......................................................................................................................... 17 

GUIDELINES FOR IMPLEMENTATION................................................................................ 63 

TRAINERS' GUIDE ................................................................................................................... 201 

FIRE SERVICE GUIDE TO A JUVENILE FIRESETTER EARLY 

 INTERVENTION PROGRAM ............................................................................................... 259

Federal Emergency Management Agency/United States Fire Administration v 

Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 1 

EXECUTIVE SUMMARY 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

2 Federal Emergency Management Agency/United States Fire Administration 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 3 

TABLE OF CONTENTS 

PAGE 

Background................................................................................................................ 5 

The National Juvenile Firesetter/Arson Control and Prevention 

Program (NJF/ACP)............................................................................................. 5 

The Evaluation........................................................................................................... 6 

The Pilot Programs .................................................................................................... 6 

Program Accomplishments........................................................................................ 7 

Lessons for Regional Firesetter Efforts ..................................................................... 13 

Recommendations for Agencies Developing Juvenile Firesetter Programs.............. 14 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

4 Federal Emergency Management Agency/United States Fire Administration 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 5 

BACKGROUND 

Juveniles are responsible for a significant proportion of both the accidental 

and intentional fires that occur each year in the United States. Since the 

mid-1970's, national, state, and local officials have been turning more 

attention to the problem of juvenile firesetting and have experimented with 

various approaches to reducing it. Nonetheless, many experts believe that 

there are significant gaps in our knowledge and practice. 

In response to these concerns, in 1987 the Office of Juvenile Justice and 

Delinquency Prevention (OJJDP) and the U.S. Fire Administration 

(USFA) began a new research and development program intended to 

conceptualize, design, develop, and evaluate a variety of communitybased approaches to prevent and control juvenile firesetting. The initiative 

was known as the National Juvenile Firesetter/Arson Control and 

Prevention Program (NJF/ACP). 

THE NATIONAL JUVENILE FIRESETTER/ARSON CONTROL AND 

PREVENTION PROGRAM (NJF/ACP) 

The NJF/ACP began with a nationwide assessment of juvenile firesetter 

programming, conducted by the Institute for Social Analysis (ISA). Based 

on that assessment, ISA produced a comprehensive set of materials to 

heighten awareness of juvenile firesetter issues and to guide 

implementation of model programs. Instead of advocating a single 

program model, the NJF/ACP materials define seven components 

common to effective juvenile firesetter programs: 

• a program management component, to make key program 

decisions, coordinate interagency efforts, and foster interagency 

support; 

• a screening and evaluation component, to identify and evaluate 

children who have been involved in firesetting; 

• an intervention services component, to provide primary 

prevention, early intervention, and/or treatment for juveniles, 

especially those who have already set fires or shown an unusual 

interest in fire; 

• a referral component, to link the program with the full range of 

agencies that might help identify juvenile firesetters or provide 

services to them and their families; 

• a publicity and outreach component, to raise public awareness of 

the program and encourage early identification of juvenile 

firesetters; 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

6 Federal Emergency Management Agency/United States Fire Administration 

• a monitoring component, to track the program's identification and 

treatment of juvenile firesetters; 

• a juvenile justice system component, to forge relationships with 

juvenile justice agencies that often handle juvenile firesetters. 

Developers of juvenile firesetter programs are urged to incorporate all 

these components in some form. However, the NJF/ACP materials 

encourage flexibility, emphasizing that programs must be tailored to the 

characteristics of the local firesetting problem as well as the political and 

economic environment. 

To test the usefulness of the NJE/ACP materials, OJJDP sponsored three 

juvenile firesetter pilot programs in Colorado, Oklahoma, and Utah, 

chosen through a competitive process. Each program received an award 

of $20,000 in October 1991, which supported project operations through 

December 1992. 

THE EVALUATION 

OJJDF engaged the American Institutes for Research (AIR) to conduct an 

evaluation of the three pilot juvenile firesetter programs. The evaluation 

had two primary aims: to assess the implementation process in the test 

jurisdictions, and to evaluate the utility of the NJE/ACP resource materials 

and training so that they could be modified if needed.1 Data for the 

evaluation were collected during two rounds of site visits to each pilot 

program, telephone monitoring of program progress, and analysis of data 

from the monitoring systems developed by each individual program. 

THE PILOT PROGRAMS 

The three grantees were: 

• The Adam and Dorothy Miller Lifesafety Education Center, a notfor-profit organization in Parker, Colorado. This program targeted 

Colorado's 18th Judicial District, covering four counties and 34 

fire agencies. Fire departments in Parker, Aurora, and Castlewood 

helped develop the proposal. 

1

 Although OJJDP, the USFA, and the evaluation team were also interested in assessing how well the 

programs controlled juvenile firesetting, it became evident early in the evaluation that the pace of program 

implementation, the capabilities of local data systems, and limited evaluation resources would preclude 

assessing these outcomes. 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 7 

• The Association of Central Oklahoma Governments, the council of 

governments serving the Oklahoma City metropolitan area. 

Oklahoma City's Fire Department helped prepare the proposal. 

This program targeted a four county area with 35 fire departments. 

• West Valley City, Utah, with support from the West Valley Fire 

Department. 

• The program targeted a single county, containing Salt Lake City, 

West Valley City, and 11 other fire agencies. 

Thus, all three grantees proposed to implement regional or countywide 

programs for juvenile firesetters. The population of these jurisdictions 

ranged from 435,000 in Colorado to 900,000 in Oklahoma, and each 

included urban, suburban, and rural areas. In all three sites a few fire 

departments had been operating programs to screen, evaluate, and refer 

juvenile firesetters before the grant award. The grantees proposed to 

capitalize on this experience, extending juvenile firesetter programs to 

non-participating departments, and enhancing program quality areawide 

through coordination, training, publicity, and systematic monitoring. 

Interestingly, grant applicants had not been required or encouraged to take 

a regional approach involving multiple departments. In fact, the NJF/ACP 

resource materials focus primarily on single-city programs because that 

was what was operating when the materials were developed. The pilot 

programs would be breaking new ground. From the standpoint of the 

evaluation, this meant that although the pilot programs would not provide 

an optimal test of the NJF/ACP materials, they would offer an ideal 

opportunity to learn more about a new variation on juvenile firesetter 

programs. 

PROGRAM ACCOMPLISHMENTS 

All three projects ultimately hoped to influence the firesetting behavior of 

juveniles in their jurisdictions. During the grant period, however, they 

focused primarily on making structural changes and enhancing capabilities 

that would support this longer term goal. 

System-level changes 

The projects made noteworthy progress in several areas. 

• Establishing a multi-agency management structure. All three 

programs established a multi-agency task force, board, or 

committee that set policy for the juvenile firesetter efforts, made 

key decisions, and carried them out. In Utah the group consisted 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

8 Federal Emergency Management Agency/United States Fire Administration 

of only five members. Both Colorado and Oklahoma developed 

much larger task forces, with representation from fire departments, 

mental health agencies, schools, justice agencies, and other 

audiences. In both these sites fire service personnel predominated 

in the day-to-day decisionmaking and program effort, however. 

Colorado's and Oklahoma's task forces still remained active several 

months after the grant expired. The future of the Utah group was 

uncertain because of staff turnover in key city positions. 

• Enhancing local capabilities to screen and educate juvenile 

firesetters. All three pilot programs focused on early 

intervention--identifying, screening, and evaluating youth who had 

been involved with fire, and referring them for further education or 

treatment if deemed necessary. The juvenile firesetter program 

vested responsibility for screening and evaluation in the local fire 

departments within the program's boundaries. The programs' role 

was to provide training opportunities to fire department personnel 

and others, thereby extending evaluation capabilities throughout 

the target area. The programs also assisted local departments by 

providing them with new resource materials such as guidebook, 

manuals, videotapes, or VCR's. Two of the three sites, Colorado 

and Oklahoma, made an effort to develop consistent screening 

policies or procedures areawide. 

On average, the programs doubled the number of departments with some 

capability to screen and assess juvenile firesetters in their target areas. 

They all employed screening forms and procedures that were developed 

under FEMA-USFA auspices and now are used by programs throughout 

the country to screen firesetters and gauge their risk of future firesetting. 

• Establishing linkages with the mental health and social services 

system. Mental health agencies participated on the task forces in 

both Colorado and Oklahoma, and a mental health representative 

was one of the key committee members in Utah. Since the fire 

agencies in Utah already had strong working relationships with 

mental health, this area was not a program priority. In contrast, 

both Colorado and Oklahoma were aggressive in reaching out to 

the mental health and social service agencies about juvenile 

firesetting. Colorado developed a resource list of mental health 

providers, and worked closely with the counseling department in 

the Children's Hospital Burn Unit. The Oklahoma project pilottested a formal referral relationship between one of the area's 

several Child Guidance Clinics and its largest fire department. 

This successful referral process is now being replicated by other 

area fire departments and clinics. 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 9 

• Conducting an information campaign. All the pilot programs 

engaged in publicity and outreach activities such as publishing 

brochures for elementary school youth, constructing billboards to 

advertise services, developing public service announcements, or 

working to get more mass media coverage. The Oklahoma and 

Utah programs focused on reaching the general public, while 

Colorado concentrated more on reaching professional audiences 

that might participate in the program's task forces or workshops. 

• Establishing linkages to the juvenile justice system. With 

strong and visible support from the State Attorney General, 

Colorado achieved substantial participation in its task force and in 

training activities from district attorneys, probation officers, and 

law enforcement personnel. The other two programs made less 

progress in this arena. However, in Utah the program worked 

closely with the juvenile's court's pre-existing educational program 

for juvenile firesetters; and in Oklahoma the program met with 

juvenile justice system personnel to work out a mutual 

understanding about the roles of each in handling juvenile 

firesetters. 

There were some areas of weaker implementation: 

• Extending juvenile firesetter approaches throughout the target 

area. None of the programs succeeded in involving every fire 

department in their area. Departments that were small, had limited 

budgets, relied heavily on volunteer firefighters, or were relatively 

remote geographically were especially difficult to engage. 

• Establishing a monitoring system. Although all of the programs 

made a commitment to monitoring, which was an important step in 

itself, all had difficulty putting a common system into place. 

Stumbling blocks included the technical requirements of 

developing forms and quality control procedures, the need for a 

central repository of information, and restricted access to 

confidential data about juveniles. 

In both these areas, the programs' original goals were probably too 

ambiguous given the time frame and resource levels of their grants. All in 

all, however, we conclude these modest short-term grants stimulated 

considerable improvements in juvenile firesetter programming at the three 

pilot sites. 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

10 Federal Emergency Management Agency/United States Fire Administration 

Interventions with Juvenile Firesetters 

In addition to bringing about changes in local capabilities and structures, 

the pilot programs also screened and evaluated the firesetting behaviors of 

over 600 children. Descriptive data from each program's monitoring 

system provide information about the children and families involved. 

However, the results must be interpreted cautiously because of incomplete 

reporting and differences in the forms and procedures across sites. The 

reporting periods differed across sites as well; Colorado's statistics cover 

12 months, Oklahoma's cover 13 months, and Utah's cover 17 months (but 

some Utah departments did not provide any reports for the first several 

months). 

Table 1 summarizes information about 372 referrals to Colorado, 253 

referrals to Oklahoma, and 88 referrals to Utah.1 

• In Colorado and Utah parents and other family members were the 

most common source of referrals to the program, while fire 

departments ranked second. In Oklahoma the reverse was true, 

possibly because the program launched its public information 

campaign late in the grant period. 

• The three programs served a predominately white, male 

population. The majority of the youth lived in two-parent families. 

In the two sites reporting on parental smoking behavior, the 

majority of the youth had a parent who smoked, perhaps making it 

easier to obtain the implements needed to start a fire. 

• There were pronounced age differences across sites. Compared to 

the other two sites, the Colorado program was much more involved 

with older children: 43.3 percent of their referrals were age 12 and 

up, versus 16.7 percent in Oklahoma, and 15.6 percent in Utah. At 

the other end of the age spectrum, children age 6 and under 

accounted for only 16 percent of referrals in Colorado, but 33.7 

percent of the Oklahoma referrals, and 36.4 percent of the Utah 

referrals. The age differences probably reflect differences in 

targeting as well as subtle distinctions in the way referral agencies 

perceived the programs, rather than differences in the nature of 

juvenile firesetting across jurisdictions. 

• A substantial minority of the referred youth had been involved in 

previous firesetting incidents. 

1 Most frequencies are based on fewer cases because of missing information, however. 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 11 

A comparison of the characteristics of the youth in four age groups--under 

5, age 5 to 9, age 10 to 13, and 14 and up--generally supported the 

prevailing view (FEMA, 1978) that there are differences between younger 

and older juvenile firesetters. Among the juveniles screened by all three 

programs, the younger juvenile firesetters were: 

• more likely to have acted alone; 

• less likely to live in two-parent household; 

• more likely to have a parent who smokes; 

• more likely to have set a fire indoors or at their own residence; 

• more likely to have done damage over $100; and 

• more likely to have started a fire involving injury or death. 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

12 Federal Emergency Management Agency/United States Fire Administration 

Table 1 

Personal and Family Characteristics of Juveniles Referred to the Juvenile 

Firesetter Programs 

Characteristics Colorado (n = 372) Oklahoma (n = 253) Utah (n = 88) 

Source of Referral 45.0 24.0 67.6 

Parents/Guardians/Relatives 28.6 57.3 23.0 

Fire Departments 2.8 10.1 1.4 

Law Enforcement/Prosecutors/Courts 13.9 5.7 

Schools 9.3 2.8 8.2 

Others n = 353 n = 246 n = 74 

Total 

Age 4.3 20.6 15.6 

<5 11.7 13.1 20.8 

5-6 22.7 26.2 33.7 

7-9 18.0 23.4 14.3 

10-11 26.8 10.4 14.3 

12-13 16.5 6.3 1.3 

14+ n = 351 n = 252 n = 77 

Total 

Average age 10.3 years 8.2 years 7.8 years 

Sex 86.6 89.3 82.3 

Male 13.4 10.7 17.7 

Female n = 372 n = 252 n = 79 

Total 

Race 86.4 71.8 98.4 

White 10.8 19.4 

African American/Black 1.9 4.8 1.6 

Hispanic 0.9 4.0 

Other n = 361 n = 252 n = 61 

Total 

Marital Status of Custodial Parent/ 

Guardian 

65.6 51.5 63.1 

Married/Remarried 9.2 16.1 11.1 

Single 22.9 28.9 25.4 

Divorced/Separated 0.8 2.5 

Widowed 1.5 

Other n = 262 n = 242 n = 63 

Total 

Parent or Guardian Smokes? NA 69.6 52.6 

Yes NA 30.4 47.4 

No NA n =227 n = 19 

Total 

Fire History2 NA 40.6 35.4 

Involved in Previous Fire NA 59.4 64.6 

No Known Fires NA n = 202 n = 65 

Total 

For Previous Firesetter, Number of 

Previous Fires1

33.3 21.7 NA 

1 28.1 26.1 NA 

2 15.8 24.6 NA 

3 7.0 5.8 NA 

4 12.3 17.4 NA 

5-9 3.5 4.3 NA 

10+ n = 57 n = 69 NA 

Total 1

 Based on information known to fire departments or reported in screening interviews with child or family. 2

 No data are reported for Colorado because the Colorado forms did not distinguish between "missing data" and "no previous fire history." 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 13 

Fortunately, however, few cases involved any injury, and most did not 

involve large amounts of fire damage. Two fires in Colorado resulted in 

deaths, however. In Colorado and Oklahoma total damages for all cases 

screened by the program exceeded $400,000 at each site. (Damage data 

were not available for Utah.) 

Significant proportions of the children screened by the juvenile firesetter 

programs--about two-thirds in Colorado and Oklahoma--were rated as 

needing further evaluation by mental health services. Two factors 

contributed to these high percentages. In Colorado some larger 

departments reserved the relatively time-consuming screening procedure 

for the most fire-involved youth. Other youth were referred directly to an 

educational program for firesetters. In Oklahoma some departments 

requested a second assessment from a mental health provider in most 

cases. In about 40 percent of the cases where the outcome of this second 

assessment was known, the mental health agency recommended further 

counseling. 

Most children and families who were referred to the projects--whether or 

not they were assessed as needing mental health follow-up--were also the 

beneficiaries of some type of fire education. 

LESSONS FOR REGIONAL FIRESETTER EFFORTS 

While the programs made great strides in improving the coordination and 

delivery of juvenile firesetter services, their plans may have been too 

ambiguous. They expected milestones to be reached too fast and 

expansion to occur too quickly. These are important considerations 

when considering a regional firesetter effort--limiting the scope and 

goals of the program to a manageable level and establishing a realistic 

timetable.

While we do not want to over-generalize from the experiences of three 

programs, these pilot projects do suggest several lessons about the 

circumstances that foster regional efforts. 

1. Unlike firesetter programs designed to serve a single fire 

department or district, the function of a regional effort is to 

organize the individual efforts of several departments to screen, 

educate, and refer juvenile firesetters. An organization that 

already spans the boundaries of the region and that already 

has experience building and maintaining networks may be a 

more effective program vehicle than an individual fire 

department.
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

14 Federal Emergency Management Agency/United States Fire Administration 

2. While an individual department may not be the optimal agency to 

manage a juvenile firesetter network, the leadership and 

involvement of a fire department with a successful juvenile 

firesetter program may be critical to the long-term success of 

the regional program.

3. Many of the service agencies to which juvenile firesetters are 

referred are already regionalized. Obviously, regional efforts 

should take advantage of whatever regionalized services and 

coordinating mechanisms already exist.

4. Since regional programs may transcend the jurisdictional 

boundaries of the criminal justice, fire, mental health, education, 

and protective services systems, they face a challenging task in 

educating relevant officials about the seriousness of juvenile 

firesetting and enlisting their aid. However, a high-ranking 

government official can serve as a catalyst to galvanize the 

involvement and support of diverse agencies. 

RECOMMENDATIONS FOR AGENCIES DEVELOPING JUVENILE 

FIRESETTER PROGRAMS 

At the risk of stating the obvious, we encourage agencies considering 

juvenile firesetter programs or already implementing them to take 

advantage of the body of materials and expertise that has been 

accumulated over the past few years. The volumes developed by ISA 

for the National Juvenile Firesetter/Arson Control and Prevention Program 

are an exceptional and comprehensive resource document for the program 

planner. 

We would like to reiterate one of the underpinnings of ISA's approach--

that programs should build on the existing resources for firesetters in 

a community, and fit the program design to the exigencies of the local 

environment. 

In addition to building on existing capacities, programs should start 

small and grow incrementally as they gain experience and acceptance. 

As a corollary, we recommend that a jurisdiction develop a juvenile 

firesetter program in an individual fire department before attempting 

a regional effort. 

Furthermore, jurisdictions should think in terms of developing a juvenile 

firesetter capability rather than a single program. In line with this 

notion, we believe it is useful to consider the entire continuum of services 

from fire prevention education, to early intervention for the juvenile 
Executive Summary 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 15 

exhibiting inappropriate fire behavior, to treatment for the serious 

firesetter, to court-directed controls for the arsonist. 

Programs should also pay increased attention to the educational and 

referral services that they provide. Programs must present basic fire safety 

concepts and information about the consequences of firesetting to children 

of different ages and different levels of fire involvement. This requires a 

range of appropriate educational materials and techniques. Arranging 

training for mental health professionals in the dynamics and 

treatment of firesetters can bolster the services available to the program's 

clientele. 

The NJF/ACT's emphasis on the importance of a juvenile justice linkage is 

on the mark. But, juvenile justice involvement in firesetting does not have 

to be limited to the arson end of the spectrum. The pilot programs tapped 

juvenile justice expertise to consolidate procedures for handling firesetters 

and to review the legality of collecting information on juveniles. To 

address the full continuum of fire behaviors we need to engage all of the 

agencies that deal with a piece of the problem. 

As technological advances increasingly protect us from accidental fires 

and alert us to fires of any origin, the human factor is likely to account for 

a larger share of fire injuries and mortality. Intercepting problem fire 

behavior at an early stage is likely to become an imperative. We hope that 

fire, mental health, juvenile justice, education, and other youth-serving 

agencies will begin addressing the problems now. 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Users' Guide 

USERS' GUIDE 

Federal Emergency Management Agency/United States Fire Administration 17 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Users' Guide 

18 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

TABLE OF CONTENTS 

PAGE 

Introduction................................................................................................................ 21

Component 1: Program Management ....................................................................... 21 

Component 2: Screening, Evaluation, and Developing the Intervention Plan ......... 26 

Resource List ............................................................................................................. 34 

Component 3: Intervention Services......................................................................... 37 

Users' Guide 

Resource List ............................................................................................................. 45 

Component 4: Referral Mechanisms ........................................................................ 51 

Resource List ............................................................................................................. 53 

Component 5: Publicity and Outreach...................................................................... 55 

Resource List ............................................................................................................. 57 

Component 6: Monitoring Systems .......................................................................... 58 

Component 7: Developing Relationships with the Juvenile Justice System ............ 60 

Resource List ............................................................................................................. 61 

Federal Emergency Management Agency/United States Fire Administration 19 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Users' Guide 

20 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

This Users' Guide is designed to accompany The Juvenile 

Firesetter/Arson Control and Prevention Program (JFACPP) Program 

Materials. The Users' Guide is intended to accomplish the following 

objectives. 

1. To provide a summary of how to plan and implement a 

juvenile firesetter/arson control and prevention program. 

This is achieved by outlining critical decision points in building each 

component of the juvenile firesetter/arson program. The result is a 

cookbook format that guides the reader from the planning to the execution 

of an effective community program. 

Users' Guide 

2. To highlight the key information contained in The JFACPP

Guidelines for Implementation. 

INTRODUCTION 

Because these volumes contain a great deal of information, the Users' 

Guide identifies the specific areas which will be useful to those 

developing their own juvenile firesetter/arson program. The Users' Guide

also shows where to find particular types of information in the two 

volumes. The Users' Guide and The JFACPP Guidelines for 

Implementation follow the same organizational format, therefore crossreferencing is facilitated. 

Program leadership, management, and service providers in fire service, 

mental health, law enforcement, probation, and juvenile justice systems 

will find this guide a quick and easy reference. It can be used as a 

handbook in helping all of these disciplines build an effective network of 

community services to control and abate the problem of juvenile 

firesetting and arson. 

COMPONENT 1: PROGRAM MANAGEMENT 

The role of program management begins with planning and developing the 

juvenile firesetter/arson program. If the proper groundwork is laid early in 

the planning and development stages, later management and maintenance 

of the program will be greatly facilitated. Therefore, it is important to 

recognize that there are specific phases of planning and development, and 

that certain decisions have to be made to ensure the successful 

implementation of the program. 

Federal Emergency Management Agency/United States Fire Administration 21 
The National Juvenile Firesetter/Arson Control and Prevention Program 

There are three general phases of building a juvenile firesetter/arson 

program. They are assessment, planning, and development. There are 

several decisions, which must be made during each of these three phases. 

These phases and corresponding decision points should be viewed by 

program leadership as guidelines for planning and developing their 

juvenile firesetter/arson program. Some or all of these phases and 

decisions may be executed by program leadership, depending on the 

perceived need and level of effort. The amount of careful planning, which 

occurs is likely to be directly related to the implementation of an efficient 

and successful juvenile firesetter/arson program. 

Phase I: Assessment 

Users' Guide 

The purpose of the assessment phase is to determine whether there is a 

need for a juvenile firesetter/arson program in the community. 

Decision 1. Problem Identification. Determine whether local experts 

think that juvenile firesetting is an important or significant problem in the 

community. 

Decision 2. Fact-finding. Conduct fact-finding activities to determine 

the statistical occurrence or incidence of juvenile firesetting in the 

community. Some resources in the community which might have relevant 

information are the fire service, law enforcement agencies, and 

probation/juvenile justice. 

Phase II: Program Planning 

The planning phase builds the foundation of the program and to a certain 

extent determines its effectiveness and longevity. Table 1.1 highlights the 

seven key steps which must be executed during the program planning 

phase. 

Decision 1. Problem Definition. Define the nature and extent of the 

juvenile firesetter problem in the community. The problem should be 

defined in terms of the statistical incidence of juvenile firesetting and 

arson. These rates should be compared to national averages to determine 

the significance of the problem. 

Decision 2. Program Leadership. Identify the key decisionmakers, such 

as fire service management, mental health professionals, etc., who are 

willing to establish program operations. 

22 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 1.1 

Key Elements in Program Planning 

I. Problem Definition Specify the nature and extent of 

juvenile firesetting incidents in the 

community. 

II. Program Leadership Identify someone responsible for the 

program. 

III. Service Delivery Select the type of services to be 

offered. 

IV. Program Site Determine the primary location for 

service delivery. 

V. Service Jurisdiction Specify the geographic boundaries of 

service delivery. 

VI. Staffing Identify management and key service 

providers. 

VII. Budget Estimate costs of service delivery. 

Users' Guide 

Decision 3. Service Delivery. Identify the types of services that will be 

offered to juvenile firesetters and their families. Table 1.2 presents the 

three general service delivery models for juvenile firesetter/arson 

programs. They are primary prevention, early intervention, and core 

intervention. Each program must decide on its basic approach to service 

delivery. Once the basic approach has been selected, then the specific 

program functions and operations must be determined. The functions and 

operations of a program refer to the actual types of screening, evaluation, 

and intervention services that will be offered. Components 2 and 3 of this 

Users' Guide cover how to select the most appropriate functions and 

operations for juvenile firesetter/arson programs. 

Decision 4. Program Site. Identify and establish the primary program 

site or sites responsible for the operation of the juvenile firesetter/arson 

program. In addition, secondary or referral sites can be specified as part 

of the network of service delivery. 

Decision 5. Service Jurisdiction. Define the jurisdiction of service 

delivery for which the juvenile firesetter/arson program will be 

responsible. Often smaller towns or communities may want to pool 

resources and mount a coordinated effort. 

Federal Emergency Management Agency/United States Fire Administration 23 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 1.2 

Program Models for Intervention Services 

Model Source Goals 

I. Primary Prevention A. School Curriculum and 

Programs 

1. Prevention of first-time 

firesetting. 

B. The Fire Service 2. Communication and education 

of fire safety and survival 

skills. 

II. Early Intervention A. The Fire Service 1. Identification of children at 

risk. 

2. Evaluation, education, and 

referral. 

3. Prevention of recurrence. 

III. Core Intervention A. Mental Health 1. Evaluation of recurrent 

firesetters. 

B. Probation and Juvenile 

Justice 

2. Treatment to stop firesetting 

and remediate 

psychopathology. 

3. Prevention of antisocial and 

criminal behavior. 

Users' Guide 

Decision 6. Staffing. Based on the selection of the program model, 

estimate the personnel and staffing patterns for the program. This includes 

the identification of primary service providers. 

Decision 7. Budget. Based on decision 1-6 develop a proposed budget 

estimating the cost of service delivery. 

Phase III: Program Development 

This phase sets in motion activities so that the program's door can be open 

for business. Table 1.3 summarizes the seven essential tasks for effective 

program development. 

Decision 1. Program Goals. Specify short- and long-term goals and 

objectives for successful program operations. 

24 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 1.3 

Program Development Tasks 

I. Program Goals Define program goals, objectives, and time-frame for 

implementation. 

II. Program Operations Establish new program functions within existing service 

structure. 

III. Coordination Council Solicit members from the community and establish routine 

meetings. 

IV. Funding Develop sources of financial support and contribution for 

short and long term operations. 

V. Training Conduct orientation and training sessions to educate key 

staff and service providers. 

VI. Liability Define potential legal and financial risks and 

responsibilities. 

VII. Interagency Linkages Establish referral pathways between community services. 

Users' Guide 

Decision 2. Program Operations. Once the specific program services 

have been identified, they will have to be integrated within the existing 

service delivery system. For example, if a juvenile firesetter/arson 

program is going to offer evaluation and education services within a fire 

department, the department must decide which division will be responsible 

for offering this service. In some instances it may be fire prevention, in 

other instances it may be public education or another fire service division. 

The details of how the program will operate within the existing structure 

must be planned. 

Decision 3. Coordinating Council. A local coordinating council must be 

established comprised of leaders of community programs most likely to 

contribute to the general support and operation of the juvenile 

firesetter/arson program. Some members of the council may include the 

Fire Chief or Fire Marshal, the Police Chief, a Juvenile Court Judge, a 

School Principal or School Board Member, Mental Health or Social 

Service Agency Directors, and other individuals with status and influence 

within their profession or agency. Component 1 in the Guidelines for 

Implementation details specific steps to be taken in building an effective 

coordinating council. 

Federal Emergency Management Agency/United States Fire Administration 25 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Decision 4. Funding. Establish and secure mechanisms for short- and 

long-term funding of the program. This includes both financial 

commitments as well as in-kind contributions for supporting the 

anticipated costs associated with operating the program. 

Decision 5. Training. Plans should be made for conducting orientations 

and in-service training seminars for staff who will be involved in 

implementing the program. Specific ideas for training programs are 

presented in Component 1 in the Guidelines for Implementation. 

Decision 6. Liability. Consult with local community experts (attorneys, 

city management, etc.) to determine the nature and extent of the program's 

legal and financial responsibilities in working with the population of 

juvenile firesetters. 

Users' Guide 

Decision 7. Interagency Linkages. Identify which community agencies 

might provide services to juvenile firesetters. These agencies may include 

social services, mental health, and probation and juvenile justice. 

Component 4 of this Users' Guide details how to establish and maintain 

effective referral pathways for juvenile firesetters. 

COMPONENT 2: SCREENING, EVALUATION, AND DEVELOPING THE 

INTERVENTION PLAN 

Virtually all juvenile firesetter/arson programs will have some type of 

screening and evaluation system for working with children and their 

families. During the program planning phase, preliminary decisions have 

been made regarding the selection of a general program model. Now, a 

particular set of screening and evaluation procedures must be selected for 

implementation. 

There are several factors which should be taken into consideration when 

setting up a screening and evaluation system for juvenile firesetters. There 

are four major phases which must be completed for the successful 

operation of the system. These phases are identification of the target 

population, designation of the responsible service agencies and 

individuals, selection of the screening and evaluation procedures, and 

implementation of these procedures. In each of these phases there are 

specific decisions to be made which will determine the nature and extent 

of the screening and evaluation effort. It is recommended that program 

leaders utilize each of these phases and decisions as guidelines when 

developing their screening and evaluation system. 

26 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Phase I: Identification of the Target Population 

During this phase the target population of juvenile firesetters must be 

identified and described in the community. Program leaders must decide 

on the level of severity of firesetting behavior they are willing to screen 

and evaluate, along with the type of juvenile firesetters they will serve. 

There are general personality profiles associated with juvenile firesetting. 

They are presented in Tables 2.1 (curiosity firesetters ages seven and 

under), 2.2 (recurrent firesetters ages eight to twelve), and 2.3 (adolescent 

firesetters), and they are described in detail in Component 2 in the 

Guidelines for Implementation. 

There are some specific psychosocial characteristics, which are likely to 

vary from community to community. For example, the demographic 

characteristics of juvenile firesetters, such as age, ethnic background, and 

economic status, are likely to represent the demographic characteristics of 

the particular community in which the juvenile firesetter/arson program is 

being implemented. Because demographic characteristics vary from 

community to community, it is important for program leaders to know 

what types of youth live in their community and hence what type of youth 

they are likely to serve. 

Users' Guide 

Decision 1. Severity Level. Define the level of severity of firesetting 

behavior to be screened and evaluated. See Component 2 in the 

Guidelines for Implementation for a complete description of the severity 

levels of juvenile firesetting behavior. 

Table 2.1 

Characteristics of Curiosity Firesetters Ages Seven and Under 

Dimension Description 

I. Individual Characteristics Normal physical, cognitive and emotional development. No 

evidence of psychiatric disturbance. 

II. Social Circumstances A happy, well adjusted family life. Good peer relationships. 

No academic or behavior problems in school. 

III. Environmental Conditions Firesetting is the result of accident, experimentation and 

curiosity. Feelings of guilt and remorse occur after 

firesetting. Attempts are made to extinguish firestarts. A 

low probability exists of future firesetting. 

Federal Emergency Management Agency/United States Fire Administration 27 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 2.2 

Characteristics of Recurrent Firesetting Children Ages Eight to Twelve 

Dimension Description 

I. Individual Characteristics Evidence of difficulties in one or more areas of physical, 

cognitive, or emotional functioning. Studies suggest the 

presence of one or more of the following problems: a 

greater number of physical illnesses, history of sexual 

abuse, learning disabilities, overwhelming feelings of 

anger and aggression, overactivity, impulsiveness and 

frequent temper outbursts. 

II. Social Circumstances Single-parent families with absent fathers are typical. 

When marriages are intact, there is a high degree of 

discord. Overly harsh methods of discipline coupled with 

lack of adequate supervision is common in single-parent 

households. Violent patterns of family interaction also 

have been observed. A history of academic failure 

coupled with behavior problems in school are evident. 

Difficulties establishing and maintaining friendships are 

observed. 

III. Environmental Conditions Stressful events trigger emotional reactions which result in 

firesetting. Firesetting represents the emotional release of 

displaced anger, revenge or aggression. Firesetting has the 

immediately positive reinforcing properties of attention 

and effect. No attempts are made to extinguish firestarts. 

There is rarely consideration of the negative consequences 

or potential destruction prior to firesetting. 

Users' Guide 

Decision 2. Demographics. Identify the specific demographic 

characteristics of the community. These demographic characteristics are 

likely to describe the population of juvenile firesetters to be served by the 

program. In addition, the fire service may have information on where fires 

set by juveniles occur in the community. This type of information also 

will be useful in planning screening and evaluation services. 

28 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 2.3 

Characteristics of Adolescent Firesetters 

Dimension Description 

I. Individual Characteristics Several significant emotional and behavioral problems are 

apparent. Studies indicate a higher than average number 

of accidents resulting in physical injuries, higher levels of 

sexual arousal, fantasy, excitement, and misbehavior, 

evidence of gender confusion, lack of emotional depth and 

restricted capacity for expression, and greater risk-taking 

behavior. 

II. Social Circumstances Predominant are single-parent households in which 

discipline and supervision are uneven. Intact families 

display high levels of marital discord. One or more 

parents may carry a psychiatric diagnosis. Physical abuse 

and other violent patterns of family interaction have been 

observed. Long histories of academic failure and behavior 

problems in school are typical. Peer pressure and 

influence are responsible for guiding and directing 

behavior. 

III. Environmental Conditions Firesetting can be motivated by need for recognition and 

attention from peers and from stressful events which 

trigger emotional reactions resulting in antisocial activity. 

Firesetting is frequently accompanied by other delinquent 

activities, such as drug consumption or petty theft, and 

feelings of excitement and defiance are reported just prior 

to the act. Feelings of guilt or remorse after firestarting 

are rare, no attempts are made to extinguish the fires, and 

there is little fear of punishment. 

Users' Guide 

Phase II: Designation of Service Agencies and Individuals 

Once the target population of juvenile firesetters has been specified, the 

next step is to locate the primary site responsible for screening and 

evaluating juvenile firesetters. The majority of screening and evaluation 

systems are operated by fire departments. Other sites include law 

enforcement agencies and mental health facilities. Each agency must then 

identify the type of personnel most appropriate for conducting the actual 

screening and evaluation procedures. 

Decision 1. Identify Primary and Secondary Service Agencies. Decide 

which agency is the primary site responsible for screening and evaluating 

firesetting youth. There may be other agencies in the community which 

Federal Emergency Management Agency/United States Fire Administration 29 
The National Juvenile Firesetter/Arson Control and Prevention Program 

serve as backup to the primary agency or with whom referral 

arrangements are established. 

Decision 2. Identify Service Providers. Determine which types of 

professionals will be doing the actual screening and evaluation of juvenile 

firesetters. 

Phase III: Selection of Screening and Evaluation Procedures 

The primary site generally is responsible for selecting the most appropriate 

types of screening and evaluation procedures for working with juvenile 

firesetters. The range of procedures is described in detail in Component 2 

in the Guidelines for Implementation. 

Users' Guide 

Decision 1. Determine Purpose and Function. The major consideration 

in selecting screening and evaluation procedures is an agreement on the 

purpose and function which they are to serve. Program leadership must 

determine the nature and extent of their evaluation efforts and then decide 

which procedures best meet their needs. There are specific procedures, 

which have been implemented by the screening and evaluation procedures, 

are presented for each of these community agencies in Tables 2.4 (the fire 

service), 2.5 (mental health), and 2.6 (law enforcement, probation, and 

juvenile justice). These decision grids should help program leadership 

select the best fit between their agency's capabilities and the available 

procedures for screening and evaluating juvenile firesetters. Component 2 

in the Guidelines for Implementation contains a more detailed analysis of 

screening and evaluation procedures. Copies of the actual screening and 

evaluation instruments can also be found in the resource section of that 

manual. 

30 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 2.4 

Screening and Evaluation Decision Grid Fire Service Procedures 

Method Purpose Output Impact Risk 

Telephone Contact 

Sheet 

Screening Files with 

demographic 

information on 

firesetters 

The organization 

of first contact 

information to aid 

in routing 

firesetters to the 

most appropriate 

help 

Adding paperwork 

to an already 

overloaded system 

Juvenile with Fire 

Worksheets 

Screening Files with 

demographics and 

services received in 

service delivery 

points to track 

firesetter within the 

system 

Increased 

communication 

between first 

contact and 

service delivery 

points 

Creating an 

unnecessary trail 

of paperwork 

following 

firesetters 

USFA's Interview 

Schedules 

Evaluation Classification of 

juveniles into low, 

definite, and 

extreme risk for 

firesetting and 

development of an 

intervention plan 

The application of 

a widely accepted 

and applied 

system for 

evaluating and 

classifying 

firesetters 

Currently there are 

no formal 

statistical studies 

of validity or 

reliability on this 

method 

FRY Program Recordkeeping Files on firesetting 

incidents, 

demographics, 

psycho-social data 

and intervention 

steps 

Numerical codes 

and values are 

assigned to data 

for quantifiable 

analysis of trends 

Short on 

supplying 

information on the 

"why's" of 

firesetting 

Adolescent 

Firesetter Decision 

Criteria 

Evaluation An assessment of 

the severity of the 

firesetting and arson 

behavior. according 

to one of three risk 

levels--low, 

moderate, and high 

Systematic 

documentation of 

the severity of 

delinquent 

firesetting 

behavior 

No quantifiable 

summary score 

results, and no 

formal statistical 

studies have been 

conducted 

Users' Guide 

Federal Emergency Management Agency/United States Fire Administration 31 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 2.5 

Screening and Evaluation Decision Grid Mental Health Procedures 

Method Target/ 

Population Purpose Output Impact Risk 

The 

Therapeutic 

Assessment 

of Firesetting 

Scale (TAF) 

Older children 

and 

adolescents 

with 

significant 

histories of 

firesetting 

Evaluation of 

psychosocial 

factors related 

to firesetting, 

planning for 

rehabilitation, 

and 

stimulating 

therapeutic 

growth 

Through a 

structured 

interview 

format, a set of 

answers to 

systematic 

questions 

related to 

firesetting 

Provides a 

method for 

obtaining 

important clinical 

information on 

firesetting 

Does not yield 

a summary 

score nor can 

its 

psychometric 

properties be 

evaluated 

The 

Achenbach 

Child 

Behavior 

Checklist 

Youngsters 

exhibiting 

behavior 

problems 

A paper and 

pencil test 

which 

provides 

quantitative 

information on 

behavior 

problems as 

well as 

competencies 

Standard 

scores on two 

scales; social 

competency 

and behavior 

problems 

Psychometrically 

sound clinical 

information on 

youngsters with 

behavior 

problems 

Recommended 

to be used only 

in conjunction 

with a 

comprehensive 

clinical 

evaluation 

General 

Psychosocial 

Assessment 

All youngsters 

exhibiting 

psychological 

problems 

To assess the 

psychological 

problems and 

strengths of 

youngsters and 

their families 

Output will 

vary according 

to specific 

methods and 

procedures 

employed 

Evaluation of 

psychological 

problems and 

development of 

plans for their 

resolution 

Users' Guide 

32 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 2.6 

Screening and Evaluation Decision Grid Law Enforcement, Probation, and 

Juvenile Justice Procedures 

Method Purpose Output Impact Risk 

Law Enforcement

Investigation 

Interview 

Documentation 

of fire incident 

In cases of no 

arrest, incident 

reports are filed; 

in cases of arrest, 

arrest records are 

established 

Systematic 

documentation 

and monitoring of 

incidence rates of 

juvenile firesetting 

and arson 

Arrested juveniles 

may not be diverted 

for necessary 

psychological 

interviews 

Child Protective 

Services Report 

Documentation 

of credible 

evidence 

demonstrating 

neglect, abuse, 

or maltreatment 

Filed reports to the 

legal entity in state 

governments 

responsible for 

investigating cases 

of child abuse 

The protection of 

the physical and 

psychological 

welfare of children 

as guaranteed by 

law 

Miranda Rights To inform youth 

of their legal 

rights 

A signed legal 

document 

acknowledging 

administration of 

rights 

The protection of 

legal rights of 

arrested minors 

Probation and Juvenile Justice 

Adolescent 

Firesetting 

Decision Criteria 

The evaluation 

of the 

psychosocial 

factors related to 

firesetting and 

arson behavior 

An assessment of 

the severity of the 

firesetting and 

arson behavior 

according to one 

of three risk 

levels--low, 

moderate, and 

high 

Systematic 

documentation of 

the severity of 

delinquent 

firesetting 

behavior 

No quantifiable 

summary score 

results, and no formal 

statistical studies have 

been conducted 

Probation 

Case Plan 

To assess the 

psychosocial 

factors related to 

firesetting and 

identify 

interventions 

Documentation of 

case plans to 

remediate 

delinquent 

firesetting 

behavior 

The identification 

of specific 

intervention 

objectives 

Relies heavily on self 

report from youth and 

their families 

Users' Guide 

Federal Emergency Management Agency/United States Fire Administration 33 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Decision 2. Application. Once the screening and evaluation procedures 

have been selected, then a system must be designed for their 

implementation. The flow of juveniles through the screening and 

evaluation process must be planned, from the moment they are identified 

to screening, evaluation and through to the development of a plan for 

intervention. The result should be an organizational chart outlining the 

flow of juveniles through the service system. 

Phase IV: Implementation 

The implementation phase consists of all the steps necessary to operate an 

effective screening and evaluation system. Many of these tasks already 

have been accomplished, however a few final steps need to be taken to put 

the system into place. 

Users' Guide 

Decision 1. Staffing. Based on the planned screening and evaluation 

system, identify the responsible professional and their roles and duties. 

Decision 2. Training. Because many of the screening and evaluation 

procedures require specialized skills in their application, in-service 

seminars and workshops will be necessary to ensure that those responsible 

for the program have been adequately trained. 

Decision 3. Basic Operations. At this stage, all of the screening and 

evaluation procedures should be in place. These procedures should be 

documented in writing in a small operations manual. 

RESOURCE LIST 

The following items provide ways to get further information about the 

procedures and methods described in the component. 

Fire Service Procedures 

1. Telephone Contact Sheet

Source: The Firehawk Children's Program 

Reference: Gaynor, J., et al. (1984) The Firehawk Children's 

Program. A Working Manual. San Francisco: 

The National Firehawk Foundation. 

34 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

2. Juvenile With Fire Worksheets A and B

Source: Portland Fire Bureau 

Contact: Don Porth 

Portland Fire Bureau 

55 SW Ash 

Portland, OR 97204 

(503) 823-3806 

3. USFA's Interview Schedules

Source: U.S. Fire Administration 

Users' Guide 

References: Fineman, K., et al. (1980). Washington, DC: US 

Government Printing Office. 

Fineman, K., et al. (1984). Preadolescent Firesetter 

Handbook. Ages 7 to 13. Washington, DC: 

US Government Printing Office. 

Gaynor, J., et al. (1988). Adolescent Firesetter 

Handbook. Ages 14-18. Washington, DC: 

US Government Printing Office. 

Contact: U.S. Fire Administration 

FEMA/National Fire Academy 

16825 South Seton Avenue, Building N, Suite 311 

Emmitsburg, MD 21727 

(301) 447-6771 

4. FRY Program Data Sheet

Source: Rochester, New York's FRY Program 

References: Cole, R. E., et al. (1984). Juvenile Firesetter 

Intervention. Report of the Rochester, New 

York FRY Program Development Project. 

New York: Department of State Office of 

Fire Prevention and Control. 

Cole, R. E., et al. (1986). Children and Fire. 

Second Report of the Rochester, New York 

Fire Department FRY Program 

Development Project. New York: 

Department of State Office of Fire 

Prevention and Control. 

Federal Emergency Management Agency/United States Fire Administration 35 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Law-Enforcement Procedures 

1. Investigation Interview

Source: David Lowery 

Arson Task Force 

1215 South Boulevard 

Charlotte, NC 28203 

(704) 336-3970 

2. Juvenile Miranda Rights

Source: Los Angeles Grand Jury 

Users' Guide 

Source: Arson Task Force 

1215 South Boulevard 

Charlotte, NC 28203 

(704) 336-3970 

Probation and Juvenile Justice Procedures 

1. Adolescent Firesetter Decision Criteria

Contact: Alison Stickrod Gray 

The Center for Prevention Service 

P.O. Box 254 

Underhill Center, VT 05490-0254 

(802) 899-2824 

2. Probation Case Plan 

Source: Juvenile Service Division 

700 E. Trade Street 

Charlotte, NC 28202 

(704) 342-6804 

Mental Health Procedure 

1. The Therapeutic Assessment of Firesetting (TAF) 

Questionnaire

Source: Terrance Neary, Ph.D 

Horizon Counseling Center 

Suite 305 

Hoffman Estates, IL 60195 

(708) 882-7744 

36 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

2. The Achenbach Child Behavior Checklist 

Reference: Achenbach, T.M. & Edelbrock, C.S. (1982). 

Manual for the Child Behavior Checklist 

and Child Behavior Profile. Burlington, 

VT: Child Psychiatry, University of 

Vermont. 

3. General Methods of Psychosocial Assessment

References: Gaynor, J. & Hatcher, C. (1987). The Psychology of 

Child Firesetting, Detection, and 

Intervention. New York: Brunner/Mazel, 

Publishers. 

Users' Guide 

Wooden, W.S. & Berky, M. L. (1984). Children 

and Arson, American's Middle-Class 

Nightmare. New York: Plenum Press. 

COMPONENT 3: INTERVENTION SERVICES 

The centerpiece of any juvenile firesetter/arson program is the intervention 

services it provides to help stop firesetting behavior and improve the 

quality of life for youth and their families. Program leadership must 

decide what type of system they are going to develop to serve their target 

population. Now that the program model has been selected and the 

screening and evaluation procedures identified, it is the task of program 

leadership to select the best fit between their current level of resources and 

capabilities and one or more intervention methods. 

To reach a decision regarding the selection of an optimal intervention 

system, it is recommended that program leadership consider three basic 

decision phases--the definition of the current level of program effort, the 

selection of specific intervention methods, and the implementation of the 

best fit between the current level of capabilities and program operations. 

The desired result should be an intervention system that is competently 

organized and managed and provides efficient services to the population 

of juvenile firesetters and their families. 

Phase I: Level of Effort 

The level of effort must be specified before a particular intervention 

system can be selected. By defining the level of effort, program 

leadership can determine the feasibility of implementing various types of 

interventions. 

Federal Emergency Management Agency/United States Fire Administration 37 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Decision 1. Funding. Although funding decisions are likely to be 

determined during the program planning stage, at this point in the 

program's development the budget must be firmly established so that 

specific resources can be allocated for particular intervention methods. 

Knowing what the budget constraints are will help narrow the selection of 

feasible intervention approaches. 

Decision 2. Staff. The number and type of staff, from program leadership 

to service providers, should be specified so that roles and responsibilities 

can be taken into consideration when selecting intervention methods. 

Phase II: Intervention Selection 

Users' Guide 

First, during the planning stage, a program model was selected. Next, the 

screening and evaluation system was put into place. Finally, the specific 

intervention methods must be identified. These methods represent the 

basic functions and operations of the juvenile firesetter/arson program. 

For each program model, there are a variety of corresponding intervention 

methods. The application of these intervention methods depends, in part, 

on the type of community agency implementing the interventions. For 

example, primary prevention programs in schools are likely to use 

different intervention methods than primary prevention programs in the 

fire service. 

To help different community agencies select the most appropriate set of 

interventions, decision grids have been developed which provide basic 

information about the various types of interventions. There are a set of 

decision grids which outline the primary prevention methods for schools 

and for the fire service. These are presented in Tables 3.1 (schools) and 

3.2 (the fire service). Table 3.3 shows a decision grid for early 

intervention. The fire service is the primary community agency operating 

this type of intervention system. This decision grid shows examples of the 

most widely applied juvenile firesetter/arson programs throughout the 

country. Lastly, there are a set of decision grids for core intervention, 

which provide examples of programs for mental health, and probation and 

juvenile justice. These are outlined in Tables 3.4 (mental health) and 3.5 

(probation and juvenile justice). A more detailed analysis of these 

decision grids can be found in Component 3 in the Guidelines for 

Implementation. 

38 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Phase III: Best Fit 

During this decisionmaking process, program leadership must tailor the 

selected program model and corresponding intervention methods to their 

specific organization and community. Once the specific pieces of the 

intervention system have been defined, then each juvenile firesetter/arson 

program must make it fit into their current organizational structure. For 

example, if a fire department wants to start an early intervention program, 

with evaluation, education, and referral operations, then program 

leadership must set these functions into place with the appropriate and 

available personnel and resources. Decisions have to be made regarding 

where, within the fire department, such a program is going to operate. It 

may be best suited for the fire prevention section or perhaps the public 

education division. A careful consideration of the day-to-day operations 

of the juvenile firesetter/arson program will determine which intervention 

methods are likely to work best given the boundaries of the existing 

service system. 

Users' Guide 

Decision 1. Match the Intervention to the Current System. Determine 

where and how the new juvenile firesetter/arson program is going to fit 

within the current service delivery system. 

Decision 2. Maximize the Use of Available Resources. Determine how 

best to capitalize on the available resources to fit the juvenile 

firesetter/arson program into current operations. Table 3.1. 

Federal Emergency Management Agency/United States Fire Administration 39 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 3.1 

Primary Prevention Decision Grid School Curriculum and Programs 

Method Purpose Acceptability Impact Limitations 

CTW's Fire 

Safety Project 

Introduce 

preschoolers to fire 

safety 

Widely used and 

highly regarded 

by preschool 

teachers 

throughout U.S 

Effective use of 

popular 

preschool 

characters as 

communicators 

of fire safety 

No formal evaluation 

of this approach 

Learn Not To 

Burn 

Classroom 

curriculum (K-8) 

teaching fire safety 

and prevention 

Extensively used 

in urban and 

suburban school 

districts 

throughout U.S 

Teaches 25 key 

behaviors 

resulting in 

competent fire 

safety schools 

No long-term 

followup studies of 

effectiveness 

Knowing About 

Fire 

Classroom 

curriculum (K-3) 

presenting hands-on 

fire learning 

activities 

A new program 

pilot-tested in a 

sample of 

schools 

Good initial 

reception by 

students and 

teachers 

As yet no information 

on effectiveness 

Fire Safety Skills 

Curriculum 

Classroom 

curriculum (K-11) 

teaching mastery of 

fire survival skills 

Utilized by 

school districts 

throughout the 

State of Oregon 

Minimal teacher 

preparation, selfcontained, and 

easily 

implemented 

No documentation of 

impact 

The Juvenile 

Crime Prevention 

Curriculum 

Teaching crime 

prevention and fire 

safety skills to 

adolescents who in 

turn teach them to 

younger children 

Utilized in the 

school districts 

of the 

Minneapolis/ St. 

Paul cities 

High satisfaction 

ratings from all 

levels of students 

and teachers 

No formal studies 

assessing crime 

prevention 

Project Open 

House 

First-hand, graphic 

exposure to 

watching a 

controlled fire burn 

and destroy 

Reported as a 

single episode 

learning activity 

by one 

community 

Enthusiastically 

received by 

students, teachers 

and parents 

Labor and cost 

intensive 

Users' Guide 

40 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 3.2 

Primary Prevention Decision Grid Fire Service Programs 

Method Purpose Acceptability Impact Limitations 

National Fire 

Prevention 

Week 

To raise national 

awareness about fire 

safety and 

prevention 

Nationally and 

locally planned 

media events 

throughout U.S. 

Increased public 

awareness of fire 

safety 

Increased awareness 

but unclear impact 

on behavior 

Media Campaigns 

Curious Kids 

Set Fires 

Press packet 

promoting national 

media campaign on 

fireplay and firesetting 

Pilot-tested in 

several states 

Well-received by 

states looking to 

mount media 

activities 

Only a short-term 

impact on a longterm problem 

Big Fires Start 

Small 

National media kit 

designed to explain 

problem of children 

playing with 

matches 

Researched & 

developed based on 

statistics showing 

alarmingly high 

numbers of 

children playing 

with matches 

Good reception 

by local fire 

departments 

Services to help 

children must be 

available 

Fire Busters Television 

broadcasts on 

evening news 

teaching fire safety 

With minor 

adjustments in 

presentation of 

program, good 

response from 

children and 

families 

Continued 

support and 

expansion 

throughout 

Oregon 

Must be a 

cooperative 

community effort 

School Programs 

Visits Education and 

exposure to fire 

department 

Used by several 

fire departments 

throughout U.S. 

Well-received by 

students 

Short-term impact 

Slide 

Presentations 

Visual education Commonly used 

teaching method 

Good reception 

from students 

One-shot effect 

Film Visual education Effective teaching 

method 

Well-liked by 

students 

Single exposure 

Assemblies Participant 

education 

Economical 

teaching of many 

Positive response Short-term effect 

Public Fire 

Education 

Today 

Resource directory Widely distributed 

throughout U.S. 

Excellent 

resource 

Users' Guide 

Federal Emergency Management Agency/United States Fire Administration 41 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 3.3 

Early Intervention Decision Grid Fire Service Programs 

Method Purpose Acceptability Impact Limitations 

Evaluation, Education, and Referral

Juvenile 

Firesetter 

Program 

Strong educational 

component with 

written materials 

A new program 

being wellreceived by 

participants 

Good follow-up 

procedures. 7 % 

recidivism 

Resource unable to 

keep up with demand 

Operation 

Extinguish 

Highly structured 

educational 

classes coupled 

with family 

counseling 

Well-received by 

participants but 

community 

support recently 

declining 

Reportedly low 

recidivism 

No follow-up studies 

to support its impact 

Fire Related 

Youth Program 

Strong interagency 

linkages and 

excellent 

documentation 

Follow USFA 

guidelines, 

acclaimed as a 

model program 

Community 

cohesiveness 

Over-reliance on 

referral chain 

Juvenile 

Firesetter 

Program 

Solid program 

with state-wide 

connection 

Part of the widely 

used and 

recommended 

USFA program 

model 

Services aimed at 

high-risk fire 

areas in Portland, 

OR 

No formal studies on 

impact of program 

Counseling 

Juvenile 

Firesetter 

Counseling 

Program 

Effective 

interview graphing 

technique 

Although utilized 

by many mental 

health 

professionals, 

only two fire 

departments have 

implemented it 

Highly effective 

in stopping 

firesetting 

Major commitment of 

resources 

Cease Fire Interview 

graphing coupled 

with family 

counseling 

Follows USFA 

model, but adds 

family counseling 

services 

Comprehensive 

services 

No formal studies 

evaluating 

effectiveness 

Firehawk 

Children's 

Program 

Partnerships with 

firefighter 

counselors 

Follows USFA 

model, but adds 

partnership 

between 

firefighters and 

children as 

program feature 

Long-term 

intervention 

approach, low 

recidivism 

Significant 

commitment of time 

and resources 

Users' Guide 

42 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 3.4 

Core Intervention Decision Grid Mental Health Programs 

Method Purpose Acceptability Impact Limitations 

Outpatient Treatment

CognitiveEmotive Therapy Recognition and 

interruption of the 

urge to firestart 

using the 

interview graphing 

technique 

Widely applied 

not only with 

firesetters, but 

with other 

delinquent 

populations 

Reportedly low 

(7%) recidivism 

with difficult 

(recurrent) 

firesetters 

No information on 

relative effectiveness 

of method 

Behavior 

Therapy 

Abate firesetting 

behavior using 

punishment, 

reinforcement, 

negative practice, 

or fantasies 

Applied in singlecase studies Highly effective 

in cases with 

reported followup 

Not applied beyond 

single case studies 

Family Therapy Improving and 

restructuring 

patterns of 

communication 

and interaction 

Three single case 

studies reported 

Effective in all 

cases with 

follow-up 

Small number of 

applications 

Group Therapy Flame Out

teaches stress and 

home management 

skills with fire 

safety instruction 

Pilot-tested Reported 

successful in 

preliminary 

stages 

New and untested 

method 

Inpatient Treatment 

Behaviorally 

Oriented Juvenile 

Firesetter 

Treatment 

Program 

Short-term 

inpatient 

evaluation and 

treatment using 

satiation, family 

therapy, and reentry activities 

Private psychiatric 

hospitals in 

California and 

Oregon 

Reported 

effective with 

low recidivism 

Labor and cost 

intensive; no followup or impact studies 

reported 

Users' Guide 

Federal Emergency Management Agency/United States Fire Administration 43 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Table 3.5 

Core Intervention Decision Grid Probation and Juvenile Justice Programs 

Method Purpose Acceptability Impact Limitations 

The First 

Offender 

Program, Dallas, 

Texas 

General diversion 

offering 

assessment, 

treatment, and 

followup 

intervention 

For first offenders, 

viable alternative 

to incarceration 

Decline of 

delinquency rate 

from 50% to 

22.6% 

Missing or diverting 

seriously disturbed 

offenders 

Operation 

Extinguish 

Montgomery 

County, 

Maryland 

Evaluation 

education, family 

counseling, 

restitution, and 

community 

service 

Acclaimed as a 

model program, 

but not yet 

replicated 

Reportedly low 

recidivism rates 

Serious commitment 

of resources, but may 

be worth the outlay 

Juvenile 

Firesetter 

Program Upper 

Arlington, Ohio 

Fire safety 

education program 

for incarcerated 

arsonists 

Supported by 

local agencies, but 

not replicated in 

other communities 

Well-received by 

juveniles and 

local 

participating 

community 

agencies 

No data on 

effectiveness 

Users' Guide 

44 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

RESOURCE LIST 

Primary Prevention 

School Curriculum and Programs

1. CTW's Fire Safety Project 

Sesame Street Fire Safety Resource Book 

Contact: Children's Television Workshop 

1 Lincoln Plaza 

New York, NY 10023 

(212) 595-3456 

Users' Guide 

2. Learn Not to Burn

Contact: National Fire Protection Association 

1 Batterymarch Park, 

P.O. Box 9101 

Quincy, MA 02269 

(617) 770-3000 

3. Knowing About Fire 

Contact: Paul Schwartzman 

National Fire Service Support Systems, Inc. 

20 North Main St. 

Pittsford, NY 14534 

(716) 264-0840 

4. Fire Safety Skills Curriculum 

Contact: Judy Okulitcy 

Program Manager 

Office of the State Fire Marshal 

3000 Market Street, NE, #534 

Salem, OR 97310 

(503) 378-3473 

5. The Juvenile Crime Prevention Curriculum 

Contact: Public Relations Department 

The St. Paul Companies 

385 Washington Street 

St. Paul, MN 55102 

Federal Emergency Management Agency/United States Fire Administration 45 
The National Juvenile Firesetter/Arson Control and Prevention Program 

6. Follow the Footsteps to Fire Safety 

Contact: City of St. Paul 

Department of Fire and Safety Services 

Fire Prevention Division 

100 East Eleventh Street 

St. Paul, MN 55101 

(612) 228-6203 

7. Project Open House 

Contact: Richard A. Marinucci 

Farmington Hills Fire Department 

Users' Guide 

28711 Drake Road 

Farmington Hills, MI 48331-2525 

(313) 553-0740 

8. Kid's Safe Program

Contact: Fire Safety Education Curriculum for 

 Preschool Children 

Oklahoma City Fire Department 

Public Education 

820 N.W. 5th 

Oklahoma City, OK 73106 

(405) 297-3314 

Fire Service Programs

1. National Fire Prevention Week 

2. Curious Kids Set Fires 

Contact: U.S. Fire Administration 

National Fire Academy 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

3. Big Fires Start Small 

Contact: National Fire Protection Association 

1 Batterymarch Park, 

P.O. Box 9101 

Quincy, MA 02269 

(617) 770-3000 

46 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

4. Firebusters 

Contact: Earl Diment 

Office of Community Relations 

Portland Fire Bureau 

55 Southwest Ash 

Portland, OR 97204 

(503) 823-3700 

5. Public Fire Education Today 

Contact: U.S. Fire Administration 

National Fire Academy 

Users' Guide 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

Fire Department Programs In Schools

1. Slide Presentations 

Contact: Office of the Fire Chief 

Fourth Floor East 

Largo Government Center 

9201 Basil Court 

Landover, MD 20785 

2. Films 

Contact: Juvenile Firesetter Program 

Fire Prevention Division 

Fire Marshal's Office 

301 2nd Avenue South 

Seattle, WA 98104 

(206) 296-6670 

3. Assemblies 

Contact: Juvenile Firesetter Program 

Fire Prevention Division 

Fire Marshal's Office 

301 2nd Avenue South 

Seattle, WA 98104 

(206) 296-6670 

Federal Emergency Management Agency/United States Fire Administration 47 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Contact: Captain Henry Begroot 

Fire Prevention 

San Jose Fire Department 

4 North 2nd Street, Suite 1100 

San Jose, CA 95113 

(408) 277-4444 

Law-Enforcement Programs

1. McGruff 

Contact: The National Crime Prevention Council 

Users' Guide 

1700 K Street, N.W., Second Floor 

Washington, DC 20006 

Early Intervention 

Evaluation Education and Referral Programs

1. The Juvenile Firesetter Program, Columbia, Ohio

Contact: Lonnie Poindexter 

Juvenile Firesetter Program 

Bureau of Fire Prevention 

300 N. Fourth Street 

Columbia, OH 42315 

(614) 645-7641 

2. Operation Extinguish, Montgomery County, Maryland

Contact: Mary Marchone 

Division of Fire Prevention 

101 Monroe Street 

Rockville, MD 20850 

(301) 271-2442 

3. Fire Related Youth (FRY) Program, Rochester, New York

Contact: Jerold Bills 

FRY Program 

Rochester Fire Department 

Room 365 

Public Safety Building 

Civic Center Plaza 

Rochester, NY 14614 

(716) 428-7103 

48 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

4. Juvenile Firesetter Program, Portland Oregon

Contact: Don Porth 

Portland Fire Bureau 

55 Southwest Ash 

Portland, OR 97204 

(503) 823-3700 

Counseling Programs

1. Juvenile Firesetting Counseling Program, Dallas Texas

Users' Guide 

Contact: Inspector Carnell Mays 

Arson and Fire Inspection 

Fire Department 

2014 Main Street, Rm. 404 

Dallas, TX 75201 

(214) 670-4312 

2. Cease Fire Club, Huston Texas

Contact: Alfred Taylor 

Juvenile Firesetters Prevention Program Houston 

Cease Fire Club 

1205 Dart Street 

Houston, TX 77027 

(713) 247-1000 

3. The Firehawk Children's Program

Gaynor, J., et al. (1984). The Firehawk Children's Program: A 

Working Manual. San Francisco: The National Firehawk 

Foundation. 

Core Intervention 

Mental Health Programs

Outpatient Programs 

1. Cognitive-Emotive Psychotherapy

Bumpass, E.R., Brix, R.J., & Preston, D. (1985). A communitybased program for juvenile firesetters. Hospital and 

Community Psychiatry, 36(5), 529-532. 

Federal Emergency Management Agency/United States Fire Administration 49 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Bumpass, E.R., Fagelman, F.D., & Brix, R.J. (1983). Intervention 

with children who set fires. American Journal of 

Psychotherapy, 37, 328-345. 

2. Behavior Therapy

Carstens, C. (1982). Application of a work penalty threat in the 

treatment of a case of juvenile firesetting. Journal of 

Behavior Therapy and Experimental Psychiatry, 13, 159-

161. 

Holland, C. J., (1969). Elimination by the parents of firesetting 

behavior in a 7-year old boy. Behavior Research and 

Therapy, 7, 135-137. 

Users' Guide 

Kolko, D.J. (1983). Multicomponent parental treatment of 

firesetting in a developmentally disabled boy. Journal of 

Behavior Therapy and Experimental Psychiatry, 14, 349-

353. 

Stawar, T.L. (1976). Fable mod: Operantly structured fantasies as 

an adjunct in the modification of fire-setting behavior. 

Journal of Behavior and Experimental Psychiatry, 7, 285-

287. 

3. Family Psychotherapy

Eisler, R.M. (1974). Crisis intervention in the family of a 

firesetter. Psychotherapy: Research, Theory, and 

Practice, 9, 76-79. 

Madanes, C. (1981). Strategic family therapy. San Francisco; 

Jossey-Bass. 

Minuchin, S. (1974). Families and family therapy. Cambridge, 

MA: Harvard University Press. 

4. Group Therapy

Monaco, C. (1988). Flame Out. Unpublished manuscript. 

Phoenix, Arizona. 

Joseph Richardson 

Juvenile Firesetter Intervention Program 

Department of Public Safety 

209 Fountain Street 

Providence, RI 02903 

(401) 272-3121 (Ext. 2431) 

50 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Inpatient Treatment 

Birchill, L.E. (1984). Portland's firesetter program involves both 

child and family. American Fire Journal, 23, 15-16. 

Probation and Juvenile Justice

A. General Diversion

The First Offender Program, Dallas, Texas 

Contact: Dallas Police Department 

Youth Section 

Users' Guide 

106 S. Harwood Street 

Room 225 

Dallas, Texas 75201 

B. Juvenile Firesetter Diversion Programs

Operation Extinguish, Montgomery County, Maryland 

Contact: Mary Marchone 

Division of Fire Prevention 

101 Monroe Street 

Rockville, MD 20850 

(301) 271-2442 

C. Juvenile Firesetter Programs for Incarcerated Arsonists 

Juvenile Firesetter Program, Upper Arlington, Ohio 

Contact: City of Upper Arlington 

Division of Fire 

3600 Tremont Road 

Upper Arlington, Ohio 

(614) 457-5080 

COMPONENT 4: REFERRAL MECHANISMS 

An effective juvenile firesetter/arson program will have strong linkages to 

a network of service agencies within the community. The majority of 

juvenile firesetter/arson programs rely on this network to help juveniles 

enter the system, be screened and evaluated, and obtain one or more 

interventions to abate the firesetting behavior and improve the quality of 

life. The primary site of the juvenile firesetter/arson program can be 

viewed as one part of a network designed to provide effective services to 

firesetting youngsters and their families. 

Federal Emergency Management Agency/United States Fire Administration 51 
The National Juvenile Firesetter/Arson Control and Prevention Program 

There are a number of decisions to be made when setting-up a referral 

system for juvenile firesetters. Consideration of the following sequence of 

decisions will help program leadership build a comprehensive referral 

network in their community. 

Decision 1. Define the Scope of the Referral System. Once the juvenile 

firesetter/arson program model is identified, and the screening, evaluation, 

and intervention systems are put into place, then the question of the 

relationship between the program and other community service agencies 

must be addressed. If the juvenile firesetter/arson program is going to rely 

on other community services for referrals, then these agencies must be 

identified. If the program is planning to refer juvenile firesetters for 

additional services, then these community agencies also must be 

designated. The scope of the referral system will depend on the type of 

intervention services that program leadership selects to implement. 

Users' Guide 

Decision 2. Identify Referral Sources. The community agencies likely 

to refer juvenile firesetters to the program must be identified. A list of 

potential referral sources is presented in Table 4.1 and their operations are 

described in detail in Component 4 in the Guidelines for Implementation. 

Decision 3. Identify Referral Agencies. If the program is going to rely 

on other community agencies to provide services to juvenile firesetters, 

then these agencies and their roles and responsibilities in the service 

delivery system must be designated. Table 4.1 shows a list of possible 

referral agencies. Their functions are described in greater detail in 

Component 4 in the Guidelines for Implementation. 

Decision 4. Initiate the Referral Network. Once the referral sources 

and agencies have been identified, then working linkages must be 

developed. Relationships must be established on the program leadership 

and management levels as well as the service provider levels. Effective 

channels of communication must be opened between agencies and the 

referral pathways for juvenile firesetters must be specified. Component 4 

in the Guidelines for Implementation explains how to create and maintain 

effective referral agreements between community service agencies. 

Examples of written referral agreements between community service 

agencies can be found in the resource section of the Guidelines. Table 4.1. 

Decision 5. Quality Control. Once the referral relationships and 

pathways have been established, then a plan must be developed to 

maintain an effective referral network. Activities must be designed to 

increase the communication between community agencies. Some of these 

activities may include routine in-service training seminars, case 

conferences, and follow-up telephone and written communication systems. 

These activities are described in detail in Component 4 in the Guidelines 

for Implementation. 

52 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

RESOURCE LIST 

Cole, R.E., et al. (1984). Juvenile Firesetter Intervention. Report of the 

Rochester, New York FRY Program Development Project. 

New York: Department of State Office of Fire Prevention and 

Control. 

Cole, R.E., et al. (1986). Children and Fire, Second Report of the 

Rochester, New York Fire Department FRY Program Development 

Project. New York: Department of State Office of Fire 

Prevention and Control. 

Users' Guide 

Federal Emergency Management Agency/United States Fire Administration 53 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Figure 4.1 

Juvenile Firesetter Referral Network 

Users' Guide 

54 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

COMPONENT 5: PUBLICITY AND OUTREACH 

Once the juvenile firesetter/arson program has been put into place, it 

becomes important to let the community know that it is open for business. 

There are two major activities which can be conducted to increase the 

program's visibility within the community. First, a publicity program can 

be organized to take advantage of exposure through a number of different 

types of media. Second, a community outreach effort can be mounted to 

ensure that specific target populations in need of services will be aware of 

the program. If the juvenile firesetter/arson program elects to increase its 

public awareness, then they must anticipate and accommodate an increase 

in the number of youth and families requesting its services. 

Users' Guide 

Both a publicity program and a community outreach effort can be limited 

or broad in scope depending on the number and types of modalities and 

strategies employed by program leadership. There are several options that 

can be pursued, depending on the level of effort, commitment, and desired 

effect. The following guidelines are decisions to be considered when 

mounting publicity or community outreach activities for juvenile 

firesetter/arson programs. 

Publicity 

An effective publicity program will increase the general public's 

awareness about the problem of juvenile firesetting as well as the solutions 

available in the community. 

Decision 1. Define Goals. The scope of the publicity program must be 

specified. There are several potential objectives, from educating the 

general public about the problem of juvenile firesetting to announcing the 

availability of services. 

Decision 2. Select Modalities. Once the goals of the publicity effort 

have been defined, then the modalities which will be used for 

communication must be specified. There are four different modalities, 

including print media, television and radio, press conferences, and general 

communications. Each of these modalities have various types of strategies 

and associated effects. These are outlined in Table 5.1 and their 

implementation is described in detail in Component 5 in the Guidelines for 

Implementation. 

Outreach 

The value of a community outreach effort is that one or more specific 

populations can be targeted for communication. Table 5.1. 

Federal Emergency Management Agency/United States Fire Administration 55 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Decision 1. Identify Target Populations. There may be specific groups 

of youth living in certain areas of the community whose psychosocial 

characteristics suggest that they are at high-risk for becoming involved in 

firesetting. Or, there may be particular parts of a community where there 

is a higher incidence of child-set fires, and therefore a greater need to 

target services. Outreach efforts can be aimed at providing these target 

populations with information about the problem of juvenile firesetting and 

how they can get help. 

Table 5.1 

Publicity Activities 

Users' Guide 

Modalities Stategies Effect 

I. Newspapers and 

Magazines 

Time-dependent articles Focuses on specific incident, 

immediacy, and danger. 

Feature articles In-depth description of 

problem and solution. 

II. Television and Radio Public Service 

Announcements 

Brief, concise, verbal 

communication reaching a 

large audience. 

Interviews Personal opinion and 

information exchange. 

Talk Shows Communication of personal 

experiences with an analysis 

of the problem and solution. 

III. Press Conferences Media Kits Organized promotion and 

communication to a variety 

of media. 

IV. General Communications Fact Sheets General, on-page description 

of local program efforts 

which can be used for 

multiple purposes. 

Press Releases Promotes important local 

events of significant current 

activities. 

56 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Decision 2. Select Activities. There are a wide range of outreach 

activities from developing pamphlets and posters to operating a telephone 

hot line. Each of these activities and their associated effect are presented 

in Table 5.2 and described in detail in Component 5 in the Guidelines for

Implementation. In addition, examples of some of these activities, such as 

pamphlets and brochures developed by juvenile firesetter/arson programs, 

can be found in the resource section of the manual. Selection of the most 

appropriate activity will depend on the target population, which has been 

identified and the type of information to be communicated. 

Table 5.2 

Community Outreach Activities 

Users' Guide 

Activity Effect 

I. Pamphlets and brochures Well-organized, brief written communication 

with wide distribution to a variety of 

audiences. 

II. Posters Visual display and exposure to specific target 

groups. 

III. Newsletters Maintaining important communication 

linkages between groups. 

IV. Speaker's Bureau Direct education and promotion of program 

by experienced speakers. 

V. Hot Lines Immediate and relevant help and information 

to those needing service. 

VI. Partnerships Encourages increased community-wide 

support and promotion of program. 

RESOURCE LIST 

Ink and Airtime 

National Crime Prevention Council (NCPC) 

1700 K. Street, N.W., Second Floor 

Washington, DC 20006 

Federal Emergency Management Agency/United States Fire Administration 57 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Public Service Announcements 

Fire Pal 

c/o Phoenix Fire Department 

520 West Van Buren 

Phoenix, AZ 85003 

National Fire Protection Association 

1 Batterymarch Park 

Quincy, MA 02169 

(617) 770-3000 

Users' Guide 

Media Kits 

"Curious Kids Set Fires" 

U.S. Fire Administration 

National Fire Academy 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

"Big Fires Start Small" 

National Fire Protection Association 

1 Batterymarch Park 

Quincy, MA 02169 

(617) 770-3000 

Newsletters 

"Hot Issues" 

State Fire Marshal 

4760 Portland Road, N.E. 

Salem, OR 97305 

COMPONENT 6: MONITORING SYSTEM 

Now that the juvenile firesetter/arson program is in place, the community 

is aware of its operation, and juveniles and families are receiving services, 

it becomes important for program leadership and management to be able 

to monitor the level and volume of business that comes through their 

doors. Having current and accurate data on program operations provides 

management with information of the relative impact and effectiveness of 

58 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

the program. This information can be invaluable when it comes time for 

sustaining or increasing the funding, staffing, and general life of the 

program. 

As with the previous stages of program planning and implementation, 

there are specific decisions, which must be made regarding the 

development of an effective information system for juvenile firesetter/ 

arson programs. The following decision points should be considered by 

program leadership and management when organizing and developing an 

information system. 

Decision 1. Determine Applications. Information systems can be simple 

or elaborate. The nature and extent of implementing a particular system 

depends on the application of the information, which is derived from the 

system. Will the information be used to convince funding agencies to 

increase the program's budget? Will the information be used to ascertain 

specific personality profiles of juvenile firesetters receiving services? 

Questions like these need to be asked by program leadership to determine 

the potential application of information resulting from the system. In 

addition, these questions need to be asked for the development of an 

effective output or reporting system. 

Users' Guide 

Decision 2. Specify Capabilities. The nature and extent of the 

information system also depends on the capability of the program in 

collecting information and maintaining a data system. Specific 

considerations to be reviewed by juvenile firesetter/arson programs when 

developing an information system are outlined in detail in Component 6 in 

the Guidelines for Implementation. 

Decision 3. Select the System. There are three basic types of 

information systems. They are a management information system, an 

evaluation system, and an incidence reporting system. These information 

systems are described in Table 6.1. Programs may select to implement 

one or more of these systems. In addition, there are simple and elaborate 

versions of these information systems. All of the details regarding these 

systems are described in Component 6 in the Guidelines for 

Implementation. 

Decision 4. Develop the Reporting System. Once the information 

system has been put into place, specific consideration should be given by 

program leadership as to how the output or resulting information will be 

utilized. Will routine or special reports be produced? What will these 

reports look like and who will use them? Various reporting options are 

outlined in Component 6 in the Guidelines for Implementation. In 

addition, examples of output are presented in the resource section of the 

manual. 

Federal Emergency Management Agency/United States Fire Administration 59 
The National Juvenile Firesetter/Arson Control and Prevention Program 

Decision 5. Define Boundaries of Confidentially. Some of the data 

maintained in information systems can pertain to the psychological and 

legal status of minors, and therefore be highly sensitive material. 

Questions regarding the confidentiality of this information and who has 

access to this data should be given careful consideration by program 

leadership. These issues are discussed in detail in Component 6 in the 

Guidelines for Implementation. 

Table 6.1 

Monitoring Systems 

Type Function 

I. Management Information 

System (MIS) 

Case tracking caseload analysis, and 

reporting of program operations and results. 

II. Evaluation System An extension of the MIS plus data on 

firesetting recidivism and follow-up 

information on case disposition. 

III. Incident Reporting Monitoring jurisdiction-wide rates of 

juvenile firesetting and arson, regardless of 

whether cases enter the system for evaluation 

and intervention. 

Users' Guide 

COMPONENT 7: DEVELOPING RELATIONSHIPS WITH THE JUVENILE 

JUSTICE SYSTEM 

A significant set of goals for juvenile firesetter/arson programs is that they 

stop firesetting behavior, improve the quality of life, and help youth avoid 

the juvenile justice system. However, this is obviously not possible in all 

cases of juvenile firesetting. In many instances, firesetting youth enter the 

juvenile justice system because of the nature of extent of their firesetting 

activity. In these cases the ideal situation is that juvenile firesetter/arson 

programs have strong and effective linkages with the juvenile justice 

system. 

Although juvenile firesetter/arson programs and the juvenile justice 

system share the common goal of preventing the recurrence of firesetting 

behavior, they frequently offer different solutions and interventions. The 

pathways between juvenile firesetter/arson programs and the juvenile 

justice system should remain open so as to maximize the number of 

intervention options for firesetting youths. There are a number of decision 

60 Federal Emergency Management Agency/United States Fire Administration 
The National Juvenile Firesetter/Arson Control and Prevention Program 

points that will ensure an open and secure pathway between juvenile 

firesetter/arson programs and the juvenile justice system. 

Decision 1. Define Juvenile Justice Interventions. Generally, when 

youngsters are arrested for arson, they enter the juvenile justice system. 

Juvenile firesetter/arson programs should identify the pathway of juvenile 

firesetter through the juvenile justice system. Examples of these pathways 

can be found in the Guidelines for Implementation. 

Decision 2. Establish Referral Linkages. Juvenile firesetter and 

juvenile justice programs can work with each other to help remediate 

juvenile firesetters. Therefore, the referral linkages between the programs 

should be opened and maintained. Details on how to establish these 

pathways are outlined in Component 7 in the Guidelines for 

Implementation. 

Users' Guide 

Decision 3. Specialized Programs. Once juveniles arrested for arson 

enter the juvenile justice system, they infrequently receive specific help to 

stop their firesetting behavior. Juvenile firesetter/arson programs designed 

to abate the firesetting behavior of youngsters in the juvenile justice 

system would greatly reduce the recurrence of this antisocial behavior. 

The development of specialized programs for firesetters within the 

juvenile justice system is discussed in greater detail in Component 7 in the 

Guidelines for Implementation. 

RESOURCE LIST 

Cole, R.E., et al. (1984). Juvenile Firesetter Intervention. Report of the 

Rochester, New York FRY Program Development Project. New 

York: Department of State Office of Fire Prevention and Control. 

Cole, R.E., et al. (1986). Children and Fire, Second Report of the 

Rochester, New York Fire Department FRY Program Development 

Project. New York: Department of State, Office of Fire 

Prevention and Control. 

Federal Emergency Management Agency/United States Fire Administration 61 

Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 63 

GUIDELINES FOR 

IMPLEMENTATION 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

64 Federal Emergency Management Agency/United States Fire Administration 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 65 

TABLE OF CONTENTS 

PAGE 

INTRODUCTION ..................................................................................................... 71 

COMPONENT 1: PROGRAM MANAGEMENT 

Background........................................................................................ 75 

Purpose............................................................................................... 76 

Program Planning............................................................................... 77 

Program Structure .............................................................................. 78 

Location ............................................................................................. 78 

Multi-jurisdictional Approach ........................................................... 80 

Staffing and Responsibilities ............................................................. 80 

Staffing Issues and Concerns............................................................. 82 

Training.............................................................................................. 82 

Funding .............................................................................................. 84 

Liability.............................................................................................. 85 

How to Establish Interagency Links.................................................. 85 

Juvenile Firesetter Program Workshop.............................................. 88 

Resource Directory ............................................................................ 89 

Jurisdictional Characteristics ............................................................. 89 

Summary............................................................................................ 90 

COMPONENTS 2: SCREENING, EVALUATION AND DEVELOPING 

THE INTERVENTION PLAN 

Purpose............................................................................................... 90 

Objectives .......................................................................................... 91 

The Target Populations...................................................................... 92 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

66 Federal Emergency Management Agency/United States Fire Administration 

The Procedures................................................................................... 98 

Developing the Intervention Plan ...................................................... 98 

Situational Influences......................................................................... 100 

Critical Issues..................................................................................... 100 

Fire Service Procedures ................................................................................. 102 

Telephone Contact Sheet ................................................................... 102 

Juvenile with Fire Worksheets A and B ............................................ 102 

USFA's Interview Schedules ............................................................. 103 

Fire-Related Youth (FRY) Program Data Sheet................................ 105 

Decision Grid..................................................................................... 107 

Law Enforcement, Probation and Juvenile Justice Procedures ..................... 109 

Investigation Interview ...................................................................... 109 

Miranda Rights................................................................................... 110 

Child Protective Services Report....................................................... 110 

Adolescent Firesetter Decision Criteria............................................. 111 

Probation Case Plan ........................................................................... 113 

Decision Grid..................................................................................... 113 

Mental Health and School Procedures........................................................... 116 

The Therapeutic Assessment of Firesetting (TAF) Questionnaire .... 116 

The Achenbach Child Behavior Checklist......................................... 117 

General Methods of Psychosocial Assessment.................................. 118 

Decision Grid..................................................................................... 119 

School Procedures.............................................................................. 119 

Resource List ................................................................................................. 121 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 67 

COMPONENT 3: INTERVENTION SERVICES ................................................... 124 

Purpose .............................................................................................. 124 

Intervention Objectives and Decision Grids...................................... 124 

Target Populations ............................................................................. 125 

Situational Influences......................................................................... 126 

Critical Issues..................................................................................... 127 

Primary Prevention ........................................................................................ 127 

School Curriculum and Programs...................................................... 129 

Decision Grid..................................................................................... 136 

Fire Service Programs........................................................................ 138 

Decision Grid..................................................................................... 141 

Law-Enforcement Programs .............................................................. 143 

Improving Primary Prevention Programs .......................................... 143 

Early Intervention .......................................................................................... 143 

Evaluation, Education, and Referral Programs.................................. 145 

Counseling Programs......................................................................... 149 

Decision Grid..................................................................................... 153 

Core Intervention ........................................................................................... 155 

Mental Health Intervention................................................................ 155 

Decision Grid..................................................................................... 159 

Probation and Juvenile Justice........................................................... 160 

Decision Grid..................................................................................... 164 

Resource List ................................................................................................. 165 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

68 Federal Emergency Management Agency/United States Fire Administration 

COMPONENT 4: REFERRAL MECHANISMS .................................................... 171 

Introduction........................................................................................ 171 

Identifying Referral Sources and Target Agencies............................ 174 

Contacting Referral Agencies............................................................ 175 

Developing Detailed Referral Agreements........................................ 176 

Differences Across Types of Jurisdictions ........................................ 177 

Resource List ................................................................................................. 178 

COMPONENT 5: PUBLICITY AND OUTREACH ............................................... 178 

Purpose............................................................................................... 178 

Strategies............................................................................................ 179 

Partnerships........................................................................................ 183 

Resources List................................................................................................ 184 

COMPONENT 6: MONITORING SYSTEMS........................................................ 185 

Purpose............................................................................................... 185 

Central Elements of the Monitoring Systems .................................... 186 

System Development and Use ........................................................... 188 

Summary............................................................................................ 194 

COMPONENT 7: DEVELOPING RELATIONSHIPS WITH 

THE JUSTICE SYSTEM .............................................................................. 194 

Purpose............................................................................................... 195 

Relationships with the Probation Department ................................... 197 

Relationships with the Law Enforcement, Legal and 

Judicial Community........................................................................ 198 

Relationships with the Juvenile Correctional Institutions ................. 198 

Summary............................................................................................ 199 

Resource List ................................................................................................. 199 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 69 

GUIDELINES FOR 

IMPLEMENTATION 

November 1993 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

70 Federal Emergency Management Agency/United States Fire Administration 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 71 

INTRODUCTION 

In Passaic, New Jersey, a firefighter was killed and hundreds of people 

lost their homes in a fire started by a group of teenage boys. In Roanoke, 

Virginia, a seven-year-old boy set fire to a chair in an abandoned building. 

The fire spread to an adjacent house and trapped an elderly woman. In 

Rochester, New York, a two-year-old, playing with matches, started a fire 

that took his life and the lives of five family members. Unfortunately, 

these tragic events are not isolated incidents, but are repeated virtually 

every day in cities and towns across the United States. Arson fires kill 

hundreds of people every year and cause over one billion dollars worth of 

damage annually. It is estimated that approximately 40% of these fires are 

set by juveniles. 

Clearly the problem of juvenile firesetting and arson is a costly, often 

deadly, problem. Fires set by juveniles take a tremendous toll in property 

losses, personal injuries, and death each year in this country. Whether the 

result of a curious child playing with matches or the malicious act of a 

troubled delinquent, juvenile firesetting is a serious and vexing problem 

that requires a special response from the community and the criminal 

justice system. Although many fires set by youth are committed more out 

of ignorance than malice, by youths who are more troubled than criminal, 

these fires may also be set by mean-spirited delinquents with histories of 

crime and violence. The justice system must deal firmly with such youths. 

Several years ago, as statistics began to reveal the magnitude of the 

juvenile arson problem, a few innovative officials recognized that the 

unique elements of juvenile firesetting required the development of 

strategies that go beyond that traditional capabilities of the law 

enforcement establishment. New approaches to screening and counseling 

would have to be developed, applying techniques especially suited to 

youths and drawing on the resources of multiple disciplines in the 

community. Although scores of programs have been developed across the 

country, there was virtually no careful examination of the juvenile 

firesetting problem or the programs designed to address it. 

In recognition of the seriousness of the juvenile firesetting problem, the 

Office of Juvenile Justice and Delinquency Prevention (OJJDP) in 

conjunction with the U.S. Fire Administration (USFA) sponsored the 

National Juvenile Firesetter/Arson Control and Prevention Program, which 

was conducted by the Institute for Social Analysis with assistance from 

the Police Executive Research Forum. The purpose of this development 

program was to assess, develop, test, and disseminate information on 

promising approaches for the control and prevention of juvenile firesetting 

and arson. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

72 Federal Emergency Management Agency/United States Fire Administration 

The program, which began in early 1988, was divided into four 

incremental stages: 

1. An assessment of the incidence and dynamics of juvenile 

firesetting/arson and selected juvenile firesetter programs 

throughout the United States. 

2. The development of a comprehensive approach to controlling 

juvenile arson, including descriptions of program development, 

implementation, and operation. 

3. The development of training and technical assistance packages to 

provide local jurisdictions with the necessary information to 

implement appropriated programs. 

4. Testing and dissemination of the training and technical assistance 

packages. 

ISA was assisted during the development project by the National Juvenile 

Firesetter/Arson Public/Private Partnership, a group composed of diverse 

individuals from both the public and private sector who have a special 

expertise and interest in juvenile arson. 

One of the clearest findings from the initial assessment phase is that no 

one agency should be responsible for alleviating the juvenile firesetter 

problem. It is clearly a community problem that requires community

action. Another clear finding is that fire safety education and counseling 

has a profound effect on whether these children continue to set fires. 

Juvenile firesetter programs throughout the country can attest to the fact 

that programs that provide prevention, early identification, and early 

intervention with juvenile firesetters can save communities thousands of 

dollars in property loss and can save families untold suffering. 

The central elements of a prototype juvenile firesetter program emerged 

rather clearly from our national assessment. ISA initially planned to 

develop one "model" program. However, we quickly realized that a 

program suited to a small, volunteer fire department in rural Minnesota 

would not be appropriate for a large, paid department in the Bronx and 

vice versa. Instead, ISA developed a modular or components model. The 

components describe how to develop, implement, and operate a juvenile 

firesetter program. These components highlight seven different aspects of 

a program and include: 1) Program Management, 2) Screening and 

Evaluation, 3) Intervention Services, 4) Referral Mechanisms, 5) Publicity 

and Outreach, 6) Monitoring Systems, and 7) Developing Relationships 

with the Justice System. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 73 

These components are designed to be flexible and their exact 

implementation will differ from jurisdiction to jurisdiction. This modular 

approach allows jurisdictions to develop or expand a juvenile firesetter 

program which meets their particular needs using the resources available. 

Each component presents a wide range of approaches which vary 

according to their impact and the resources required for implementation. 

Thus, the materials allow maximum adaptability for virtually any 

jurisdiction to develop a juvenile firesetter prevention and intervention 

program tailored to their specific requirements. 

The information in this volume is generally, but not exclusively, written 

for the fire service--the agency most likely to house a firesetter program. 

Although a variety of approaches are described, ISA advocates a 

"prevention, screening, early intervention, and referral program"--where 

the fire service provides fire safety education in the schools, initial 

screening and evaluation of firesetters who have been identified, early 

intervention/fire safety education for curiosity firesetters or other 

firesetters who may benefit from such education, and referral to mental 

health or other appropriate agencies for more troubled firesetters. 

Although some programs include a "counseling" component within the 

fire service, ISA has found that the fire service is best equipped to screen 

juvenile firesetters, generally using the screening tools developed by the 

U.S. Fire Administration, and provide fire safety education when 

appropriate. Any additional counseling is usually best handled by mental 

health or child protective services agencies. 

ISA believes that the fire service should not have to tackle the problem of 

juvenile firesetting alone. Other agencies including schools, mental health 

agencies, juvenile justice agencies, child protective services, and other 

agencies that work with youth need to work with the fire service to help 

identify juvenile firesetters and provide the appropriate services so that 

these juveniles do not continue to set fires. In most communities, the 

initial impetus to develop a juvenile firesetter program comes from the fire 

service, but as this volume indicates, the fire service should solicit 

assistance from these other agencies--often in the context of developing a 

coordinating council, to provide all the necessary service. 

The components described in this volume provide detailed information 

about each of the program areas noted above. The volume was originally 

written in 1990 and, although the resource lists have updated, some of the 

specific program information may be outdated. The program information, 

however, was designed to provide examples of the different types of 

juvenile firesetter programs. These examples can still be used as models 

for developing new programs. We strongly believe that the seven 

components presented in this volume are essential to the success of any 

program. Details of these components are presented in the following 

chapters and are summarized below: 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

74 Federal Emergency Management Agency/United States Fire Administration 

Program Management. The Program Management component provides 

information on program structure, staffing, training, and funding. In 

addition, the component presents planning and coordination strategies 

which include establishing interagency links, creating a coordinating 

council, and conducting a juvenile firesetter prevention workshop. As 

with all of the components, this component discusses the jurisdictional 

characteristics which need to be considered when the jurisdiction is 

deciding on the best approach to alleviating their juvenile firesetting 

problem. 

Screening, Evaluating, and Developing the Intervention Plan. The 

second component summarizes a wide variety of screening and evaluation 

procedures used by the fire service, law enforcement, probation and 

juvenile justice, mental health, and schools. The procedures are described 

in terms of their function, target population, users, content, benefits, and 

limitations. Decision grids are provided to help users select the most 

appropriate methods for their service needs. 

Intervention Services. The Intervention Services component provides 

information on three levels of intervention strategies--primary prevention, 

early intervention, and core intervention--which are aimed at reducing 

juvenile involvement in the entire range of unsupervised fireplay and 

firesetting activities. Each of the strategies have specific intervention 

objectives and are aimed at particular target populations. A wide variety 

of intervention, decision grids are presented to help program managers 

select the best intervention options to meet the needs of their target 

population. 

Referral Mechanisms. The Referral Mechanisms component highlights 

the need for the juvenile firesetter program to have strong links with other 

agencies. The component describes how the program can identify referral 

sources and target referral agencies. In addition, the component outlines 

strategies for establishing links between the program and these agencies. 

Publicity and Outreach. This component describes how juvenile 

firesetter programs can develop a public information and education 

campaign to raise the public awareness about juvenile firesetting and the 

juvenile firesetting program. Various strategies including brochures, 

newspaper, T.V. and radio exposure, public service announcements, and 

speakers bureaus are discussed. Programs are cautioned, however, not to 

promote their program until they are ready to provide services. 

Monitoring Systems. The purpose, content, format, and use of systems 

for monitoring juvenile firesetter programs are covered in this component. 

Three types of monitoring systems are summarized--management 

information systems, evaluation systems, and incident reporting systems. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 75 

The component describes a wide range of possible monitoring systems, 

from manual, paper and pencil systems to computerized systems. 

Developing Relationships with the Justice System. The purpose of this 

component is to provide information to assist programs in developing 

effective relationships with the justice system. The component highlights 

strategies the juvenile firesetter program can use to establish relationships 

with the probation department, law enforcement, legal, and judicial 

community, and correctional institutions. In addition the component 

contains detailed information about three specific programs--Rochester, 

New York; Charlotte, North Carolina; and Portland, Oregon. 

In addition to this volume, ISA has developed a Users' Guide and a 

Trainers' Guide. The Users' Guide provides step-by-step guidelines on 

how to use the information in this volume to implement a juvenile 

firesetter program. The Trainers' Guide describes how to use this 

information, as well as other resources, to develop a comprehensive 

juvenile firesetter prevention training workshop. The guide provides a 

detailed curriculum to meet specific needs. In addition, ISA recently 

completed a guide to early intervention programs, which synthesizes some 

of the information presented here and describes how to implement one 

type of recommended program. 

The materials have been pilot-tested during a year-long national 

evaluation and have been modified based on the results of that evaluation. 

It is our hope that the materials and information presented in the prototype 

and the training materials will provide jurisdictions with all the 

information they need to develop and implement a juvenile firesetter 

program tailored to their individual needs and resources. 

COMPONENT 1: PROGRAM MANAGEMENT 

Background 

It is estimated that approximately 40% of all arsons are set by juveniles. 

These fires cause hundreds of millions of dollars in damages annually and 

thousands of needless injuries and deaths. The rate of juvenile fireplay 

and firesetting--short of arson as determined by fire investigators--may 

also be quite high. Studies have shown that the majority of normal 

children possess an interest in fire and nearly half have engaged in 

fireplay. While the majority of the child-set fires are set out of curiosity, 

not malice, the damage they cause, both in economic and human costs, are 

real and devastating. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

76 Federal Emergency Management Agency/United States Fire Administration 

During the last decade, hundreds of programs have been established across 

the nation to address the growing concern about juvenile firesetting. 

These programs are housed primarily within the fire service and are 

designed to identify, evaluate, and treat the juvenile firesetter to prevent 

the recurrence of firesetting. Early programs were developed by local 

mental health professionals and fire service personnel. More recently 

established programs have been aided by Federal efforts and have been 

based on models developed by the U.S. Fire Administration. 

Juvenile firesetter programs receive referrals from the fire departments, 

police departments, schools, parents, social service and mental health 

agencies, and justice agencies. These programs often have working 

relationships with some of these key agencies, but rarely do they have 

working relationships with all of the essential community agencies. The 

number of referrals to these agencies depends largely on how the program 

is established and how strong the links between the program and the 

agencies are. 

Purpose 

The purpose of the Program Management Component is to present an 

overview of how a juvenile firesetter program should appear--providing 

the shell within which program services are provided. This overview will 

include a discussion of where the program should be located, how it 

should be staffed, how its staff should be trained, and how funds may be 

raised. In addition, this component will describe some of the initial steps 

in starting a juvenile firesetter program and discuss how to establish links 

between the program and other community agencies. 

The other components presented in this manual will describe how 

particular elements of the program (e.g., screening, intervention, referral, 

etc.) should operate. It is clear that no single approach is appropriate for 

every jurisdiction. Each fire district differs with respect to their juvenile 

firesetter problem and the resources available to combat the problem. To 

address these varying needs, each component will provide alternative 

ways to implement the component depending on jurisdictional needs and 

resources. 

Although this component will concentrate on describing the structure of 

the juvenile firesetter program and will focus primarily on the fire service, 

it does not mean to indicate that the problem of juvenile firesetting is 

solely a fire service problem. Juvenile firesetting is a community problem 

that requires the resources of the entire community. This component, and 

others, will explain how to establish links and working relationships with 

key referral sources and target referral agencies. The fire service and the 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 77 

juvenile firesetter program are part of a network of key agencies that need 

to work together to address the juvenile firesetter problem. 

Program Planning 

Juvenile firesetter programs often originate out of the concern of one 

inspired individual. These individuals may be members of the fire service 

who have a genuine interest in children or have seen, first hand, the 

damage and pain caused by juvenile firesetting. (If a program is 

established, they often serve as program coordinators). Once the interest 

is generated, the next step is to acquire a detailed understanding of the 

juvenile firesetter problem in the particular jurisdiction. Local fire 

departments are the first place to go to obtain the necessary information. 

Fire incident reports, arson investigation reports, and other records should 

provide data on the extent and nature of the juvenile firesetter problem. 

Information on property loss, injuries, and deaths, if available, give added 

meaning to the numbers. Additional information and arrest data is often 

available from hospital burn units and police departments. 

Once data on the extent of the local juvenile firesetter problem is 

collected, the person interested in the problem will need to meet with fire 

chiefs, community representatives, local city councils, and others to 

determine if the magnitude of the juvenile firesetting problem constitute a 

serious enough issue to warrant community action. These meetings often 

center around: (1) the cost of the problem versus the cost of the solution, 

(2) whether fires set by juveniles are a significant proportion of the fires 

set in the community and (3) whether juveniles firesetters are overrepresented given the proportion of juveniles in the community. Deciding 

whether the issue of juvenile firesetting is a significant problem will 

probably take many meetings and discussions. 

If juvenile firesetting is not considered a problem, the path is easy. If, 

however, the community decides that juvenile firesetting is a threat to the 

community, the next issue is deciding how to address the problem. The 

community may decide that the problem is severe enough to establish a 

complete juvenile firesetter program. Communities wishing to implement 

such a program can use the guidelines described in these components and 

can seek assistance from other juvenile firesetter programs. If a separate 

juvenile firesetter program is beyond the resources of a particular 

community, the fire service may choose to bolster existing programs by 

implementing one or more of the components. Each jurisdiction is unique 

and has their own problems and resources. Only the members of that 

community can decide what constitutes a serious problem and which 

strategies will be most effective to address the problem. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

78 Federal Emergency Management Agency/United States Fire Administration 

Program Structure 

If the members of the community feel that the juvenile firesetter program 

is serious enough to warrant a juvenile firesetter program, they must 

decide what kind of program would best serve their jurisdictional needs 

and then develop such a program. The following sections are designed to 

provide information on how to establish a juvenile firesetter program. The 

remainder of this component provides on such issues as location, staffing, 

training, funding, and establishing interagency links. 

Location 

Fire Service. The primary site for a juvenile firesetter program should be 

within the fire service. The results of the Institute for Social Analysis' 

(ISA) survey of juvenile firesetter programs throughout the country reveal 

that 87% of the programs are administered by the fire service. These 

programs are located in different branches of the fire service. Including the 

Office of the Fire Chief, Fire Investigation, and the Fire Marshal. The 

primary reason why juvenile firesetter programs should be established 

within the fire service is the fire service's capacity to identify large 

numbers of firesetters. The fire service is usually the first agency to 

respond to a fire and many of the firesetters are identified at the scene. 

Indeed, the majority of juvenile firesetter referrals to existing programs are 

from within the fire service, usually followed by parents and then schools 

and mental health organizations. 

The fire service's knowledge of fire cause and origin facilitates their 

ability to identify youthful firesetters. The fire service can track a case 

from the identification of the firesetter through the fire investigation, 

assessment, and intervention (education, counseling, prosecution, etc.). In 

addition, many fire departments have established links with some of the 

crucial referral agencies. In the course of their investigations, fire 

investigators often communicate with police, probation, social service, and 

justice personnel. These links are vitally important to the success of a 

juvenile firesetter program (see the Referral Mechanisms Component). 

Although the overwhelming majority of juvenile firesetter programs are 

housed within the fire service, there is still some concern that such a 

program will fall prey to departmental politics. The greatest concern is 

that the program would be terminated when the Fire Chief who instituted 

it leaves. Most departments feel that a juvenile firesetter program is too 

valuable to have such a tenuous existence. Another concern is that 

firefighters and investigators may be hesitant to use the juvenile firesetter 

program. To overcome these potential problems, juvenile firesetter 

programs must be institutionalized within the fire service. Their existence 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 79 

cannot rely solely on the motivation and drive of one individual. To 

survive, the juvenile firesetter program must receive support from all

levels within the fire service and community. 

To gain the support of all the fire service personnel, the program director 

should brief the chief and all the division heads about the juvenile 

firesetter program. Brief memos can be circulated to each fire service 

division describing the juvenile firesetter program services. Each 

firefighter, fire investigator, fire educator, etc. should know about the 

program and understand how it works. The Publicity and Outreach 

component will describe how to inform the general public about the 

juvenile firesetter program. 

Private agencies. Some fire departments do not have the resources to 

manage a juvenile firesetter program. The need for such a program, 

however, may still exist. Many of these jurisdictions have solved this 

problem by establishing private agencies to run the juvenile firesetter 

program. Examples of such programs are: 1) The Cease Fire Club, a 

community-based, non-profit organization in Houston, Texas; and 2) Fight 

Fire With Care (FFWC) in Ft. Worth, Texas. The FFWC program is 

directed by the fire service personnel but receives all of its funding from 

local businesses. Juveniles are referred to the program by the fire service, 

probation, mental health agencies, and parents. 

Mental health agencies. Juvenile firesetter programs may be established 

by mental health and counseling agencies. These agencies have the ability 

to address the needs of children who require counseling in addition to fire 

safety education. Most often, however, mental health agencies are part of 

the referral network and serve as a resource to the juvenile firesetter 

program. Usually, juvenile firesetters are identified by the fire service 

and, as needed, are referred for mental health services. 

The greatest concern surrounding programs housed outside of the fire 

service is that some firesetters may not be referred to the program or may 

refuse to participate. The fire service has the unique ability to identify and 

track all juvenile firesetters. Private agencies often do not have access to 

fire department records and have no way of knowing what percentage of 

firesetters receive their service. In addition, as noted earlier, the fire 

department investigators in many programs work with the probation 

department to require juveniles to participate in the juvenile firesetter 

program in lieu of prosecution or as a condition of probation. If the 

juvenile firesetter program is managed by an agency outside of the fire 

service, that agency needs to work closely with the fire service personnel 

to ensure that all firesetters are screened and evaluated and receive the 

services they need. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

80 Federal Emergency Management Agency/United States Fire Administration 

Multi-jurisdictional Approach 

The majority of the juvenile firesetter programs surveyed by ISA 

functioned at the local level. A number of programs, however, are 

considering a county or larger multi-jurisdictional. One of the greatest 

advantages of such an approach is that many of the referral agencies that 

work with the juvenile firesetter program (e.g., mental health, probation, 

juvenile court, etc.) are county, not local, agencies. A multi-jurisdictional 

program may span many towns and allows these communities to combine 

their resources instead of competing for the limited resources of county 

agencies with whom they work. 

The multi-jurisdictional approach, however, requires additional planning 

and coordinating. The program should be housed in a central fire service 

agency. In many cases, the County or State Fire Marshal's office is the 

agency selected to house the program. The juvenile firesetter program 

will need to establish detailed guidelines for referral and feedback to each 

fire department/station within the juvenile firesetter program jurisdiction. 

Each fire department/station within the jurisdiction served by the program 

should be briefed about the program's purpose and services. As is true for 

local juvenile firesetter programs, the multi-jurisdictional program will be 

responsible for assessment, intervention, referral, case tracking, and 

follow-up. 

The feasibility of a multi-jurisdictional program will be based on the 

extent of the juvenile firesetter problem in a given jurisdiction and the 

resources available to ameliorate the problem. In some cases, the structure 

of the fire service or referral agencies may make such an approach 

untenable. Each jurisdiction will need to assess which approach is most 

appropriate to meet the needs of the community. 

Staffing and Responsibilities 

Fire Service Personnel. Programs located within the fire service should 

be coordinated by an individual with a genuine interest in the juvenile 

firesetter issue. Ideally, that individual should be a senior ranking fire 

official. As noted earlier, programs need support from the highest level in 

the fire service. Many programs are administered by the Office of the Fire 

Chief or Fire Marshal with the coordinators answering directly to the Fire 

Chief or Fire Marshal. The coordinators would be responsible for the dayto-day activates of the juvenile firesetter program. They would be in 

charge of assessment and intervention, either directly or by supervising 

others who are assigned to provide the assessment and intervention 

services. The coordinators would also be primarily responsible for 

facilitating communications between the juvenile firesetter program and 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 81 

other agencies. The coordinators should be viewed as managers who are 

responsible for not only the mechanics of running the juvenile firesetter 

program, but also for the leadership and direction of the program. 

In larger departments, additional fire service staff should also be assigned 

to the program. Firefighters, fire investigators, and fire educators can 

provide screening and evaluation services, fire education, and referral 

services. Firefighters who have received specialized training may serve as 

"buddies" for firesetters who need a role model to provide one-to-one 

attention and guidance as part of the juvenile firesetter program. Fire 

service personnel can also be trained to screen juvenile firesetters using 

standard screening instruments. In addition, fire service personnel can 

provide fire safety education to juvenile firesetters and, in some cases, 

provide "counseling" using techniques designed for use with firesetters 

(See Intervention Services Component). Many fire departments employ 

fire educators who have the responsibility to teach fire safety in the 

schools. Providing fire safety education to the juvenile firesetters is often 

seen as an extension of the responsibility. 

There is some question as to which fire service division is best suited to 

manage a juvenile firesetter program. Some programs, such as Rochester, 

New York's FRY program, are run by fire investigators. In the FRY 

program, investigators identify the juvenile firesetter and provide fire 

safety education. They also refer firesetters to other agencies (e.g., justice, 

social service, and mental health) if necessary and track the progress of the 

firesetter. Other programs may be housed in the Fire Marshal's Office or 

in the Department of Fire Safety Education. Once the firesetters are 

identified by the firefighters or fire investigators, they are referred to the 

juvenile firesetter program for screening, education, and referral. 

Either approach can work as long as there is clear communication between 

the referral division (or outside agency) and the juvenile firesetter 

program. Problems have developed when fire investigators or firefighters 

refer juveniles to the juvenile firesetter program and fail to hear about the 

outcome of the case. The juvenile firesetter program needs to develop 

strategies to provide feedback to referral sources. Examples of these 

strategies will be described in the Referral Mechanisms Component. 

Effective communication between referral sources and the juvenile 

firesetter program can avert many problems. 

Non-fire service personnel. Some fire departments do not have the 

resources to staff a juvenile firesetter program. In such cases, the program 

can be run by trained mental health counselors or community volunteers. 

These counselors and community volunteers would have the same 

responsibilities as their fire service counterparts. In addition, the mental 

health counselors are trained to provide in-depth counseling to more 

troubled firesetters. Non-fire service personnel would need additional 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

82 Federal Emergency Management Agency/United States Fire Administration 

training in fire safety education before providing such education to 

juvenile firesetters. 

Staffing Issues and Concerns 

The staffing structure presented above can be implemented by 

jurisdictions that have the manpower resources available to staff a juvenile 

firesetter program. Smaller jurisdictions, however, may not have the 

resources or the need to establish an actual juvenile firesetter program. 

These jurisdictions may simply want to incorporate some of the services 

provided by a juvenile firesetter program into existing agencies. Although 

it is recommended that jurisdictions establish a "program" within the fire 

department, an alternative possibility for some jurisdictions is to have 

interested people in various agencies take on the responsibilities of the 

juvenile firesetter program staff. These individuals would be responsible 

for assessment, education, referral, and tracking. 

Jurisdictions must also decide whether the juvenile firesetter program will 

be operated by full-time or part-time staff and whether the staff will be 

paid or volunteer. Ideally, a juvenile firesetter program should be staffed 

by at least one full-time, paid fire service employee. Many fire 

departments have separate budgets for the juvenile firesetter program, 

which includes full-time personnel. In other jurisdictions, fire service 

personnel provide juvenile firesetter assessment, education, and referral in 

addition to other responsibilities, such as fire investigations, fire 

inspections, or school fire safety education. Still other jurisdictions rely 

entirely on fire service personnel who volunteer their off-duty time to help 

provide assessment and education to juvenile firesetters. (In later sections, 

this component will discuss liability concerns surrounding the practice of 

having paid fire service personnel volunteer their time to the juvenile 

firesetter program). 

Funding and staffing decisions for each jurisdiction should be based on an 

assessment of the jurisdiction's juvenile firesetter problem and the 

resources available. Fire service personnel will need to look at the 

incidence of juvenile firesetting in their jurisdiction and the cost in terms 

of property damage and personal injury. In addition, the fire service will 

need to estimate the cost per case for assessment and intervention services 

for a juvenile firesetter. 

Training 

Regardless of the staff background, all program staff should receive 

training in juvenile firesetting and child related issues. At a minimum, the 

training should include the following topics: 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 83 

Characteristics of juvenile firesetters 

How to identify juvenile firesetters 

Developing and managing a juvenile firesetter program 

Screening/assessment techniques 

Interviewing and educating the juvenile firesetter 

Referral and follow-up 

Normal child development 

Juvenile delinquency 

Child Abuse/Neglect 

Legal Issues 

National experts in the field of juvenile firesetting can provide training in 

the characteristics of juvenile firesetters and information on how to 

identify, assess, interview, educate, and refer firesetters. Local fire service 

personnel can provide specific information about the jurisdiction's juvenile 

firesetter problem. 

Personnel from local social service agencies and mental health facilities 

can provide training in child related issues, such as child development, 

delinquency, abuse, and neglect. Training in these child related issues is 

important to understanding juvenile firesetters. For example, in some 

cases, more seriously disturbed firesetters engage in other acts of juvenile 

delinquency. In other cases, youth will set a fire to draw attention to 

parental abuse or neglect. Juvenile firesetters represent a broad spectrum 

of youth, from developmentally normal children who are simply curious 

about fire to very seriously disturbed youth who require specialized 

treatment. The juvenile firesetter staff need this diverse training because 

they will come in contact with a wide range of juveniles in the course of 

their work. 

Information about the legal issues surrounding juvenile firesetting can be 

obtained through the local prosecutor's office. Program staff need to be 

aware of the arson laws, including the age of accountability. The staff 

should also know how juvenile firesetters are handled by the justice 

system. 

Once the juvenile firesetter program has been established and the program 

staff have received training, the program coordinator or other staff should 

provide an orientation to all fire service personnel, especially arson 

investigators and upper level command staff. This may be done in the 

form of an in-service meeting or one day seminar. (If the resources are 

available, these personnel may also be included in the training seminar). 

All fire service personnel should be aware of the program and the service 

it provides. All fire service personnel should be aware of the program and 

the services it provides. In addition, all fire service personnel should 

understand the procedures used to refer a firesetter to the program. 

Questions and concerns of the fire service personnel about the program 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

84 Federal Emergency Management Agency/United States Fire Administration 

should be addressed at this time. An example of a Juvenile Firesetter 

Training Workshop can be found in the Trainers' Guide. 

In addition to the fire service orientation, the program coordinator should 

prepare briefings for the Chief and Deputy Chief to enhance their 

understanding of the problem and gain their support. As the program 

continues, the coordinator should provide the Chief and Deputy Chief with 

brief updates on the progress of the juvenile firesetter program. 

Funding 

As noted earlier, the nature and extent of any juvenile firesetter program 

will depend, to a large extent, on the resources available to the program. 

Programs with limited money and manpower have gone to the community 

to acquire the necessary services, materials, and funds. The community 

can offer an unlimited wealth of resources. Corporations may contribute 

money or sponsor specific activities or products. When looking for 

corporate donations, juvenile firesetter program staff should appeal to the 

corporation's sense of civic mindedness and self-interest. Contributing 

money to better the community and help eliminate a costly and deadly 

problem is basically good business. The juvenile firesetter program 

should consider establishing local public/private partnerships. These 

partnership, which include representatives from local businesses and pubic 

agencies (such as the fire service), have been useful in other government 

programs. Local businesses can donate more than money or equipment--

they can contribute their management, fund-raising expertise, and other inkind contributions. 

One potential resource for the juvenile firesetter program is local 

insurance companies. Where they may not always be able to offer 

monetary contributions, they may be able to provide in-kind assistance. 

Several juvenile firesetter programs have received generous help from the 

insurance industry regarding public relations activities, such as printing 

brochures or publishing an article on the problem of juvenile firesetting 

and the promising program solutions. Insurance agencies can be a 

valuable resources because they have a vested interest in facilitating the 

reduction of juvenile firesetting. 

Prior to approaching insurance agencies or other local businesses, the 

juvenile firesetter program should gather as much statistical information as 

possible about the juvenile firesetter problem in their community. 

Information about the cost of juvenile firesetting in economic and human 

terms will help support funding efforts. The most important element of 

juvenile firesetting that needs to be stressed is that the problem is a 

community problem that cannot be alleviated without the assistance of the 

community. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 85 

One additional source of funding can be investigated by the juvenile 

firesetter program. In some jurisdictions the restitution paid by a juvenile 

firesetter as part of a court sentence is not claimed by the insurance 

industry. Often this is because the cost of claiming that money is more 

than the actual amount of restitution. The program coordinator should talk 

to the court and the insurance agencies about the possibility of earmarking 

those funds for the juvenile firesetter program. 

Liability 

Another financial (and legal) concern is the issue of liability. Liability 

refers to the potential for programs or referral agencies to be "at risk" for 

legal action because of the actions of a juvenile firesetter. Program staff 

need to take steps to ensure that referral agencies will not be held liable for 

the actions of the juveniles referred to them. Liability waiver forms are 

often used to counter these concerns. The liability waivers should be 

reviewed by attorneys to make sure they address all the concerns of the 

juvenile firesetter program and referral agencies. Parents will need to read 

and sign these waivers (which usually release the program or the referral 

agencies from responsibility for the action of their children). The juvenile 

firesetter program and the program's referral agencies need to be able to 

address the needs of the firesetters but will be limited if they are going to 

be held accountable for the actions of the firesetter. 

Another liability issue arises when fire service personnel volunteer their 

time to work with juvenile firesetters. As mentioned earlier, paid fire 

service personnel sometimes volunteer their time to assist juvenile 

firesetters. The new Fair Labor Standards Act (FLSA) may limit this 

practice. Many states are interpreting the FLSA to mean that the fire 

service is liable for fire service personnel when they are conducting fire 

service related activities regardless of whether they are on- or off- duty. 

Juvenile firesetter programs that use volunteers from the fire service as 

part of their program need to carefully review their state's interpretation of 

the FLSA and how it affects the program. 

How to Establish Interagency Links 

Regardless of how the fire service or other agency chooses to tackle the 

juvenile firesetter problem, they will need the assistance of the key 

community agencies which work with juveniles (e.g., police, probation, 

justice, schools, mental health, and social services). The following section 

will describe techniques for gaining support from these community 

agencies and establishing interagency relationships. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

86 Federal Emergency Management Agency/United States Fire Administration 

Coordinating Council. Strong interagency relationships and referral 

networks are vital when establishing a juvenile firesetter program. 

Because these relationships are so critical to the success of a program, the 

creation of a coordinating council is essential. Such coordinating councils 

or task forces have been established in Portland, Oregon; Upper Arlington, 

Ohio; and other programs around the country. The juvenile firesetter 

program coordinating council should be composed of representatives from 

all agencies in the jurisdiction whose responsibilities relate to juvenile 

firesetters. At a minimum, the council should include representatives from 

the fire service, police, probation, juvenile court, children's protective 

services, district attorney's office, schools, and mental health agencies. 

These agencies represent the avenues through which juveniles are referred 

to the juvenile firesetter program, as well as resources for the program. 

Including all of the key agencies on the coordinating council will ensure 

that no juvenile falls through the cracks and that all firesetters are 

identified, evaluated, and receive appropriate interventions. Ideally, the 

council should meet once a month to discuss the problems or concerns and 

develop future plans for the program. 

The officials recruited for the council should be individuals with status 

and influence within their agency (e.g., Fire Chief/Fire Marshal, Police 

Chief, Juvenile Court Judge, District Attorney, School Principal/School 

Board Member, and Mental Health and Social Service Agency Directors). 

The individuals selected should also have a commitment to the problem of 

juvenile firesetting and the time to devote to finding a solution to the 

problem. 

The coordinator of the juvenile firesetter program will have the primary 

responsibility for recruiting the council representatives. If the coordinator 

is a member of the fire service, s/he may also represent the fire service on 

the council. The coordinator should contact the administrator of each 

agency to explain the juvenile firesetter program and the role of the 

council. The coordinator should then set a time to meet with the potential 

council members. The coordinator may want to have background 

materials, such as statistics on the local juvenile firesetter problem and 

examples of how each agency is affected. It is important to stress that the 

problem of juvenile firesetting is a community problem that touches every 

agency mandated to provide services for juveniles. One program 

coordinator caught the attention of other agencies--and ultimately won 

their support--by telling them that the next child to die in a fire was their 

responsibility, not his. Descriptions of how other programs work may also 

help convince agencies that juvenile firesetter programs work, if they 

receive the support of other agencies. If the head of the agency is unable 

to participate on the council, s/he should suggest a representative, 

preferably the person most likely to have contact with juvenile firesetters. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 87 

In addition to representatives from each agency, the juvenile firesetter 

program may want to contact local corporate representatives. As noted 

earlier, these individuals can assist the program with finding issues and 

publicity and outreach. 

Role of the Council. The primary role of the juvenile firesetter program 

coordinating council is to facilitate multi-agency cooperation to plan, 

implement, and maintain the juvenile firesetter program. A constitution 

and by-laws similar to those established by the Juvenile Firesetter 

Prevention Task Force, Inc. in Upper Arlington, Ohio can be developed to 

help guide the council. The creation of the council will help lay the 

groundwork for the establishment of referral networks. 

The coordinating council should institute procedures for referrals to and 

from the juvenile firesetter program and should define the roles of each 

agency. For example, the juvenile firesetter program would be chiefly 

responsible for providing assessment and education, while child protective 

services and mental health agencies would provide counseling services for 

more troubled firesetters. Each agency representative could work toward 

providing the necessary procedures for acquiring services for juveniles 

referred by the juvenile firesetter program, such as sliding fees, if 

necessary. 

The council will be responsible for developing specific referral 

agreements between the juvenile firesetter program and different agencies. 

These referral mechanisms, which will be described in detail later in the 

Referral Mechanisms Component, should include procedures for 

information exchange between the program and the referral agencies. 

Dual waivers and contracts enable the program staff to learn the status of 

the juveniles they refer for additional services. Referral agencies should 

also be able to learn the status of juveniles referred to the program. 

One of the most important functions of the council representatives is to 

educate the other council members about their agency's strengths and 

limitations. Misunderstandings and problems between agencies often 

develop because one agency is not familiar with how the other agency 

operates. The fire service, for sample, is designed for immediate response, 

but social service organizations are often not able to respond with the 

same speed. The workshop described below is designed to help personnel 

in different agencies understand how their counterparts work. The council 

will maintain communication between agencies and troubleshoot when 

necessary. If a firesetter is not receiving the services recommended by the 

juvenile firesetter program, the council or appropriate representatives can 

intervene to find out why. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

88 Federal Emergency Management Agency/United States Fire Administration 

Finally, council representatives will also be called upon to help identify 

other agencies or individuals who work with juvenile firesetters. Council 

representatives should disseminate information about the juvenile 

firesetter program to their agencies and the community and promote the 

program. The goal of the council is to gain support for program from all 

agencies that work with juveniles and to ensure that all those who work 

with juvenile firesetters understand the function of the juvenile firesetter 

program. 

Juvenile Firesetter Program Workshop 

As noted earlier, different agencies have different working cultures. To 

help agencies learn about each other, the juvenile firesetter program 

should sponsor a one-day workshop for employees of each of the agencies 

represented on the council. During the workshop, which is based on a 

seminar sponsored by Rochester, New York's FRY program, the members 

of the coordinating council will serve as a panel to moderate the 

workshop. Members of the key agencies who work with juvenile 

firesetters should be invited to attend. The workshop will give participants 

the opportunity to meet their counterparts in different agencies and learn 

how different agencies operate. 

The juvenile firesetters program may want to have the State Fire Marshal 

or other representative give opening remarks or a keynote address. After 

the welcoming remarks, the program coordinator can begin the workshop 

by describing the characteristics of juvenile firesetters, the nature and 

extent of the problem in that jurisdiction, and the role of the juvenile 

firesetter program. The panel representatives can then be asked to 

describe how their agency works with juvenile firesetters. Attendees can 

be asked to share their experiences with juvenile firesetters. Participants 

should be encouraged to ask the panel members how they might handle a 

particular case. 

After a break for lunch, attendees should be assigned to different groups. 

Each group should include at least one member from each of the different 

agencies attending the workshop. Each group should be given a 

description of a juvenile firesetting case and instructed to discuss how they 

would handle the case. Each group member would then be responsible for 

describing how his/her agency handles such cases. Participating in this 

activity gives each attendee the opportunity to see how different agencies 

handle the same case. Understanding different work styles and 

philosophies is essential if agencies are going to be asked to work together 

to solve the juvenile firesetter problem. The workshop can close with a 

discussion of the role of the juvenile firesetter program coordinating 

council and what the program needs from each agency. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 89 

The workshop should be conducted after the juvenile firesetter program 

has been established and the staff has been trained. It is designed to give 

the referral and resource agency staff a formal opportunity to learn about 

the juvenile firesetter program and meet their counterparts in other 

agencies. 

Resource Directory 

The juvenile firesetter program should also create a Juvenile Firesetter 

Resource Directory. The directory should include the names, addresses, 

and phone numbers of the agencies and individuals who work with 

juvenile firesetters. The directory may include local, county, or state 

agencies. The coordinating council should be able to provide the 

information needed for the director. Additional resources may be obtained 

by writing area fire departments or social service agencies and asking for 

their help in identifying resources. An example of a juvenile firesetter 

resource directory can be found at the end of this chapter. 

Jurisdictional Characteristics 

The structure of any jurisdiction's juvenile firesetter program will be 

affected by: 1) the size and nature of the juvenile firesetter problem; 

2) the resources (e.g., manpower, money, space, etc.); and 3) the 

availability of private funding, if necessary. As noted earlier, no one 

program structure is best or even feasible for every jurisdiction. Large fire 

departments with the necessary people and funds can staff full-time 

juvenile firesetter programs and provide all of the necessary services using 

multiple personnel. Smaller departments or those with limited funds may 

be able to fund one full-time position or may have different fire service 

personnel assume some of the juvenile firesetter program responsibilities 

in addition to their other duties. 

Like many juvenile firesetter program activities, recruiting representatives 

to serve on the coordinating council takes time. For some programs, 

especially smaller programs, it may take more time than the coordinator 

can supply. At a minimum, the program coordinator should contact each 

potential referral agency and describe the program. Referral networks 

need to be established if the juvenile firesetter program is going to meet 

the needs of the youth it sees. Each referral agency needs to understand 

that juvenile firesetting is a community problem and they must be willing 

to be part of the solution. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

90 Federal Emergency Management Agency/United States Fire Administration 

The juvenile firesetter program staff must also be prepared to handle the 

turf issues that may exist between agencies. These issues are often 

deeply-rooted and preclude agencies from working together. One of the 

major functions of the coordinating council is to maintain communication 

between agencies. Recruiting representatives from all of the key agencies 

listed above will help gain support for the program. All of the agencies 

must be involved in the planning and coordination stage of a juvenile 

firesetter program. This involvement will give each agency a vested 

interest in the success of the program and assist in breaking down the 

barriers that may arise over turf issues. 

Summary 

The problem of juvenile firesetting is a serious and deadly problem that 

faces communities throughout the United States. Although the fire service 

is often the first agency to respond when a fire is set, juvenile firesetting is 

a community problem that requires the resources of the entire community. 

Jurisdictions vary, and each will need to determine the seriousness of the 

juvenile firesetting problem. This component presents guidelines on how 

to decide what type of program best suits the needs of a particular 

jurisdiction. The component also provides information on program 

structure, staffing, training, funding, and planning and coordination with 

other community agencies. 

Each program must assess their needs and resources to decide the 

optimum means of providing the essential services to juvenile firesetters. 

The remaining components will describe those essential and different 

approaches to providing those services. 

COMPONENT 2: SCREENING, EVALUATION, AND DEVELOPING THE 

INTERVENTION PLAN 

Purpose 

The primary purpose of this component is to describe the various 

screening and evaluation options used to assess firesetting youth and their 

families. There are a number of methods currently used by a variety of 

community agencies. Different communities may elect to involve one or 

many agencies in these screening and evaluation procedures. The various 

types of procedures are described in terms of the specific context in which 

they are applied. For example, the screening and evaluation procedures 

typically used by the fire service are different than those used by law 

enforcement. This is because the fire service is more likely to choose 

methods which will help in preliminary interviews with firesetters; 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 91 

whereas law enforcement is likely to select techniques which will be 

useful in investigation interviews with suspected arsonists. Screening and 

evaluation methods will vary according to the roles and functions different 

community agencies have in working with juvenile firesetters. Therefore, 

the current assignment of screening and evaluation procedures to 

particular users reflects their current application by community agencies. 

Each of the screening and evaluation methods are described in terms of 

their function, the appropriate target populations, who uses them, their 

content, and their benefits and limitations. There may be instances where 

procedures utilized by one community agency, such as the fire service, 

also may be helpful to other users such as mental health or the schools. 

Decision grids are presented to help users select the most appropriate 

instruments or methods to best fit their service delivery needs. Although 

each of the screening and evaluation methods results in different types of 

information, one of the final products of their application is the 

development of an effective intervention plan for firesetting youth and 

their families. The purpose of the intervention plan is to recommend 

specific steps to be taken to eliminate firesetting behavior and resolve the 

accompanying psychosocial problems. Careful consideration of various 

situational factors and critical issues will ensure the successful 

implementation of these screening and evaluation procedures. 

Objectives 

There are four major objectives to be achieved in the screening and 

evaluation of firesetting youth and their families. The first is the 

assessment of firesetting risk. A complete firesetting history must be 

taken to determine the extent and nature of the problem. In addition, a 

detailed descriptive of the motives and circumstances surrounding the 

most recent firestart must be documented to ascertain the severity of the 

presenting problem. Based upon current information, an estimate must be 

made of the likelihood that firesetting behavior will recur. 

The second objective is the evaluation of the psychosocial and 

environmental features related to firesetting behavior. Firestarting 

episodes do not happen as isolated incidents. Although the majority of 

juvenile firestarts are estimated to be the result of curiosity or accident, 

about one-third of juvenile fires are started by troubled and conflicted 

children. Therefore, for a selected proportion of firesetting youth, there 

must be an assessment of the underlying psychosocial features which 

accompany their firesetting behavior. 

The third objective is the determination of criminal intent. If juveniles are 

involved in significant fires resulting in property loss, personal injury, or 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

92 Federal Emergency Management Agency/United States Fire Administration 

death, then they are at risk for being arrested for the crime of arson. 

Several factors are taken into consideration for determining criminal 

intent, including whether firesetters have reached the age of 

accountability, the nature and extent of their firesetting histories, and the 

motive and intent of their firesetting. Although legal definitions of arson 

vary from state to state, if an evaluation reveals that there is sufficient 

evidence indicating malicious and willful firesetting, then the youth can be 

arrested for arson. 

The final objective is the development of an intervention plan. The result 

of a comprehensive evaluation is the development of an effective 

intervention plan. Intervention plans must identify the specific steps to be 

taken to eliminate firesetting behavior and to remediate the accompanying 

psychosocial problems. In addition, adequate incentives must be set in 

place to ensure that juvenile firesetters and their families will follow 

through with the recommended interventions. 

The Target Population 

There are three general groups of juvenile firesetters which must be 

targeted for screening and evaluation. The first group is young children 

under seven years of age. The fires started by the majority of these 

children are the result of accidents or curiosity. In general, they do not 

exhibit significant psychological problems and their family and peer 

relationships are intact and stable. (There are a small number of children 

involved in firesetting who exhibit severe psychopathology, and these 

children are generally referred immediately for psychological evaluation 

and treatment.) Table 2.1 describes the characteristics of most curiosity 

firesetters under seven-years-old. 

The second group of firesetters are children ranging in age from eight to 

twelve. Although the firestarting of some of these children is motivated 

by curiosity or experimentation, a greater proportion of their firesetting 

represents underlying psychosocial conflicts. Clinical and empirical 

research has identified a group of personality and social factors 

characteristic of this group of firesetters. In addition, there are a set of 

immediate environmental conditions which are hypothesized to be related 

to triggering and reinforcing their firesetting behavior. Table 2.2 presents 

the factors describing recurrent firesetters between the ages of eight and 

twelve. 

The third group of firesetters are adolescents between the ages of 13 and 

18. These youths tend to have a long history of undetected fireplay and 

firestarting behavior. Their current firesetting episodes are either the 

result of psychosocial conflict and turmoil or intentional criminal 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 93 

behavior. There are some preliminary studies suggesting a set of 

personality, social and environmental features descriptive of adolescent 

firesetters. These features are outlined in Table 2.3. 

There are a number of different community agencies that screen and 

evaluate juvenile firesetters and their families. Based on their broader role 

in the network of community services, each of these agencies will have 

different functions regarding their work with firesetters. Consequently, 

the screening and evaluation methods they select will vary depending on 

their specific needs. These needs, in part, will depend upon the specific 

target populations services by these agencies. The following community 

agencies are identified as those most likely to screen and evaluate juvenile 

firesetters. 

The Fire Service. The fire service is frequently viewed as the lead 

agency in the community for screening and evaluating juvenile firesetters. 

The primary role of the fire service is the early identification of firesetting 

youth and their families. There are a number of different ways in which 

juvenile firesetters are identified by the fire service. First, parents may 

discover firestarting behavior and voluntarily seek help for their children. 

Second, other community agencies may look to the fire service as the 

experts in working with juvenile firesetters and refer their cases to them. 

Third, fire and arson investigation efforts may reveal the involvement of 

juveniles in significant fires. Finally, if firesetters are arrested for arson, 

probation and juvenile justice may refer them to the fire service for an 

evaluation of the severity of their firesetting problem. Hence, the fire 

service is likely to see the entire range of juvenile firesetters from young 

children under seven who firestart out of curiosity to adolescents involved 

in recurrent firesetting. 

Frequently the fire service will have two levels of screening and 

evaluation procedures. The first level involves preliminary screening to 

determine the immediate severity of the firesetting problem. This 

generally is done by telephone interview. If there appears to be no 

imminent risk, basic information is obtained and appointments are made 

for additional evaluation sessions. A complete interview with firesetters 

and their families follows and represents the second level of evaluation. 

The primary goals of these interviews are to analyze the severity of the 

firesetting behavior and describe the psychosocial environment. This two 

level system facilitates the handling of emergency problems and 

establishes the conditions necessary for a comprehensive evaluation 

system. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

94 Federal Emergency Management Agency/United States Fire Administration 

Table 2.1 

Characteristics of Curiosity Firesetters Ages Seven and Under 

Dimension Description 

I. Individual Characteristics Normal physical, cognitive and emotional development. No 

evidence of psychiatric disturbance. 

II. Social Circumstances A happy, well adjusted family life. Good peer relationships. 

No academic or behavior problems in school. 

III. Environmental Conditions Firesetting is the result of accident, experimentation and 

curiosity. Feelings of guilt and remorse occur after 

firesetting. Attempts are made to extinguish firestarts. A 

low probability exists of future firesetting. 

Table 2.2 

Characteristics of Recurrent Firesetting Children Ages Eight to Twelve 

Dimension Description 

I. Individual Characteristics Evidence of difficulties in one or more areas of physical, 

cognitive, or emotional functioning. Studies suggest the 

presence of one or more of the following problems: a 

greater number of physical illnesses, history of sexual 

abuse, learning disabilities, overwhelming feelings of 

anger and aggression, overactivity, impulsiveness and 

frequent temper outbursts. 

II. Social Circumstances Single-parent families with absent fathers are typical. 

When marriages are intact, there is a high degree of 

discord. Overly harsh methods of discipline coupled with 

lack of adequate supervision is common in single-parent 

households. Violent patterns of family interaction also 

have been observed. A history of academic failure 

coupled with behavior problems in school are evident. 

Difficulties establishing and maintaining friendships are 

observed. 

III. Environmental Conditions Stressful events trigger emotional reactions which result in 

firesetting. Firesetting represents the emotional release of 

displaced anger, revenge or aggression. Firesetting has the 

immediately positive reinforcing properties of attention 

and effect. No attempts are made to extinguish firestarts. 

There is rarely consideration of the negative consequences 

or potential destruction prior to firesetting. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 95 

Table 2.3 

Characteristics of Adolescent Firesetters 

Dimension Description 

I. Individual Characteristics Several significant emotional and behavioral problems are 

apparent. Studies indicate a higher than average number 

of accidents resulting in physical injuries, higher levels of 

sexual arousal, fantasy, excitement, and misbehavior, 

evidence of gender confusion, lack of emotional depth and 

restricted capacity for expression, and greater risk-taking 

behavior. 

II. Social Circumstances Predominant are single-parent households in which 

discipline and supervision are uneven. Intact families 

display high levels of marital discord. One or more 

parents may carry a psychiatric diagnosis. Physical abuse 

and other violent patterns of family interaction have been 

observed. Long histories of academic failure and behavior 

problems in school are typical. Peer pressure and 

influence are responsible for guiding and directing 

behavior. 

III. Environmental Conditions Firesetting can be motivated by need for recognition and 

attention from peers and from stressful events which 

trigger emotional reactions resulting in antisocial activity. 

Firesetting is frequently accompanied by other delinquent 

activities, such as drug consumption or petty theft, and 

feelings of excitement and defiance are reported just prior 

to the act. Feelings of guilt or remorse after firestarting 

are rare, no attempts are made to extinguish the fires, and 

there is little fear of punishment. 

Law Enforcement. In some communities law enforcement is responsible 

for the investigation of arson fires. In other communities arson fires are 

investigated either by an Arson Task Force comprised of both law 

enforcement and fire service personnel or by the arson investigation unit 

of the fire department. If an arson investigation is underway, certain types 

of specialized investigative interviews and interrogation procedures may 

be used to ascertain the nature and extent of the firestarting problem. In 

some instances investigative interviews lead to the arrest of juveniles for 

arson. In order to arrest juveniles for arson, sufficient firesetting history 

and criminal intent must be demonstrated. In addition, in most states 

juveniles must have reached the age of accountability before they can be 

arrested for criminal acts. The age of accountability varies from state to 

state, and can range from as young as seven to as old as 14. If the 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

96 Federal Emergency Management Agency/United States Fire Administration 

firesetters have not reached the age of accountability or they are involved 

in their first firesetting offense, then law-enforcement agencies can elect to 

administer the procedures of counsel and release. Counsel and release 

refers to talking to juveniles about the dangers of firestarting and the 

potential for arrest, trial, and incarceration if their firesetting continues. At 

the conclusion of this talk the youth are released from further obligation or 

commitment. However, if there is sufficient evidence to arrest the 

juveniles for the crime of arson, they then enter the juvenile justice system 

for evaluation and intervention. 

Frequently, investigative interviews uncover additional difficulties or 

problems with juvenile firesetters and their families and the result is their 

diversion to appropriate social service agencies. For example, most states 

have mandatory reporting laws that state that children suspected of being 

victims of neglect, maltreatment, or abuse must be reported within a 24- to 

48- hour time period to the appropriate law-enforcement agency. This 

agency usually is located within the Department of Social Services and in 

many state is called Child Protective Services. Child Protective Services 

has the mandate to evaluate all reported cases of suspected child neglect, 

maltreatment, and abuse and to take the appropriate and necessary actions 

to remediate the existing problems. 

Probation and Juvenile Justice. Juveniles arrested for arson are the 

primary target population of probation and juvenile justice. Although the 

procedures of juvenile justice systems vary from state to state, there are 

some common features which represent the steps that are taken once 

juveniles have been arrested for arson. Before cases go to court, probation 

usually conducts a comprehensive evaluation with firesetters and their 

families. In addition to personal interviews, information is gathered from 

arresting officers or agencies regarding the circumstances of the cases. 

Along with collecting family and personal histories, a thorough analysis is 

made of criminal intent. There are at least two options which can be 

pursued at the end of these interviews. First, firesetters and their families 

can be referred for counseling and mental health treatment. In these 

instances the youth are assigned probationary status with respect to the 

firesetting offense. These referrals are technically voluntary, but 

probation frequently informs families that formal action will be taken if 

they refuse to cooperate. Second, given the presenting information on the 

juveniles and the nature of their outstanding criminal behavior, probation 

can determine that a petition will be filed for them to appear in court. 

In general, juvenile court judges assume that every effort has been made to 

keep these juveniles out of court. Juvenile cases proceed like any non-jury 

trial. There is a fact finding period leading up to the trial. During this 

period, additional evaluations with juveniles and their families are 

conducted by probation. From these interviews, probation is likely to 

make recommendations to the judge for intervention. Hence, both 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 97 

probation and the courts rely heavily on information obtained from 

personal interviews with children and their families to determine the 

disposition of their cases. 

Mental Health. Mental health evaluation represents the primary 

alternative for initiating effective treatment for children and adolescents 

involved in recurrent firesetting. Mental health agencies and professionals 

evaluate children whose firesetting is indicative of underlying 

psychological conflict and social maladjustment. In addition, mental 

health evaluation is appropriate for those juveniles whose firesetting is the 

result of antisocial and delinquent behavior. Curiosity firesetters are 

unlikely to require mental health evaluation. Therefore, with the 

exception of curiosity firestarters, mental health evaluation is an important 

option for the majority of firesetting youth. 

There are a number of ways in which firesetters reach mental health 

agencies or professionals for evaluation. First, parents may seek help 

directly for their firesetting children. Second, various community services 

which identify and screen these youths can refer them for mental health 

consultation. For example, because the fire service screens the entire 

range of juvenile firesetters, those children they evaluate as at risk for 

potential firesetting can be referred immediately for mental health 

evaluation. Finally, in some instances, mental health consultation can be 

mandated for firesetters. For example, as a condition of their probation, 

juvenile justice can specify that juveniles arrested for the crime of arson 

must receive psychiatric evaluation and intervention. Therefore, there are 

a number of different pathways which lead firesetting youngsters to 

mental health evaluation. 

Schools. Schools are likely to identify juvenile firesetters in one of two 

ways. First, parents may disclose to teachers or counselors that their 

children have become involved in unsupervised firesetting activities. If 

these children are young, elementary school students, they are likely to be 

curiosity firesetters. If they have no history of previous firesetting and 

they have not set a significant fire, then preliminary screening may suggest 

referral to the fires service for educational intervention. Second, juveniles 

may select the school environment as their firesetting target. Statistical 

studies show that over three quarters of school fires are started by 

children. School fires can range from trash can fires to fires which burn 

entire buildings. The severity of the fires frequently determines the 

actions taken by school officials. Older children and adolescents 

identified as setting school fires are likely either to be referred for mental 

health intervention or, if they have histories of previous firesetting and 

they have set a significant fire, they can be arrested for arson. Therefore, 

school officials are likely to see the entire range of firesetting youth, and 

they must be prepared to refer them to the appropriate community 

agencies. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

98 Federal Emergency Management Agency/United States Fire Administration 

The Procedures 

The procedures currently utilized by community agencies to screen and 

evaluate juvenile firesetters are described in detail later in the component. 

The procedures described in this component are separated by use (e.g. fire 

service, law enforcement, probation). The explanation of each procedure 

includes a description of the procedures: 1) function, 2) target population, 

3) users, 4) content, 5) benefits, and 6) limitations. The functions are the 

intended application of these methods and the anticipated information 

which results from their use. The target populations define the types of 

firesetting youth these procedures are intended to screen and evaluate. 

The users are those professionals most appropriate to implement these 

procedures. The content describes the construction of the instruments and 

the specific items which comprise them. The benefits assess the salient 

features contributing to the successful screening and evaluation of 

firesetting youth. The limitations define the circumstances which limit 

the interpretation and application of the information resulting from these 

procedures. Examples of some of the actual screening and evaluation 

instruments can be found at the end of this chapter. The Resource List at 

the end of this component lists the origin of these procedures and who to 

contact for additional information. 

For each user, the fires service, law enforcement, probation and juvenile 

justice, and mental health, decision grids are presented to help in the 

selection of the most appropriate screening and evaluation methods. The 

decision grid summarizes these methods in terms of five critical 

dimensions: (1) purpose, (2) user, (3) output, (4) impact, and (5) risk. 

These five dimensions are designed to provide the critical information 

necessary to help in deciding which method best fits the user's needs. For 

example, a juvenile firesetter program may want to implement an 

evaluation system designed to identify and separate curiosity firesetters 

from firesetters with serious psychological problems. Their rationale for 

wanting such a system is that they think they can provide the necessary 

educational programs to help curiosity firesetters, while they can refer the 

more severely disturbed firesetters to mental health agencies. The 

decision grid is organized to identify which methods yield evaluation 

information and are likely to discriminate these target populations in the 

most effective way with the least amount of risk. The decision grids are 

designed to guide users toward the most intelligent selection and 

application of screening and evaluation methods. 

Developing the Intervention Plan 

Regardless of which agencies implement their selected methods of 

evaluation, they all share the common goal of producing a plan for the 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 99 

remediation and treatment of juvenile firesetters. Although specific 

information and recommendations will vary depending on the particular 

methods employed, there are some general factors which can serve as 

guidelines in developing the most effective plan for intervention. 

There are five basic factors which should be contained in an intervention 

plan. The first factor is a comprehensive description of the firesetting 

problem and the contributing psychosocial features. Although each 

procedure approaches this description in its own way, there are some 

fundamental points which must be identified. Firesetting history must 

recount the emergence of fire interest and fireplay, along with describing 

all incidents of firesetting. A description of the psychosocial features must 

include an analysis of personality, family, and social characteristics which 

may be related to firesetting. A detailed description of this information 

will contribute to an accurate assessment of the presenting problem. 

The second factor of an interview plan is the assessment. There are four 

major content areas which must be contained in the assessment. First, 

there must be an evaluation of firesetting risk, or the likelihood that 

juveniles will be involved in future firesetting episodes. Second, there 

must be an assessment of the underlying psychosocial features related to 

the firesetting. Third, if appropriate, there must be analysis of the 

motivations and intentions of firesetting to rule out criminal intent. 

Finally, any special circumstances which are observed must be evaluated, 

such as evidence of severe neglect, maltreatment, or abuse. This 

assessment should result in the identification of specific areas that need to 

be adjusted or changed to stop firesetting and remediate the underlying 

psychosocial features. 

The third factor of an intervention plan is specifying recommendations for 

intervention. While the assessment identified the targets of behavior 

change, recommendations must be made to effect these changes. Specific 

interventions must be suggested to stop the firesetting behavior and repair 

the contributing psychosocial dysfunction. The interventions must be 

targeted directly at the specific needs of individual children and their 

families. The interventions represent strategies for changing the behavior 

patterns of firesetting youth. 

The fourth factor is the presentation of the intervention plan to juveniles 

and their families. This is an extremely important aspect of these 

procedures in that families must be convinced of the severity of their 

problems and the urgency of taking action to get the appropriate type of 

help. In some instances, a written evaluation is prepared and presented to 

the family. The presentation of the intervention plan must clearly 

communicate to children and families feasible methods for remediating 

their presenting problems. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

100 Federal Emergency Management Agency/United States Fire Administration 

The final factor of the implementation plan is ensuring follow-through by 

firesetters and their families. At the very least, agencies referring 

juveniles and families for additional intervention can follow through on 

their own with telephone calls to the referral agency to ascertain whether 

the recommended contact actually occurred. Different community 

agencies may have various ways of providing incentives or creating 

leverages so that follow-through with the intervention plan is more likely 

to occur. For example, fire departments can offer children a tour of the 

firehouse or a visit with the fire chief if they pursue their educational 

intervention. Law enforcement, probation, and juvenile justice can help 

youth avoid arrest and incarceration by diverting them to mental health 

counseling. Mental health can suggest to firesetting youth and their 

families that their quality of life is likely to improve as a result of 

participation in treatment. Schools can refuse to accept firesetters in their 

classrooms. There are a number of leverages which can be successfully 

implemented in certain circumstances to help ensure follow-through with 

the intervention plan. 

Situational Influences 

Communities will set up screening and evaluation procedures for juvenile 

firesetters and their families only if they perceive that the problem is 

important and critical to their safety and welfare. The nature and extent of 

the juvenile firesetter problem in communities, in part, will contribute to 

the social awareness and pressure necessary to create community action on 

behalf of juvenile firesetters. However, it is the primary responsibility of 

community agencies to identify whether juvenile firesetting represents a 

significant part of the firesetting and arson problem in their community. If 

an active attempt is made to assess the scope of the problem in the 

community and the availability of services, and there is a confirmation of 

the problem and need for services, then mounting an effort to establish and 

maintain screening and evaluation programs can be sanctioned on a 

community-wide basis. 

Critical Issues 

The overriding goal of this component is to describe various options for 

setting up a successful system in communities for screening and 

evaluating firesetting youth and their families. There are certain 

circumstances which communities must consider when they set forth to 

accomplish this goal. Anticipating these conditions and resolving some of 

these concerns before they create roadblocks can be a critical key to the 

implementation of an effective screening and evaluation system. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 101 

Secure a Mandate. To implement an effective screening and evaluation 

system for juvenile firesetters in the community there has to be agreement 

form the participating agencies that this is a necessary, desirable, and 

feasible goal. Certain agencies may be identified as providing the primary 

leadership in establishing the system. For example, in many communities 

fire departments have taken the lead in both implementing screening and 

evaluation procedures for juvenile firesetters and providing training on the 

topic to cooperating agencies such as mental health, probation, and 

juvenile justice and the schools. Cooperating agencies must be identified 

and agreement must be reached between them regarding a workable 

system for their community. 

Identify Agency Responsibilities. Once an agreement is reached 

between community agencies regarding the need for a screening and 

evaluation system for juvenile firesetters, agencies must identify within 

their own operations the responsible personnel and appropriate program 

structure. For example, fire departments may determine that public 

education is the most feasible division to take on the tasks of establishing 

screening and evaluation procedures for juveniles. Law enforcement may 

send their juvenile officers to interview firesetters. Schools may send 

students involved in firestarting to their counselors for preliminary 

screening. The details of what personnel in which departments are 

responsible for screening and evaluating firesetters is an important 

consideration and must be carefully analyzed prior to the implementation 

of the system. 

Provide Adequate Training. Subsequent to working out a mandate and 

specifying the logistics of the screening and evaluation system within the 

community, all personnel responsible for working with juvenile firesetters 

must receive appropriate training. In many communities, fire departments 

have played a major role in providing training not only to their personnel, 

but to other agencies within the community that they have identified as 

critical in their attempts to help juvenile firesetters. These agencies 

include, but are not limited to, law enforcement, probation and juvenile 

justice, burn and trauma units, departments of social services, mental 

health, and the schools. Training seminars range from one to two hours to 

one to two days. Their formats and structures vary depending on the 

specific needs of various communities. Examples of training seminar 

agendas focused on teaching multiple professions how to effectively 

screen and evaluate juvenile firesetters and their families can be found at 

the end of this chapter. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

102 Federal Emergency Management Agency/United States Fire Administration 

FIRE SERVICE PROCEDURES 

The following instruments and methods are used as screening and 

evaluation procedures by the fire service. As noted earlier, the 

characteristics of each procedure; function, target population, user, 

content, benefits, and limitations will be summarized. At the end of this 

section a decision grid is presented to help users select the screening or 

evaluation procedure most likely to fit their needs. 

Telephone Contact Sheet 

Functions. When parents or community agencies call the fire department 

to request help for firesetting youth and their families, this sheet is used as 

a preliminary screening mechanism. Basic information is gathered such as 

names, addresses, telephone numbers, a brief summary of the firesetting 

problem, and a description of the steps to be taken, which frequently 

includes the dates and times for setting up personal interviews or the other 

follow-up procedures which are to be implemented for particular cases. 

Target Populations. The target populations include the entire range of 

juvenile firesetters and families referred to the fire service. 

Users. This sheet can be used by any level of fire service personnel who 

receive initial telephone calls regarding juvenile firesetters. This or other 

similar sheets recording telephone inquiries or requests for help can be 

used by a variety of community agencies servicing juvenile firesetters. 

Content. The content is basic demographic information and an indication 

of the next steps to be taken to provide services to juvenile firesetters and 

their families. 

Benefits. The primary benefit of this sheet is that it provides a way to 

systematically organize incoming information about juvenile firesetters 

and their families. In addition, it records preliminary plans for future 

actions. 

Limitations. It may be an unnecessary link in the paperwork chain which 

potentially impedes rather than assisting the program in providing services 

to juvenile firesetters. 

Juvenile with Fire Worksheets A and B 

Functions. Engine companies and fire investigators at the fire scene may 

identify juveniles involved in firesetting. In these cases they can record 

preliminary screening information on the Juvenile with Fire Worksheet A. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 103 

Once the information is recorded at the fire scene, officers and 

investigators can return to their departments and relay this information to 

existing juvenile firesetter programs. Juvenile firesetter programs can 

record incoming information on the Juvenile with Fire Worksheet B. 

Together these two worksheets provide preliminary screening information 

on firesetting youth and their families. 

Target Populations. The information recorded on these sheets can apply 

to the entire range of juvenile firesetters identified by engine companies 

and fire investigators and referred to juvenile firesetter programs. 

Users. These sheets are designed to go hand-in-hand with one another 

and to facilitate communication regarding the identification of juvenile 

firesetters between different divisions within the same fire department. 

Therefore, in those fire departments where engine companies and fire 

investigators are likely to make first contact with juveniles, these forms 

will help direct these youths to existing juvenile firesetter programs within 

the same fire department. 

Content. These sheets contain basic demographic information on juvenile 

firesetters and their families and record the type of services they receive 

once they enter juvenile firesetter programs. 

Benefits. These sheets are likely to increase communication between 

various divisions within fire departments regarding juvenile firesetters. In 

addition, these forms are likely to reduce the possibility of juvenile 

firesetters and their families "falling through the cracks" in the system and 

failing to receive the necessary services. 

Limitations. These sheets will add to the paperwork load of those 

divisions who use them within fire departments. 

USFA's Interview Schedules 

Functions. These interview schedules are designed to provide the 

juvenile firesetter program with systematic methods for evaluating 

juvenile firesetters and their families. The interview schedules consist of a 

series of questions which are asked of firesetting youth and their families 

in personal interviews. The application of these interview schedules 

yields information regarding the severity of the firesetting problem and 

preliminary data on the psychosocial environment of juvenile firesetters 

and their families. The USFA interview schedules have been widely used 

by a number of fire departments throughout the country and represent 

standard practice for many fire departments and juvenile firesetter 

programs. With minimal training, these procedures can be used by fire 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

104 Federal Emergency Management Agency/United States Fire Administration 

service personnel to screen, evaluate and refer juvenile firesetters and their 

families to appropriate service agencies in the community. There are three 

manual describing in detail the application of these interview schedules. 

They are indexed in the Resource List at the end of this component. 

Target Populations. These interview schedules and the manuals which 

describe their application are divided into three age groups. The first 

manual outlines the interview schedules and methods for working with 

children seven and under. The second manual describes the interview 

schedules and methods to be applied to children ages seven to thirteen. 

The third manual contains the interview schedules and procedures for 

working with adolescent firesetters. The implementation of the 

procedures in each of these three manuals allows fire departments to 

screen and evaluate the entire range of juvenile firesetters. 

Users. These interview schedules and accompanying manuals are used by 

fire departments extensively throughout the United States. Many 

departments have established juvenile firesetter programs following the 

guidelines suggested in these manuals. The interview schedules also 

contain information which may be useful to mental health professionals 

regarding the severity of the firesetting problem and the conditions of the 

psychosocial environment. 

Content. Juvenile firesetters and their families are interviewed alone and 

together for approximately ninety minutes by fire service personnel using 

the interview schedules. The interview schedules are organized and 

presented in slightly different ways depending on the age of the firesetter. 

For children under seven, the interview schedule is divided into two 

sections. Section one focuses on questions regarding firesetting behavior 

and section two requires observations to be made regarding the home and 

the parents. For children seven through thirteen, the interview schedule is 

divided into three sections. The fire section asks questions related to 

firesetting history, the second section presents questions related to the 

home and family, and the third section asks questions regarding school 

and peers. For adolescent firesetters the interview schedule is divided into 

two main sections. Section one asks questions related to firesetting history 

and details of the most recent firesetting incident. Section two asks 

questions regarding the psychological environment, including information 

about physical health, the home, the family, peers, and school. For all age 

levels parents are asked to complete a questionnaire which contains 

observations about the psychological behavior of their children. 

The interview schedules have scoring procedures which classify firesetting 

youth and their families according to risk levels. These risk levels refer to 

the probability that the juvenile firesetters are likely to participate in future 

firesetting incidents. There are three levels of risk--little, definite, and 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 105 

extreme--representing increasingly severe firesetting behavior. In general, 

children classified as little risk firestart by accident or out of curiosity, and 

require educational intervention to remediate their problem. Juveniles 

classified as definite and extreme risk firestart because of psychological 

conflict, family difficulties, or as part of a pattern of antisocial and 

delinquent behavior. They require mental health or juvenile justice 

intervention. Hence, the interview schedules yield a specific method for 

classifying juvenile firesetters according to the severity of their presenting 

problem. This classification system also suggests the type of interventions 

most likely to be beneficial to firesetting youth and their families. 

Benefits. The primary advantage of the interview schedules is that they 

provide systematic procedures for fire service personnel to evaluate the 

entire range of juvenile firesetters and their families. In addition, these 

interview schedules yield a quantifiable method for classifying the 

severity of the firesetting problem and for recommending specific types of 

interventions. Also, only a brief training period is required to teach fire 

service personnel how to use these interview schedules. Their application 

is well-documented in three manuals and they are widely accepted and 

applied throughout the fire service. 

Limitations. The major disadvantage of these interview schedules is that 

their validity and reliability have not been investigated. Therefore, the 

accuracy and consistency of the information which they yield remains 

open to question. A primary concern is that children identified as little 

risk may actually be exhibiting signs of more serious firesetting behavior. 

One way to address this problem is to monitor little risk firesetters for a 

period of time subsequent to their evaluation and educational intervention. 

Also, in cases where definite and extreme firesetting youth have been 

identified, it is recommended that other assessment strategies be used in 

conjunction with the interview schedules. For example, as a general rule 

these types of cases should be referred for additional evaluation by mental 

health professionals. While these interview schedules provide an 

important first step in screening and evaluating juvenile firesetters, 

virtually nothing is known about the quality of the information by yield. 

Therefore, back-up procedures must be set in place. This will ensure that 

juvenile firesetters and their families receive appropriate assessment and 

intervention. 

Fire-Related Youth (FRY) Program Data Sheet 

Functions. The primary function of the FRY Program Data Sheet is the 

organization of interview information obtained during evaluations of 

firesetting youth and their families. The data sheet is used to keep a 

record of the information describing the specific characteristics of 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

106 Federal Emergency Management Agency/United States Fire Administration 

firesetting incidents, including firesetting history and details of the most 

recent firesetting episode. In addition, some information is collected 

regarding the characteristics of the firesetters, including school data and 

the physical and psychological features of firesetters. The specific items 

on the data sheet do not represent questions which are to be asked of 

firesetting youth and their family members, but rather they represent the 

type of information which emerges from interviews. Therefore, the data 

sheet can be viewed as a recordkeeping instrument which also has the 

potential to yield quantifiable data on the characteristics of firesetting 

incidents. 

Target Populations. The FRY Program Data Sheet can be used for 

recording data on the entire range of juvenile firesetters screened and 

evaluated by fire departments. 

Users. The FRY Program Data Sheet can be used by juvenile firesetter 

programs as part of the information they keep in their files on firesetting 

youth and their families. In addition, because this data sheet contains 

detailed information on firesetting incidents, arson investigation units 

within fire departments and law enforcement units investigating arson 

fires may find the information in this record useful. 

Content. The FRY Program Data Sheet is organized according to 

firesetting incidents. For each incident, information is collected regarding 

the number of juveniles involved and their relationship to one another. 

For each juvenile involved in the incident, information is collected on the 

specific circumstances surrounding the fire, demographic characteristics, 

school data, behavioral features, and the actions taken by the program to 

remediate the presenting problems. All information is assigned a 

numerical value or code which facilitates later analysis of the data. The 

FRY Program Data Sheet classifies information on firesetting incidents 

and monitors the youth involved in these episodes. 

Benefits. The advantage of the FRY Program Data Sheet is that it assigns 

numerical codes and values to information regarding firesetting incidents. 

This structure allows for summarizing data and arriving at quantifiable 

patterns of firesetting. As a result, trends in firesetting incidents can be 

identified. Thus, the FRY Program Data Sheet not only has value as a 

recordkeeping method, but it also has potential values as a research 

instrument. 

Limitations. The information on the FRY Program Data Sheet is 

provided by fire investigators. As such, there is a strong emphasis on 

firesetting incidents and somewhat less emphasis on understanding why 

juveniles become involved in firesetting behavior. That is, the clinical 

interpretation of firesetting behavior is somewhat neglected. Therefore, 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 107 

while the FRY Program Data Sheet provides quantitative information on 

firesetting incidents, it does not contribute to a qualitative understanding 

of the psychosocial attributes of firesetting youth and their families. 

Decision Grid 

Table 2.4 presents the decision grid for fire service procedures. For each 

method, five dimensions are analyzed which represent important 

considerations when selecting the most appropriate procedures. Users can 

identify their need for a specific type of screening or evaluation instrument 

and weigh the potential output and impact against the anticipated risk. For 

example, if a fire department wants to implement a method to determine 

the severity of a youth's firesetting problem, they might select the USFA's 

interview schedule. The decision grid suggests that this procedure is 

widely used by several fire departments and will yield a classification of 

firesetting risk for juveniles. Therefore, the implementation of this 

procedure is likely to adequately service the current screening and 

evaluation needs of the fire department. Other fire departments may have 

different assessment objectives, and the decision grid can assist in 

evaluating the utility of implementing the various available procedures. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

108 Federal Emergency Management Agency/United States Fire Administration 

Table 2.4 

Fire Service Decision Grid 

Method Purpose User Output Impact Risk 

Telephone 

Contact 

Sheet 

Screening Anyone 

answering the 

telephone or 

any fire 

service 

personnel 

Files with 

demographic 

information on 

firesetters 

The organization 

of first contact 

information to aid 

in routing 

firesetters to the 

most appropriate 

help 

Adding 

paperwork to 

an already 

overloaded 

system 

Juvenile 

with Fire 

Worksheets 

Screening Firefighters, 

arson 

investigators, 

or anyone 

working in the 

field 

Files with 

demographics 

and services 

received in 

service delivery 

points to track 

firesetters within 

the system 

Increased 

communication 

between first 

contact and 

service delivery 

points 

Creating an 

unnecessary 

trail of 

paperwork 

following 

firesetters 

USFA's 

Interview 

Schedules 

Evaluation Trained fire 

service 

personnel 

Classification of 

juveniles into 

low, definite, 

and extreme risk 

for firesetting 

and development 

of an 

intervention plan 

The application 

of a widely 

accepted and 

applied system 

for evaluating 

and classifying 

firesetters 

Currently there 

are no formal 

statistical 

studies of 

validity or 

reliability on 

this method 

FRY 

Program 

Recordkeeping Juvenile 

firesetter 

program 

manager 

Files on 

firesetting 

incidence, 

demographics, 

psychosocial 

data and 

intervention 

steps 

Numerical codes 

and values are 

assigned to data 

for quantifiable 

analysis of trends 

Short on 

supplying 

information on 

the "whys" of 

firesetting 

Adolescent 

Firesetter 

Decision 

Criteria 

Evaluation Designed for 

intake 

counselors in 

probation 

departments--

may be used 

by fire service 

personnel as 

well 

An assessment 

of the severity of 

the firesetting 

and arson 

behavior 

according to one 

of three risk 

levels--low, 

moderate, and 

high 

Systematic 

documentation of 

the severity of 

delinquent 

firesetting 

behavior 

No quantifiable 

summary score 

results, and no 

formal 

statistical 

studies have 

been conducted
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 109 

LAW ENFORCEMENT, PROBATION AND JUVENILE JUSTICE 

PROCEDURES 

The following are some examples of the procedures used by lawenforcement, probation, and juvenile justice agencies when encountering 

juvenile firesetters and arsonist. These are general procedures and they 

are applied to most all juveniles suspected, investigated, or arrested for 

any type of criminal activity. At the end of this section the decision grid 

summarizes the impact of implementing these procedures. 

Investigation Interview 

Functions. When the cause and origin of fires are either unknown or 

determined to be arson, law enforcement officials begin their investigation 

procedures. The investigation usually begins at the fire scene. There are 

some instances in which juveniles involved in setting fires are identified at 

the fire scene. The general approach taken by many fire investigators is to 

convince juveniles to admit to firesetting. If juveniles acknowledge their 

firesetting, law enforcement has several options. If the fire was set by a 

very young child, or if it was a first offense motivated by accident or 

curiosity, then investigators can counsel the youth about the dangers of 

firesetting, and refer them to juvenile firesetter programs where they are 

available. If no local juvenile firesetter programs exist, these children are 

usually released to their parents without further obligation. However, 

older youth who are involved in fires resulting in significant damage or 

personal injury and whose firestarting represents a recurrent behavior, can 

be arrested for the crime of arson. If the firesetter is arrested, juvenile 

arrest reports are filed. Although these reports are confidential, they are 

reported as part of the national uniform crime statistics. In addition to 

arrest reports, there may be other reporting procedures to be completed 

such as a fire investigation report, a fire scene examination report 

documenting the physical evidence of arson, and an interview schedule. 

The interview schedule recounts the communication which occurs 

between fire investigators and juveniles suspected of arson. 

Target Populations. Investigation interviews are conducted with 

juveniles suspected of arson. 

Users. There are at least three different types of law enforcement 

approaches to fire and arson investigation. In some communities arson 

investigators are fire department personnel. In other communities police 

departments handle arson investigations. Finally, there are communities 

in which Arson Task Forces, comprised of both the fire service and law 

enforcement, are assigned to investigate arson fires. All law-enforcement 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

110 Federal Emergency Management Agency/United States Fire Administration 

and agencies designated with the responsibility and authority to 

investigate and arrest arson suspects follow these procedures. 

Content. The content of investigation interviews will vary depending on 

the stipulated procedures of the various law-enforcement agencies. In 

addition to collecting basic demographic information, the primary 

objective of the investigation interview is to establish motive and intent 

for firesetting. 

Miranda Rights 

Functions. If arson investigation interviews appear to be leading to the 

arrest of firesetters, then law-enforcement officials are mandated by 

federal law to read the juveniles their Miranda Rights. Miranda Rights 

pertain to the nature and type of communication which occurs between 

law enforcement and criminal suspects. These rights outline what can and 

cannot happen to the information disclosed by suspects during the course 

of investigation interviews leading to arrests. The Los Angeles Grand 

Jury has recommended a set of Miranda Rights specifically for juveniles. 

In addition to California, there are other states which use Juvenile Miranda 

Rights. These Miranda Rights not only inform juveniles about the nature 

of their communication with law enforcement, but they include a series of 

questions to ascertain whether the juveniles understand the meaning of 

their rights. 

Target Populations. In general, juveniles participating in investigation 

interviews which may lead to their arrest for arson should be read their 

Miranda Rights. 

Users. Law-enforcement agencies responsible for arson investigation and 

arrest are most likely to administer Miranda Rights. 

Child Protective Services Report 

Functions. In most states, the law mandates reporting suspected child 

neglect, maltreatment, or abuse within a 24- to 48- hour time period to the 

agency designated as enforcing this type of legal protection. This agency 

frequently is organized within the Department of Social Services and 

typically is referred to as Child Protective Services. In most states, Child 

Protective Services investigates all reported incidents of suspected child 

neglect, maltreatment, or abuse. Their primary function is to ascertain if 

credible evidence can be demonstrated to substantiate suspicions of 

neglect and abuse. Usually within a short period of time, (24 hours in 

most States), a preliminary assessment is completed to determine if the 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 111 

health and safety of children are in immediate jeopardy. If this 

determination is made, then it is likely that these youngsters will be 

removed from their current living situation. If there is no outstanding 

emergency, then within a specified period of time Child Protective 

Services will conduct a comprehensive evaluation to determine whether 

the reports are indicated or unfounded. Based upon the information 

collected in these evaluations, Child Protective Services refers these 

youngsters and their families for appropriate intervention. 

Target Populations. Children suspected of being victims of neglect, 

maltreatment, or abuse and their families can be reported to Child 

Protective Services. 

Users. All persons, officials, and institutions suspecting child abuse are 

mandated by most state laws to report their suspicions within a 24- to 

48-hour time period to Child Protective Services. 

Content. The reporting procedures require basic demographic 

information on children and family members. The type of suspected 

neglect, maltreatment, or abuse must be specified, along with the reasons 

for the suspicions or observations. 

Adolescent Firesetter Decision Criteria 

Functions. In most States, when youth are arrested for arson they are 

referred to probation. Probation departments usually conduct an 

assessment of the youth and their families. The primary goal of this 

assessment is to determine whether to prosecute. The Adolescent 

Firesetter Decision Criteria are guidelines to be used in assisting in the 

evaluation of the psychological and social environment of firesetters and 

their families. It classifies juveniles and families into risk levels which 

help determine the likelihood that these youths will be involved in future 

arson-related or other antisocial activities. 

Target Populations. The Adolescent Firesetter Decision Criteria focuses 

primarily on analyzing components of delinquent behavior. Therefore, it 

is most appropriately applied to juveniles who have been arrested for 

firesetting or where there is some question as to whether their firesetting 

activity is the result of psychosocial conflict or defiant antisocial behavior. 

Users. The Adolescent Firesetter Decision Criteria is designed to be used 

by intake counselors in probation departments. It is designed to be used in 

conjunction with other assessment tools. Its application requires a certain 

level of understanding regarding the interpretation of individual items, 

therefore it should not be used without prior training. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

112 Federal Emergency Management Agency/United States Fire Administration 

Content. The Adolescent Firesetter Decision Criteria is modeled after 

The Juvenile Sexual Offender Decision Criteria. The decision criteria 

contained in the instrument are intended to be used as guidelines in 

determining the severity of the presenting firesetting behavior. The 

instrument is divided into three risk levels--high, moderate, and low. Each 

risk level contains two subscales which assess risk characteristics 

separately for juveniles and their families. The scales contain statements 

which describe a range of attitudes and behaviors reflecting participation 

in firesetting as well as other types of antisocial activities. These 

statements represent the actual decision criteria for each of the three risk 

levels. 

Counselors are asked to rate the juveniles and families on the individual 

statements by assigning a numerical rating of 3 if the item is of high 

concern, a 2 if it is of moderate concern, and a 1 if it is of low concern. 

These statements are not intended to be asked as questions during intake 

evaluations with juveniles and their families. Rather, as result of intake 

assessments, counselors should be able to rate the juveniles and their 

families using these decision criteria. 

The Adolescent Decision Criteria does not result in a total score 

determining a specific risk level for juveniles and their families. Rather, 

by calculating the frequency with which the counselors use the ratings, 3 

(high concern), 2 (moderate concern), or 1 (low concern), the tendency 

toward high, moderate, or low risk for firesetting can be estimated. 

Consequently, counselors will have a general idea which risk levels 

adolescents and families are likely to represent in assessing the severity of 

the presenting firesetting behavior and their amenability to treatment. 

Benefits. The major asset of the Adolescent Decision Criteria is that it 

organizes statements regarding the severity of delinquent firesetting 

behavior. Currently there are no other attempts to describe these 

distinctions. In addition, it offers general guidelines in helping probation 

counselors make difficult decisions regarding actions to be taken for 

firesetting youth and their families. 

Limitations. The Adolescent Decision Criteria represents a preliminary 

attempt at developing standards to help increase the accuracy of decisions 

reached regarding the severity of delinquent firesetting behavior. 

Although this approach shows great promise, there are a number of tasks 

which remain to be accomplished. First, instructions standardizing its 

application would increase the quality of the evaluative information. 

Second, if the instrument resulted in a total quantitative score, then a more 

reliable decision-making criteria may be approached. Because there have 

been no reliability or validity studies conducted on the instrument, it is 

difficult to determine its success in assessing the severity of firesetting and 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 113 

arson related behaviors and deciding on the most effective course of 

intervention. 

Probation Case Plan 

Functions. Once juvenile firesetters are referred to probation for 

evaluation, counselors follow specific procedures for conducting 

assessments and making recommendations for intervention. There are a 

number of different approaches that are used for conducting these 

assessments. They vary from county to county and from state to state. In 

general, basic information is collected from juveniles regarding their 

firesetting or other delinquent offenses and their psychological and social 

background. Family members also are interviewed regarding these same 

topics. From these evaluations, specific intervention objectives are 

identified to remediate the current behavior problems. In addition, 

specific steps are outlined to ensure that these objectives are accomplished 

within a reasonable period of time. 

Target Populations. Juveniles are not evaluated by probation unless they 

have been arrested for arson or other crimes. 

Users. Probation intake counselors typically conduct assessments of 

juveniles arrested for arson. 

Content. Although the specific format and content of this evaluation is 

likely to vary between probation departments, there is some basic 

information that is routinely collected in the majority of these assessments. 

This basic information includes detailed descriptions of the history of 

antisocial activities with an emphasis on the current firesetting offense, 

involvement with alcohol and drugs, relationships with family and friends, 

current skills and strengths, and future goals. Upon completing interviews 

with juveniles and their family members, intake officers develop case 

plans which outline treatment objectives, specify the steps which are to be 

taken to meet these objectives, and outline who is responsible for 

achieving these objectives within a specific period of time. This 

constitutes the basic format of the evaluation procedures. 

Decision Grid 

Table 2.5 presents the decision grid summarizing the procedures utilized 

by law enforcement, probation, and juvenile justice to screen juvenile 

firesetters and arsonists. There are general procedures which can vary 

from state to state, depending on specific statutes and legal guidelines. It 

is anticipated that most law enforcement, probation, and juvenile justice 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

114 Federal Emergency Management Agency/United States Fire Administration 

agencies will have similar procedures already in place, but they may want 

to refer to this decision grid to verify the output and impact of their 

particular methods. The Adolescent Decision Criteria represents a new 

evaluation method designed specifically for juvenile firesetter and arsonist 

populations. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 115 

Table 2.5 

Law Enforcement, Probation, and Juvenile Justice 

Decision Grid 

Method Target/ 

Population Purpose User Output Impact Risk 

Law Enforcement 

Investigation 

Interview 

Youth 

suspected of 

arson 

Documentation 

of fire incidence 

Juvenile 

investigators 

In cases of no 

arrest, incidence 

reports are 

filed; in cases 

of arrest arrest 

records are 

established 

Systematic 

documentation 

and 

monitoring of 

incidence rates 

of juvenile 

firesetting and 

arson 

Arrested 

juveniles may 

not be 

diverted for 

necessary 

psychological 

interventions 

Child 

Protective 

Services 

Report 

Youngsters 

who evidence 

abuse, neglect, 

or 

maltreatment 

Documentation 

of credible 

evidence 

demonstrating 

neglect, abuse, 

or maltreatment 

Any 

persons, 

officials, or 

institutions 

suspecting 

child abuse 

Filed reports to 

the legal entity 

in state 

governments 

responsible for 

investigating 

cases of child 

abuse 

The protection 

of the physical 

and 

psychological 

welfare of 

children as 

guaranteed by 

law 

Miranda 

Rights 

Youth arrested 

for arson 

To inform 

youth of their 

legal rights 

prior to arrest 

Law 

enforcement 

personnel 

responsible 

for arson 

investigation

s and arrest 

A signed legal 

document 

acknowledging 

administration 

of rights 

The protection 

of the legal 

rights of 

arrested 

minors 

Probation and Juvenile Justice 

Adolescent 

Firesetter 

Decision 

Criteria 

Adolescent 

arrested, but 

not yet tried or 

sentenced for 

arson 

The evaluation 

of the 

psychosocial 

factors related to 

firesetting and 

arson behavior 

Intake 

counselors 

in probation 

departments 

An assessment 

of the severity 

of the 

firesetting and 

arson behavior 

according to 

one of three risk 

levels--low, 

moderate, and 

high 

Systematic 

documentation 

of the severity 

of delinquent 

firesetting 

behavior 

No 

quantifiable 

summary 

score results, 

and no formal 

statistical 

studies have 

been 

conducted 

Probation 

Case Plan 

Juveniles 

arrested, but 

not yet tried or 

sentenced for 

arson 

To assess the 

psychosocial 

factors related to 

firesetting and 

identify 

interventions 

Probation 

department 

counselors 

Documentation 

of case plans to 

remediate 

delinquent 

firesetting 

behavior 

The 

identification 

of specific 

intervention 

objectives 

Relies 

heavily on 

self report 

from youth 

and their 

families 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

116 Federal Emergency Management Agency/United States Fire Administration 

MENTAL HEALTH AND SCHOOL PROCEDURES 

The following approaches represent some examples of mental health 

procedures used to evaluate juvenile firesetters. At the end of this section, 

the decision grid is presented which evaluates the impact of these 

procedures. In addition, the section will discuss briefly the role of schools 

in working with juveniles to prevent firesetting behavior. 

The Therapeutic Assessment of Firesetting (TAF) 

Questionnaire 

Functions. The TAF is a structured interview/questionnaire designed to 

assess older children and adolescents who have been involved in 

firesetting. The TAF is constructed to accomplish several functions, 

including evaluating the nature and extent of the firesetting problem, 

assessing the underlying dynamics of firesetting behavior, planning for the 

rehabilitation of firesetters, and stimulating therapeutic growth and 

introspection. The 133 items comprising the TAF were drawn from the 

literature on firesetting and from clinical experience with psychiatricallycommitted arsonists. The TAF items are organized into general factors 

examining the situational and personality precipitants of the firesetting 

incident. In addition, it provides a method to explore the most recent firestart and its circumstances in a detailed and explicit way. The TAF is 

designed to allow firesetters to talk explicitly about their firesetting 

problem and give them the opportunity to gain a greater understanding 

about the underlying motivations for their behavior. 

Target Populations. The TAF is designed to be used when conducting 

structured interviews with firesetters who are being assessed for the first 

time or who are receiving treatment for firesetting or arson. 

Users. The TAF is intended to be implemented by mental health 

professionals or experienced clinicians. It is recommended that those 

administering the TAF have some familiarity with rapport-building, 

interview techniques, and awareness of gross psychopathology. Although 

designed for mental health professionals, the TAF also has been used by 

evaluators for parole, law-enforcement, fire prevention, and county fire 

department personnel. The interview can be completed in as little as one 

hour (for the purposes of assessment), or it can take up to five one-hour 

sessions (for the purposes of treatment and therapy) depending on the 

availability of time and how much the firesetters are encouraged to 

elaborate on their answers. The TAF is accompanied by a welldocumented set of instructions describing its applications. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 117 

Content. It is intended that the TAF's primary focus be its usefulness in 

stimulating understanding and insight into the dynamics of firesetting 

behavior within the context of a clinical interview. The items comprising 

the TAF also can be organized into specific dimensions or factors relating 

to the explanation of firesetting behavior. These factors include: (1) 

reliability, which is a scale assessing the consistency or accuracy of 

responses to the TAF, (2) family background and experiences, (3) 

intelligence, (4) mental disturbance and disorder, (5) physical health, (6) 

financial problems, (7) lack of supportive relationships, (8) difficulty in 

expressing anger and frustration, and (9) pyromania or pyromaniac 

tendencies. Although there is no formal scoring procedure for assessing 

these factors, interpretation can be enhanced by noting that the greater the 

number of endorsed items under a particular factor, the more focus should 

be placed on that factor for treatment and rehabilitation. However, the fact 

that firesetters do not score highly on a particular factor does not 

conclusively prove that such a factor is absent. Rather, it says that 

firesetters do not admit to the specific items comprising the factor. Hence, 

the self-report nature of the TAF must be taken into consideration when 

interpreting responses. 

Benefits. The major benefit of the TAF is that it represents a unique 

attempt at providing a structure for interviewing, evaluating, and 

stimulating the treatment of individuals with significant firesetting 

histories. It has the potential to provide valuable information on the 

underlying causes of recurrent firesetting behavior and arson-related 

activities. In addition, it has the dual advantage of providing clinicians 

with important psychosocial information and potentially stimulating selfinsight and introsopection on the part of firesetters. 

Limitations. Although the TAF yields excellent qualitative data on the 

psychosocial functioning of firesetters, an attempt to obtain norms, 

profiles, or summary scores of the items would enhance its credibility, 

broaden its application, and improve its interpretation and generalizability. 

Information on the reliability and validity of the TAF would increase its 

utility as a clinical and research instrument. 

The Achenbach Child Behavior Checklist 

Functions. The Achenbach Child Behavior Checklist provides an 

empirical definition of child behavior problems. In addition, it assesses 

the social competency of children. It is a paper and pencil test which can 

be used in conjunction with clinical evaluations to provide a quantitative 

picture of the problems and the competencies of juveniles. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

118 Federal Emergency Management Agency/United States Fire Administration 

Target Populations. The Achenbach Child Behavior Checklist assesses 

children as young as four and as old as 16. There are standardized norms 

against which to compare individual responses. It can be used with 

normal and emotionally impaired youth. 

Users. The Achenbach Child Behavior Checklist should be administered 

and interpreted by trained clinicians who are familiar with the application 

and interpretation of the scale. 

Content. The Achenbach Child Behavior Checklist consists of two major 

scales. The first is a 20-item social competency scale which contains three 

sub-scales, an activities score, a socialization score and a school score. 

The second is a behavior problem scale which contains two sub-scales, an 

internalizing behavior score, and an externalizing behavior score. The 

social competency scale asks questions regarding participation in sports, 

hobbies, games, activities, organizations, jobs, chores, the nature of 

friendships and how juveniles get along with others, how well they work 

and play alone, and their level of school functioning. There are four 

different respondent forms for the Checklist, including a parent form, a 

teacher form, a direct observation form and a youth self-report form. The 

parent form is most frequently used in clinical settings. A substantial 

number of reliability and validity studies demonstrate that the responses to 

the Checklist are accurate and consistent. 

Benefits. There are several advantages of the Achenbach Child Behavior 

Checklist. First, there are well-documented studies on the reliability and 

validity of the Checklist. Second, the scales assess both problems and 

competencies, giving a comprehensive perspective on the behavioral 

functioning of children. Third, the scales can be scored without the use of 

a computer. Finally, there is a well-written manual describing the 

administration and scoring of the Checklist. 

Limitations. The Checklist must be used in conjunction with a 

comprehensive clinical evaluation when assessing firesetting youth and 

their families. While it provides an accurate and reliable empirical view 

of behavior, it does not replace the value of exploration, observation, and 

evaluation which takes place during clinical interviews. 

General Methods of Psychosocial Assessment 

Mental health professionals often develop their own styles and methods 

for conducting assessment interviews. Frequently evaluations will reflect 

the theoretical orientation, training, and treatment approaches of the 

practitioners. However, regardless of these factors, it is expected that 

juveniles whose presenting problem is firesettiing will receive a thorough 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 119 

evaluation of their firesetting history, along with an analysis of the 

underlying psychosocial dynamics contributing to the presenting 

problems. The Resource List at the end of this component indicates 

additional references which will be helpful to clinicians who want to 

understand how to conduct comprehensive assessments of firesetting 

history and related psychopathology. 

Decision Grid 

Table 2.6 presents the decision grid for mental health procedures. The 

TAF represents the only method designed to be used specifically with 

juvenile firesetters. The remaining two methods represent general 

assessment procedures which also have been utilized to assess juvenile 

firesetters. The decision grid summarizes the output, impact, and risk 

associated with the application of each of these methods. 

School Procedures 

The primary role of schools in working with juveniles is to prevent the 

occurrence of fireplay and firesetting behavior through educational 

programs. These activities are outlined extensively in the Intervention 

Services component. When school personnel identify youth who firestart, 

their major course of action should be to refer them to one of several 

agencies including the juvenile firesetter program, a mental health 

professional or agency, and law enforcement. The referral will depend, in 

part, on the severity of the presenting problem and the significance of the 

fire. While it is unreasonable to assume that school personnel can provide 

evaluation services to juvenile firesetters, schools should be able to 

recognize the problem, identify the juveniles, and through preliminary 

screening procedures, refer them to the appropriate service agency. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

120 Federal Emergency Management Agency/United States Fire Administration 

Table 2.6 

Mental Health Decision Grid 

Method Target/ 

Population Purpose User Output Impact Risk 

The 

Therapeutic 

Assessment 

of 

Firesetting 

Scale (TAF) 

Older 

children and 

adolescents 

with 

significant 

histories of 

firesetting 

Evaluation of 

psychosocial 

factors related 

to firesetting, 

planning for 

rehabilitation, 

and 

stimulating 

therapeutic 

growth 

Trained 

mental health 

professionals 

or paraprofessionals 

Through a 

structured 

interview 

format, a set 

of answers 

to 

systematic 

questions 

related to 

firesetting 

Provides a 

method for 

obtaining 

important 

clinical 

information 

on 

firesetting 

Does not yield 

a summary 

score nor can 

its 

psychometric 

properties be 

evaluated 

The 

Achenbach 

Child 

Behavior 

Checklist 

Youngsters 

exhibiting 

behavior 

problems 

A paper and 

pencil test 

which 

provides 

quantitative 

information 

on behavior 

problems as 

well as 

competencies 

Trained 

mental health 

professionals 

Standard 

scores on 

two scales; 

social 

competency 

and 

behavior 

problems 

Psychometrically 

sound 

clinical 

information 

on 

youngsters 

with 

behavior 

problems 

Recommended 

to be used only 

in conjunction 

with a 

comprehensive 

clinical 

evaluation 

General 

Psychosocial 

Assessment 

All 

youngsters 

exhibiting 

psychological 

problems 

To assess the 

psychological 

problems and 

strengths of 

youngsters 

and their 

families 

Mental health 

professionals 

Output will 

vary 

according to 

specific 

methods and 

procedures 

employed 

Evaluation 

of 

psychologic

al problems 

and 

development 

of plans for 

their 

resolution 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 121 

RESOURCE LIST 

The following items provide ways to get further information about the 

procedures and methods described in the component. 

Fire Service Procedures 

1. Telephone Contact Sheet

Source: The Firehawk Children's Program 

Reference: Gaynor, J., et al. (1984). The Firehawk 

Children's Program. A Working 

Manual. San Francisco: The 

National Firehawk Foundation. 

2. Juvenile With Fire Worksheets A and B

Source: Portland Fire Bureau 

Contact: Don Porth 

Portland Fire Bureau 

55 SW Ash 

Portland, OR 97204 

(503) 823-3806 

3. USFA's Interview Schedules

Source: U.S. Fire Administration 

References: Fineman, K., er al. (1980). Child Firesetter 

Handbook. Ages 7 and Under. 

Washington, DC: U.S Government 

Printing Office. 

Fineman., et al. (1984). Preadolescent 

Firesetter Handbook. Ages 7 to 13. 

Washington, DC: U.S. Government 

Printing Office. 

Gaynor, J., et al. (1988). Adolescent 

Firesetter Handbook. Ages 14-18. 

Washington, DC: U.S. Government 

Printing Office. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

122 Federal Emergency Management Agency/United States Fire Administration 

Contact: U.S. Fire Administration 

FEMA 

National Fire Academy 

16825 South Seton Avenue, Building N, 

Suite 311 

Emmitsburg, MD 21727 

(301) 447-6771 

4. FRY Program Data Sheet

Source: Rochester, New York's FRY Program 

References: Cole, R.E., et al. (1984). Juvenile 

Firesetter Intervention. Report of 

the Rochester, New York FRY 

Program Development Project. New 

York: Department of State Office of 

Fire Prevention and Control. 

Cole, R.E., et al (1986). Children and Fire, 

Second Report of the Rochester, New 

York Fire Department FRY Program 

Development Project. New York: 

Department of State Office of Fire 

Prevention and Control. 

Law-Enforcement Procedures 

1. Investigation Interview

Source: David Lowery 

Arson Task Force 

1215 South Boulevard 

Charlotte, NC 28203 

(704) 336-3970 

2. Juvenile Miranda Rights

Source: Los Angeles Grand Jury 

Contact: Arson Task Force 

1215 South Boulevard 

Charlotte, NC 28203 

(704) 336-3970 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 123 

Probation and Juvenile Justice Procedures 

1. Adolescent Firesetter Decision Criteria 

Contact: Alison Stickrod Gray 

The Center for Prevention Service 

P.O. Box 254 

Underhill Center, VT 05490-0254 

(802) 899-2824 

2. Probation Case Plan

Source: Juvenile Service Division 

700 E. Trade Street 

Charlotte, NC 28202 

(704) 342-6804 

Mental Health Procedures 

1. The Therapeutic Assessments of Firesetting (TAF) 

Questionnaire

Source: Terrance Neary, Ph.D. 

Horizon Counseling Center 

Suite 305 

Hoffman Estates, IL 60195 

(708) 882-7744 

2. The Achenbach Child Behavior Checklist

Reference: Achenbach, T.M. & Edelbrock, C.S. 

(1982). Manual for the Child 

Behavior Checklist and Child 

Behavior Profile. Burlington, VT: 

Child Psychiatry, University of 

Vermont. 

3. General Methods of Psychosocial Assessment

References: Gaynor, J. & Hatcher, C. (1987). The 

Psychology of Child Firesetting, 

Detection, and Intervention. New 

York: Brunner/Mazel, Publishers. 

Wooden, W.S. & Berky, M.L. (1984). 

Children and Arson, America's 

Middle-class Nightmare. New York: 

Plenum Press. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

124 Federal Emergency Management Agency/United States Fire Administration 

COMPONENT 3: INTERVENTION SERVICES 

Purpose 

The Intervention Services component presents the primary intervention 

strategies designed to reduce the incidence of juvenile involvement in 

firesetting behavior and arson-related activities. These strategies reflect 

three major intervention approaches. The first strategy is primary 

prevention. The goal of primary prevention is to provide substantial fire 

safety and educational experience to juveniles so that they develop firecompetent behaviors and avoid participation in unsupervised firestarts. 

The second strategy is early intervention. Youth participating in fireplay 

and firesetting behavior motivated by accident, curiosity or 

experimentation can be identified and educated to reduce the likelihood of 

their future involvement in unsupervised firestarts. The third strategy is 

core intervention. Recurrent firesetters frequently experience significant 

psychological and social conflict and turmoil related to their firestarting 

activities. It is hypothesized that if these psychosocial problems can be 

adjusted or remediated, then not only are the chances of involvement in 

future firesetting episodes greatly reduced, but the quality of life is likely 

to improve for these juveniles and their families. 

The three intervention strategies--primary prevention, early intervention, 

and core intervention--are aimed at reducing juvenile involvement in the 

entire range of unsupervised fireplay and firesetting activities. Each of the 

strategies have specific intervention objectives and they are aimed at 

particular target populations. Primary prevention efforts involve several 

community agencies including the schools, the fire service, and law 

enforcement. The fire service is the lead community agency providing 

early intervention services. They use many different types of program 

models to work with juvenile firesetters. Core intervention services 

involve mental agencies and professionals and the probation and juvenile 

justice systems. For each level of intervention, decision grids are 

presented to help program managers select the best intervention options to 

meet the objectives and target population needs of their service delivery 

system. 

Intervention Objectives and Decision Grids 

Each of the three intervention strategies are designed to achieve specific 

objectives. Primary prevention efforts are intended to reduce the 

incidence of first-time unsupervised fireplay and firesetting in populations 

of otherwise normal youth. This is accomplished by providing children of 

all ages with educational experiences focused on the rules of fire safety 

and prevention and understanding the consequences of fireplay and 

firesetting. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 125 

Early intervention programs are focused on identifying both children 

at-risk for fireplay or firesetting activities and those involved in first-time 

fireplay and firesetting episodes. In addition, their objective is to prevent 

the recurrence of fireplay and firesetting incidents. The implementation of 

short-term evaluation, education, and referral mechanisms within the fire 

service and other supporting community agencies are designed to meet 

these objectives. 

Core intervention services are aimed at eliminating recurrent firesetting 

behavior and providing treatment and remediation for the contributing 

psychosocial determinants. Mental health intervention is the primary 

method utilized to stop recurrent firesetting and treat the underlying causes 

of the behavior. Probation and juvenile justice efforts provide legal 

incentives to youth and their families to pursue treatment for their patterns 

of antisocial and delinquent behavior. If treatment recommendations are 

not followed, the juvenile justice system can implement legal 

consequences and punishments related to firesetting and arson offenses. 

Decision grids are presented for each level of intervention. These decision 

grids are designed to help program managers make informed choices 

regarding the selection and implementation of intervention approaches 

which best meet their needs. There are five critical dimensions identified 

as important criteria in choosing intervention strategies. They are: (1) 

purpose, (2) source, (3) acceptability, (4) impact, and (5) limitations. 

Careful consideration of these dimensions will lead to an intervention 

strategy. For example, if a well-funded fire department in a major 

metropolitan areas wants to initiate a comprehensive juvenile firesetter 

program, which includes both evaluation and family counseling services, 

they can utilize the decision grid to ascertain whether this approach has 

been tried, and, given specific limitations, whether it has been successfully 

implemented. The decision grids serve as guides to help users decide how 

to build an effective juvenile firesetter program in their community. 

Target Populations 

Each of the three major intervention strategies are designed to work with 

specific target populations of firesetting youth. Primary prevention efforts 

are focused on children and adolescent with little or no history of fireplay 

or firesetting. Although the majority of these programs are developed for 

elementary school children, it is expected that older youth and adolescents 

also can benefit from age appropriate fire safety and prevention programs. 

Early intervention programs are designed for children whose firesetting is 

the result of accident, curiosity or experimentation. These programs work 

with children ranging from under seven to as old as twelve. Core 

intervention services are aimed at those children and adolescents whose 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

126 Federal Emergency Management Agency/United States Fire Administration 

recurrent firesetting behavior is the result of significant psychopathology, 

antisocial activity or criminal behavior. These youth are usually older and 

range in age from eight to eighteen. The Screening, Evaluation and 

Developing the Intervention Plan Component details the psychosocial 

characteristics of the entire range of firesetting youth. 

Situational Influences 

There are several situational factors which must be taken into account 

when designing intervention programs for juvenile firesetters. First, the 

incidence of the local juvenile firesetting problem must be assessed prior 

to the development of plans to initiate a program. This information is not 

always readily available and often requires the organization of a separate 

project to evaluate the extent of the juvenile firesetting problem in the 

community. As assessment of need is an appropriate starting point for 

determining whether communities can benefit from the development of 

juvenile firesetter intervention programs. 

The design and implementation of juvenile firesetter programs will depend 

upon the commitment of time and resources participating agencies are 

willing to make in their community. For example, schools must decide 

whether primary prevention programs designed to teach fire safety are a 

high priority for their curriculum. Fire departments, heavily committed to 

suppression activities, will need to direct their focus to the prevention 

aspect of fighting fires. Law enforcement, probation, and juvenile justice 

must elect to pay particular attention to the firesetting population of 

juveniles, as opposed to other groups of delinquent youth. Frequently 

additional program efforts aimed at specific problem areas or target 

populations can be incorporated into existing operations, thereby keeping 

costs at a minimum. Nevertheless, the level of time and resources 

committed to juvenile firesetter intervention programs is directly related to 

their content, utility, and effectiveness. 

Juvenile firesetting must be viewed as a community problem, and as such, 

it deserves community-wide attention. Although fire departments may 

take the lead role in developing programs for juvenile firesetters, their 

efforts alone will not resolve the problem. It is crucial that there be 

working linkage established between the various community agencies 

capable of helping juvenile firesetters and their families. Schools, the fire 

service, law enforcement, juvenile justice, and mental health must all 

establish open communication channels with one another so that an 

organized effort is mounted to reduce juvenile involvement in firesetting 

and arson-related activities. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 127 

Critical Issues 

The success of juvenile firesetter intervention programs depends on 

several factors. First, the community must be educated about the 

problems of juvenile firesetting. An effective public relations campaign 

must be developed to teach parents and adults how to recognize the 

problem in children and where and how to go for help to resolve it. 

Regardless of the level of intervention, from primary prevention to core 

intervention, the public must understand the seriousness of juvenile 

involvement in firesetting and they must be knowledgeable enough to take 

the first steps to get the appropriate help. 

Each community agency focusing their attention on the problem of 

juvenile firesetting is likely to have slightly different roles and 

responsibilities, depending on the nature and extent of their services. 

Those agencies and professionals involved in helping juvenile firesetters 

must be trained in how to work with this special population of youth. 

Although training needs will vary according to the type of services 

offered, designing and implementing intervention programs often require 

special expertise and information. Educational manuals coupled with 

training seminars are important resources for establishing and maintaining 

effective intervention services. 

Although the preliminary stages of designing and developing new 

programs often involves a great deal of struggle and perseverance, the true 

sign of a successful endeavor is whether these new program efforts can 

survive their infancy and mature into a fully functioning and ongoing part 

of their organizational structure. Juvenile firesetter intervention programs 

must be viewed as an essential part of not only reducing juvenile 

involvement in firesetting, but integral to maintaining low rates over time. 

This argument is a key factor in helping to sustain the resources necessary 

for maintaining program operations over the long-term. The community 

and the participating service agencies must be convinced of the value of 

juvenile firesetter intervention programs. Efforts to ensure that the time 

and resources committed to these programs become part of ongoing 

budget and staffing considerations within the management of 

organizations will help to sustain the life of these programs. Although 

community needs and priorities are likely to shift over time, a fire safe and 

secure community is a powerful argument for maintaining an adequate and 

effective intervention system for sustaining low rates of juvenile 

involvement in firesetting and arson. 

PRIMARY PREVENTION 

Primary prevention programs are aimed at reducing juvenile involvement 

in first-time unsupervised fireplay and firesetting incidents. The basic 

premise of these programs is that if children understand the rules of fire 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

128 Federal Emergency Management Agency/United States Fire Administration 

safety and prevention and the consequences of firestarting, they are less 

likely to initiate or participate in nonproductive firesetting. Primary 

prevention efforts are educational programs designed to teach children of 

all ages fire safety and survival skills. 

There are several different educational models utilized in primary 

prevention programs. The models employed largely depend on the sites 

which operate the programs. Primary prevention programs are found in 

the schools, the fire service, and law-enforcement. Schools can offer a 

wide range of prevention activities including fire safety education 

curriculum and activities, slide presentations, films, and assemblies. The 

fire service can mount national and local media campaigns, utilize district 

fire houses to provide tours and educational seminars for youth, and work 

with their school districts to present unique educational experiences. Lawenforcement can incorporate fire safety education as part of their general 

anti-crime efforts aimed at youth. Primary prevention programs can 

utilize a variety of different learning strategies and activities to accomplish 

the common objective of teaching youth how to develop fire-safe and 

competent behaviors. 

It is recommended that community organizations or agencies launch a 

comprehensive fire prevention effort designed to reach a broad age-range 

of children. Educational programs for preschool children should be 

explored as well as programs aimed at elementary, middle, and high 

school aged youth. Schools are the obvious site where maximal efforts 

can be focused to reach the majority of children. The amount of time set 

aside for teaching fire prevention and safety will depend on the level of 

effort schools are willing to commit. A minimal effort might consist of a 

fire education presentation to youth coupled with the distribution of 

printed material to parents. A more comprehensive approach might be the 

adoption of a fire safety curriculum. There are several excellent packages 

of fire safety and prevention programs already developed for schools. The 

particular program or set of programs developed depends on the available 

resources and the range and depth of desired services. It is strongly 

recommended that schools integrate primary prevention efforts into their 

ongoing curriculum plans. 

Fire service efforts can be important adjuncts in helping to promote the 

development of fire safety behaviors in children and their families. For 

example, parents who first notice their children's interest in fire or who 

have found their children playing with matches may instinctively call their 

local fire department for help. Fire departments can offer to talk with 

these youth, have them tour the local fire house and provide short-term 

educational services designed to teach fire prevention to children and their 

families. In addition, the fire service can work with their local schools to 

enrich fire prevention programs by offering classroom visits or assemblies, 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 129 

slide presentations, and films designed to communicate information on fire 

safety and prevention. Finally, local fire departments can support national 

programs, such as National Fire Prevention Week, by mounting active 

print and television media campaigns designed to promote fire safety. 

There are five basic elements which must be considered in the 

development of a successful primary prevention program for fire safety. 

First, the educational objectives of the fire safety program must be 

specified. Second, the community agencies willing to participate in 

primary prevention must be identified. Third, the specific populations of 

juveniles must be targeted. Fourth, the degree of commitment to teaching 

fire prevention (in terms of time, personnel, etc.), must be determined. 

Finally, the format and structure of the prevention effort must be 

established. Careful consideration must be given to the nature and type of 

fire safety programs which are selected for implementation. They must fit 

into a coordinated and comprehensive plan for promoting community fire 

safety and prevention. 

The following programs represent a select sample of successful primary 

prevention efforts currently operating in several communities. They are 

described in terms of their function, target populations, users, content, 

benefits, and limitations. The Resource List at the end of this component 

provides details on now to obtain further information about all of the 

programs. 

School Curriculum and Programs 

The following are descriptions of primary prevention school curriculum 

and programs. Most of these programs are comprehensive packages 

which consist of specific classroom learning activities designed to teach 

fire safety and prevention rules to elementary and secondary school 

students. At the end of this section a decision grid is presented to analyze 

the impact and risk associated with implementing these programs. 

A. Children's Television Workshop (CTW's) Fire Safety Project 

Functions. The CTW's Fire Safety Project, produced by its Community 

Services Division, is a unique nationally focused program teaching 

preschool children fire prevention. This project reaches children at the 

critical age of their initial fire awareness and teaches them appropriate 

attitudes toward fire and basic fire safety rules. The methods of 

communication utilized by this project deserve special attention. Sesame 

Street characters (already popular with preschoolers) are the primary 

communicators of fire safety lessons. Characters like "Bert" and "Ernie," 

two very different fellows but very best friends, are utilized to teach 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

130 Federal Emergency Management Agency/United States Fire Administration 

children about fire drills, firefighters, and firefighter training. Because 

these Sesame Street characters already have entered the lives of 

preschoolers through a variety of different types of exposures, they 

become effective communicators of important messages to children. 

Target Populations. The primary audience of CTW's Fire Safety Project 

is preschoolers, although children ages five to seven also find these fire 

safety lessons valuable. 

Users. Children, parents, and teachers can understand and apply the 

messages and materials created by this project. 

Contents. The CTW's Fire Safety Project employs multiple mediums of 

communicating fire safety information. The primary method is through 

short, single-topic vignettes presented as a regular part of the television 

programming of Sesame Street. Initial research indicated that although 

some fire safety lessons were appropriate for television viewing, the 

majority of the material needed to be demonstrated directly to children. 

Hence, CTW designed materials and seminars to teach children in their 

preschool setting. In addition, CTW produces a Fire Safety Newsletter 

available to nursery and preschools. The applications of three diverse 

mediums of communication--television, teaching materials and the 

Newsletter--along with the use of Sesame Street characters as 

communicators, offers an intensive and consistent approach to teaching 

fire safety to children at the critical preschool age. 

Benefits. This is a unique and comprehensive attempt at introducing 

preschool age children to the concept of fire safety. 

Limitations. Although previous research suggests that preschoolers can 

benefit from fire safety education, there is little documentation evaluating 

the effectiveness of this particular approach. 

B. Learn Not to Burn 

Functions. The National Fire Protection Association (NFPA) developed 

the Learn Not to Burn Fire Safety Curriculum to meet the demand to 

educate primary school children about the rules and behaviors of fire 

prevention. Learn Not to Burn consists of a comprehensive package of 

materials for teachers which is designated to help them implement a fire 

safety curriculum in their classroom. The curriculum is organized around 

a set of 25 key fire safety behaviors which are divided into three 

categories: protection, prevention, and persuasion. The NFPA 

recommends that children demonstrate competency in all 25 behaviors by 

the completion of their primary school education. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 131 

Target Populations. Learn Not to Burn is designed to be used in the 

elementary school classrooms of kindergarten through eighth grade. 

Users. Learn Not to Burn is intended to be implemented in the classroom 

by primary school teachers. 

Content. Learn Not to Burn's 25 fire safety behaviors are categorized 

according to protection, prevention and persuasion and prioritized in terms 

of their importance. The first priority, protection, involves those 

behaviors children must learn in case of fire. Some examples of 

protection behaviors include participating in school fire drills, performing 

the stop, drop, and roll procedure, and developing a home fire escape plan. 

The second priority, prevention, is comprised of those behaviors which 

will deter injury before fire occurs. Some examples of prevention 

behaviors include how to use matches safely, how to store flammable 

liquids, and how to identify and remove electrical hazards. The third 

priority, persuasion, focuses on those behaviors which encourage others to 

become aware of fire safety and prevention activities. Some examples of 

persuasion behaviors involve teaching others about smoke detectors, 

making sure others properly maintain their electrical equipment and 

helping others install electrical outlet covers. Learning all 25 key 

behaviors results in children developing competent and responsible fire 

safety skills. 

The Learn Not to Burn program contains an extensive package of 

materials including documentation of the general design of the curriculum, 

25 curriculum cards showing teachers how to help their students attain 

competence is each of the key fire safety behaviors, evaluation 

instruments designed to measure achievement in fire prevention and 

satisfaction with the program, fire prevention information for teachers to 

disseminate to their students, and information regarding the availability of 

additional teaching aids. Teachers report that all the necessary materials 

are included for the implementation of the complete Learn Not to Burn 

educational program in their classroom. 

Benefits. The research and development phase of Learn Not to Burn 

evaluated the effectiveness of implementing the program in seven urban 

and suburban sites involving 4,000 students and 200 teachers. The impact 

of the curriculum on both knowledge and practice was found to be 

significantly better for those children participating in the program versus 

those who had no exposure to a fire safety curriculum. Parents reported 

being highly satisfied with their children's involvement in the program. 

Also, teachers gave highly positive ratings to the curriculum in terms of its 

value and usefulness. Learn Not to Burn's acceptance and application 

within the educational community appears to be firmly established. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

132 Federal Emergency Management Agency/United States Fire Administration 

Limitations. To date, there have been no reported long-term follow-up 

studies investigating the impact of Learn Not to Burn in reducing the 

incidence of juvenile involvement in unsafe firestarts. Although the 

general merit of fire prevention programs in the schools cannot be argued, 

it would be useful to have data to substantiate these claims. In addition, 

while the Learn Not to Burn materials are comprehensive and produced at 

a high level of quality, not all school districts may be willing to allocate a 

proportion of their budget to purchase these educational supplies. 

Nevertheless, the monetary output may well be worth the costs of 

preventing just one significant fire. 

C. Knowing About Fire 

Functions. Knowing About Fire is a relatively new elementary school 

curriculum designed to teach children about the wonders and the 

limitations of fire. It is developed by a group of educators, psychologists, 

and fire service professional who also have been involved in developing 

juvenile firesetter programs. It was conceived as an additional educational 

package designed to complement the Learn Not to Burn program. The 

activities in the curriculum are appropriate for kindergarten through third 

grade and can be implemented by classroom teachers. They provide 

children will "hands-on" experience designed to teach them about the 

power of fire, how quickly it can spread, and how vulnerable they are with 

respect to its power. 

Target Populations. This curriculum is designed to be used in the 

elementary school classroom for children in kindergarten through the third 

grade. There are some activities also directed at the parents of these 

school-age children. 

Users. The activities in the curriculum are designed by a classroom 

teacher and they are intended to be implemented by kindergarten through 

third grade classroom teachers. 

Content. The activities in Knowing About Fire address children's 

curiosity about fire. They attempt to go beyond programs which have 

been developed to help get children out of fire once it has started. They 

provide information about the nature of fire, the power of a single match, 

and the rapidity with which fire spreads. These activities are designed to 

promote discussion so that students can think through the possible 

consequences of fireplay by themselves or their siblings. Some of these 

activities include games, crossword puzzles, songs, and creative writing 

projects. There are some activities included for parents to remind them of 

the need to be aware of how available firestarting materials are to their 

children. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 133 

Benefits. Preliminary research and development efforts demonstrate that 

teachers find the concepts presented in the activities useful and the 

presentation of the materials clear so that they are easily incorporated in 

their curriculum. Students report that they are enthusiastic about 

participating in the activates and they seem to derive the intended benefits. 

Limitations. This is a newly developed curriculum, and as such, needs 

broader application before its effectiveness can be clearly determined. 

D. Fire Safety Skills Curriculum 

Functions. In the state of Oregon, school personnel in cooperation with 

the fire service developed, published, and implemented a skills-oriented 

curriculum designed to assist primary and secondary school students in 

mastering fire prevention and survival skills. The Fire Safety Skills 

Curriculum provides each school grade with a set of expectations, 

including measurable learning objectives, a specific set of fire safety 

activities, and methods designed to measure knowledge acquisition. Inservice training is offered by fire departments to schools to implement the 

curriculum. 

Target Populations. The Fire Safety Skills Curriculum is intended for 

students in kindergarten through eleventh grade. 

Users. The curriculum is written for teachers and designed to be 

implemented by them in the classroom. 

Content. The curriculum presents eight fire safety skills which contribute 

to the goal of assisting students to protect themselves against the hazards 

of uncontrolled fire. Grade level expectations explain the fire safety 

learning outcomes expected of students. Each grade has different levels of 

expectations. Fire learning activities are suggested for each grade level to 

assist students in learning fire safety skills. These activities include 

learning the stop, drop, and roll technique, demonstrating how to light a 

match safely, developing and implementing a home fire safety survey, and 

many more direct fire-related experiences. They are designed to fit into a 

number of different subject areas including the language arts, math, 

science, health, and art. The implementation of these learning activities 

often involves the participation of local fire service personnel. Each 

activity has a measurable learning objective. Therefore, the successful 

completion of each fire learning activity can be evaluated. The curriculum 

also contains a number of quizzes that can be administered to assess 

learning acquisition. 

Benefits. The curriculum was field tested by more than 100 Oregon 

teachers. Each fire safety learning activity is designed for minimal teacher 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

134 Federal Emergency Management Agency/United States Fire Administration 

preparation, to be as self-contained as possible, and to provide interesting, 

instructional, and meaningful student experiences. Informal reports 

suggest that it is well-received throughout the state of Oregon. 

Limitations. There does not appear to be any documentation available 

detailing the impact of this curriculum in reducing juvenile involvement in 

fireplay and firesetting activities. 

E. The Juvenile Crime Prevention Curriculum 

Functions. The St. Paul, Minnesota Insurance Companies have sponsored 

a unique educational program aimed at teaching fire prevention to eighth 

and ninth graders, who in turn utilize their newly acquired information and 

skills to instruct fourth and fifth graders on the topic of fire safety. The 

two major objectives of this program are to teach fire safety skills to 

adolescents and to help these youths learn how to teach these skills to 

younger students. There is a 12 week curriculum designed for teachers to 

implement this program in their classroom. 

Target Populations. This educational program reaches two distinct 

groups of youth, adolescents in eighth and ninth grade and elementary 

school children in fourth and fifth grade. 

Users. This program is to be implemented by eighth and ninth grade 

classroom teachers. 

Content. The Juvenile Crime Prevention Curriculum not only teaches fire 

prevention to adolescents, but it aloes emphasizes general topics in crime 

prevention. The curriculum is designed to provide youth with information 

on arson, vandalism, property crimes, law enforcement, and the juvenile 

justice system. The curriculum consists of lesson plans on each of these 

topics for a 12 week course. There are exercises that teach the eighth and 

ninth graders how to apply their newly acquired knowledge of fire safety 

and how to prepare themselves to be student teachers. The curriculum 

also includes the participation of law-enforcement, probation, and juvenile 

justice personnel in teaching children not only the principle of crime 

prevention, but a sense of responsibility toward their school and their 

community. The program contains an evaluation component which 

requires participants to provide feedback on its effectiveness. 

Benefits. Case reports suggest that both eighth and ninth grade and 

elementary school students report being highly satisfied with their 

participation in the program. In addition, student performance indicates 

that they also learn a significant amount of new material related to fire 

prevention. This curriculum not only educates two different age groups of 

children, it helps to build the self-confidence and self-esteem of 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 135 

adolescents by introducing them to new roles as teachers to younger 

students. 

Limitations. While preliminary case reports are highly favorable about 

the impact of the program, there have been no attempts to assess whether 

this effort has deterred children from participating in firesetting or other 

antisocial activities. Until such studies are undertaken, it is difficult to 

evaluate the actual benefits of the program. 

F. Project Open House 

Functions. Although the content of this program is somewhat difficult to 

replicate, it is included here because of the unique and graphic learning 

experience it provides for adolescent age school students. A cooperative 

effort between the fire service and the school district, the idea of Project 

Open House is to furnish a house as one normally would, set a fire in one 

room, extinguish it, and then utilize this as a learning experience for 

students. This process is known as a controlled or training burn. All 

events, from ignition to suppression and overhaul, are recorded on 

videotape and photographed with a 35mm camera. Students watch the 

entire progress of the fire as it is happening on the videotape. Then 

minutes after the blaze, they are allowed to tour the house escorted by 

firefighters. Thus, students are able to experience first-hand the 

consequences of fire. 

Target Populations. There are a number of reasons why participation in 

this project is limited to adolescent age school children. First, younger 

children witnessing this type of fire experience may become fearful and 

anxious, and therefore not be able to understand it as a learning exercise. 

Second, public education programs are traditionally aimed at elementary 

school children, and middle school fire safety educational experiences are 

less common. Third, the adolescent age group includes many latchkey 

children, who are at fire risk because they are unsupervised at home after 

school until parents return from work. Finally, adolescents represent a 

large percentage of the babysitting population, which needs to know about 

the dangers of fire and the proper response to emergencies. 

Users. The implementation of Project Open House takes the combined 

cooperation of the fire service and the school district. 

Content. Subsequent to watching the controlled burn on videotape, 

students receive a presentation by their school principal and firefighters 

regarding their impressions of the fire. Then students are escorted through 

the burned house by firefighters. They immediately see the devastation in 

the room where the fire started and throughout the remainder of the house. 

A large cardboard post is placed inside the house to remind them of the 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

136 Federal Emergency Management Agency/United States Fire Administration 

chronology of the fire events, from the first ignition, through triggering the 

smoke detector alarms on both levels of the house, to extinguishing the 

blaze. Each room contains its own safety message depending on the 

specific damage caused and the particular function of the room. For 

example, the melted telephone in the kitchen can stress the importance of 

staying as close as possible to the floor and leaving the home immediately 

to call for help from the neighbor's home. Once students return to the 

classroom there are further discussions about their understanding of the 

devastation that can be caused by fire. 

Benefits. The primary advantage of such a program is to allow 

adolescents to see for themselves the potential destructive consequences of 

unsupervised and nonproductive firesetting. 

Limitations. It is unclear whether this type of teaching strategy, as 

opposed to less elaborate and more inexpensive methods, is significantly 

more effective in discouraging adolescents from firesetting. 

Decision Grid 

Table 3.1 presents the decision grid summarizing information on school 

curriculum and programs designed for primary prevention. There are a 

number of different programs available utilizing a variety of teaching 

methods aimed at a wide range of youth from preschool through high 

school. Users can make their selections based on their needs and the 

intended impact and acceptability of these programs. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 137 

Table 3.1 

Primary Prevention Decision Grid School Curriculum and Programs 

Method Purpose Acceptability Impact Limitations 

CTW's Fire 

Safety Project 

Introduce 

preschoolers to fire 

safety 

Widely used and 

highly regarded 

by preschool 

teachers 

throughout U.S 

Effective use of 

popular 

preschool 

characters as 

communicators 

of fire safety 

No formal evaluation 

of this approach 

Learn Not To 

Burn 

Classroom 

curriculum (K-8) 

teaching fire safety 

and prevention 

Extensively used 

in urban and 

suburban school 

districts 

throughout U.S 

Teaches 25 key 

behaviors 

resulting in 

competent fire 

safety schools 

No long-term 

followup studies of 

effectiveness 

Knowing About 

Fire 

Classroom 

curriculum (K-3) 

presenting hands-on 

fire learning 

activities 

A new program 

pilot-tested in a 

sample of 

schools 

Good initial 

reception by 

students and 

teachers 

As yet no information 

on effectiveness 

Fire Safety Skills 

Curriculum 

Classroom 

curriculum (K-11) 

teaching mastery of 

fire survival skills 

Utilized by 

school districts 

throughout the 

State of Oregon 

Minimal teacher 

preparation, selfcontained, and 

easily 

implemented 

No documentation of 

impact 

The Juvenile 

Crime Prevention 

Curriculum 

Teaching crime 

prevention and fire 

safety skills to 

adolescents who in 

turn teach them to 

younger children 

Utilized in the 

school districts 

of the 

Minneapolis/ St. 

Paul cities 

High satisfaction 

ratings from all 

levels of students 

and teachers 

No formal studies 

assessing crime 

prevention 

Project Open 

House 

First-hand, graphic 

exposure to 

watching a 

controlled fire burn 

and destroy 

Reported as a 

single episode 

learning activity 

by one 

community 

Enthusiastically 

received by 

students, teachers 

and parents 

Labor and cost 

intensive 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

138 Federal Emergency Management Agency/United States Fire Administration 

Fire Service Programs 

On both a national and local level, the fire service is active in developing, 

implementing, and promoting efforts aimed at teaching children fire safety 

and prevention. Several fire service programs have been designed 

specifically on the problem of juvenile involvement in accidental and 

recurrent firesetting. The following are descriptions of selected prevention 

focused on juvenile firesetting. At the end of this section a decision grid is 

presented analyzing the dimensions relevant to the successful application 

of these programs. 

A. National Fire Prevention Week 

Functions. Each year the first week in October is designated by the 

federal government as National Fire Prevention Week. Usually there are 

national fire prevention projects planned by the U.S. Fire Administration 

(USFA) for this special week. In addition, many States kick off their own 

fire prevention projects during this week. Also, local fire departments 

may initiate fire safety activities in their community to recognize fire 

prevention week. Organized efforts at national, state, and local levels are 

aimed at increasing public awareness of the importance of fire safety. 

Target Populations. National Fire Prevention Week activities are usually 

focused on all children and adolescents, regardless of whether they have 

histories of fireplay or firesetting. Recently there also have been efforts 

aimed at educating parents about teaching their children fire safety and 

prevention. 

Users. The U.S. Fire Administration, State Fire Marshal Offices, and 

local fire departments can take part in developing projects for National 

Fire Prevention Week. 

Content. The nature of the projects conducted during Fire Prevention 

Week will vary depending on who initiates and implements them. It is 

customary for new educational efforts or media campaigns to be launched 

during this time. 

Benefits. The major advantage of National Fire Prevention Week is that it 

provides an organized effort for all levels of the fire service to promote 

fire safety to the public. 

B. Media Campaigns 

There are a number of efforts to use print and television media to educate 

the general public about the problems of juvenile firesetting. The 

following programs represent examples of both national and local attempts 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 139 

to promote fire safety messages through the use of the media. The 

Resource List at the end of this component describes how to obtain more 

information about these programs. 

Curious Kids Set Fires. The most recent program developed by the U.S. 

Fire Administration is a press packet designed to stimulate public 

awareness about the problem of juvenile fireplay and firesetting. These 

press packets help state and local fire service personnel hold press 

conferences and distribute information regarding the nature and extent of 

accidental firesetting. This information is designed to educate the general 

public and, in particular, parents about what they can do if they discover 

their children involved in firestarting. Presumably this information will 

result in local newspaper articles instructing parents in how they can 

recognize and prevent accidental firesetting behavior in their children. 

Big Fires Start Small. The National Fire Protection Association (NFPA) 

develops media kits which it promotes during National Fire Prevention 

Week. The theme of the most recent press kit, Big Fires Start Small, is 

based on recent findings by the NFPA indicating that children playing 

with fire is the leading cause of fire deaths among very young children. 

The media kit contains information regarding the nature and extent of the 

problem of children playing with matches and offers suggestions as to 

what families and their communities can do to prevent child-set fires. 

Firebusters. A local television station, the fire service, the school district, 

and a popular restaurant chain combined efforts in Portland, Oregon to 

encourage children to learn fire safety and prevention rules from watching 

their evening news. A checklist of important fire safety and prevention 

questions was developed and distributed to children in elementary schools. 

Then, each night for one week during the evening news, the answers to 

these questions were disclosed. Children were asked to complete their 

checklist and return them to their school. The local restaurant chain 

agreed to provide a free children's meal to every child returning the 

checklist. In addition, there were drawings for grand prize awards. All of 

the participating community agencies were pleased with the response and 

outcome of the project. They are making plans for this to be an annual 

cooperative event between the local media, the fire service, the school 

district, and corporate sponsors. 

C. Fire Department Programs in Schools 

It is the mandate of many public education divisions within fire 

departments to provide fire safety and prevention programs for their local 

schools. Educating children about the dangers of fireplay and firesetting 

are one of several teaching objectives of these programs. There are many 

innovative approaches utilized by public education programs to teach 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

140 Federal Emergency Management Agency/United States Fire Administration 

school children about the dangers of playing with fire. The following are 

some examples of the creative teaching methods employed by public 

education efforts in the schools. 

Classroom Visits. Each year for the last decade fire inspectors in 

Charlotte, North Carolina have conducted three one-hour sessions in 

fourth grade classes on fire safety and prevention. A major part of their 

teaching program focuses on helping children understand the nature and 

power of fire and the dangers and consequences of unsupervised 

firestarting. These fire inspectors also are responsible for operating the 

fire department's juvenile firesetter program. Therefore, through their 

work in the schools they are able to setup effective linkages and referral 

mechanisms for evaluating school children involved in fireplay and 

firesetting activities. Classroom visits also are conducted by many other 

fire departments across the county. 

Slide Presentation. Along with classroom visits, Prince George's County, 

Maryland has developed eight multi-image slide programs on fire safety 

and prevention. A series of slide projectors coordinated by a 

microcomputer projects a three-screen video presentation with sound. 

Several of these media shows are directed at middle school students, with 

one teaching about how involvement in nonproductive firesetting can lead 

to arson arrests. This show emphasizes the legal and destructive 

consequences of participating in firesetting and arson-related activities. 

Fire department officials comment that this media presentation is wellreceived by students and teachers. 

Films. As an annual project, Seattle, Washington's Fire Prevention 

Division develops, directs and produces a fifteen-minute film on teaching 

juveniles fire safety tips. For their films they use local sports figures or 

other prominent citizens to help deliver their fire safety and prevention 

messages. These films are then used as one of several teaching aids in 

their visits to local schools. 

Assemblies. Several fire departments, including Seattle, Washington and 

San Jose, California conduct assemblies to teach fire safety and prevention 

to groups of school children. These fire departments develop scripted 

presentations focused on teaching children the dangers of playing with 

fire. Seattle utilizes a talking robot, which physically resembles a fire 

hydrant, to interact with the school children. The robot is operated by 

remote control and is programmed to answer simple fire safety questions. 

San Jose trains delinquent or truant high school students as performers and 

entertainers. These students are then utilized in a show to demonstrate 

safe fire behaviors to school children. These assemblies represent an 

efficient method for delivering fire safety messages to large numbers of 

school children. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 141 

Resource Book on Public Fire Education Programs. The US Fire 

Administration has published a resource directory listing and describing 

72 public fire education programs developed by fire departments across 

the country. It outlines the creative and innovative methods and 

approaches they have used in developing fire prevention and education 

programs. This book, Public Fire Education Today, is referenced in the 

Resource List at the end of this component. 

Decision Grid 

Table 3.2 presents the decision grid summarizing primary prevention 

programs which can be implemented by the fire service. In addition to 

National Fire Prevention Week, there are various types of media 

campaigns and school programs which represent viable options. Users 

can select one or more of these programs based on their plans for 

implementing an effective primary prevention effort in their community. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

142 Federal Emergency Management Agency/United States Fire Administration 

Table 3.2 

Primary Prevention Decision Grid Fire Service Programs 

Method Purpose Acceptability Impact Limitations 

National Fire 

Prevention 

Week 

To raise national 

awareness about fire 

safety and 

prevention 

Nationally and 

locally planned 

media events 

throughout U.S. 

Increased public 

awareness of fire 

safety 

Increased awareness 

but unclear impact 

on behavior 

Media Campaigns 

Curious Kids 

Set Fires 

Press packet 

promoting national 

media campaign on 

fireplay and firesetting 

Pilot-tested in 

several states 

Well-received by 

states looking to 

mount media 

activities 

Only a short-term 

impact on a longterm problem 

Big Fires Start 

Small 

National media kit 

designed to explain 

problem of children 

playing with 

matches 

Researched & 

developed based on 

statistics showing 

alarmingly high 

numbers of 

children playing 

with matches 

Good reception 

by local fire 

departments 

Services to help 

children must be 

available 

Fire Busters Television 

broadcasts on 

evening news 

teaching fire safety 

With minor 

adjustments in 

presentation of 

program, good 

response from 

children and 

families 

Continued 

support and 

expansion 

throughout 

Oregon 

Must be a 

cooperative 

community effort 

School Programs 

Visits Education and 

exposure to fire 

department 

Used by several 

fire departments 

throughout U.S. 

Well-received by 

students 

Short-term impact 

Slide 

Presentations 

Visual education Commonly used 

teaching method 

Good reception 

from students 

One-shot effect 

Film Visual education Effective teaching 

method 

Well-liked by 

students 

Single exposure 

Assemblies Participant 

education 

Economical 

teaching of many 

Positive response Short-term effect 

Public Fire 

Education 

Today 

Resource directory Widely distributed 

throughout U.S. 

Excellent 

resource 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 143 

Law-Enforcement Programs 

The National Crime Prevention Council has recently mounted an anticrime campaign aimed at discouraging children from participating in 

dangerous and illegal activities. This campaign involved the development 

of a mascot, McGruff, the crime fighting dog, to deliver anti-crime 

messages to children. There are kits, posters, books, and other materials 

available to law-enforcement agencies and other community 

organizations. These resources are designed to help communities build 

effective crime prevention programs. The Resources Directory at the end 

of this component contains more information on how to obtain these 

materials. 

Improving Primary Prevention Programs 

There are three major areas where improvements can be made in primary 

prevention efforts to teach children about the dangers of participating in 

unsupervised and nonproductive firestarts. First, there are virtually no 

systematic programs designed to help parents teach their children how to 

develop fire safety behaviors. Fire education can begin in the home if 

parents are aware of the activities they can do to educate their own 

children. Second, there needs to be a greater effort focused on teaching 

adolescents the dangers of participating in nonproductive firestarts. The 

majority of educational programs currently are aimed at elementary school 

children, however adolescents also must be reminded not only of the 

dangers of fireplay and firesetting, but of the potential destructive and 

legal consequences of participating in this type of activity. Finally, 

cooperative primary prevention efforts, like Portland, Oregon's 

Firebusters, can increase the visibility and impact of these programs and 

improve the chances of reducing juvenile involvement in nonproductive 

firesetting. 

EARLY INTERVENTION 

The fire service is the leading community agency involved in the 

development of early intervention programs for juvenile firesetters. The 

primary objective of early intervention programs is to identify children atrisk for participating in unsupervised fireplay and firesetting incidents. In 

addition, these programs are aimed at preventing the recurrence of firsttime firesetting episodes motivated by accident, curiosity, or 

experimentation. These objectives are accomplished by setting up shortterm evaluation, education, counseling, and referral services designed to 

stop firesetting behavior and identify related psychosocial problems. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

144 Federal Emergency Management Agency/United States Fire Administration 

There are two types of early intervention program models operated by the 

fire service. The first program model is evaluation, education, and 

referral. This approach is the one most frequently employed by fire 

departments across the country and is the recommended strategy for 

building effective juvenile firesetting programs. To implement this model, 

fire departments must establish methods for screening and evaluating the 

firesetting risk of children and their families. These methods have been 

detailed in the Screening, Evaluation and Developing the Intervention Plan 

Component. The identification of risk levels allows fire departments to 

determine the most appropriate strategies for remediating the current 

firesetting problem. If children are identified as little risk, then it is likely 

that short-term education intervention will stop any further firesetting 

behavior. Fire departments have successfully implemented a number of 

different educational programs. If youth are identified as definite or 

extreme risk, while they may benefit from educational programs, they are 

likely to need core intervention services. Fire departments must know 

how to refer firesetters and their families to the appropriate service 

agencies. 

The second program model is counseling intervention. There are some 

fire departments that not only screen, evaluate, and educate juvenile 

firesetters and their families, but also offer counseling services to stop the 

firesetting behavior and remediate the accompanying psychosocial 

problems. This counseling model requires significantly more resources to 

implement than the evaluation, education, and referral model. For 

example, special program staff, such as mental health consultants, are 

needed for training and implementing counseling services. Therefore, the 

counseling model should be utilized only by fire departments which are 

capable of developing and maintaining significant intervention efforts for 

juvenile firesetters. There are a variety of counseling methods which have 

been employed by fire departments. The selection of these methods will 

depend on the availability of resources and training expertise to help fire 

departments implement specific counseling services. Evaluation, 

education and counseling services offered by fire departments represent 

the maximum level of commitment to control and abate juvenile 

firesetting. 

At the end of this section on early intervention, a decision grid is presented 

summarizing the major aspects of both program models. It is assumed 

that fire departments wanting to establish juvenile firesetter programs first 

will select one of the two intervention models--evaluation, education, and 

referral or counseling--and then proceed to determine which specific 

version of these programs best fits their needs. This later decision can be 

based on a review of the impact and risk associated with the 

implementation of each program. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 145 

Evaluation, Education, and Referral Programs 

The following programs are examples of evaluation, education, and 

referral interventions for juvenile firesetters currently operating in fire 

departments across the country. They were selected because certain 

features of these programs represent outstanding or exceptional aspects of 

the evaluation, education and referral program model. At the end of this 

section a decision grid is presented which summarizes the major aspects of 

these programs which must be considered to facilitate their successful 

implementation. Documentation on specific programs is provided in the 

Resource List at the end of this component. 

A. The Juvenile Firesetter Program, Columbus, Ohio 

Functions. The primary purpose of this Juvenile Firesetter Program is to 

prevent juveniles who are setting fires and playing with matches and 

lighters from starting additional fires. The majority of these juveniles are 

referred from fire investigators, with a smaller number coming from 

children's services and mental health agencies. These children and their 

families are evaluated using USFA's Interview Schedules. All youth 

attend 4-6 educational sessions. This educational segment of the program 

is one of the outstanding features of its operation. Those youth identified 

as definite or extreme risk are referred for further core intervention 

services. Follow-up evaluation forms are sent every six months for two 

years to participating families and the resulting data indicate a 7% 

recidivism rate. 

Target Populations. The entire range of juvenile firesetters and their 

families can be screened, evaluated, educated, and referred for additional 

services. 

Users. This program is intended to be implemented by fire service 

personnel. 

Content. While the format of this juvenile firesetter program represents a 

standard example of the evaluation, education and referral program model, 

the educational feature of this approach deserves special mention. Prior to 

their participation in the educational sessions, juveniles complete written 

pretests designed to assess fire safety knowledge. They then attend four to 

six educational sessions at their local firehouse, depending on their age 

and the history of their firesetting behavior. Audio-visual teachings aids 

are used extensively. The Official Fire Safety Manual, containing games 

and puzzles designed to teach fire safety and prevention rules, is used with 

all youth. Separate manuals have been developed for children 4-6 years, 

7-9 years, and 9-12 years. In addition, the family does homework, 

including designing a Home Fire Escape Plan and conducting a home fire 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

146 Federal Emergency Management Agency/United States Fire Administration 

safety inspection. In the final educational meeting, children complete 

post-tests to assess the amount of increased knowledge of fire safety and 

prevention accrued from the program. This represents a comprehensive 

approach by fire service personnel to provide educational experiences for 

children at the firehouse. 

Benefits. Youth participating in this program receive excellent 

educational exposure to fire safety and prevention information as well as 

access to the appropriate evaluation and referral services. 

Limitations. There is a greater demand for this program than currently 

can be met, therefore there is a waiting list for children and their families. 

In addition, outside of recidivism data, there is no other reported 

information on the impact of the program. However, the program has 

been in operation for only two years. Therefore, as it continues to develop 

it is likely that more information on its effectiveness will be forthcoming. 

B. Operation Extinguish, Montgomery County, Maryland 

Functions. Operation Extinguish is one of the programs run by the 

Montgomery County Fire Department's Division of Fire Prevention. 

Youth are referred to fire prevention by their parents, from the youth 

division of the police department, and from the juvenile services 

administration. All juveniles are evaluated using family assessment 

methods and following the guidelines recommended by USFA's Interview 

Schedules. All children also attend fire safety classes conducted by the 

division of fire prevention. These classes represent an outstanding feature 

of this program. Families of juvenile firesetters are referred to a private 

mental health agency for at least six family counseling sessions. This also 

is a unique program feature. Firesetters and their families are referred for 

other services on an as-needed basis. Release from Operation Extinguish 

is contingent upon completion of the prescribed intervention plan. 

Target Populations. Operation Extinguish screens and evaluates the 

entire range of juvenile firesetters. However, the program reports that 

their typical child is one who is between the ages of nine and fourteen and 

has a significant history of fireplay and/or firesetting. 

Users. Fire service personnel can implement this program successfully. 

Content. Operation Extinguish has two unique program features. The 

first is a highly structured format of fire education classes. Three twohour fire safety classes are run for groups of juvenile firesetters. 

Firesetters attend the first two classes and may bring their siblings. 

Parents also attend the last class. Audio-visual aids are used along with a 

manual, A Question of Burning. Week one covers the history of fire facts. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 147 

Fire prevention, recognition of fire hazards, escape planning and survival 

techniques are discussed. Arson and arson laws in the state of Maryland 

are reviewed. The homework, to be completed by week three, is assigned 

and consists of developing a home fire escape plan. Week two focuses on 

burn injuries. Films are shown and children participate in writing 

exercises designed to help them think about the potential consequences of 

firesetting. Week three summarizes fire safety rules for parents. Escape 

plans are reviewed and the importance of knowing how to react in fire 

emergencies is discussed. By the end of the third session, both children 

and parents report being satisfied with the educational experience. 

The second unique program feature is that the majority of firesetters and 

their families are referred for at least six family counseling sessions. The 

entire family is encouraged to participate in these sessions, since it is 

likely that siblings also may be involved in fireplay and firesetting 

activities. Counseling sessions are tailored to meet the individual needs of 

families. Families participating in these sessions report that their 

communication is greatly improved as a result of these counseling 

sessions. 

Benefits. The apparent advantage of this program is that it provides a 

comprehensive evaluation and education intervention for juvenile 

firesetters and their families. In addition, the referral of families for 

counseling is a unique and important feature which may help remediate 

some of the underlying psychosocial factors related to the firesetting 

problem. 

Limitations. Apparently interest in supporting this program has waned in 

the last several months. Perhaps it would be useful for program staff to 

compile information regarding the effectiveness of Operation Extinguish 

in deterring juveniles from participating in further firesetting and other 

delinquent activities. 

C. Fire-Related Youth (FRY) Program, Rochester, New York 

Functions. The FRY program is housed in the Rochester Fire 

Department. It receives the majority of its referrals from within the fire 

department. When the program receives referrals, fire investigators 

conduct complete investigations of the firesetting incidents. In addition to 

investigating the scene and conducting a records check, investigators 

interview children and their parents. The interviews are not designed to 

draw definite conclusions about the psychosocial functioning of juveniles, 

rather they are intended to provide investigators with more information 

about the fire. The USFA Interview Schedules are used as guidelines 

during these interviews. After interviewing the parents, investigators meet 

with the child to talk about the incident and provide fire safety education. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

148 Federal Emergency Management Agency/United States Fire Administration 

The exact nature of the education depends on the age of the child. The 

majority of juvenile firesetters interviewed are referred for additional 

services. The FRY program has excellent linkages to other community 

agencies and this is an exceptional feature of this operation. The FRY 

program follows all cases until the juveniles receive the necessary 

treatment of assistance. There are two well-documented manuals 

outlining the operations of the FRY program. These manuals represent a 

second outstanding feature of this program. 

Target Populations. The FRY program evaluates the entire range of 

juvenile firesetters. 

Users. The program is effectively implemented by fire investigators. 

Content. There are two outstanding features of the FRY program. The 

first is their well-established linkages with numerous service agencies 

within their community. The FRY program can refer juvenile firesetters 

to one of four mental health agencies, the Police Department's Family and 

Crisis Intervention Team, Child Protective Services, Probation, or Family 

Court. This referral system also includes a dual waiver form that allows a 

free flow of information between the FRY program and all referral 

agencies. The solid referral network established by the FRY program 

ensures that children and their families will receive the services necessary 

to stop firesetting and remediate the related psychosocial problems. 

The second exceptional program feature is the complete documentation of 

the FRY program in two sequential manuals. These manuals not only 

describe the operation of the program, but they report investigative studies 

concerning a number of different topics including a complete description 

of the population of firesetting juveniles and explanations of their 

firestarting behavior. These manuals provide visibility and credibility for 

the FRY program. 

Benefits. This is a well-documented comprehensive program designed to 

evaluate and refer firesetting youth and their families for help in 

remediating their presenting problems. 

Limitations. This program relies heavily on the referral agencies in their 

community to provide effective services to eliminate firesetting behavior 

and the accompanying psychosocial problems. 

D. Juvenile Firesetter Program, Portland, Oregon 

Functions. The primary goal of Portland's Juvenile Firesetter Program is 

to reduce the rate of property loss and fire injuries and deaths due to 

juvenile-related fires. The Portland Fire Bureau developed their Juvenile 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 149 

Firesetter Program to work with firesetting youth from the ages of seven to 

eighteen. The program offers evaluation, education, and referral services 

to these youths. In addition, they have implemented a number of unique 

program activities including the development of a statistical resource base 

to assess the incidence and prevalence rates of juvenile firesetting in the 

community, an active radio and television media campaign to educate the 

public about the problem of juvenile firesetting, and a statewide resource 

directory listing all agencies capable of working with juvenile firesetters 

and their families. 

Target Populations. Portland's Juvenile Firesetter Program is designed to 

work with curious and recurrent firesetters. 

Users. The program can be implemented by fire service personnel. 

Content. This program offers standard evaluation, education, and referral 

services. One of its unique contributions is supporting the development of 

a statewide directory of juvenile firesetter programs and resource agencies. 

This directory provides an explanation of the service delivery system for 

treating juvenile firesetters in the state of Oregon. It lists by county the 

fire service, law-enforcement, mental health, and other agencies capable of 

providing help to juvenile firesetters and their families. The directory is 

widely distributed throughout the state, by the Oregon Council Against 

Arson, and there is a planned system for updating the information 

contained in it. The resource directory provides systematic documentation 

of the statewide availability of services for juvenile firesetters. 

Benefits. This program offers excellent services as well as participation in 

the organization of statewide efforts to identify services for firesetting 

youth and their families. 

Limitations. The program provides comprehensive services to firesetting 

youth in their community. However, it would be informative if studies 

were conducted to assess the actual impact of their program in reducing 

juvenile firesetting rates. 

Counseling Programs 

There are some fire departments that take their services one step beyond 

evaluation, education, and referral. A second program model, offering 

direct intervention services, has been applied successfully by a handful of 

fire departments. The majority of these programs provide some type of 

counseling intervention. Counseling services are viewed as an integral 

part of these juvenile firesetter programs. The following programs 

represent the range of counseling interventions currently used to work 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

150 Federal Emergency Management Agency/United States Fire Administration 

with juvenile firesetters. At the end of this section a decision grid is 

presented summarizing the salient characteristics distinguishing the 

successful application of these programs. Specific references 

documenting these programs are listed in the Resource Directory at the 

end of this component. 

A. Juvenile Firesetter Counseling Program (JFCP), Dallas, Texas 

Functions. The Dallas JFCP evaluates, educates, and counsels juvenile 

firesetters. The majority of their cases are referred by fire investigators. 

Once cases are received, parents and children are asked to voluntarily 

participate in the program. Juveniles are screened and evaluated utilizing 

the USFA Interview Schedules as guidelines. They are classified 

according to the severity of their firesetting behavior. They then receive 

one to two counseling sessions where they participate in an interview 

graphing technique which is designed to help them recognize and change 

their feelings associated with their urge to firestart. In addition, they 

participate in one or two follow-up sessions where fire safety education 

rules are discussed. Juveniles and their families can be referred to other 

agencies for services, particularly if a serious fire was set or if a different 

or longer-term intervention is deemed necessary. 

Target Populations. The Dallas JFCP handles the entire range of 

juvenile firesetters. They classify them into four major categories. The 

curious firesetters range in age from two to nine, they believe that they can 

control fire, and they do not understand its consequences. The problem 

firesetters range in age from four to 17, they understand the consequences 

of firesetting, but their firestarting represents feelings of anger, revenge, 

and spite. The delinquent firesetters set fires to cover-up other offenses 

such as burglary, theft, or homicide. The seriously disturbed firesetters 

firestart as an expression of severe psychopathology. 

Users. Fire investigators are trained to implement every phase of this 

program from evaluation, education, and counseling to referral. 

Content. The methods employed in the interview graphing sessions 

deserve particular mention. This technique requires children to describe 

the events preceding their most recent firestart, the fire, and the activities 

following the fire. These events are outlined on the horizontal axis of a 

graph. Four feelings associated with these events are indicated in different 

colors, from low to high, on the vertical axis of the graph. The feelings, 

happy, sad, angry, and scared, are color-coded. The relationship between 

events and feelings are correlated. Juveniles are taught to identify their 

feelings and use them as a signal to change their behavior. They are 

taught to recognize when their feelings are leading to the urge to firestart. 

They are taught not to act on these feelings, but to substitute different 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 151 

actions in place of their urge to firestart. These alternative behaviors also 

are listed on the graph. If, in the following weeks, the youth again feel the 

urge to firestart, and they want to act on their feelings, they are 

encouraged first to call their counselor and talk over their feelings with 

them. In this way, juveniles are taught to recognize and control the 

underlying feelings which lead to their firestarting. 

Benefits. The Dallas JFCP provides a comprehensive package of services 

within one setting for juvenile firesetters and their families. 

Limitations. This type of counseling effort is likely to be successful in 

larger fire departments where there may be more resources available to 

offer these kinds of extensive services. 

B. Cease Fire Club, Houston, Texas 

Functions. The Juvenile Firesetter Program in Houston is organized in a 

slightly different way than other fire service programs. Although headed 

by Houston's Fire Marshal, the program is subcontracted to the Cease Fire 

Club, a community-based, non-profit organization. The majority of 

juveniles are referred to the program by law-enforcement with fewer 

numbers being referred from social service agencies, parents, and 

volunteer agencies such as the Red Cross. When a referral occurs, a 

preliminary assessment of the problem is usually made by telephone. If a 

significant firesetting problem exists, the juveniles and their families are 

referred to program counselors. These counselors conduct complete 

intake evaluations, which include the application of the interview graphing 

technique outlined in the previous section. Most youth and their families 

are then recommended to participate in short-term family counseling 

sessions. If serious or dangerous problems persist, the juvenile firesetters 

and their families can be referred for additional services. 

Target Population. Houston's Juvenile Firesetter Program is set up 

primarily to treat recurrent firesetting juveniles and their families. 

Users. The program's evaluation and intervention services are designed to 

be implemented by trained mental health professionals. 

Content. The centerpiece of Houston's Juvenile Firesetter Program is 

family counseling. A family systems approach is used to identify and 

address the problems underlying the firesetting behavior. A short-term 

crisis intervention model is implemented, with most juveniles and families 

attending 15 or fewer sessions. The goal is to redirect the firesetting 

behavior into a more acceptable direction. Any set fire is viewed as arson 

and this is discussed with the family. Families usually express fear and 

concern over their own safety and the safety of their home and property. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

152 Federal Emergency Management Agency/United States Fire Administration 

Families want help to stop the firesetting behavior. Initially, counseling is 

provided on a weekly basis. As behaviors improve, sessions are scheduled 

bi-weekly and then monthly. Juveniles are released when match play has 

stopped and general behavior has improved at home and in school. If 

serious problems persist, it is recommended that further counseling be 

pursued. 

Benefits. The Houston Juvenile Firesetter Program attempts to treat 

recurrent firesetters by offering an intervention designed to remediate the 

underlying cause of firesetting behavior. 

Limitations. Funding is declining for this type of program intervention 

for juvenile firesetters. Systematic studies conducted to establish the costeffectiveness of this juvenile firesetter program would greatly enhance the 

argument for retaining funds to support this community service. 

C. The Firehawk Children's Program 

Functions. The primary goal of the Firehawk Children's Program is to 

provide a comprehensive set of services to juvenile firesetters and their 

families. These services include evaluation, education, intervention, and 

referral. The program utilizes a two-phase evaluation system in which an 

initial screening is conducted by trained firefighters using the USFA 

Interview Schedules and a follow-up evaluation is conducted by a trained 

mental health professional. Youth and families are classified according to 

risk levels, and little concern youth participate in an educational seminar 

on fire safety and prevention conducted at the local firehouse. Definite 

concern children are paired with firefighter volunteers who act as partners 

or "big brothers." Extreme risk youth are referred immediately to mental 

health of other core intervention services. 

Target Populations. The Firehawk Children's Program is designed to 

handle the entire range of juvenile firesetters and their families. 

Users. The program is intended to be set in place within fire departments, 

however, it also has been applied in other organizational settings, such as 

church groups and community-based non-profit agencies. 

Content. The intervention component of the Firehawk Children's 

Program differs somewhat from the traditional counseling modality. The 

partnership program for firesetting youth is based on the finding that the 

majority of recurrent firesetters come from homes where there is an absent 

or inattentive father. By pairing firefighter volunteers to act as partners to 

these children a void is being filled in their lives. It is assumed that the 

strength of the relationships between children and firefighters will deter 

further firesetting behavior. Firefighters who volunteer for this program 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 153 

are trained in how to establish and maintain close, effective working 

relationships with youth. Firefighters learn how to be role models for 

these children while at the same time being someone with whom these 

youth can talk and spend time. The objective of this partnership between 

firefighter and juvenile firesetter is to eliminate firesetting behavior and 

redirect this nonproductive expression of aggression toward more positive 

outlets such as activities and other recreational endeavors. 

Benefits. The major advantage of the Firehawk Children's Program is that 

it provides the fire service with a creative alternative to the more 

traditional counseling and referral services. 

Limitations. The implementation of the Firehawk Children's Program 

requires a certain level of commitment to resolving the problem of 

juvenile firesetting that many fire departments may not be willing to 

pursue. Nevertheless, preliminary data suggest that for urban 

communities, it is a cost-effective intervention service for firesetting 

juveniles and their families. 

Decision Grid 

Table 3.3 presents the decision grid summarizing the early intervention 

programs which can be implemented by the fire service. Two intervention 

models are represented--evaluation, education, and referral and 

counseling--accompanied by various program types. Users can select both 

an appropriate intervention model and a specific type of program within 

that model. Selection should be based on an analysis of the impact and 

risk associated with the implementation of each program. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

154 Federal Emergency Management Agency/United States Fire Administration 

Table 3.3 

Early Intervention Decision Grid Fire Service Programs 

Method Purpose Acceptability Impact Limitations 

Evaluation, Education, and Referral

Juvenile 

Firesetter 

Program 

Strong educational 

component with 

written materials 

A new program 

being wellreceived by 

participants 

Good follow-up 

procedures. 7 % 

recidivism 

Resource unable to 

keep up with demand 

Operation 

Extinguish 

Highly structured 

educational 

classes coupled 

with family 

counseling 

Well-received by 

participants but 

community 

support recently 

declining 

Reportedly low 

recidivism 

No follow-up studies 

to support its impact 

Fire Related 

Youth Program 

Strong interagency 

linkages and 

excellent 

documentation 

Follow USFA 

guidelines, 

acclaimed as a 

model program 

Community 

cohesiveness 

Over-reliance on 

referral chain 

Juvenile 

Firesetter 

Program 

Solid program 

with state-wide 

connection 

Part of the widely 

used and 

recommended 

USFA program 

model 

Services aimed at 

high-risk fire 

areas in Portland, 

OR 

No formal studies on 

impact of program 

Counseling 

Juvenile 

Firesetter 

Counseling 

Program 

Effective 

interview graphing 

technique 

Although utilized 

by many mental 

health 

professionals, 

only two fire 

departments have 

implemented it 

Highly effective 

in stopping 

firesetting 

Major commitment of 

resources 

Cease Fire Interview 

graphing coupled 

with family 

counseling 

Follows USFA 

model, but adds 

family counseling 

services 

Comprehensive 

services 

No formal studies 

evaluating 

effectiveness 

Firehawk 

Children's 

Program 

Partnerships with 

firefighter 

counselors 

Follows USFA 

model, but adds 

partnership 

between 

firefighters and 

children as 

program feature 

Long-term 

intervention 

approach, low 

recidivism 

Significant 

commitment of time 

and resources 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 155 

CORE INTERVENTION 

Children and adolescents involved in recurrent firesetting behavior and 

displaying serious psychopathology are candidates for core intervention 

services. In addition, youth whose firesetting is willful or malicious and 

an expression of criminal intent also are likely participants for core 

intervention. Core intervention services are those modalities which 

provide long-term help for juvenile firesetters and their families to 

eliminate firesetting behavior and remediate the accompanying 

psychopathology. There are two major modalities of core intervention, 

mental health treatment, and the probation and juvenile justice system. 

Mental Health Intervention 

Children and adolescents with histories of recurrent firesetting behavior 

and symptoms of psychopathology are likely to benefit from mental health 

treatment. These types of children may be identified initially by fire 

departments, law-enforcement, or the schools. If adequate screening and 

evaluation mechanisms are in place, these agencies should be able to refer 

these juveniles to the appropriate mental health professionals or agencies. 

Depending on the severity of the firesetting and the psychopathology, 

there are a number of mental health program models designed to treat 

firesetting youth and their families. Specific outpatient psychotherapies 

have been developed to help children presenting with firesetting as their 

primary problem. Individual family and group therapy methods have been 

developed for juvenile firesetters. In addition, there are inpatient 

programs specifically designed to treat firesetting youth. Because many of 

these program models are recently developed, there is an obvious absence 

of empirical studies demonstrating their relative effectiveness. 

Nevertheless, preliminary clinical evaluations of these methods suggest 

that they are effective in stopping firesetting behavior and making 

significant adjustments in the accompanying psychopathology. 

The following descriptions summarize the mental health modalities 

currently utilized to treat firesetting youngsters and their families. At the 

end of this section a decision grid is presented outlining the specific 

features related to the effective implementation of these procedures. 

Specific references describing the details of these program models are 

listed in the Resource Directory at the end of this component. 

A. Outpatient Intervention

Individual Treatment. The primary focus of individual psychotherapy is 

on the immediate elimination of firesetting behavior, with a secondary 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

156 Federal Emergency Management Agency/United States Fire Administration 

emphasis on adjusting or changing the underlying psychopathology. 

Cognitive-emotive and behavior therapy are the two most highly 

developed approaches utilized in treating juvenile firesetters. Both of 

these psychotherapies employ short-term (six to eight sessions) strategies 

to stop firesetting behavior. In addition, although both of these 

psychotherapies use dramatically different approaches, preliminary 

evidence suggests that they are successful in eliminating firesetting 

behavior. 

The major goal of cognitive-emotive therapy is to teach firesetters how to 

recognize the urge to firestart, interrupt the behavior before it starts, and 

substitute socially appropriate types of behaviors to express their 

underlying emotions. The primary mechanism developed to implement 

the cognitive-emotive approach is a relatively uncomplicated procedure 

called the interview graphing technique. This technique was described 

earlier because it also has been applied by the Dallas Fire Department in 

its counseling program for firesetting youth. This procedure involves 

youth constructing a written graph correlating their feelings with the 

events leading up to and following their most recent firestart. They are 

taught to recognize their feelings associated with their urge to firestart and 

stop themselves before they act on them. This graphing technique is used 

in conjunction with short-term psychotherapy focused on helping youth 

understand the general patterns of their feelings and how they influence 

and guide their behavior. One follow-up study revealed that a group of 

juveniles participating in this type of psychotherapy evidenced a 7% 

recidivism rate. Unfortunately this study did not include a control group, 

therefore it is difficult to make any definitive conclusion about the relative 

effectiveness of this psychotherapy. 

There are a number of behavior therapy approaches reported as effective 

in abating firesetting. The predominant behavior therapy methods 

employed either alone or in combination are punishment, reinforcement, 

negative practice, or satiation, and operantly structured fantasies. Two 

case studies report the successful application of various methods of 

punishment which include the use of threats, such as work penalties. 

Sometimes the use of punishment is coupled with positively reinforcing 

youth when they find and return to their parents conspicuously hidden 

empty matchbooks. Negative practice procedures, such as scrubbing the 

fire residue from a metal basin, coupled with the use of positive 

reinforcement to encourage more socially appropriate behaviors, also have 

been reported as successful in stopping severe and recurrent firestarting 

behavior. One behavior therapy case study avoided the application of 

punishment methods or negative fire experiences by utilizing a positive 

reinforcement program coupled with the implementation of operant 

structured fantasies. While data indicate that these procedures are 

effective in eliminating firesetting behavior, this evidence emerges from 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 157 

single case studies. Consequently, until replication studies are conducted, 

the widespread application of these procedures should remain guarded. 

Family Treatment. There are only three cases reported in the literature 

utilizing brief (three to six sessions) family psychotherapy to successfully 

treat juvenile firesetters. Two of the three cases employed the method of 

teaching family members how to safely ignite and extinguish matches in a 

controlled setting within the therapist's office. This controlled firestarting 

task was used as a vehicle to restructure the existing patterns of family 

communication and interaction. In particular, attention was focused on 

restoring the appropriate amount of parenting authority and re-establishing 

communication between children and their parents regarding household 

rules designed for the safety and protection of the family. In the third 

case, the child's firesetting was viewed as the overt symptom of a 

dysfunctional family system. Family therapy sessions were focused on a 

recognition of the underlying distress and helping family members to 

identify the changes that needed to happen to reshape the nature of their 

interactions. In all three cases, follow-up studies indicated the successful 

elimination of firesetting behavior, and a higher level of satisfaction 

among family members regarding patterns of communication and 

interaction. While these clinical reports are encouraging, the success of 

family psychotherapy in treating firesetting cases deserves more 

systematic application and evaluation. 

Group Treatment. There is a recently developed group therapy program 

designed specifically for firesetting youth and their families call Flame 

Out. There are two possible formats for this group therapy program. The 

first format is designed for parents of young (under six years) firesetting 

children. It is intended to be implemented in six weekly two-hour group 

sessions. Each week's group has a particular focus or theme, starting with 

a general orientation, and moving to such topics as fire safety education 

and prevention, effective parenting skills, expression of feelings, and 

home behavior management. The second format is a parents' and 

children's group, which is designed for juvenile firesetters ranging in age 

from 7 to 12 and their parents. These groups run for 10 weeks, beginning 

with a combined introductory session with both parents and children, and 

moving to separate groups for each. During these group sessions both 

parents and children learn various strategies for managing the stress which 

is hypothesized to be directly related to the occurrence of firesetting 

behavior. In addition, information on fire safety education is reviewed in 

the group session. These group therapy approaches and the stress 

management methods employed to treat juvenile firesetters and their 

families are well-documented in a training manual cited in the Resource 

Directory at the end of this component. To date, two pilot programs have 

been completed. While there have been some individual reports from 

families participating in Flame Out that firesetting behaviors have abated, 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

158 Federal Emergency Management Agency/United States Fire Administration 

more rigorous data must be compiled to determine the long-term effects of 

this program in eliminating firesetting behavior and improving the quality 

of life for these children and their families. 

Group therapy for adolescents engaged in firesetting is also conducted in 

Providence, Rhode Island. The task of the treatment is to facilitate the 

management of issues such as poor self-esteem, generalized helplessness, 

and relationships with others. Education about the dynamics of firesetting 

is also a key component. The Resource List contains the contact for 

additional information. 

B. Inpatient Intervention 

Inpatient treatment programs for firesetting youth have been influenced by 

two major types of therapeutic philosophies. The first is a more 

traditional, psychodynamic approach where the treatment emphasis is on 

the nature of the therapeutic alliance formed between children and 

program staff. Both individual and family psychotherapy are the 

techniques employed and the treatment program is long-term (ranging 

from six months to two years). The second theoretical approach is 

behavioral, where specific behaviors are identified for change and discrete 

interventions are designed to adjust these behaviors. The firesetting youth 

are the primary focus of the behavior therapy methods, with parents and 

family members included in the therapeutic endeavor once the firesetting 

behavior has been eliminated. Behavior therapy programs tend to be 

relatively short-term (four to eight weeks) and are currently the most 

widely offered inpatient approach to the treatment of juvenile firesetters. 

The most recently developed inpatient program designed specifically for 

juvenile firesetters and their families is comprised of three major phases. 

In the first phase, youth enter a hospital setting for a four week stay. 

During this time, they participate in a series of behavioral exercises in 

which a choice must be made between toys and firestarting materials. 

These exercises are observed by therapists out of the view of the children. 

If they choose matches and lighters as opposed to other non-fire-related 

toys, the therapist intervenes and conducts a debriefing. The debriefing 

focuses on helping the children realize the experienced emotions 

associated with choosing firestarting materials. The result of these 

exercises is that children are left with a mild aversion to firestarting 

materials. During the second phase intensive family psychotherapy is 

employed while the children are still hospitalized to adjust those 

environmental conditions within the family which are associated with the 

emergence of firesetting behavior. The third phase focuses on reentry into 

the family and community. Outpatient family psychotherapy is used and 

an intensive effort is made to provide special community support services 

such as schooling and structured activities. At the end of the third phase, 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 159 

it is expected that children will return to the family and social 

environment, not participate in firestarting activities, and function 

adequately within their interpersonal and social milieu. Although one 

source indicates that there have been no relapses in 100 cases treated in a 

two-year period, there have been no formal clinical or empirical studies 

conducted to examine the relative effectiveness of this inpatient approach 

in treating firesetting youth. 

Decision Grid 

Table 3.4 presents the grid summarizing the outpatient and inpatient 

treatment programs for juvenile firesetters. There are a number of 

effective treatment approaches which can be used to abate recurrent 

firestarting. Users can select the method which best suits their 

professional orientation and style of working. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

160 Federal Emergency Management Agency/United States Fire Administration 

Table 3.4 

Core Intervention Decision Grid Mental Health Programs 

Method Purpose Acceptability Impact Limitations 

Outpatient Treatment

CognitiveEmotive Therapy Recognition and 

interruption of the 

urge to firestart 

using the 

interview graphing 

technique 

Widely applied 

not only with 

firesetters, but 

with other 

delinquent 

populations 

Reportedly low 

(7%) recidivism 

with difficult 

(recurrent) 

firesetters 

No information on 

relative effectiveness 

of method 

Behavior 

Therapy 

Abate firesetting 

behavior using 

punishment, 

reinforcement, 

negative practice, 

or fantasies 

Applied in singlecase studies Highly effective 

in cases with 

reported followup 

Not applied beyond 

single case studies 

Family Therapy Improving and 

restructuring 

patterns of 

communication 

and interaction 

Three single case 

studies reported 

Effective in all 

cases with 

follow-up 

Small number of 

applications 

Group Therapy Flame Out

teaches stress and 

home management 

skills with fire 

safety instruction 

Pilot-tested Reported 

successful in 

preliminary 

stages 

New and untested 

method 

Inpatient Treatment 

Behaviorally 

Oriented Juvenile 

Firesetter 

Treatment 

Program 

Short-term 

inpatient 

evaluation and 

treatment using 

satiation, family 

therapy, and reentry activities 

Private psychiatric 

hospitals in 

California and 

Oregon 

Reported 

effective with 

low recidivism 

Labor and cost 

intensive; no followup or impact studies 

reported 

Probation and Juvenile Justice 

When law-enforcement agencies arrest juveniles for arson, the juveniles 

enter the probation and juvenile justice system. Although the specific 

methods of these systems vary form state to state, the general procedure is 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 161 

that firesetters and their families receive a comprehensive evaluation by 

probation counselors. The primary objective of this assessment is to 

determine whether the firesetting behavior represents criminal intent. If 

there is reasonable doubt regarding the criminal intent of the firesetting 

behavior, probation counselors will strongly recommend to families to 

seek counseling. In essence, counseling becomes the condition of 

probation. Families are warned that if they do not comply with the 

counseling requirement, then formal charges can be brought against their 

children. In addition, it may be recommended that these children become 

involved in restitution or payback programs. These strategies are typically 

referred to as diversion programs in that they help juvenile firesetters 

avoid detention and incarceration mandated by the juvenile justice system. 

There are two major types of diversion program models for firesetting 

youth. The first type are those programs operated for the general group of 

first-time offenders, regardless of the nature of their criminal activity. 

Although there may be no activities directed specifically at the firesetting 

problem, these programs focus on teaching juveniles and their parents 

certain skills which will help them avoid future involvement with law 

enforcement and the juvenile justice system. The second type of program 

model are those diversion efforts which offer interventions aimed 

specifically at the firesetting or arson-related activity. The majority of 

these interventions are juvenile firesetter programs operated by fire 

departments. Some local fire departments have agreed to focus part of 

their juvenile firesetter program activities on youth involved in serious 

firesetting. One example of general diversion programs and one example 

of firesetting diversion programs follow. The Resource List at the end of 

this component outlines who to contact for more information about these 

programs. 

For those juveniles for whom diversion programs have failed or whose 

firesetting clearly represents arson, detention or incarceration according to 

the requirements of the law in a juvenile justice facility becomes the 

remaining intervention option. There is one juvenile firesetter program 

designed specifically for convicted and incarcerated young arsonists. This 

program is described and the Resource Directory at the end of this 

component lists who to contact for more information. Other than this 

particular program, there appears to be no systematic effort underway to 

provide any special counseling or treatment aimed at stopping the 

involvement of incarcerated youth in future firesetting activities. 

At the end of this section a decision grid is presented which summarizes 

the major features of programs designed to help arrested or incarcerated 

firesetters. Probation and juvenile justice personnel can select an 

appropriate approach for implementing an effective diversion or education 

intervention for arsonists. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

162 Federal Emergency Management Agency/United States Fire Administration 

A. General Diversion Programs 

The First Offender Program, Dallas Texas. Juveniles who are arrested 

for arson, but who do not have a history of other delinquent activities or 

arrest have the option of participating in the First Offender Program rather 

than going to juvenile court. The First Offender Program has two major 

components. After an intake evaluation, youth are referred to one of these 

two components based on their need and the severity of their firesetting 

and other psychosocial problems. 

The first program component is short-term and involves two group 

meetings. During the first meeting children are taught decisionmaking 

skills. The underlying principle of this approach is that children do know 

right from wrong but they have made some bad decisions, which have led 

them into trouble. At the same time, parents are introduced to some 

parenting methods, which will help them increase their management skills 

in the home. During the second meeting a video presentation is given 

which reinforces the importance of parental control and the consequences 

of bad decisions on the part of juveniles. A group discussion follows and 

the parents and children are released from the program. 

The second program component is long-term and involves three phases. 

The first phase, intake, involves a comprehensive assessment which takes 

place over four meetings between counselors and juveniles and their 

families. This assessment focuses on evaluating the home, school, friends, 

and free-time of youth, and determining their strengths an weaknesses. 

Also, specific goals are defined for helping children and their families. 

The second phase, treatment, consists of five weekly group meetings in 

which juveniles and parents meet separately and together. The topics of 

these meetings include control and communication, discipline contracting, 

and praise. Parents work on home management skills while children learn 

to set specific goals for themselves. These goals involve three areas: 

physical, such as a regular exercise program; emotional, such as learning 

how to deal effectively with authority figures or controlling angry 

feelings; and intellectual, such as establishing regular study habits and 

improving study skills. The third phase of the program, follow-up, 

involves three to four monthly group meetings. The skills and goals 

parent and children learn and set are evaluated and reinforced. Through 

the use of audio-visual methods the program encourages families to 

continue applying what they have learned. Families are released from the 

program at the need of the follow-up period when program staff are 

satisfied that families have successfully met their treatment objectives. 

Juveniles and families completing the First Offender Program are awarded 

a certificate of merit. The program has no additional contact with the 

families. Statistical studies show that the local juvenile delinquency rate 

of 50% declines to 22.6% when juveniles complete this program. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 163 

B. Juvenile Firesetter Diversion Programs 

Operation Extinguish, Montgomery County, Maryland. The state of 

Maryland has enacted two strong state laws regarding juvenile firesetting 

and arson. The first law requires restitution for the first $500 in damages 

caused by fires set by juveniles. The second law holds juveniles 

responsible for their firesetting. The age of accountability for fireplay and 

firesetting is seven; at which time youth can be charged with the crime of 

arson. Enforcement of this law provides the police department and the 

juvenile justice system with the power to ensure youth and family 

participation in Operation Extinguish as an alternative to arrest and 

prosecution. Participation in the program also may come about as a result 

of being found guilty of firesetting or arson. In either case, participation 

can be combined with restitution and alternative community service. 

Juveniles participating in Operation Extinguish are between the ages of 

nine and fourteen, they have a significant history of fireplay and 

firesetting, they do not comprehend the seriousness of their firesetting 

behavior, and their parents do not understand the seriousness of their 

problem. Participation in Operation Extinguish lasts three months. 

During this time, juveniles attend three two hour fire safety classes. These 

classes have been described in detail in a previous section on early 

intervention evaluation, education, and referral programs. In addition, 

juveniles and their families attend six or more family counseling sessions 

designed to improve communication skills and prevent further 

participation in delinquent activities. Juveniles involved in fires which 

cause serious damage or those who have been found guilty of arson, 

participate in restitution and community service programs. Upon 

satisfactory completion of the program, cases are closed and the juvenile 

records of these youth are expunged. 

C. Juvenile Firesetter Programs for Incarcerated Arsonists 

Juvenile Firesetter Program, Upper Arlington, Ohio. One component 

of the Juvenile Firesetter Program in Upper Arlington, Ohio is a specific 

effort to educate juveniles incarcerated for the crime of arson. A 12 week 

educational program is offered to convicted arsonists which includes fire 

education safety inspections of facilities, field trips to fire stations, and 

visits to Children's Hospital (which includes a Burn Center), where 

children give fire hats to patients. These youth also participate in other 

fire safety activities. For example, they become involved in writing letters 

to the governor and the heads of facilities citing fire hazards, such as 

noting the absence of smoke detectors, sprinkler systems, and escape 

plans. As a result of these letter writing efforts many of these problems 

are rectified. Another example of their activities is the writing and staging 

of play on fire safety. These educational efforts are focused on teaching 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

164 Federal Emergency Management Agency/United States Fire Administration 

these youth the value of helping others. In addition, an emphasis is placed 

on exploring and developing more appropriate skills for functioning in 

their home and school environments once they are released from 

detention. This is a unique educational program focused on a high-risk 

group of youth. If these efforts can be shown to successfully abate 

firesetting in this population of youth, then similar programs should be 

encouraged on a nationwide basis. 

Decision Grid 

Table 3.5 presents the decision grid summarizing probation and juvenile 

justice programs for juvenile firesetters. The major feature of these 

programs are outlined so that users can assess the impact and risk of 

implementing these procedures. It is suggested that youth participating in 

one of these effective diversion or education programs are less likely to 

continue to engage in firesetting or other delinquent activities. 

Table 3.5 

Core Intervention Decision Grid Probation and Juvenile Justice Programs 

Method Purpose Acceptability Impact Limitations 

The First 

Offender 

Program, Dallas, 

Texas 

General diversion 

offering 

assessment, 

treatment, and 

followup 

intervention 

For first offenders, 

viable alternative 

to incarceration 

Decline of 

delinquency rate 

from 50% to 

22.6% 

Missing or diverting 

seriously disturbed 

offenders 

Operation 

Extinguish 

Montgomery 

County, 

Maryland 

Evaluation 

education, family 

counseling, 

restitution, and 

community 

service 

Acclaimed as a 

model program, 

but not yet 

replicated 

Reportedly low 

recidivism rates 

Serious commitment 

of resources, but may 

be worth the outlay 

Juvenile 

Firesetter 

Program Upper 

Arlington, Ohio 

Fire safety 

education program 

for incarcerated 

arsonists 

Supported by 

local agencies, but 

not replicated in 

other communities 

Well-received by 

juveniles and 

local 

participating 

community 

agencies 

No data on 

effectiveness 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 165 

RESOURCE LIST 

Primary Prevention 

School Curriculum and Programs

1. CTW's Fire Safety Project 

Sesame Street Fire Safety Resource Book 

Contact: Children's Television Workshop 

1 Lincoln Plaza 

New York, NY 10023 

(212) 595-3456 

2. Learn Not to Burn

Contact: National Fire Protection Association 

1 Batterymarch Park, 

P.O. Box 9101 

Quincy, MA 02269 

(617) 770-3000 

3. Knowing About Fire 

Contact: Paul Schwartzman 

National Fire Service Support Systems, Inc. 

20 North Main St. 

Pittsford, NY 14534 

(716) 264-0840 

4. Fire Safety Skills Curriculum 

Contact: Judy Okulitcy 

Program Manager 

Office of the State Fire Marshal 

3000 Market Street, NE, #534 

Salem, OR 97310 

(503) 378-3473 

5. The Juvenile Crime Prevention Curriculum 

Contact: Public Relations Department 

The St. Paul Companies 

385 Washington Street 

St. Paul, MN 55102 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

166 Federal Emergency Management Agency/United States Fire Administration 

6. Follow the Footsteps to Fire Safety 

Contact: City of St. Paul 

Department of Fire and Safety Services 

Fire Prevention Division 

100 East Eleventh Street 

St. Paul, MN 55101 

(612) 228-6203 

7. Project Open House 

Contact: Richard A. Marinucci 

Farmington Hills Fire Department 

28711 Drake Road 

Farmington Hills, MI 48331-2525 

(313) 553-0740 

8. Kid's Safe Program

Contact: Fire Safety Education Curriculum for 

 Preschool Children 

Oklahoma City Fire Department 

Public Education 

820 N.W. 5th 

Oklahoma City, OK 73106 

(405) 297-3314 

Fire Service Programs

1. National Fire Prevention Week 

2. Curious Kids Set Fires 

Contact: U.S. Fire Administration 

National Fire Academy 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

3. Big Fires Start Small 

Contact: National Fire Protection Association 

1 Batterymarch Park, 

P.O. Box 9101 

Quincy, MA 02269 

(617) 770-3000 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 167 

4. Firebusters 

Contact: Earl Diment 

Office of Community Relations 

Portland Fire Bureau 

55 Southwest Ash 

Portland, OR 97204 

(503) 823-3700 

5. Public Fire Education Today 

Contact: U.S. Fire Administration 

National Fire Academy 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

Fire Department Programs In Schools

1. Slide Presentations 

Contact: Office of the Fire Chief 

Fourth Floor East 

Largo Government Center 

9201 Basil Court 

Landover, MD 20785 

2. Films 

Contact: Juvenile Firesetter Program 

Fire Prevention Division 

Fire Marshal's Office 

301 2nd Avenue South 

Seattle, WA 98104 

(206) 296-6670 

3. Assemblies 

Contact: Juvenile Firesetter Program 

Fire Prevention Division 

Fire Marshal's Office 

301 2nd Avenue South 

Seattle, WA 98104 

(206) 296-6670 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

168 Federal Emergency Management Agency/United States Fire Administration 

Contact: Captain Henry Begroot 

Fire Prevention 

San Jose Fire Department 

4 North 2nd Street, Suite 1100 

San Jose, CA 95113 

(408) 277-4444 

Law-Enforcement Programs

1. McGruff 

Contact: The National Crime Prevention Council 

1700 K Street, N.W., Second Floor 

Washington, DC 20006 

Early Intervention 

Evaluation Education and Referral Programs

1. The Juvenile Firesetter Program, Columbia, Ohio

Contact: Lonnie Poindexter 

Juvenile Firesetter Program 

Bureau of Fire Prevention 

300 N. Fourth Street 

Columbia, OH 42315 

(614) 645-7641 

2. Operation Extinguish, Montgomery County, Maryland

Contact: Mary Marchone 

Division of Fire Prevention 

101 Monroe Street 

Rockville, MD 20850 

(301) 271-2442 

3. Fire Related Youth (FRY) Program, Rochester, New York

Contact: Jerold Bills 

FRY Program 

Rochester Fire Department 

Room 365 

Public Safety Building 

Civic Center Plaza 

Rochester, NY 14614 

(716) 428-7103 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 169 

4. Juvenile Firesetter Program, Portland Oregon

Contact: Don Porth 

Portland Fire Bureau 

55 Southwest Ash 

Portland, OR 97204 

(503) 823-3700 

Counseling Programs

1. Juvenile Firesetting Counseling Program, Dallas Texas

Contact: Inspector Carnell Mays 

Arson and Fire Inspection 

Fire Department 

2014 Main Street, Rm. 404 

Dallas, TX 75201 

(214) 670-4312 

2. Cease Fire Club, Huston Texas

Contact: Alfred Taylor 

Juvenile Firesetters Prevention Program Houston 

Cease Fire Club 

1205 Dart Street 

Houston, TX 77027 

(713) 247-1000 

3. The Firehawk Children's Program

Gaynor, J., et al. (1984). The Firehawk Children's Program: A 

Working Manual. San Francisco: The National Firehawk 

Foundation. 

Core Intervention 

Mental Health Programs

Outpatient Programs 

1. Cognitive-Emotive Psychotherapy

Bumpass, E.R., Brix, R.J., & Preston, D. (1985). A communitybased program for juvenile firesetters. Hospital and 

Community Psychiatry, 36(5), 529-532. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

170 Federal Emergency Management Agency/United States Fire Administration 

Bumpass, E.R., Fagelman, F.D., & Brix, R.J. (1983). Intervention 

with children who set fires. American Journal of 

Psychotherapy, 37, 328-345. 

2. Behavior Therapy

Carstens, C. (1982). Application of a work penalty threat in the 

treatment of a case of juvenile firesetting. Journal of 

Behavior Therapy and Experimental Psychiatry, 13, 159-

161. 

Holland, C. J., (1969). Elimination by the parents of firesetting 

behavior in a 7-year old boy. Behavior Research and 

Therapy, 7, 135-137. 

Kolko, D.J. (1983). Multicomponent parental treatment of 

firesetting in a developmentally disabled boy. Journal of 

Behavior Therapy and Experimental Psychiatry, 14, 349-

353. 

Stawar, T.L. (1976). Fable mod: Operantly structured fantasies as 

an adjunct in the modification of fire-setting behavior. 

Journal of Behavior and Experimental Psychiatry, 7, 285-

287. 

3. Family Psychotherapy

Eisler, R.M. (1974). Crisis intervention in the family of a 

firesetter. Psychotherapy: Research, Theory, and 

Practice, 9, 76-79. 

Madanes, C. (1981). Strategic family therapy. San Francisco; 

Jossey-Bass. 

Minuchin, S. (1974). Families and family therapy. Cambridge, 

MA: Harvard University Press. 

4. Group Therapy

Monaco, C. (1988). Flame Out. Unpublished manuscript. 

Phoenix, Arizona. 

Joseph Richardson 

Juvenile Firesetter Intervention Program 

Department of Public Safety 

209 Fountain Street 

Providence, RI 02903 

(401) 272-3121 (Ext. 2431) 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 171 

Inpatient Treatment 

Birchill, L.E. (1984). Portland's firesetter program involves both 

child and family. American Fire Journal, 23, 15-16. 

Probation and Juvenile Justice

A. General Diversion

The First Offender Program, Dallas, Texas 

Contact: Dallas Police Department 

Youth Section 

106 S. Harwood Street 

Room 225 

Dallas, Texas 75201 

B. Juvenile Firesetter Diversion Programs

Operation Extinguish, Montgomery County, Maryland 

Contact: Mary Marchone 

Division of Fire Prevention 

101 Monroe Street 

Rockville, MD 20850 

(301) 271-2442 

C. Juvenile Firesetter Programs for Incarcerated Arsonists 

Juvenile Firesetter Program, Upper Arlington, Ohio 

Contact: City of Upper Arlington 

Division of Fire 

3600 Tremont Road 

Upper Arlington, Ohio 

(614) 457-5080 

COMPONENT 4: REFERRAL MECHANISMS 

Introduction 

Juvenile Firesetter Programs should occupy a central position between the 

sources of juvenile firesetter (fire service, schools, parents)--the people 

who detect the firesetter--and the target agencies (counseling services, 

juvenile court, etc.)--the agencies or people who provide specialized 

treatment or sanctions to the juvenile firesetter. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

172 Federal Emergency Management Agency/United States Fire Administration 

In most programs a substantial number of firesetters will be detected by 

fire service personnel and brought to the program (which is usually 

located within the fire service) for some education/intervention; 

consequently, many of the "referrals" occur within the fire service and do 

not require the assistance of others, either in finding the firesetters or 

addressing their problems. The typical case of this kind is the young child 

without any significant pathology who is identified by a fire investigator, 

refereed to the program, "treated" in some fashion, and released. In many 

jurisdictions these may be the most frequent kind of cases. However, all 

other cases require effective referral systems so that (a) people outside the 

fire service will bring the firesetter to the attention of the program, and (b) 

the juvenile firesetter who exhibits serious problems of adjustment or 

delinquency can receive the appropriate additional resources. The 

screening and intervention activities conducted within the program 

represent the very heart of any program, but they are not at all sufficient to 

ensure that all firesetting youths are receiving the help (or sanctions) they 

deserve. Indeed, without a wide range of referral sources the program will 

never see a sizable segment of the juvenile firesetter population, and 

without the appropriate agencies and individuals to whom youths can be 

sent for additional help, many firesetters (especially the more troubled 

youths) will never receive the services they need. 

A graphic depiction of the desired referral network is shown in Figure 4.1. 

Typical sources of referrals are shown on the left, with the fire service 

typically providing most of the referrals, followed by parents, schools, etc. 

On the right are the major types of referral targets, agencies that can 

provide the appropriate additional services to the juvenile firesetter and the 

family. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Figure 4.1 

Juvenile Firesetter Referral Network 

Fire Service

Parents

Schools

Child Care 

Facilities

Police

Juvenile Justice

Social Services

Medical Centers

Mental Health 

Services

Social Services

• Counseling--Youth and 

Family

• Financial Assistance

• Housing Assistance

• Child Protective Services

Mental Health Services

• Counseling and Therapy

• Psychiatric/Clinical

• Evaluation

• Hospitals and Clinics

Criminal Justice System

• Prosecutor

• Juvenile Court

• Probation

• Detention

• Restitution

Juvenile

Firesetter

Program

REFERRAL SOURCES REFERRAL TARGET AGENCIES

Fire Service

Parents

Schools

Child Care 

Facilities

Police

Juvenile Justice

Social Services

Medical Centers

Mental Health 

Services

Social Services

•

Family

• Financial Assistance

• Housing Assistance

• Child Protective Services

Mental Health Services

• Counseling and Therapy

• Psychiatric/Clinical

• Evaluation

• Hospitals and Clinics

Criminal Justice System

• Prosecutor

• Juvenile Court

• Probation

• Detention

• Restitution

Juvenile

Firesetter

Program

REFERRAL SOURCES REFERRAL TARGET AGENCIES

Fire Service

Parents

Schools

Child Care 

Facilities

Police

Juvenile Justice

Social Services

Medical Centers

Mental Health 

Services

Social Services

• Counseling--Youth and 

Family

• Financial Assistance

• Housing Assistance

• Child Protective Services

Mental Health Services

• Counseling and Therapy

• Psychiatric/Clinical

• Evaluation

• Hospitals and Clinics

Criminal Justice System

• Prosecutor

• Juvenile Court

• Probation

• Detention

• Restitution

Juvenile

Firesetter

Program

REFERRAL SOURCES REFERRAL TARGET AGENCIES

Fire Service

Parents

Schools

Child Care 

Facilities

Police

Juvenile Justice

Social Services

Medical Centers

Mental Health 

Services

Social Services

•

Family

• Financial Assistance

• Housing Assistance

• Child Protective Services

Mental Health Services

• Counseling and Therapy

• Psychiatric/Clinical

• Evaluation

• Hospitals and Clinics

Criminal Justice System

• Prosecutor

• Juvenile Court

• Probation

• Detention

• Restitution

Juvenile

Firesetter

Program

REFERRAL SOURCES REFERRAL TARGET AGENCIES

Federal Emergency Management Agency/United States Fire Administration 173 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

174 Federal Emergency Management Agency/United States Fire Administration 

Several points of this figure deserve special attention. First, it shows a 

large number and variety of possible referral sources an target agencies. 

Although these may vary widely across jurisdictions, it is important that 

the program give serious consideration to developing referral 

arrangements with all such agencies and groups. Second, two of the three 

key target agencies--social services and mental health agencies--may also 

serve as referral sources as well. Third, this depiction is necessarily an 

over simplification of the actual sequence of events involved in many 

referrals. For example, as shall be discussed below, the arrangements 

among the criminal justice agencies, the program, and the mental health 

and social service agencies can be quite complicated, involving several 

decision points and transfers for any one case. Fourth, some referral 

mechanisms will be for the purpose of merely recording and tracking 

juvenile firesetter cases that are not actually seen by the program. 

Identifying Referral Sources and Target Agencies 

The foundation for the referral mechanisms is laid in the early stages of 

program planning and development. Indeed, because the initial 

establishment of effective referral mechanisms occurs in the planning and 

coordination stage, the reader is encouraged to consult that section of the 

Guidelines for additional information on the initial development of referral 

sources (e.g., parents) requires an effective public relations campaign, the 

section on publicity and outreach is also very relevant to this topic. 

The first step in the development of effective referral mechanisms is the 

identification of all potential referral sources and target agencies. The 

types of agencies and groups shown in Figure 4.1 should serve as a start 

for the identification of referral sources and agencies to be developed. 

Once a list of referral types is developed, the program should complete a 

worksheet providing the names of specific organizations, a description of 

the preferred referral arrangement, the individuals who will serve as the 

primary contact or liaison to the program, and their addresses and 

telephone numbers. 

To some degree, much of the identification process will have been 

accomplished during the planning and coordination stage. However, the 

individuals from the various agencies who will serve as the functional 

contacts for referrals may be different from those who are first involved in 

planning and coordination and the actual approval of the referral 

relationship. Therefore, it is likely that at least two levels of agency 

officials will be involved in the development of these mechanisms: (1) 

Relatively high-level officials with the authority to bind the agency to a 

referral agreement, and (2) individuals who will have continuing 

responsibility for the operation of the referral mechanism. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 175 

Although the selection of referral agencies will depend on the particular 

nature of the juvenile firesetter problem in the area, virtually all programs 

in jurisdictions of medium-to-large size should explore the possibility of 

referral arrangements with all the types of agencies listed in Figure 4.1. 

The only exceptions will be small jurisdictions that do not have social and 

mental health service agencies or the multiple levels of the criminal justice 

system. If counseling and therapy services are not available locally, the 

program should investigate the possibility of referral arrangements with 

such agencies in neighboring towns and cities. 

The target agencies selected will also be dependent, at least to some 

degree, on the nature and severity of the problems of the juvenile 

firesetters; e.g., the extent to which the youths display serious problems of 

adjustment and delinquency, whether family counseling is required, etc. 

We suggest, however, that the referral mechanism be arranged (at least the 

groundwork laid) for all the major target agencies so that if the need 

arises, the resources will be there. 

When soliciting source referral agencies, one need not be as concerned 

with the quality of the particular agency as with target agencies (although 

the quality of source agencies is also important). Target referral 

agencies--places to which the firesetters are to be sent for special 

services--should be screened carefully or quality. If they are government 

operated (e.g., a community mental health center) there is less concern 

about quality, since these organizations typically have to meet standards 

that are carefully developed and regularly monitored. Private social 

service and mental health organizations (which are increasing in number) 

and individual practitioners should be carefully screened before sending 

them referrals. Practitioners should be certified and/or licensed in their 

respective fields--social worker, psychologist, etc. If the organizations 

have referral relationships with other programs or institutions in the area, 

you can call them and ask for their opinion of the quality of services. 

You should also examine the particular capabilities and capacities of the 

target referral agencies--are they equipped to handle the cases you may be 

sending them? 

Contacting Referral Agencies 

The source and target agencies should first be contacted by telephone and 

mail to present the basic idea to them. The emphasis should be placed on 

the special needs of the firesetter population and the mutual benefits of a 

referral arrangement for the program, the agency, the firesetter and his/her 

family, and the community at large. Face-to-face meetings should then be 

arranged to discuss the desired referral arrangement. The central purpose 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

176 Federal Emergency Management Agency/United States Fire Administration 

of these meetings is twofold: (1) To convince the agency of the 

importance of a referral arrangement; and (2) to communicate the nature 

of the referral relationship. For source referrals, it is important to provide 

detailed guidance on the characteristics of the youths to be sent to the 

program and the circumstances under which they are to be referred. For 

target agencies, it is important to describe the types of youth that will sent 

to them and the services they are likely to need. 

Some juvenile firesetter programs have gone to extreme lengths to 

convince agencies to send referrals to the program. In Rochester, the 

program told agencies that if they did not agree to send referrals to the 

program, "the next death caused by a juvenile firesetter would be on their 

conscience." Although this tactic is not appropriate for all circumstances, 

programs should adopt a programmatic approach, doing whatever works 

(within ethical boundaries). Another approach is to make use of the 

personal and political connections that the program has with influential 

securing the cooperation of other public safety officials. Once the 

program has gained a toehold in the mental health or educational 

community, supportive members of those communities can be helpful in 

recruiting other individuals and agencies into the referral network. 

Developing Detailed Referral Agreements 

After the agencies have agreed in principle to the referral arrangement and 

the details of the arrangement have been discussed, a written agreement 

should then be drawn up that specifies clearly the nature of the 

relationship and the specific responsibilities of each party. These 

agreements need not be elaborate legalistic documents; in most situations 

a single-page agreement will suffice. In some instances, initial agreements 

may be unwritten, oral agreements, but written statements of 

understanding should be developed at some point. 

At some point in the discussions, the liability issue should be discussed in 

some detail with the agency. Written waivers of liability may be 

appropriate in certain cases. If in doubt about the proper course of action 

with respect to liability, you may want to consult a knowledgeable 

attorney. 

The referral agreements will vary according to the particular agency and 

the nature of the relationship. In some cases the agency may agree simply 

to provide the names of the youths and pertinent information on their case/ 

e.g., a juvenile court handling an older, multiple offender. With major 

institutions like the school system, the agreement may include a 

description of the types of youths to be referred, along with a plan for 

disseminating information about the referral arrangements throughout the 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 177 

system. Indeed, an important part of the development of agreements with 

large, complex institutions like the schools and the criminal justice system 

will be a careful examination of the flow of juvenile firesetters through the 

system--how and by whom they are identified--in order to ensure that the 

organization itself can identify and refer nearly all juvenile firesetters. 

The establishment of a referral agreement is only the beginning of a 

referral relationship between the program and the agency. The 

arrangement will be effective only so long as it is cultivated and 

maintained through continuing contact with agency officials. In 

particular, it is important to provide timely informative feedback to the 

source referral agencies about the status of youths referred to the program-

-results of screening, intervention outcomes, referrals out to other 

agencies, etc. Periodic meetings with the representatives of all agencies 

who are part of the juvenile firesetter referral network will also help to 

maintain the relationships, and will also provide a vehicle for addressing 

any problems before they become serious. Case conferences are one 

possible strategy for maintaining communication and strengthening the 

referral network. 

Some juvenile firesetter program have parents sign waivers allowing the 

referral agencies (both referral source and target referral agencies) to share 

information with juvenile firesetter program. These waivers or releases 

(see the end of this chapter for example) permit the juvenile firesetter 

program to inform the referral source that the youth was assessed by the 

program staff and allows the program to forward the results of their 

assessment to a treatment agency. In addition, these releases allow target 

agencies, such as mental health facilities and child protective services, to 

apprise the juvenile firesetter program of the status of a case. This 

exchange of information will enable program staff to monitor each case 

and ensure that referral linkages are successfully accomplished and no 

youth falls between the cracks. Problems have developed in some 

jurisdictions when youths are referred to the juvenile firesetter program 

and the referral source is never informed about the outcome of the case. 

Differences Across Types of Jurisdictions 

As with virtually any facet of the juvenile firesetter program, the nature 

and extent of referral mechanisms will be dependent upon the 

characteristics of the community in which it operates. Key characteristics 

influencing the referral mechanism include: (a) the nature and severity of 

the juvenile arson problem, (b) the size of the jurisdiction, and (c) the 

availability of relevant resources. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

178 Federal Emergency Management Agency/United States Fire Administration 

The central factor in this regard is probably the size of the jurisdiction, 

which may range from small towns in rural areas to major metropolitan 

areas. The discussion above is most relevant to the medium-to-large cities 

where most of the juvenile firesetting is concentrated. In small, rural 

towns the problem of juvenile firesetting is likely to be less severe than in 

the larger cities--both the incidence of firesetting and the seriousness of 

the youth's problem--so a huge network of complex referral networks will 

probably be neither needed nor available. The major types of referrals as 

shown in Figure 4.1 are applicable to small towns as well, although the 

sheer number of agencies and individuals will be considerably fewer than 

in the larger cities. Consequently, the work of developing and maintaining 

the referral network is likely to be less difficult and time-consuming. On 

the other hand, many of the target agencies where the youths are sent for 

special services may be located in other towns and cities. Identifying 

these agencies and working out practical referral arrangements with them 

may require considerable time and effort tracking down the best and most 

appropriate resources. With respect to the counseling and therapy 

resources, the program may consider identifying one or two individual 

therapists (rather than entire agencies) who could provide most of the 

services. 

RESOURCE LIST 

Cole, R.E., et al. (1984). Juvenile Firesetter Intervention. Report of the 

Rochester, New York FRY Program Development Project. New 

York: Department of State Office of Fire Prevention and Control. 

Cole, R.E., et al. (1986). Children and Fire, Second Report of the 

Rochester, New York Fire Department FRY Program Development 

Project. New York: Department of State Office of Fire Prevention 

and Control. 

COMPONENT 5: PUBLICITY AND OUTREACH 

Purpose 

The Publicity and Outreach component will describe how juvenile 

firesetter programs can develop a public information and education 

campaign to raise the public awareness about juvenile firesetting and the 

juvenile firesetter program. Surprisingly, many communities are often 

unaware of the juvenile firesetter problem or misinformed about the 

characteristics of firesetters. Parents may be reluctant to obtain help for 

their children suspected of firesetting for fear that they will be "put away." 

What many parents do not realize is that the majority of fires set by 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 179 

children are set out of curiosity. Without proper identification and 

education, however, simple curiosity can have deadly consequences. 

The juvenile firesetter program has a responsibility to the community to 

inform them that a program exists to help juvenile firesetters. It is 

important for the community to understand that juvenile firesetter 

programs are designed to provide education for young firesetters and 

identify and refer troubled firesetters to counseling if necessary. Many 

juvenile firesetter programs are hindered because the community is 

unaware of the services they provide. This component will outline 

strategies that can be used to inform and educate the public about the 

program and the services it provides. 

A note of caution--juvenile firesetter programs must be fully prepared to 

handle the request for information and referrals generated from a publicity 

campaign. Programs must take care not to publicize anything they are not 

prepared to provide. The juvenile firesetter program will lose credibility 

quickly if the program staff say they can provide prompt assessment and 

education to firesetters and then place juveniles on waiting lists because 

they do not have adequate staff. 

Strategies 

Pamphlets, brochures, and posters. At a minimum, juvenile firesetter 

programs should develop a simple brochure to describe the program and 

provide parents and other members of the community with a telephone 

number to call for additional information. Examples of juvenile firesetter 

brochures can be found at the end of this chapter. For brochures, 

pamphlets, and posters, the old adage "less is more" applies. The 

materials should be simple, with one or two major messages. These 

materials should briefly highlight the juvenile firesetter program's services 

and provide a contact for individuals to call. The juvenile firesetter 

program staff should consider soliciting funds, services (e.g., printing), or 

in-kind contributions from local businesses to defray the cost of design, 

production, and mailing. The coordinating council described in the 

Program Management component may help the juvenile firesetter program 

with fund-raising for these types of public relations activities. 

The brochures can be distributed through the schools, local Parent/Teacher 

Associations, pre-schools, day-care centers, and pediatricians' offices. 

Stores may allow the brochure or poster to be displayed in a store window 

or cashier's desk. Brochures or pamphlets should also be sent to all 

community organizations, service organizations, hospitals, physicians, and 

government agencies that work with juveniles. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

180 Federal Emergency Management Agency/United States Fire Administration 

Newspaper, TV, and radio exposure. The most effective way to 

publicize a juvenile firesetter program is through local news media 

exposure. For example, Columbus, Ohio's juvenile firesetter program was 

suffering because the public was unaware of its existence. With the help 

of the local television news media and newspapers, the fire department 

was able to inform the public about the problem of juvenile firesetting and 

the services offered by the program. Program staff gave interviews about 

the local juvenile firesetter problem and explained how the community 

could use the Columbus Juvenile Firesetter Program. 

The juvenile firesetter program staff cannot wait for the media to come to 

them. They must go to local newspapers, radio stations, and television 

stations. If the juvenile firesetter program wants to use the local media, 

the program coordinator or spokesperson will have to call or meet with 

news reporters, assignment editors, and local news show producers. It is 

the spokesperson's job to "sell" the story to local media, explaining the 

importance of getting information about the juvenile firesetter program to 

the community. The spokesperson needs to have a clear understanding of 

the message the program wants to convey to the public and be able to 

convey that message to the local media. 

The spokesperson should have three or four key pieces of information to 

convey. Examples may include messages such as, 1) the majority of 

firesetters are curious children who need education, 2) the key to 

providing services to firesetters, whether curious or troubled, is 

identification and assessment, 3) children playing with fire is a very real 

and dangerous problem, 4) parents should not be afraid to seek assistance 

if they suspect that their children are playing with fire, or 5) the juvenile 

firesetter program is designed to provide assessment, education and 

referral jurisdiction. A second key requirement is knowing the target 

audience. A message targeting parents may be different than a message 

targeting community agencies. The issue of target audience will be 

discussed further in the section on Public Service Announcements. 

Juvenile firesetter programs should consider writing brief act sheets and 

press releases, which can be made available to the local media. Fact 

sheets can be used to give the media background information about the 

juvenile firesetter program. Fact sheets are usually brief and can be 

updated as necessary. A press release is a brief (one page) announcement 

of a newsworthy story or event. The release gives the important 

information about the event to the media. Every release should have the 

name, address and telephone number of the juvenile firesetter program. 

Examples of fact sheets and press releases can be found at the end of this 

chapter. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 181 

An excellent resource on how to work with the media was written and 

published by the National Crime Prevention Council (NCPC). The book, 

Ink and Airtime, provides ideas and step-by-step guidelines on how to 

write press releases, fact sheets and articles. The book also tells readers 

how to get their information on radio and television and how to 

systematically develop a media campaign. 

Juvenile firesetter programs can also benefit from the information in 

media kits developed by the U.S. Fire Administration (USFA) and the 

National Fire Protection Association (NFPA). The USFA's "Curious Kids 

Set Fire" and the NFPA's "Big Fires Start Small" are described in the 

Intervention Services component. Both media kits contain information on 

the nature and extent of juvenile firesetting, which can be used to educate 

communities about the problem of juvenile firesetting. 

One way to get media's attention is when a juvenile firesetting incident has 

occurred. Parental interest and media awareness are heightened after such 

an event. A description of the program and its services can be used as a 

sidebar to the story about the incident. In addition, if the juvenile 

firesetter program staff have identified themselves to the media, they may 

be interviewed and asked to give an expert opinion about juvenile 

firesetting. This is again an excellent opportunity to discuss the juvenile 

firesetter program (see the end of the chapter for examples of articles). 

The important thing to remember is that no juvenile firesetting incident 

should be reported in the media without also mentioning the juvenile 

firesetter program. 

In addition to newspapers, radio, and television, juvenile firesetter 

programs can also use community newsletters or magazines, newsletters 

of major corporations, and university and college newspapers to publicize 

the program. The program staff can write short articles about the juvenile 

firesetter problem and the steps the program has taken to alleviate the 

problem (an example of a short feature article can be found at the end of 

the chapter). Program staff can then meet with the editors of the 

newsletters and magazines to discuss the articles. These types of 

publications are designed to serve the community and highlight 

community programs and activities and can be an excellent way to educate 

the community about the juvenile firesetter program. 

Public Service Announcements. Public service announcement (PSA's) 

can also be used to inform the community about the juvenile firesetter 

program. They have the potential to reach a wide audience. PSA's 

provide information about a problem or program without trying to sell a 

product. One of the greatest advantages of PSA's is that the radio and 

television time are donated by the media. Competition for media time and 

space, however, is very tough and stations are cutting back on the amount 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

182 Federal Emergency Management Agency/United States Fire Administration 

of airtime they are willing to devote to PSA's. PSA's must, therefore, be 

well thought out and creative. 

Several fire departments and the National Fire Protection Agency (NFPA) 

have developed "generic" or open-format PSA's. These are PSA's that 

describe the problem of juvenile firesetting in general, but allow the local 

program to "customize" the PSA by leaving space at the end for 

information about how to contact the local juvenile firesetter program. 

The PSA developed by the NFPA entitled, "Got a light, keep it out of 

sight," can be ordered through local NFPA representatives. The Phoenix 

Fire Department also has an open-format PSA developed by Fire-Pal. The 

Phoenix Fire Department has made the PSA available to local juvenile 

firesetter programs for a reproduction fee. 

Juvenile firesetter programs may want to develop their own PSA's. Before 

developing a PSA, the juvenile firesetter program staff must decide who 

they want to reach--their target audience--and the best way to reach them. 

Two of the largest, relatively untapped, sources of referrals are parents and 

school personnel. PSA should be designed to capture the attention and 

support of these two groups. 

The juvenile firesetter program staff will need to decide on the content of 

their message. PSA's are usually short, 15-30-second ads that focus on a 

specific message. The content of the PSA message will vary according to 

a number of different criteria, including target audience (parents, children, 

teachers, etc.), nature of the juvenile firesetting problem in the community, 

and the goal of the PSA (education, referral to the program, etc.). Some 

PSA's, targeted toward parents, describe misconceptions about juvenile 

firesetters. One such misconception is that they are "bad" kids or that they 

have deep-rooted psychological problems. Although some juvenile 

firesetters are troubled and need counseling, the majority are young 

children who need fire safety education. Other PSA's are used to inform 

the public that juvenile firesetting is a real and deadly problem that, in 

many cases, can be avoided. Still others may address kids and warn them 

about the dangers of playing with matches and lighters. Regardless of the 

message, the PSA should give the audience a specific name and telephone 

number to contact for more information. 

Unfortunately, although the media donates PSA time and space, 

developing a PSA is not a low cost venture. Programs with limited funds 

will need to look to the community for funds or services. Companies may 

be able to donate paper, tapes, personnel, video equipment, or other 

valuable materials in lieu of money. Programs unfamiliar with producing 

audio and videotapes may want to consider using PSA's, which have 

already been developed. The vehicle used to promote the juvenile 

firesetter program (radio or television) will depend largely on the amount 

of resources available. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 183 

If the resources and expertise are available, the juvenile firesetter program 

will still have to compete with other agencies for the media time and 

space. Program personnel should address this problem directly by going 

to local newspapers and radio and television stations and meeting with the 

public service staff. The juvenile firesetter program director or another 

staff member will need to explain the severity of the problem and the 

importance of eliciting community support for the juvenile firesetter 

program. Ink and Airtime advises program staff to go the these meetings 

armed with all of the information available, including local and national 

statistics, evidence of program success, and endorsements from prominent 

members of the community. 

Speakers bureaus, hot lines, and other services. The juvenile firesetter 

program or the coordinating council can establish other services to 

promote the program. For example, juvenile firesetter programs in 

Columbus, Ohio and San Jose, California have established speakers 

bureaus. These bureaus are comprised of individuals who have expertise 

in one or more areas of fire safety and prevention. These individuals 

volunteer their time to speak to community groups, schools, services 

organizations, and other interested groups. The speakers can provide 

valuable information and promote the use of the juvenile firesetter 

program. 

The Juvenile Firesetter Prevention Task Force, Inc. in Columbus, Ohio 

also maintains a Juvenile Firesetter Care Line where parents can receive 

information and help for their children. Volunteers from the community 

can be trained to man the hot-line and assist parents. 

Partnerships 

The nature and extent of the juvenile firesetter program publicity and 

outreach campaign will be limited to the resources available to the 

program. Programs with limited money and manpower have formed 

partnerships with community organizations and local businesses to acquire 

the necessary services, materials, and funds. The community can offer an 

unlimited wealth of resources. Corporations may donate money or 

sponsor specific promotional activities or products. As noted in the 

Program Structure component, the juvenile firesetter program staff should 

appeal to a corporation's sense of civic mindedness and self-interest when 

attempting to solicit donations from corporations. Contributing money to 

better the community is basically good business. The juvenile firesetter 

program coordinator should also request assistance from individual 

community members. Individuals with expertise in writing, advertising, 

audio and visual communications, design, and other skills can be asked to 

donate their skills. The problem of juvenile firesetting is a community

problem that cannot be alleviated without the assistance of the community. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

184 Federal Emergency Management Agency/United States Fire Administration 

RESOURCE LIST 

Ink and Airtime 

National Crime Prevention Council (NCPC) 

1700 K. Street, N.W., Second Floor 

Washington, DC 20006 

Public Service Announcements 

Fire Pal 

c/o Phoenix Fire Department 

520 West Van Buren 

Phoenix, AZ 85003 

National Fire Protection Association 

1 Batterymarch Park 

Quincy, MA 02169 

(617) 770-3000 

Media Kits 

"Curious Kids Set Fires" 

U.S. Fire Administration 

National Fire Academy 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

"Big Fires Start Small" 

National Fire Protection Association 

1 Batterymarch Park 

Quincy, MA 02169 

(617) 770-3000 

Newsletters 

"Hot Issues" 

State Fire Marshal 

4760 Portland Road, N.E. 

Salem, OR 97305 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 185 

COMPONENT 6: MONITORING SYSTEMS 

The purpose, content, format, and use of systems for monitoring juvenile 

firesetters and firesetting incidents are covered in this component. While 

many juvenile firesetter programs have developed some internal system to 

monitor their caseloads, others simply maintain individual case files with 

no systematic way to track cases, determine final dispositions, report to 

funding agencies, etc. Very few have systems capable of being used for 

evaluation purposes. As described in this component, simple monitoring 

systems are recommended for all juvenile firesetting programs regardless 

of size. They need not be elaborate, expensive, semi-comprehensible 

computerized systems; both manual and simplified computer systems can 

be perfectly adequate for careful monitoring. 

Purpose 

Monitoring systems serve different purposes, depending on the 

information they contain and the uses to which they are put. At the most 

elemental level, a management information system is needed for case 

tracking, caseload analysis, and reporting of program operations and 

results. A Management Information System (MIS) should include case 

characteristics of the firesetter and the firesetting incident, services 

rendered, dates of key events, and the final disposition of the case. It is 

used as a management tool to monitor individual cases. Determining the 

status of each case at any given point and ensuring that needed treatment 

has been completed. An MIS provides the means for summarizing and 

analyzing the program's caseload (the number of cases handled, case type, 

firesetter characteristics, number and type of services rendered, etc.), 

tracking and reporting the number and type of program activities 

(presentations given, etc.), and providing data for annual reports, 

evaluations, and funding agencies. Most juvenile firesetter programs 

maintain some version of an MIS, or at least have the basic ingredients 

(such as case records) for the making of one. 

Extending the MIS to include recidivism and other follow-up data 

provides the basic building blocks for an evaluation system. An 

evaluation system would contain all of the information above plus followup data on firesetting recidivism and other problems such as delinquency, 

school or family problems, etc. The evaluation system is an extension of 

the MIS, rather than a separate system. Much of the data in such an 

evaluation system may come from the program's routine follow-up 

contacts with families of firesetters and the referral agencies to which they 

are referred. It provides the basic data needed for self-evaluation and 

program monitoring, as well as those needed for an independent 

evaluation of the program. Some juvenile firesetter programs, such as 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

186 Federal Emergency Management Agency/United States Fire Administration 

Houston's have routinized systems for tracking recidivism and judging the 

effectiveness of program efforts, and will be used to illustrate the purposes 

and use of an evaluation system. 

The third type of monitoring system suggested for juvenile firesetter 

programs is an incidence reporting system. The purpose of an incidence 

reporting system is to record basic information on all known juvenile 

firesetting incidents, whether or not the firesetter is identified and handled 

by the juvenile firesetter program. This system would provide the basic 

data needed to monitor jurisdiction-wide rates of juvenile arson and 

firesetting and gauge the effectiveness of education extension of the 

routine records kept by fire service officials, and ideally, would include 

firesetting incidents that have not come to the attention of law 

enforcement and fire officials. 

Central Elements of the Monitoring Systems 

The case information and other data to be kept in each of the proposed 

three systems are described in this section. The development, form, and 

use of the systems--data collection issues, whether systems should be 

manual or computerized, which agency should maintain the system, 

analysis and reporting, etc.--are described in the following section, 

"System Development and Use." 

Management Information System. The data to be included in the 

Management Information System are drawn from the individual case files, 

primarily form intake, screening, and assessment instruments, and from 

other program records (perhaps newly created for this purpose). There are 

four categories of data included in an MIS: 

I. Case characteristics 

a. Source of referral 

b. Age, sex, race, family status of firesetter 

c. Details of the firesetting incident--motive, presence of 

others, location of fire, materials used, damage estimate, 

injuries, deaths 

d. Past firesetting incidents 

e. Initial assessment after screening (e.g., little, definite, or 

extreme risk) 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 187 

II. Services rendered 

Dates, content, and length of educational sessions; dates, purposes, 

and agencies of referral(s); number and type of counseling 

sessions; details of other services (mentor pairing, restitution, 

community service, visits to burn units, etc. 

III. Case disposition 

a. Dates and outcomes of all services rendered, gathered 

through routine reporting by all cooperating agencies or 

direct follow-up 

b. Status of case in criminal justice system 

IV. Program Activities 

a. Education/Prevention activities, school-based or 

community or other--type, number, attendance, content 

b. Training for others in the field--type, curriculum, number 

trained 

c. Resource/Materials development 

d. Other--Media coverage, Task Force participation, etc. 

The first three categories, case characteristics, services rendered, and case 

disposition information, are the most important elements of the 

Management Information System. The data will be as accurate and 

complete as the individual case files and other program records. Each 

case should have a case file, which would contain intake forms, screening 

instruments, and disposition information in each case file. Several 

examples of forms used by exemplary programs can be found at the end of 

the chapter (Upper Arlington forms, A.1; Columbus, A-2; Fort Worth, A3; and Charlotte, A-4). Screening instruments are reviewed and presented 

in Component 4. 

Evaluation system. Data for an evaluation system requires follow-up 

activities with police, fire, prosecution, courts, and probation agencies; 

schools; parents; social service agencies; and private treatment facilities. 

Data collection procedures are discussed in the following section; the 

following information on all cases handled is to be included in the 

evaluation system. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

188 Federal Emergency Management Agency/United States Fire Administration 

• Firesetting recidivism--information on any further firesetting 

incidents. 

• Delinquency--any and all acts of vandalism, stealing, etc. 

• School problems--truancy, chronic tardiness, disciplinary 

problems, academic and behavioral problems, etc. 

• Family/home problems--running away, lack of parental control, 

etc. 

• Personal and interpersonal problems--emotional and behavioral 

problems, poor peer relationships, etc. 

Incidence reporting system. Like the evaluation system, the incidence 

reporting system requires information from a variety of sources, although 

the fire department is clearly the primary source. The incidence reporting 

system should cover the jurisdiction of the juvenile firesetter program--

e.g., a city, county, etc. It will include all known or suspected juvenile 

firesetting incidents, whether or not they are reported to the authorities 

(data collection is discussed in the following section). The system would 

include information on: 

• Firesetting incidents--date, location, ignition materials used, 

items/structures ignited, damage estimate, injuries, death, reported 

or not, reasons for not reporting if known. 

• Known or suspected firesetters--age, sex, motive, presence of 

others, past incidents. 

System Development and Use 

Management information and evaluation systems. The development 

and use of the management information and evaluation systems will be 

covered here under one heading. The evaluation system should be 

considered simply an extension of the MIS because the data collection, 

computerization, and other issues are quite similar. The fire department is 

best equipped to build and maintain these systems, and in most instances 

is the home of the juvenile firesetter program. Programs outside the 

formal law enforcement system (which may include those housed in the 

fire service) may have problems obtaining data due to confidentiality 

concerns and may not have sufficient expertise or equipment, especially if 

the system is computerized. In Houston, however, where the juvenile 

firesetter program is outside the law enforcement system, confidentiality 

appears to pose no problems for data collection and information sharing. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 189 

Contractual agreements between the agencies involved spell out the 

services required. 

Cooperation and coordination from all agencies is needed to build and 

maintain a comprehensive monitoring and evaluation system. The 

responsibility of each agency in regard to reporting requirements and 

providing data should be spelled out in interagency agreements. For a 

developing program, monitoring issues should be identified from the start 

and built into discussions among involved agencies from the inception of 

program planning. These issues include confidentiality, policies or 

regulations that prohibit sharing information, routinized data collection 

procedures, and resistance to participating in data collection because of 

time constraints of lack of resources. 

Each agency may have confidentiality concerns, at minimum, or statutory 

regulations that limit the individual information they may share with 

others. Schools, in particular, will be very concerned about releasing any 

information on students. Law-enforcement agencies, particularly 

probation and the courts, are severely limited in the extent to which any 

information on juveniles can be provided to outsiders, and in some 

jurisdictions, the fire and police departments are considered outsiders. 

While these concerns may be mitigated if the monitoring system is 

maintained by fire officials within the juvenile firesetter program, 

confidentiality protections should be reviewed and safeguarded. Access to 

records should be reported outside of the program. 

Each agency involved in the juvenile firesetter program must make a 

commitment to inform the program about particular events concerning 

youth in the program. The data collection effort should not be 

burdensome; simple reporting forms can be developed to facilitate case 

tracking and disposition (see the end of the chapter for examples). In 

Houston, for example, counseling agencies submit monthly reports on 

clients referred to them by the juvenile firesetter program (see B.1) and 

Child Protective Service reports quarterly on the number of family 

sessions held and progress made. When a family terminates counseling, 

the entire case file kept by the counselor is returned to the juvenile 

firesetter program. In Portland, the program follows up with both the 

parents and the referral agencies within a month or two after referral to 

confirm that the recommended contact has occurred. 

The management information and evaluation system may be kept 

manually, but since personal computers have become increasingly 

prevalent in the workplace, computerization is advised. A manual system 

may suit a small program perfectly, if its caseload is not large and its 

reporting requirements are small. Simple logs, carefully organized and 

kept up to date, will provide a small program with basic information very 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

190 Federal Emergency Management Agency/United States Fire Administration 

quickly. Computerization is needed when either the caseload is too large 

to handle summary computations easily and accurately or when reporting 

requirements are frequent and/or detailed, making interim computations 

and status reports cumbersome to produce. When a program reaches 

somewhere between 75 and 100 cases per year, computerization is 

probably warranted. 

If operating on a manual system, key information from case files should 

be placed on monthly activity logs that enable summaries to be easily 

calculated. For example, the sample log on the following page will tell 

you at a glance the number of cases handled in July, their referral sources, 

and initial intervention steps. With minor calculations, the average age 

and other information about the firesetter and firesetting incident can be 

summarized. A program developing a manual MIS should decide what 

information is to kept on logs, after reviewing their management 

information (dates, referral sources, individual, and incident 

characteristics) and one to record referral, intervention, and disposition 

data. A log should be used as a "tickler system," enabling program staff to 

quickly view the status of a case and monitor it for the delivery of 

intervention services. The log used by the Portland program (see the end 

of the chapter) can be used to monitor cases, noting when referrals were 

made and when follow-up is needed. 

In a computerized system, information from case records would be entered 

directly into a computer using a database management program (e.g., 

dBase). Simple queries on a case-by-case basis can be made through the 

database program, such as the date of referral to the program, and many 

database programs enable more complex queries to be made easily, such 

as the number of cases referred to the Community Mental Health Center. 

Tables, summary statistics, and routine reports can be produced by 

programming through the database program. Statistical packages such as 

Systat or SPSS are probably not needed for monitoring purposes, although 

their statistical capabilities may be helpful in producing specific 

information needed by a juvenile firesetter program. 

One advantage of a computerized system is that it provides a basic 

database from which information can be drawn, sliced anyway the 

program desires. For example, manually kept logs can provide a program 

with a running total of the year's caseload. But if new questions or needs 

arise--to look at referral sources during a given quarter or investigate 

whether kids 13 or over have caused more serious fires than those under 

13, for example--the hand tallies can become burdensome and inaccurate. 

Such information would be at your fingertips in a computerized system. 

To maintain an MIS capable of providing a full picture of juvenile 

firesetting in a given jurisdiction, computerization is needed. A 

computerized database can contain much more information than a manual 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 191 

system (the results of screening tests and details of the firesetting incident, 

for example) and therefore answer much more complex questions (such as 

do second-time firesetters do better with inpatient or outpatient 

treatment?). Without a computerized system, these questions require the 

hand culling of individual case files. On the other hand, computerized 

systems take care and feeding; data must be entered on a timely basis and 

one must know how to get information out of it without expending 

substantial time in training or programming. 

July 1993 

Name Age Sex Fire 

Location 

Property 

damage 

amount 

Injury 

Y/N 

Screened 

Y/N Intervention Referred 

from 

Referred 

to 

A generic computer system could be developed by a central 

agency (such as the U.S. Fire Administration/FEMA) at 

relatively low cost and tailored to each program as needed. 

Alternatively, a juvenile firesetter program might hire local 

experts (or find volunteers among local computerniks) to 

develop a computer program. We feel most juvenile 

firesetter programs will have the in-house expertise needed 

to enter data and operate the system on an ongoing basis. It 

should not be a time-consuming job; rather only an hour or 

two a week should keep the system current. 

The analysis produced via the computerized system or summarized 

manually in regard to the management information system should enable a 

program to answer questions such as the following: 

1. How many cases have been handled this year relative to last year? 

2. What are the individual and family characteristics of the juveniles 

handled? 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

192 Federal Emergency Management Agency/United States Fire Administration 

3. What are the characteristics of the fires set by the juveniles 

handled by the program? 

4. Which referral agencies are used the most? 

5. How long, on the average, are juveniles and families in treatment? 

To extend the MIS to become an evaluation system, follow-up activities 

must take place with a number of key agencies to determine the long-term 

effectiveness of the intervention strategies in terms of recidivism. For 

evaluation purposes, a program needs to know, minimally, of any 

recurrence of firesetting behavior, and should want to know about juvenile 

delinquency, continued problems at school or home, etc. Quarterly 

contacts should be made with the family and key agencies for a year or 

two after the precipitating incident to inquire about recidivism and related 

problems. In the Houston program, cross-reference checks are made 

among participating agencies to look for recidivists and the program 

director makes monthly phone calls to the family for a year to check on 

the juvenile's progress. Other programs have formally conducted surveys 

of families to explore recidivism issues and what the family felt about the 

juvenile firesetter program and the referral services that may have been 

offered. Follow-up forms used by the Portland (D.1), Upper Arlington, 

9D.2), and Columbus (D.3) programs are can be found at the end of the 

chapter. 

The key agencies include the police and fire departments, courts and 

probation, schools, parents, social service agencies, and public treatment 

facilities. The follow-up may consist of routine reporting as done in 

Houston or periodic phone calls to determine if the agency has had any 

further contact with the juvenile and, if so, for what reasons. Parents are 

probably the best single source of follow-up information, if sufficient 

rapport has been built to enable the parents to report any additional 

delinquent behaviors or other problems. Telephone contact should be 

made with the parents rather than sending an impersonal form. 

These recidivism data should be added to the computerized database or 

manual logs as they are gathered. Together with the MIS data, this 

information forms the basis for a comprehensive evaluation. The 

information is obviously valuable to the program, to assess its own 

effectiveness and the effectiveness of participating agencies. An 

independent evaluator will want to verify the information and collect more 

detailed information on treatments and outcomes, but the MIS will provide 

the basic building blocks for an outside evaluation. Finally, the MIS data 

are easily available when preparing annual reports, proposals, news 

releases, etc. 

Incidence reporting system. Incidence reporting system, as discussed 

previously, are valuable for analyzing the full problem of juvenile 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 193 

firesetting and determining where services are needed and where services 

(education, particularly) have been effective. Since fire departments will 

place the basic systems in place needed to maintain an incidence reporting 

system, the real challenge is in data collection. In too many jurisdictions, 

there is no means to identify fires set by juveniles among all fires set. 

A juvenile firesetting incidence reporting system should contain fire and 

individual information as previously presented. The data should be 

gathered via existing records or new forms developed for this purpose, 

from all fire departments covering jurisdictions of interest depending on 

the areas served by the juvenile firesetter program. The Portland, Oregon, 

program is building a statewide database on juvenile firesetters. The form 

used by participating fire departments can be found at the end of the 

chapter. Portland has also conducted a risk analysis of the city to identify 

high-risk areas for juvenile firesetters and implement education/ 

intervention strategies as appropriate. The State of New York, in 

conjunction with the Rochester program, is also developing a statewide 

computer system. 

In addition to gathering and analyzing reported juvenile firesetting 

incidents, methods to assess the incidence of unreported fires are needed. 

Several options are available. One way is to identify and survey 

organizational entities (primarily schools and parents organizations) that 

record firesetting incidents that are small and not reported to the fire 

department. 

Another, more basic assessment of the juvenile firesetting problem is to 

survey youth directly to gather information on their firesetting behavior. 

Juvenile firesetting is substantially underreported, and many youth set 

fires that never come to the attention of parents or authorities. 

Anonymous surveys of students in the schools (as conducted by the 

Rochester program) are probably the best single source of information on 

juvenile firesetting incidents as well as fireplay activities that do not result 

in actual fires. Strict anonymity must be upheld for truthful self-reports to 

result. This type of survey will provide information on the full extent of 

the juvenile firesetting problem in a jurisdiction and is as valuable as 

reported fire statistics. 

Because of the volume of data and need for summary statistics, the 

incidence reporting system should be computerized. In many 

departments, the creation of this system will be relatively easy. Fire 

incidence reports that are routinely computerized may be sorted to reflect 

just the juvenile problem. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

194 Federal Emergency Management Agency/United States Fire Administration 

Summary 

This component describes three types of monitoring systems: 

management information systems, evaluation systems, and incident 

reporting systems. Monitoring systems, such as the Management 

Information Systems (MIS) described in this component enable the 

juvenile firesetter program to track individual cases and determine the 

status of a case to ensure that needed services have been provided. In 

addition, such systems provide a means for summarizing caseloads, which 

can be used in annual report, evaluations, and funding agencies. 

Monitoring systems do not have to be elaborate computerized systems to 

provide the program with the information it needs. Simple manual 

systems can enable programs to carefully monitor their cases. Evaluation 

systems are extensions of the MIS and include information on firesetting 

recidivism and other problems such as delinquency, school, and family 

problems, etc. This information can be used for program self-evaluation 

and monitoring to determine the effectiveness of the juvenile firesetter 

program. Incident reporting systems allow jurisdictions to accurately 

record information on all juvenile firesetting incidents regardless of 

whether they are referred to the juvenile firesetting incidents regardless of 

where they are referred to the juvenile firesetter program. 

All juvenile firesetter programs, regardless of size, should have some 

system for monitoring their cases. As the component notes, monitoring 

systems can provide valuable information about case status and can assist 

programs assess to effectiveness of their services. 

COMPONENT 7: DEVELOPING RELATIONSHIPS WITH THE JUSTICE 

SYSTEM 

The juvenile firesetter program needs to develop relationships with all of 

the key agencies that work with juvenile firesetters. As noted in the 

Referral Mechanisms component, these agencies include police, social 

services, schools, mental health, and the juvenile justice system. It is the 

relationship with the juvenile justice system, which will be the focus on 

this component. Too often juvenile firesetters are referred to the juvenile 

justice system and never come to the attention of the juvenile firesetter 

program. Juvenile firesetter programs need to be aware of all incidents of 

firesetting so that no juvenile firesetter falls through the cracks. The 

juvenile firesetter program is in a unique position of being able to assess 

all firesetters and track them through referral agencies. In addition the 

juvenile firesetter program can be a resource for probation, juvenile court, 

and correctional facilities. The juvenile firesetter program's potential as a 

resource to the juvenile justice system, however, is based on strength of 

relationship between the program and the justice agencies. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 195 

Purpose 

The purpose of this component is to provide information to assist 

programs in developing effective relationships between the juvenile 

firesetter program and the justice system. Specific objectives of this 

component are the following: 

• to help the juvenile firesetter program identify and treat the 

delinquent firesetter; 

• to develop working relationships between the juvenile firesetter 

program and specific agencies of the criminal justice system 

including probation, family court, prosecutor's office, and juvenile 

court; and 

• to help the juvenile firesetter program better assist delinquent 

firesetters in residential correctional facilities. 

Model approaches that have been used in three cities--Rochester, NY, 

Charlotte, NC, and Portland, OR--are summarized below and detailed 

descriptions of these approaches can be found at the end of this 

component. Recognizing that each program will differ in such areas as 

State law, program structure, and manpower, programs should review 

these models and consider the procedures most appropriate to their 

particular program and jurisdiction. 

Rochester, New York

All fires set by juveniles are investigated by fire investigators assigned to 

the Fire Related Youth (FRY) Program. Investigators approach every case 

of juvenile firesetting as a criminal investigation. After collecting 

information about the case, the investigators meet with the youth and 

provide fire safety education. In Rochester, all juvenile firesetters come to 

the attention of the FRY program prior to being referred to other agencies, 

including juvenile justice. Cases may be referred to prosecution as a last 

resort to get services to children in need or when the child has engaged in 

numerous other delinquent activities. The FRY investigators work very 

closely with the Probation Office and the Presentment Agency. The 

Probation Intake Unit will handle the case first. Intake Unit staff will 

decide whether the case can be "adjusted" without going to court or 

whether the case will be referred for prosecution. If adjustment is being 

considered, the probation department will consider the youth's risks and 

strength. Probation staff may refer the juvenile to a mental health or social 

service facility. Cases referred to prosecution are petitioned through the 

Presentment Agency to Family Court. The presentment attorneys work 

very closely with the FRY investigators and rarely lose a case sent to 

prosecution. Before a case gets to court, the judge assumes that every 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

196 Federal Emergency Management Agency/United States Fire Administration 

effort has been made to keep the youth out of court. If the judge finds that 

there is enough evidence to justify the charge, he/she will ask Probation to 

conduct a family evaluation and make a recommendation to the court. 

Often the judge will also consider the FRY investigator's recommendation. 

Charlotte, North Carolina

All arson or suspicious fires are investigated by the Arson Task Force. If 

a juvenile is suspected, the Task Force members often try to persuade the 

youth to confess to setting the fires. How the case proceeds often depends 

on whether the juvenile confesses. If the juvenile does not confess, the 

case is referred to the District Attorney's Office for prosecution. If the 

juvenile does confess, the Task Force then decides whether to proceed 

with prosecution or refer the juvenile directly to the juvenile firesetter 

program which is housed in another division of the fire service. The 

decision is based on a number of considerations including whether the 

incident is a first offense and whether the youth destroyed another's 

property. If the youth is referred to court, the case is referred to a Court 

Intake Counselor. The intake officer will meet with the parents and the 

youth and decide whether the petition for prosecution is warranted. The 

intake officer can recommend a deferred sentence under the condition that 

the youth participate in the juvenile firesetter program. If the case goes to 

court, the youth is interviewed by a court counselor who makes a 

recommendation to the court. The court counselor can also recommend 

that the youth participate in the juvenile firesetter program. If such a 

recommendation is accepted by the court, it then becomes a court order. 

The judge may also court order the youth to other agencies or facilities. 

Portland, Oregon

In Portland, Oregon, all juvenile firesetters are reported to and investigated 

by the Portland Fire Bureau. In 1986, the Fire Bureau developed a 

program to reduce the incidence of juvenile firesetting. Juveniles 

apprehended for fire related offenses may be referred directly to the 

juvenile firesetter program or they may be referred to the program via the 

juvenile justice system. Those referred to the justice system are more 

likely to be the older juvenile who has been 1) involved in a more serious 

incident, 2) identified as a "troubled firesetter," or 3) identified as a repeat 

offender. If a youth is referred to juvenile court, the case is assigned to an 

intake probation officer. The intake officer will review all of the records 

and make a decision to close the case; divert the case to the juvenile 

firesetter program, social service agency, mental health professional, or 

another diversion program; or refer the case to the District Attorney's 

Office. If the district attorney chooses to prosecute the case, a petition of 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 197 

charges is filed with the juvenile court. At this point the case is assigned 

to an adjudication officer, who prepares the case summary and 

recommendations. If the judge finds that a crime was committed, he/she 

must decide whether to sentence the juvenile to a correctional facility, 

mental health facility, or place the juvenile on probation. As a condition 

of probation, the juvenile may be court ordered to attend fire safety 

education through the juvenile firesetter program, or participate in mental 

health counseling. 

Relationships with the Probation Department 

Within the justice system, a representative of the probation department 

(intake unit) is usually the first person to encounter the juvenile firesetter. 

Therefore, the juvenile firesetter program must inform and educate the 

probation department, especially those assigned to the intake unit, about 

the program. For example, a representative from the juvenile firesetter 

program should make an in-service education presentation to the staff of 

the probation department. 

The staff of the probation department should receive periodic updates, fact 

sheets, newsletters, or yearly updates as to the status of the juvenile 

firesetter program. Prepared by the juvenile firesetter program staff, these 

communications can contain statistics, case studies, intervention 

techniques, list of placement facilities, referral methods, etc. The updates 

are designed to keep the probation department abreast of what the juvenile 

firesetter program is doing. 

The juvenile firesetter program should plan and coordinate a procedure by 

which the probation department refers all juvenile firesetters to the 

program for an evaluation if such an evaluation is warranted. This process 

will ensure that all juveniles are identified and evaluated and offered 

educational intervention, if appropriate. One way to plan and coordinate 

such a procedure which has been used is some jurisdictions would be for 

the probation department to assign a particular probation officer (most 

likely in the intake unit) to handle all cases involving juvenile firesetters. 

That intake officer would be able to work closely with the juvenile 

firesetter program staff. 

In addition, a representative from the juvenile firesetter program routinely 

should be present at all conferences concerning the treatment and/or 

placement of a juvenile firesetter. Input from the juvenile firesetter 

program will be invaluable in discussions with child protection agencies, 

mental health agencies, correctional facilities, and representatives from 

community placements. 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

198 Federal Emergency Management Agency/United States Fire Administration 

Relationship with the Law-Enforcement, Legal, and Judicial 

Community 

The members of the law-enforcement, legal (prosecutive and defense), and 

the judicial community must be aware of, and educated about, the juvenile 

firesetter program. Certainly, the juvenile firesetter program can be an 

invaluable referral source for the district attorney's office, trial lawyers, 

and juvenile judges. 

Effective methods of informing and educating the members of these 

professional communities include supplying them with brochures 

explaining the program, conducting in-service education seminars, and 

sending fact sheets, periodic newsletters, and annual reports about the 

activities of the program. These methods will not only inform and 

educate, but will also continue to enhance the professional image of the 

juvenile firesetter program. Such an image is imperative if the 

professional community is to use the services of the juvenile firesetter 

program. 

Relationships with the Juvenile Correctional Institutions 

Some juvenile firesetters will be placed in juvenile correctional 

institutions for rehabilitation. The juvenile firesetter program can also 

educate the various correctional institutions about the existence and the 

contents of the program. Similar relations should be fostered with the 

correctional institutions as with the probation department. 

For example, the juvenile firesetter program should be aware that a 

juvenile firesetter is being held at a particular correctional institution. 

Also, the juvenile firesetter program, once it is aware that a juvenile 

firesetter is to be admitted to a correctional institution, should inform the 

institution that the program has evaluated and/or treated the juvenile. A 

dual waiver, which is signed by the juvenile firesetter's parent or guardian, 

would allow the juvenile firesetter program to share information they may 

have about the juvenile with the correctional facility and allow the facility 

to share information with the program. 

The juvenile firesetter program should provide periodic in-service 

education programs to appropriate staff of the correctional facilities, many 

of whom are likely to hold inaccurate perceptions of the juvenile firesetter. 

For example, the overwhelming majority of correctional facilities, as well 

as community placements such as halfway houses, believe that the 

juvenile firesetter is a highly dangerous individual. They perceive the 

juvenile firesetter as one who is always on the verge of acting out and 

starting a fire. In actuality, the juvenile firesetter is less likely to act out 
Implementation 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 199 

by starting a fire once he/she is placed in a structured environment and 

away from the psychological and sociological factors that helped produce 

the original firesetting behaviors. 

The juvenile firesetter program should maintain an open line of 

communication with the correctional facilities. Correctional facilities 

rarely maintain specific treatment programs for juvenile firesetters. One 

such program, which is described in detail in the Intervention Services 

component, is operated by the Upper Arlington, Ohio Juvenile Firesetter 

Program. The Upper Arlington program offers a 12-week educational 

program to juvenile incarcerated for arson. Juvenile firesetter programs 

should encourage and participate in the development of similar programs 

for juveniles. If a structured program is not possible within the 

correctional facility, then juvenile firesetter programs should make its staff 

readily available to the staff of the correctional facility to establish 

individual treatment plans for specific cases. 

Summary 

Overall, a coordinated link between the juvenile firesetter program and the 

justice system is imperative. The juvenile firesetter program can be an 

important asset to the Probation Department, District Attorney's Office, 

Juvenile Court, and Department of Corrections. Unfortunately, many 

juveniles "slip through the cracks." In many cases, the juvenile firesetter 

program is unaware when a juvenile has be diverted to juvenile justice and 

the justice system is often unaware that a juvenile firesetter program exists 

in their jurisdiction. The juvenile firesetter program can play a vital role 

in ensuring that all juvenile firesetters are identified and evaluated and can 

be a vital source of educational services and information to the juvenile 

justice system. 

RESOURCE LIST 

Cole, R.E., et at. (1984). Juvenile Firesetter Intervention. Report of the 

Rochester, New York FRY Program Development Project. New 

York: Department of State Office of Fire Prevention and Control. 

Cole, R.E., et al. (1986). Children and Fire, Second Report of the 

Rochester, New York Fire Department FRY Program Development 

Project. New York: Department of State Office of Fire 

Prevention and Control. 

Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 201 

TRAINERS' GUIDE 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

202 Federal Emergency Management Agency/United States Fire Administration 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 203 

TABLE OF CONTENTS 

PAGE 

Introduction................................................................................................................ 205 

Part I: How Trainers Can Use and Modify this Curriculum..................................... 205 

Part II: The Juvenile Firesetter/Arson Control and 

Prevention Program Curriculum ................................................................... 213 

Appendix A: Additional Resource Materials............................................................ 227 

Appendix B: Effective Preparation and Delivery of Presentations .......................... 231 

Appendix C: Sample Workshop Evaluation Instrument........................................... 245 

Appendix D: Case Studies ........................................................................................ 255 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

204 Federal Emergency Management Agency/United States Fire Administration 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 205 

INTRODUCTION 

This Trainers' Guide is designed to be used with The Juvenile 

Firesetter/Arson Control and Prevention Program Guidelines for

Implementation. These materials were produced as part of a two-year 

developmental initiative designed to assess, develop, test, and disseminate 

information on promising approaches for the control and prevention of 

juvenile firesetting and arson. The Guidelines for Implementation outlines 

specific strategies for program management, screening and evaluation, 

intervention services, referral mechanisms, publicity and outreach, 

monitoring systems, and developing relationships with the justice system. 

It also provides resource materials gathered from many juvenile firesetter 

programs. 

The Trainers' Guide describes how to use the information in Guidelines 

for Implementation, as well as other resources, to develop a 

comprehensive juvenile firesetter prevention training workshop for the 

various agency professionals who work with juvenile firesetters. The 

Trainers' Guide includes a detailed curriculum for the training program 

and provides strategies for modifying the curriculum to meet specific 

needs, selecting instructors, selecting participants, and using instructional 

materials. 

PART I: HOW TRAINERS CAN USE AND MODIFY THIS CURRICULUM 

A. Introduction 

Firesetting by juveniles is a very serious national problem. Recent 

statistics reported by the FBI indicate that close to half of all arson 

arrestees are juveniles. We also know that many juveniles--especially the 

younger ones--are not arrested for their firesetting acts but are handled in 

other ways by juvenile justice and mental health organizations. As a 

result, the real incidence of juvenile firestarts is surely in excess of the 

number suggested by the FBI arrest figures. 

The process by which juvenile firesetters are dealt with varies from one 

community to the next, and involves a diverse mixture of professionals, 

paraprofessionals, and volunteers. Not long ago, it was the firefighter or 

arson investigator who functioned as the "first responder" to this unique 

problem. More recently, the range of specialized disciplines ahs grown to 

include diagnostic personnel, psychologists and psychiatrists, juvenile 

justice officials, and probation officers. Regardless of the length of the list 

of professionals available to contribute to a juvenile firesetter program in a 

community, each process begins with a "needs analysis" to determine the 

kind of expert attention juvenile firesetters may need. In many 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

206 Federal Emergency Management Agency/United States Fire Administration 

communities, limited resources may result in a wide range of services 

being provided by fire service professionals while other services may not 

be provided at all. In other more developed programs, the fire service 

professional provides assessment and education, and, when more 

extensive services are needed, can refer the firesetter to the appropriate 

agency (mental health, juvenile justice, etc.). 

The scope and quality of services, together with the experts who provide 

them in a jurisdiction, form the basic ingredients that are available as 

components of each program. Some jurisdictions will have all the 

ingredients in the form of multi-agency and professional commitment to 

the program; others may have to strain just to come up with the resources 

to interview the firesetters in their jurisdiction. In general, those who 

develop firesetters intervention programs are dependent on mental health, 

fire service, and juvenile justice experts who are readily accessible in the 

community—and willing to become involved in the program. 

In general, there are a limited number of new programmatic ingredients 

available in a community that can go into its firesetter intervention 

program. A primary resource, often overlooked because of its simplicity, 

is coordination. Coordination involves not the creation of new resources 

but the bringing together of existing ones into a unified firesetter 

intervention program. Many equal partners from public agencies and 

private disciplines must be brought together in order to bring about 

enough coordination so that the firesetter program meets the needs of its 

diverse clientele. At first, it may seem like a difficult task to make the 

different professionals aware of their essential roles, while still 

acknowledging their professional or organizational autonomy. Something 

other than organizational authority is needed to knit the various disciplines 

together. 

A logical first step is to heighten the sensitivity of the diverse 

professionals through an educational program, which here is discussed as 

a comprehensive training exercise. This training experience can serve 

many purposes, all of which address the need to approach the issue of 

coordination informally through a spirit of cooperation and a process of 

continuing communication. In addition, the training exercise can serve as 

a springboard to identify processes by which different disciplines and 

agencies can interact more effectively, based on application of those 

principles in other "model" firesetter intervention programs. 

This guide addresses the educational requirements that form the 

foundation of a comprehensive firesetter program. The guide covers the 

question of how to set into motion each of the components in a unified 

manner, so that after training, the requisite services are performed by 

individuals with an idea of how to work together better and more 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 207 

productively than before. In order to speak to the broadest possible 

audience, the guide is written for personnel who either function full-time 

as trainers or who will, as one of their many tasks, oversee the 

development of a firesetter training program in their agency or 

professional organization. 

Fire intervention programs involve specialized and diverse disciplines. IN 

one community, for example, diagnostic and treatment services may be 

provided by two specialists; in another, by a single generalist covering 

more than one base. Therefore, the guide focuses on discussing what 

should be done and why, without specifying which specialist, or what 

agency, should be responsible for providing each service or fulfilling each 

function. The guide is intended as a blueprint for building a training 

program around a coordinated juvenile firesetter intervention program, 

piece by piece, and then presenting it to an audience of specialists or 

generalists. 

The curriculum guide presents a process that unites the responsibilities of 

the fire service with those of law enforcement, juvenile justice, and mental 

health agencies and professionals. Local needs for juvenile firesetter 

programs will vary from one community to another, as will resources that 

are available for conducting the training and for augmenting the local 

firesetting program. Therefore, this basic curriculum may require some 

paring and modification when it is used as a basis for local training. 

A major challenge is to retain as much of the core program as possible 

while realizing that time, instructional resources, and other constraints 

may result in paring more of the program than its sponsors might prefer. 

In order to help trainers organize and deliver this instructional program, 

this curriculum guide covers the central issues on how to modify and 

condense the training, as well as finding instructional resources to fully 

round out the training program. 

B. Adapting the Curriculum to Meet Specific Needs1

This curriculum is designed to orient fire service, law enforcement, 

juvenile justice, and mental health personnel to the requirements of 

interacting with juvenile firesetters and their immediate families in a 

coordinated manner. This program begins by stressing the 

interdependence of the fire service, law enforcement, juvenile justice, and 

 1

 For background reading on developing a curriculum through refining educational and training 

objectives, see Robert F. Mager, Preparing Instructional Objectives, 2nd ed. (Belmont, California: Feardon 

Publishers, 1975). Development of a training program that addresses a somewhat related problem is 

covered in Model Curriculum and Trainer's Guide: The Detection and Investigation of Arson-for-Profit, 

by Clifford L. Karchmer, (Washington, D.C.: National Technical Information Service, 1981). Available 

from the National Technical Information Service (NTIS), Springfield, VA 22161; Accession No. PB82-

140682; $17.00 (paper). 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

208 Federal Emergency Management Agency/United States Fire Administration 

mental health disciplines on the firesetting issue, and maintains that 

emphasis throughout. Because of this focus, the curriculum is best suited 

to instructional setting which utilize "process oriented" training; that is, an 

instructional approach in which the coordination of the interactions and 

relationships between and among professional experts is as important as 

the technical substance of the firesetting issue. 

Personnel in specialized assignments will probably find some topics in this 

curriculum more germane to their work than others. Agency sponsors 

should try to develop a sensitivity to the issue of the relevance of the 

curriculum to all members of the audience. In order to adapt the 

curriculum to the needs of personnel with highly specialized functions 

(e.g., psychiatrists, juvenile probation officers, or administrations of 

custodial treatment programs), sponsors might poll the participants when 

they are invited or as soon as they confirm their attendance. General 

questions could include the reasons for attending the proceeding, their 

expectations for skill development, and in general, what they hope to gain 

from attendance. If the sponsoring agency has the time, its personnel 

might administer a structured questionnaire. However, friendly telephone 

calls can accomplish the same objective, and offer the advantage of 

personal communication with a potential participant who may not have 

made up his or her mind about signing up for the proceeding. 

Another way to speak to the needs of specialized personnel is to include 

reading material or provide advanced or highly technical bibliographic 

references on the range of issues that the trainees notify the sponsor are 

prominent issues of concern to them. One way to modify the curriculum 

for a particular group is to plan early to select instructors most directly 

suited to the needs of that distinct group. Special break-out sessions or 

workshops can be added for this purposes. 

C. Finding, Recruiting and Orienting Instructors

Finding instructors who are qualified to address each of the juvenile 

firesetting curriculum topics can be a difficult task. One of the best ways 

to match instructors with training needs is to begin by listing several 

candidates. Then, jointly with someone who is either working on 

development of the course or engaged directly in juvenile firesetter 

treatment or counseling, discuss the strengths and weaknesses of each 

candidate. Always remember that it is important to select instructors on 

the basis of explicitly criteria--including reputation as a speaker and ability 

to deliver technical information in a manner that is understandable to nonspecialists in the audience. Above all, it is essential to review the 

backgrounds of instructors as communicators of knowledge, as well as 

their records as investigators, therapists, etc. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 209 

Programs should consider inviting a local official (e.g., Fire Chief, Public 

Safety Director, or State Fire Marshal) or local expert (clinical 

psychologist, juvenile court judge) to speak at the training workshop. 

Such speakers can add appeal to the seminar by providing specific 

information about the jurisdiction's juvenile firesetter problem. Key 

officials, such as the heads of agencies, can also add credibility to the 

program and the training seminar by pledging their support in a keynote 

address. 

Some people who make the rounds of lecture circuits are popular because 

they have developed reputations as colorful speakers, capable of raising 

interest and bringing people from different agencies or disciplines together 

around a common purpose. However, although exciting presentations can 

be important, some of those types of lectures can be seriously devoid of 

technical content. One way to anticipate this situation is to look for an 

exciting speaker with a persuasive style and message, and place that 

person early in the program or for a featured luncheon address. Once the 

stage is set with that "cooperation" and "coordination" message, the 

program can get on with the real business of training, and begin to unfold 

the technical knowledge that participants will need once the program is 

over. 

Regardless of whether instructors will be paid or volunteer their services, 

it is essential to set forth for them a clear, concise statement that covers 

exactly what you want them to cover in their presentation. This is not a 

minor issue, because instructors with busy schedules often have little time 

to prepare new material, and without prompting of some sort by the 

sponsoring agency, may end up delivering a standard lecture that misses 

your course objective. One way to approach this matter is to communicate 

what you want the speaker to discuss as clearly and with as much detail as 

possible--summarize what you want covered in one paragraph in a letter of 

invitation or confirmation. It is also immensely helpful to each speaker to 

receive summaries of what all the other speakers will cover. This is 

usually done in order to avoid duplication and enable each speaker to think 

of ways of reinforcing the material that other speakers will be covering. 

Conscientious instructors usually appreciate efforts to help them structure 

their presentations. For one thing, a well-received lecture will enhance the 

reputation of the speaker in his or her professional sphere. However, as 

busy as such speakers may be, they usually find the time to prepare for a 

course if they understand what is expected of them. 

If instructors work under a contractual arrangement or some type, it should 

be possible (an is certainly advisable) to include a contract provision that 

covers both expected preparation and prior mutual agreement on subject 

matter. Many training programs pay instructors for a day of preparation. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

210 Federal Emergency Management Agency/United States Fire Administration 

If the agency's training budget can support these provisions, it is a 

worthwhile investment of time and money. 

In many locations, local fire service agencies and mental health 

organizations have sponsored programs on arson issues, ranging from 

cause and origin determination to arson fraud and juvenile firesetting 

intervention. Key organizations to touch base with initially are the state 

and local chapters of the International Association of Arson Investigators 

(IAAI) and the county mental health association. Local offices and 

chapters can often provide information on experts who may be able to 

serve as program developers and instructors. 

D. Selecting Participants 

Whether your juvenile firesetter training course maintains a selective 

admission policy depends upon local conditions of interest, personnel 

availability, funding, and time. Assuming that it will be possible to select 

a short list of participants from a longer list of applicants, Table 1 presents 

some criteria to consider. 

Table 1 

Participant Selection Criteria 

Criterion Decision 

Length of involvement in 

juvenile firesetter prevention 

Novice personnel may be the ideal 

audience you are seeking, or may be too 

new to be able to appreciate the 

material. 

Prior relevant training Students may have attended other 

courses as basic or advanced as the one 

you are planning, and therefore may 

derive little or not benefit. 

Degree and type of 

specialization 

Some specialist may have little if 

anything in common with the other 

participants. Their jobs may be so 

specialized that parts of the seminar 

may not apply to their work and may be 

uninteresting to them. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 211 

In many cases, participants who are more advanced than the majority of 

the other attendees should still be encouraged to attend. They may be very 

helpful to the sponsor for several important reasons. First, they may serve 

as competent evaluators of the course for the sponsor, in the event that the 

sponsoring agency wants to conduct repeat training sessions. Because of 

their experience, these participants are often good judges of the value of 

each instructional segment for less experienced participants. Second, they 

can make sure of their peer status with other participants to assist the less 

experienced attendees in absorbing the course material--both formally in 

class and informally at meals and during free time. Finally, they can also 

act as effective teachers or contributors to the seminar, providing detailed 

information on how their agencies handle juvenile firesetters. 

There are many viewpoints on ways to divide course attendees into 

workshop or discussion groups. Some education experts maintain that it is 

more helpful to "track" attendees by placing into each workshop those 

participants with similar terms of service or specialized duties. Attendees 

who are separated by their level of familiarity with juvenile firesetters may 

be more able to discuss problems at their respective levels of familiarity 

and in terms of shared mutual concerns. In all fairness, there are contrary 

viewpoints as well. Others believe that it is best to mix participants 

together in order to avoid segregating the attendees from each other, and 

form valuable interaction. A multi-disciplinary audience is recommended 

if the goal is sharing information from a variety of agencies and promote 

interagency cooperation. As a compromise, on might consider having 

some workshops and discussion groups consisting of a mix of all types of 

participants, and others made up of participants who are assigned 

according to their specialties (e.g., police with prosecutors, or 

psychologists with psychiatrists). 

Whatever method of workshop organization is chosen, it is important to be 

guided by a thorough assessment of the backgrounds and needs of the 

participant body. Clearly, concerns about workshop assignments in a 

seminar for arson unit chiefs and supervisors are very different from those 

involved in training investigators and prosecutors. As a rule of thumb, it 

helps early on to develop a profile of course participants that covers their 

backgrounds, specialties, experience levels, and perhaps other factors 

(e.g., geography) that are salient to each group of participants. One option 

to consider is to aim each course at the largest number of specific types of 

professionals attending. Then, time can be set aside to address the needs 

of special groups (e.g., novices, advanced, and/or highly specialized 

participants). 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

212 Federal Emergency Management Agency/United States Fire Administration 

E. Obtaining Instructional Materials 

Much of the instructional material needed for the training can be found in 

the prototype program produced for this OJJDP-USFA project: National 

Juvenile Firesetter/Arson Control Prevention Program: Guidelines for 

Implementation and the Users' Guide that accompanies those volumes. In 

particular, the Guidelines contains substantial information on the 

development of firesetter intervention programs, and is organized from 

program management, through the processes of screening, evaluation and 

intervention services, to relationships with the juvenile justice system. 

Also included are "hands-on" materials that instructors can use as 

examples when presenting various elements of the juvenile firesetter 

program. 

In addition, federal agencies that conduct training programs and develop 

their own material on this subject should be contacted. Those agencies 

include the U. S. Fire Administration, as well as local and state agencies 

that have either received USFA or Office of Juvenile Justice and 

Delinquency Prevention (OJJDP) juvenile firesetting funding—or have 

developed materials under their own juvenile firesetter programs. 

A compendium of fairly recent material that has been produced by or 

under the National Juvenile Firesetter/Arson Control and Prevention 

Program, or earlier by the U. S. Fire Administration, is attached as 

Appendix B. Several of the resources noted in the compendium contain 

detailed bibliographies of instructional and clinical literature that may be 

suitable for certain training programs rather than others--again, determined 

by the needs of each audience. 

Materials published in government reports include earlier studies 

supported by the U. S. Fire Administration, LEAA, or Bureau of Justice 

Assistance, and compiled by organizations such as the Institute for Social 

Analysis, Battelle Institute, or the National Firehawk Foundation. Most of 

the materials are not protected by copyright but are so-called public 

domain documents, having been produced as a result of government 

sponsored research and demonstration activities. Such materials can 

usually be obtained easily from the issuing organization or reproduced 

inexpensively. There is also a wealth of other material that is protected by 

copyright. Copyright permission can often be obtained from the copyright 

holders; usually in a routine manner from technical journals that do not 

expect to earn royalties from non-profit organizations or government 

agencies. Often, a simple letter of request is enough to obtain the required 

copyright permission. Be sure to note that the proceeding is for public 

agency personnel, or otherwise is a non-profit undertaking. In view of 

federal copyright laws that carry severe penalties, this is a very important 

issue to be addressed in preparing materials for training programs. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 213 

The curriculum which follows provides a model for agencies to follow in 

conducting training on a prevention and control of juvenile firesetting. As 

noted in the introduction at the beginning of the curriculum, the 

curriculum follows the organization to the two volume prototype and 

Users' Guide and covers each of the seven components described in those 

materials. Agencies that are unfamiliar with conducting training can use 

this model curriculum as a guide for developing their own training 

workshops. Agencies familiar with providing juvenile firesetting 

prevention training can use the information to supplement existing training 

programs. 

PART II: THE JUVENILE FIRESETTER/ARSON CONTROL AND 

PREVENTION PROGRAM CURRICULUM 

Model Curriculum 

Communities wanting to establish and maintain a Juvenile Firesetter/ 

Arson Control and Prevention program (JFACPP) will have to provide 

participating agencies and personnel with adequate training and skills to 

perform their various functions. The following curriculum contains 

materials designed to train the many professionals who are likely to work 

with juvenile firesetters. 

This curriculum is organized to correspond to the manuals documenting 

the operations of JFACPP's. These manuals include The JFACPP 

Guidelines for Implementation and the accompanying Users' Guide. The 

manuals are designed to be used as the major resource materials for this 

curriculum. 

This curriculum consists of seven components which represent the major 

operations of a JFACPP. These components contain a great deal of 

information about the various types of JFACPP's. It is advised that 

trainers select from these components the materials relevant to their 

particular audience's needs or to a specific type of JFACPP. Tailoring the 

curriculum to the goals and objectives of specific workshops or training 

seminars is highly recommended. This approach will ensure that the 

material presented is most relevant and useful to the target audience. 

Each of the seven components contain four sections. They are a 

specification of the instructional goal; a summary of the curriculum 

content; recommended teaching strategies, and suggested resources. 

These sections are designed to help trainers organize a comprehensive 

presentation of the materials contained in each component. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

214 Federal Emergency Management Agency/United States Fire Administration 

Component 1: Program Management 

Instructional Goal

To teach program management how to plan, develop, and maintain an 

effective JFACPP. 

Curriculum Content Summary

There are two primary phases of setting-up a JFACPP. The first phase is 

program planning. This phase consists of seven key elements which are 

outlined in Table 1.1 of the Users' Guide. They are defining the program 

of juvenile firesetting in a particular community; identifying specific 

leadership responsible for the program; selecting the type of services to be 

offered; determining the primary location for service delivery; specifying 

the geographic boundaries of service delivery; securing necessary staffing, 

and estimating the cost of service delivery. If each of these key elements 

are executed by program management, then the groundwork has been laid 

for establishing an effective JFACPP. 

The second phase is program development. Program development 

consists of seven key tasks which are summarized in Table 1.3 in the 

Users' Guide. They are defining program goals; establishing program 

operations; developing a community coordinating council; securing 

financial support; conducting orientation and training seminars; defining 

potential legal and financial risks, and establishing referral linkages. Once 

these tasks are completed, then the doors of the JFACPP can be open for 

business. 

Recommended Teaching Strategies

There are two teaching methods recommended for communicating 

information on program management. The first strategy is the lecturediscussion format. To accompany this format, it is suggested that slides 

outlining the key elements of program planning (Table 1.1) and the tasks 

of program development (Table 1.3) be used for visual aids. It is 

important that the audience understand the steps which must be executed 

to set-up an effective JFACPP. This didactic teaching approach offers a 

straightforward method for transmitting this information. 

The second recommended teaching method is a panel discussion. The 

panel should be composed of participants who potentially may be 

responsible for setting-up a JFACPP in their community. They should be 

given the task of planning and developing such a program for their 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 215 

community. One panel member should be elected as the recorder. On a 

blackboard, the recorder can write down the steps the panel identifies as 

relevant for developing their JFACPP. The trainer should guide this 

process and ask specific questions to move the discussion along and 

identify the program planning and development tasks. The discussion 

should last no longer than thirty minutes. Trainers should wrap-up the 

panel discussion by helping the participants identify which, if any, 

planning and development activities they can actually implement to 

develop a JFACPP in their community. 

Suggested Resources 

1. Additional reading on program management methods: 

Giegold, W.C. (1978). Management By Objectives. New York: 

McGraw Hill, 1978. 

Component 2: Screening and Evaluation 

Instructional Goal

To identify the various approaches and methods for providing screening 

and evaluation services to juvenile firesetters. 

Curriculum Content Summary

The psychosocial characteristics defining the severity of the firesetting 

behavior in juveniles must be understood prior to the implementation of 

various screening and evaluation procedures. There are three major 

categories of juvenile firesetters, each with distinct individual, social, and 

environmental characteristics. The first is the young (age seven and 

under), curiosity firesetter, whose primary motivation for firesetting is 

experimental or accidental. These children are well-adjusted and come 

from a solid and supportive family and social environment. Their 

firesetting is most probably a first-time of single-episode event, and with 

educational intervention, is not likely to recur. The second type of 

juvenile is the recurrent firesetter, who has a history of firesetting 

incidents as well as an unstable personal, family, and social background. 

These youngsters typically are candidates for both educational 

intervention as well as psychological treatment. The final category is the 

adolescent firesetter, whose firesetting can represent a range of 

disturbances from mischievous behavior to serious intention to harm or 

destroy. The majority of these youngsters frequently have accompanying 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

216 Federal Emergency Management Agency/United States Fire Administration 

psychological problems which require immediate attention. The prognosis 

for adolescent firesetters is less promising than for younger firesetters. 

There are a number of community agencies that are likely to screen and 

evaluate juvenile firesetters. The predominant agencies are the fire 

service, mental health, law enforcement, probation, and juvenile justice. 

Each of these agencies is likely to employ screening and evaluation 

methods which best fit within their existing system of operations. 

Communities wanting to set-up screening and evaluation procedures must 

identify the targeted population of juvenile firesetters, designate one or 

more service agencies to provide services, and select and implement the 

appropriate methods. Tables 2.4, 2.5, and 2.6 of the Users' Guide outline 

the most widely used screening and evaluation procedures for the fire 

service, mental health, law enforcement, probation, and juvenile justice. 

These Tables are designed to help select the most appropriate methods for 

specific agencies by providing information on the purpose, output, impact, 

and risk of the various screening and evaluation approaches. Maximizing 

the selection of the screening and evaluation methods will result in an 

effective intervention system for juvenile firesetters. More detailed 

information about these instruments can be found in the Guidelines for 

Implementation.

Recommended Teaching Strategies

It is critical that information regarding the psychosocial characteristics of 

juvenile firesetters be presented fairly early in the workshops and training 

seminars. The audience needs a comprehensive understanding of the 

target population as well as a precise description of the various severity 

levels of firesetting behavior. This information can be presented in a 

number of different ways. The lecture-discussion format has been used 

successfully, and the material generally is presented by a mental health 

expert who has experience working with juvenile firesetters. There are 

some visual and audio-visual aids that will help illustrate the types of 

behaviors most typical of juvenile firesetters. Slides describing the three 

categories of firesetters (Table 2.1, 2.2, and 2.3 in the Users' Guide) can 

be developed. Also, the Suggested Responses at the end of this 

Component lists video tapes which can be used to demonstrate the 

psychosocial characteristics of juvenile firesetters. 

The presentation of the remaining content, with respect to specific 

screening and evaluation procedures, will depend on the type of audience 

attending the workshops or training seminars. For example, if the 

participants are predominantly fire service, then those screening and 

evaluation methods which are employed by the fire service should be 

reviewed in detail. The lecture-discussion format is the best instructional 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 217 

approach, and can be accompanied by slides illustrating the specific 

procedures. In addition to the presentation of screening and evaluation 

methods, information should be introduced on how to interview juvenile 

firesetters and their families. Since the majority of the screening and 

evaluation procedures employ this strategy, it is important to teach 

participants basic interviewing skills. 

It is recommended that the audience receive "hands-on" experience with 

both the screening and evaluation procedures as well as interviewing 

skills. One format is to break the workshop participants into small groups 

(no more than eight to a group) and ask one member in each group to 

describe one of their cases of juvenile firesetting. (In most every 

workshop there will be several participants who already have worked with 

these youngsters.) This case then becomes the basis for information that is 

used to review specific screening and evaluation methods. Copies of the 

actual instruments can be distributed to each group member and they can 

begin to construct the necessary information about the juvenile firesetter. 

For example, copies of the USFA Interview Schedules can be distributed 

to firefighters so that they can learn how to use these instruments to 

interview juvenile firesetters. In this way, the audience becomes familiar 

with the application of screening and evaluation procedures. 

To illustrate effective interviewing skills, volunteers can be asked to role 

play their juvenile firesetter case in front of the entire workshop. The 

trainer takes the role of the interviewer to show the correct style and 

approach of interviewing. The workshop participant takes the role of the 

juvenile firesetter, and there may be other volunteers in the group to 

assume the role of different family members. The role playing exchange 

should demonstrate how to make the juvenile firessetter and their family 

feel comfortable in the interview situation so that accurate and reliable 

information can be learned to help alleviate the firesetting problem. Not 

everyone is comfortable with role playing activities, therefore the trainer 

must take an active part in leading the actions of the situation. It is 

important that enthusiastic volunteers be used as the actors and actresses 

so that a relatively lively exchange can occur. A discussion should follow 

the role playing event emphasizing the various interviewing techniques 

which were demonstrated and their impact on producing a successful 

interview. 

Suggested Resources

1. Additional reading on the psychosocial characteristics of juvenile 

firesetters: 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

218 Federal Emergency Management Agency/United States Fire Administration 

Gaynor, J., & Hatcher, C. (1987). The Psychology of Child 

Firesetting, Detection and Intervention. New York: 

Brunner/Mazel, Publishers. 

Wooden, W.S. & Berky, M.L. (1984). Children and Arson, 

America's Middle-Class Nightmare. New York: Plenum 

Press. 

2. Video tapes illustrating the psychosocial characteristics of juvenile 

firesetters: 

Hedrick, S. (1988). Juvenile Arson Mini-Documentary. Aired on 

KCTS-TV, Seattle, Washington. 

Portland Fire Bureau (1987). Beyond Burned Fingers, 

Interviewing and Counseling Juvenile Firesetters. 

Portland Fire Bureau (1988). Who is the Juvenile Firesetter? A 

Conversation with Dr. Jessia Gaynor. 

3. Additional reading on the development of effective interviewing 

skills: 

Cormer, W. (1985). Interviewing Strategies for Helpers: 

Fundamental Skills and Cognitive Behavioral 

Interventions. Monterey, CA: Brooks/Cole Publishing. 

4. Additional reading on how to conduct role playing situations: 

Van Ments, M. (1983). The Effective Use of Role Play. A 

Handbook for Teachers and Trainers. London: Kogan 

Page. 

Component 3: Intervention Services 

Instructional Goal

There are three types of program models representing intervention 

services for juvenile firesetters and their families. They are primary 

prevention, early intervention, and core intervention. The goal of primary 

prevention programs is to deter first-time, unsupervised fireplay and 

firesetting by teaching the rules of fire safety and prevention. There are a 

variety of primary prevention programs offered in the schools and by the 

fire service. They are presented in Tables 3.1 and 3.2 of the Users' Guide.
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 219 

Early intervention programs focus on the identification of first-time 

firesetters. The goals of these programs are early screening and evaluation 

of the firesetting and other accompanying problems and immediate 

intervention. The majority of these programs are operated by the fire 

service. There are a number of different types of programs including 

evaluation, education, referral, and counseling. These programs are 

summarized in Table 3.3 in the Users' Guide. 

Core intervention programs are designed to treat youngsters with recurrent 

firesetting problems. There are two primary systems which handle these 

children. The first intervention approach is mental health. The majority of 

firesetting youth can benefit from metal health treatment, because, for the 

most part, their firesetting represents underlying psychological problems. 

There are several types of mental health interventions. They are presented 

in Table 3.4 of the Users' Guide. The second system is law enforcement, 

probation, and juvenile justice. If the firesetting behavior is determined to 

represent a serious intention to harm or destroy, then youngsters can be 

arrested for the crime of arson. If it is a first offense, then frequently 

probation will recommend a diversion or counseling program for 

youngsters and their families. If the diversion or counseling 

recommendation is not followed, and the firesetting behavior is a recurrent 

offense, the youngsters can receive sentencing to a residential or 

correctional facility. Table 3.5 in the Users' Guide presents the program 

types for law enforcement, probation, and juvenile justice. Component 3 

of the Guidelines for Implementation provides more extensive information 

about the three types of intervention services. 

Recommended Teaching Strategies

A summary of the three intervention program models and the 

corresponding program types is the most important information to be 

presented to participants of workshop and training seminars. In addition 

to information on screening and evaluation procedures, information on 

intervention services represents the foundation of JFACPP's. 

A lecture-discussion format is suggested for presenting this material, with 

slides used as visual aids. All participants should receive a comprehensive 

overview of all intervention models and corresponding program types. 

Tables 3.1; 3.2; 3.3; 3.4; and 3.5 in the Users' Guide can be transposed 

into slides to illustrate the material. The background of the participants 

will determine which intervention models and corresponding program 

types will be reviewed in greater detail. For example, if the majority of 

the participants are from the fire service, then primary prevention and 

early intervention program models should be the center of attention. The 

material should be presented by someone with experience in setting-up or 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

220 Federal Emergency Management Agency/United States Fire Administration 

running these types of programs, so that discussions can focus on the 

pragmatics of operating an effective JFACPP. 

Participants also should receive some "hands-on" experience in directing 

juvenile firesetters to the most appropriate kinds of intervention services. 

For this purpose, a small group can be given a case study to analyze and 

discuss. Appendix D contains a number of case students which can be 

used for this purpose. Each small group should receive a different case for 

review. The small group participants should focus their discussion on 

what kinds of screening and evaluation procedures they would employ and 

what types of intervention services they would recommend for each case. 

Each small group should elect a spokesperson to report their 

recommendations to the larger group. About twenty minutes should be 

allotted for the small group discussions, after which time the spokesperson 

for each group should be prepared to present their recommendations to the 

entire workshop. Each case study should be read to all the participants, 

and then recommendations should be presented. The participants should 

discuss various screening, evaluation, and treatment options for each case. 

The purpose of this exercise is to give participants experience in handling 

a variety of juvenile firesetter cases. 

Suggested Resources

1. Additional reading on primary prevention programs: 

Public Fire Education Today 

National Fire Academy 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

2. Additional reading on early intervention programs for the fire 

service: 

Fineman, K. et al. (1980). Child Firesetter Handbook. Ages 7 and 

Under. Washington, DC: U.S. Government Printing 

Office. 

Fineman, K. et al. (1984). Preadolescent Firesetter Handbook. 

Ages 7 to 13. Washington, DC: U.S. Government Printing 

Office. 

Gaynor, J. et al. (1988). Adolescent Firesetter Handbook. Ages

14-18. Washington, DC: U.S. Government Printing 

Office. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 221 

3. Additional reading on mental health core intervention programs: 

Gaynor, J. et al. (1990). Firesetting. In M. (Ed.) The 

Comprehensive Textbook of Child Psychiatry. New York: 

Williams and Wilkins. 

Component 4: Referral Mechanisms 

Instructional Goal

To describe the network of community services that provide linkages of 

JFACPP'S. 

Curriculum Content Summary

An effective JFACPP will have strong linkages to a network of service 

agencies in the community. These community agencies will identify 

juvenile firesetters and route them to the screening and evaluation services 

of the JFACPP. These agencies serve as referral sources and can include 

the fire service, schools, law enforcement, social services, mental health, 

and medical centers. Parents also can refer their children to JFACPP's. 

JFACPP's cannot always provide all of the necessary intervention services 

for juvenile firesetters and their families. In many cases, children need to 

be referred to other community agencies for different types of service. 

These target referral agencies include social services, mental health, and 

the criminal justice system. Figure 4.1 in the Users' Guide presents a 

summary of the juvenile firesetter referral network. The JFACPP is one 

part of a community network designed to provide comprehensive services 

to firesetting youngsters and their families. 

Recommended Teaching Strategies

A lecture-discussion format is the best method for presenting an overview 

of the JFACPP and its community network of referral services. Figure 4.1 

in the Users' Guide can be transposed into a slide to be used as a visual 

aid. 

However, it also is important for the participants of the workshops and 

training seminars to begin to identify the most relevant referral agencies in 

their own community. Hopefully, representatives from a number of these 

different community agencies have been asked to participate in the 

workshops or training seminars. During the discussion of referral 

agencies, representatives from various community agencies should 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

222 Federal Emergency Management Agency/United States Fire Administration 

identify themselves by name. These participants should be encouraged to 

use the break-time and lunch hour to get to know one another and begin 

their own networking activities. 

To foster interagency communication and cooperation, it might be helpful 

to allow some time for representatives of local community services to give 

a brief (five to ten minute) talk describing the potential roles and 

responsibilities of their agency in helping juvenile firesetters and their 

families. For example, if there was a representative from the local 

community mental health center, they might want to describe what would 

happen in firesetting youth and their families once they were referred to 

their agency for mental health services. In this way, participants can begin 

to work out how different types of community agencies can provide 

various types of services to support the effective operation of their 

JFACPP. 

Suggested Resources

1. Additional reading on networking: 

Lipnack, J., & Stamps, J. (1986). The Networking Book: People 

Connecting with People. New York: Routledge and Kegan 

Paul. 

Component 5: Publicity and Outreach 

Instructional Goal

To outline methods for developing effective publicity and community 

outreach activities to inform the community about the availability of their 

JFACPP. 

Curriculum Content Summary

There are two primary methods of increasing community awareness about 

the availability of juvenile firesetter programs. The first is publicity 

activities. There are four major types of media which can be employed to 

increase community awareness. They are newspapers and magazines, 

television and radio, press conferences, and general communications. 

Within each of these modalities, there are various strategies and their 

related impact are outlined in Table 5.1 in the Users' Guide. Publicity 

efforts should be mounted only when all of the operations of the juvenile 

firesetter program have been established and are working effectively. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 223 

The second method of increasing public awareness is through community 

outreach activities. There are a number of different types of activities 

including the development of pamphlets and brochures; the distribution of 

posters; publishing newsletters, operating a Speaker's Bureau; staffing a 

Hot Line, and encouraging partnerships with other relevant programs and 

organizations. These activities and their potential impact are summarized 

in Table 5.2 in the Users' Guide. JFACPP's can benefit greatly from 

effective community outreach efforts. Examples of brochures, press 

releases, newspaper articles, etc., can be found in the resource section of 

Component 5 of the Guidelines for Implementation.

Recommended Teaching Strategies

The material on publicity and outreach activities can be presented using a 

lecture-discussion format. Tables 5.1 and 5.2 in the Users' Guide

illustrating these activities and their intended effect can be transposed into 

slides. Frequently, local programs have begun developing some types of 

publicity or community outreach activities, such as the production of 

pamphlets and brochures. These programs should be encouraged to share 

these materials with workshop participants. Trainers also may want to 

bring in examples of various publicity activities, such as media kits or 

public service announcements describing JFACPP's, so that the audience 

can have a firsthand look at these materials. The Suggested Resources at 

the end of this component lists a Public Service Announcement video that 

can be used to illustrate this type of media activity. Workshop participants 

should have an understanding of the various options available to them in 

helping to inform their community about their JFACPP. 

Suggested Resources

1. Additional reading for producing public activities: 

Ink and Airtime 

National Crime Prevention Council (NCPC) 

1700 K Street, NW, Second Floor 

Washington, DC 20006 

2. Public Service Announcement video: 

Portland Fire Bureau (1987). Juvenile Firesetter PSA's. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

224 Federal Emergency Management Agency/United States Fire Administration 

Component 6: Monitoring Systems 

Instructional Goal

To provide an overview of the various types of monitoring systems which 

can be used to track the level and volume of JFACPP activity. 

Curriculum Content Summary

There are three major types of monitoring systems which track program 

operations for JFACPP's. The first is a Management Information System 

(MIS). An MIS provides timely information on the number and types of 

cases handled by the program. It can range from a basic, hand-calculated 

logging system to a more sophisticated automated system. The range of 

MIS's are described in detail in Component 6 of the Guidelines for 

Implementation. 

The second type of monitoring system is an evaluation system. A 

program evaluation system is an extension of an MIS in that it uses the 

data generated by the MIS to analyze program operations and outcome. In 

addition to caseload information, an effective evaluation system will 

include data on firesetting recidivism and followup information on 

caseload disposition. 

The third type of monitoring system is an incidence reporting system. 

Frequently, individual JFACPP's will report their juvenile firesetting rates 

to a county, jurisdiction, statewide, or federal data system. There are a 

number of these systems operating in several states and also at the federal 

level. They are described in detail in Component 6 of the Guidelines for 

Implementation.

Recommended Teaching Strategies

The participants of workshops or training seminars should be introduced 

both to the concept of monitoring program operations as well as to the 

application of the three different types of tracking systems. This can be 

accomplished in a lecture-discussion format. In addition, information on 

data monitoring systems relevant to local JFACPP's should be reviewed. 

For example, if a local JFACPP is underway, then some type of 

monitoring system already may be operational. If this is the case, then 

trainers should ask local program managers to describe their system. 

Also, trainers should be aware of state and federal data reporting systems 

in which local JFACPP's may participate. The audience should be 

convinced that developing a monitoring system for their JFACPP will not 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 225 

only ascertain the level and extent of the juvenile firesetting problem, but 

it will also demonstrate the effectiveness of their program efforts in 

controlling and abating the problem. An effective monitoring system can 

ensure the longevity of the JFACPP. 

Suggested Resources

1. Additional reading on MIS's: 

Federico, P. (1980). Management Information Systems and 

Organizational Behavior. New York: Prager. 

Component 7: Developing Relationships with the Juvenile 

Justice System 

Instructional Goal

To understand how to develop a working relationship between JFACPP's 

and the various operations of the juvenile justice system. 

Curriculum Content Summary

Although the majority of juvenile firesetting cases handled by JFACPP's 

will receive evaluation, education, and some special types of intervention 

services, there will be a small percentage of them which will be classified 

as arson because of the seriousness of the firesetting behavior or the 

significance of the damage or loss resulting from the fire. In these cases, it 

becomes important for the JFACPP to have open pathways of 

communication and linkage to their juvenile justice system. Even though 

cases of juvenile firesetting may be classified as arson, this does not 

necessarily preclude them from obtaining services from the JFACPP. 

There are a number of ways in which JFACPP's and the juvenile justice 

system can work together, and examples of these efforts are outlined in 

Component 7 of the Guidelines for Implementation. The specific nature 

and extent of the referral linkages between local JFACPP's and their 

juvenile justice system can be worked out on an individual jurisdiction 

basis. 

Recommended Teaching Strategies

The primary objective of this component is to encourage JFACPP's to 

learn about their local juvenile justice system. This is best accomplished 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

226 Federal Emergency Management Agency/United States Fire Administration 

in a lecture-discussion formation. It is suggested that trainers invite 

representatives from the probation and/or juvenile courts system to give 

brief talks about their procedures for handling juvenile firesetters. In 

particular, it is important for workshop and seminar participants to be 

informed about the local and state laws as they relate to the crime of 

juvenile arson. Discussions can focus on how the JFACPP and juvenile 

justice can best work together in providing comprehensive services to 

juvenile firesetters. 

Suggested Resources

1. Additional reading on juvenile arson laws: 

Committee on the Judiciary (1985). The Problem of Arsons 

Committed by Juveniles. Washington, DC: U.S. 

Government Printing Office. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 227 

APPENDIX A: ADDITIONAL RESOURCE MATERIALS 

1. The National Juvenile Firesetter/Arson Control and Prevention Program 

Assessment Report, Institute for Social Analysis (Washington, D.C., September, 

1989). 

Assessment of the problem of juvenile firesetting and intervention programs. 

Reviews of literature and description of the central issues included. 

Address: Institute for Social Analysis 

1625 K Street, N. W. Suite 1000 

Washington, D.C. 20006 

2. Preadolescent Firesetter Handbook (Ages 0-7), U.S. Fire Administration in 

conjunction with the International Association of Fire Chiefs (FA-83/December 

1988). 

Teaches fire service personnel how to recognize and interview young children 

(ages 0-7) that have firesetting tendencies. Provides methods and strategies for 

appropriate counseling and mental health assistance for firesetter. 

Address: U.S. Fire Administration 

16825 South Seton Avenue, Building N, Suite 311 

Emmitsburg, MD 21727 

3. Preadolescent Firesetter Handbook (Ages 7-13), U.S. Fire Administration in 

conjunction with the International Association of Fire Chiefs (FA-82/December 

1988). 

Teaches fire service personnel how to recognize and interview young children 

(ages 7-13) that have firesetting tendencies. Provides methods and strategies for 

appropriate counseling and mental health assistance for firesetter. 

Address: U.S. Fire Administration 

16825 South Seton Avenue, Building N, Suite 311 

Emmitsburg, MD 21727 

4. Preadolescent Firesetter Handbook (Ages 14-18), U.S. Fire Administration in 

conjunction with the International Association of Fire Chiefs (FA-80/August 

1988). 

Describes the psychology of adolescence to determine which juveniles are at risk 

to become firesetters. Provides procedures for evaluating adolescent firesetters 

(ages 14-18) and intervention techniques to stop firestarting and remedy 

accompanying psychological problems. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

228 Federal Emergency Management Agency/United States Fire Administration 

Address: U.S. Fire Administration 

16825 South Seton Avenue, Building N, Suite 311 

Emmitsburg, MD 21727 

5. Juvenile Firesetter Intervention, First Report of the Rochester, New York, Fire 

Department-Fire Related Youth Program Development Project, State of New 

York-Department of State, Office of Fire Prevention and Control (New York, 

1974). 

Describes how to build an effective program with cooperating community 

agencies. Details identification, assessment, and treatment of children. 

Address: Fire Related Youth Program 

Rochester Fire Department 

Room 306 

Public Safety building 

Civic Center Plaza 

Rochester, New York 14614 

6. Children and Fire, Second Report of the Rochester, New York, Fire DepartmentFire Related Youth Program Development Project, State of New YorkDepartment of State, Office of Fire Prevention and Control (New York, 1986). 

Extension of the First Report, Juvenile Firesetter Intervention. Provides 

recommendations based on a large scale study of children referred to the Fire 

Related youth project in the city of Rochester. (1983) 

Address: Fire Related Youth Program 

Rochester Fire Department 

Room 306 

Public Safety building 

Civic Center Plaza 

Rochester, New York 14614 

7. The Psychology of Child Firesetting Detection and Intervention, Jessica Gaynor 

& Chris Hatcher (Brunner/Mazel, New York, N.Y.). 

Demonstrates how to evaluate and treat child and adolescent firesetters. 

Detection of firesetters as well as the psychopathological affects are addressed. 

Address: Brunner/Mazel Publishers 

19 Union Square 

New York, N.Y. 10003 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 229 

8. The Therapeutic Assessment of Firesetting (TAF) Questionnaire, Terrence Neary 

(1987). 

Questionnaire to assist in psychotherapy, empirical research, and the planning for 

rehabilitation of firesetters. 

Address: Terrence Neary, Ph.D. 

Clinical Psychologist 

Forest Hospital 

Des Plaines, Illinois 

9. Arson Resource Directory, Federal Emergency Management Agency, United 

States Fire Administration (FA-74/May 1988). 

Provides explanation and identification of organizations and individuals 

concerned with arson prevention and control. 

Address: Federal Emergency Management Agency 

P.O. Box 8181 

Washington, D.C. 20024 

10. The Government Executive's Guide to Arson Prevention and Control: A Handbook on Information Systems and Action Programs, Clifford L. Karchmer, Batelle 

Human Affairs Research Centers, Law and Justice Study Center (Seattle, 

Washington, 1981). 

Assists government leaders to develop comprehensive plans to prevent and 

control arson. Identifies type of arson prevention techniques which police, fire, 

housing, mental health and other agencies might implement cooperatively. 

Address: Federal Emergency Management Agency 

P.O. Box 8181 

Washington, D.C. 20024 

11. Juvenile Firesetter and School Arson Prevention Programs, Clifford L. 

Karchmer, Battelle Memorial Institute, Law and Justice Study Center, Aetna 

Arson Prevention Series (Washington, D.C.). 

Provides information on developing programs on the local level to stop juvenile 

firesetting. A resource guide and bibliography of technical information (including 

a psychological and psychiatric literature) is enclosed. 

Address: Aetna Life and Casualty Company 

Arson and Frau Unit 

151 Farmington Avenue 

Hartford, CT 06156 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

230 Federal Emergency Management Agency/United States Fire Administration 

12. The Psychology of Firesetting: A Review and Appraisal, R.G. Vreeland and M. 

B. Waller, sponsored by U.S. Department of Commerce, National Bureau of 

Standards (Washington, D.C., December 1978). 

Examines the psychological factors involved in firesetting. Classifies firesetters 

into four categories: antecedent environmental conditions, organismic variables, 

actual firesetting behavior, consequences of firesetting. 

Address: National Bureau of Standards 

Department of Commerce 

Center for Fire Research 

Washington, D.C. 20234 

13. The School Team Approach-Phase I Evaluation, Executive Summary, Social 

Action Research Center (January 1980). 

Report of the first year evaluation of a local program designed to reduce school 

crime and disruption. Findings indicated such a program can reduce the amount 

of victimization reported by students as well as the level of tension, fear, and 

danger perceived by students. 

Address: Social Action Research Center 

18 Professional Center Parkway 

San Rafael, California 94903 

14. School Crime and Disruption: Prevention Models, The National Institute of 

Education, U.S. Department of Health, Education, and Welfare (June 1978). 

A series of papers on the study, design, and implementation of effective 

prevention programs for school crime. The causation of school crime and specific 

programs for reducing school crime as presented. (Note: Juvenile arson is not 

specifically covered.) 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 231 

APPENDIX B: EFFECTIVE PREPARATION AND DELIVERY OF 

PRESENTATIONS 

I. Introduction 

This handbook is a practical guide to increasing the effectiveness of short oral 

presentations. While it would be nice to offer a "quick" solution to the problem, 

experience has shown that single solutions generally do not work. This handbook suggests alternative ways to thinking and alternative practices--techniques 

that have been considered and tested by highly experienced speakers and 

researchers. It provides a method that can assist you in delivering a concise, 

interesting, and effective prevention, as well as guidelines for selection and use of 

audio-visual aids and suggestions for physical delivery of the presentation. 

This main ideas presented in this handbook were condensed from several sources: 

"Effective Business and Technical Presentations" by George L. Morrisey (1968): 

"Communication and Instruction" by Ronald E. Bassett and Mary-Jeanette Smith 

(1979); "Educator's Handbook" edited by Virginia Richardson-Koehler (1987); 

and W.A. Mambert's "Effective Presentation" series (1976). These sources 

should be consulted for additional information on the topic covered. 

II. Steps in Preparing a Presentation 

Preparation of an oral presentation can be broken down into a series of six steps. 

Following these steps likely will result in your spending less time on preparation, 

and in producing a clearer, more concise presentation. In addition, it will increase 

the likelihood that your ideas will be accepted by your audience. The six steps 

are: 

1. Establish objectives for the presentation. 

2. Analyze your audience. 

3. Prepare a preliminary plan for the presentation. 

4. Select resource material. 

5. Organize material for effective delivery. 

6. Practice the presentation in advance. 

Step 1: Establish objectives for the presentation 

Objectives are statements of purposes, goals, and desired results. The statements 

should be specific, and should answer the following questions: 

• Why am I giving this presentation? 

• What do I want to happen as a result of my presentation? 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

232 Federal Emergency Management Agency/United States Fire Administration 

• If the presentation is to impart a body of knowledge, one or more 

objectives should be qualified in terms of expected results, for example: I 

want to tell about ... so that ... will take place. 

In addition to being specific, objectives stating expected results should be 

achievable. They should be: 

• Realistic in scope. Can your objectives be accomplished in the 

preparation time and presentation time available? Delivering a lecture in 

well-prepared, digestible segments often is a key to acceptance of the 

ideas presented. 

• Realistic in terms of what you can reasonably expect to accomplish. 

Are you objectives achievable? If not, your audience may be reluctant to 

accept the ideas and principles you present. 

• Realistic view of the audience's knowledge and background. Do 

members of the audience have the knowledge and background necessary 

to achieve the results you want? 

• Realistic in view of the audience's ability to act. Do members of the 

audience have the authority to make the decisions necessary to achieve the 

objectives? 

Step 2: Analyze your audience 

The most successful presentations are prepared with a particular audience in 

mind, and one tailored to suit that audience. What do members of the audience 

already know? What are their attitudes, likes, and dislikes? How will they react? 

Awareness of your audience can give you an idea of how best to angle your 

presentation, and can provide insight into the kind of overall approach most likely 

to achieve your objectives. 

You can get information about your audience in a variety of ways: 

• Speak with others who have made presentation before this audience. 

• Review reports from or about some members of your audience. 

• Seek information directly or indirectly from selected members of the 

audience or others associated with them. 

• Conduct a debriefing after your presentations to assess audience reaction. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 233 

Step 3: Prepare a preliminary plan for the presentation 

A preliminary plan is similar to a blueprint. It serves as a framework on which to 

build a presentation. It is not a speaking outline, but a conceptual approach to 

what most logically will lead to achievement of your objectives. 

A preliminary plan serves two basic functions: 

• It forces you to determine carefully the direction you plan to take, guides 

you in selecting the subject matter, keeps your flow of ideas channeled, 

and indicates where you can best place your emphasis. 

• It serves as a guide for support personnel, who may provide backup data, 

prepare charts, or assist in some way with the presentation. A preliminary 

plan gives a specific written basis from which you and those supporting 

you can work. 

Step 4: Select resource material 

For most presentations, finding enough resource material is not a problem. 

Rather, the problem is one of proper selection, deciding what material, and how 

much to include in the presentation. These decisions can be guided by your 

preliminary plan (Step 3) and based on the answers to the following questions. 

• What is the purpose of the presentation? Is your presentation to be 

persuasive, explanatory, instructional, or a report? Do you want to arouse 

interest, test an idea, recommend action, inform, or resolve problems? 

• What should be covered? What can best be eliminated? Resource 

material should be eliminated unless it contributes significantly to the 

achievement of an objective. 

• What amount of detail is necessary? The appropriate amount of detail 

varies greatly according to your objectives, and to such factors a 

presentation time available, the audience and its interests, and how much 

detail the audience must know so the objectives can be achieved. You 

may want to have the detailed information available in the event you're 

asked about it, although you do not use it in the actual presentation. 

• What must be said if the objectives are to be achieved? What resource 

material is essential if your main ideas are to be accepted by the audience? 

• What is the best way to make your point(s)? Considering the 

characteristics of your audience, what types of subject matter and what 

method of presentation will be most effective in getting across your main 

ideas? 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

234 Federal Emergency Management Agency/United States Fire Administration 

• For each item, why is it needed? Look at your material objectively. 

Examine each item selected for inclusion in the presentation and ask: 

Why should this be used? What contribution will it make to achievement 

of my objectives? Items that cannot withstand this critical examination 

should be eliminated. 

Step 5: Organize the material for effective presentation 

Most presentations can be broken down into three major parts: the introduction, 

in which the idea is stated; the body in which the idea is developed; and the 

conclusion, in which the idea is restated. Each part serves a specific function, and 

thus requires a distinct approach. 

Starting the idea (Introduction). The first purpose of the introduction is to sell 

the audience on the idea of listening to your presentation. The second and more 

obvious purpose is to state the idea. It is important to use simple and precise 

words, and to make this part of your presentation interesting and brief. The 

approach you choose will depend upon the subject matter, the time allowed, the 

audience, and your own personality and preferences. Listed below are a few ways 

in which a subject can be introduced: 

• Direct statement of the subject and why it is important to the audience. 

• Indirect opening involving a vital interest of the audience (for example, a 

statement connecting your objective with that vital interest). 

• Vivid example or comparison leading directly to the subject. 

• Strong quotation relating to the subject, one that will be particularly 

meaningful to the audience and will establish rapport between you and 

them. 

• Important statistics having to do with the subject. 

• Story illustrating the subject, provided it has a direct application and is 

not merely contrived for entertainment purposes. 

Normally, you should use just one approach to introduce your subject. Whichever 

you select, you should keep in mind the two tasks of your introduction: to sell 

your audience on listening to your presentation, and to introduce the subject. 

Developing the idea (Body). In the body of the presentation the idea should be 

explained in whatever detail is necessary to achieve the objectives of the 

presentation. An effective way to present the body of the material to be covered 

is to use audio-visual aids (discussed specifically later in this handbook). 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 235 

Illustrations give impact and emphasis to the major points. In addition, you might 

use some of the following: 

• Examples illustrating the idea in operation (for example, flow charts, 

anecdotes, and specific results). 

• Reiteration of the main idea in the same words or in different words to 

help summarize and to ensure that the listeners will remember the point. 

• Statistics used sparingly and presented as simply as possible. 

• Comparisons with similar or dissimilar types of operations, ideas, and so 

forth. 

• Testimony of experts, witnesses to events, or users of the product or 

procedure. (Such testimony should not be overused and the expert being 

cited must be a credible source who has a firm reputation in the field.) 

Another decision to be made regarding the development part of your presentation 

is when to accept audience questions. Do you want to field questions at any point 

during your presentation, or at some specific point(s)? Or do you want to restrict 

questioning to the close of the presentation? 

Restating the idea (Conclusion). The conclusion gives you an opportunity to 

sum up and stress the main ideas you want the audience to remember, to integrate 

and tie together various conclusions, and to suggest appropriate action. Restating 

the ideas you want your audience to remember is essential. The conclusion 

should not be lengthy, but it should be vivid and long enough to cover the 

important points you want your audience to carry away with them. 

It is good to give your audience a clear indication of when you're starting the 

conclusion. You can do this by using such phrases as "Let's review the main 

points we've covered," "To sum up these factors ...," "Our prime purpose today 

has been to ...," or "Reflecting on what we've discussed ..." Using such a phrase 

makes it evident that you're winding up your presentation and helps bring the 

audience back on target. 

Each of the three parts of a presentation described here has a specific purpose and 

needs specific attention. Regardless of which format you choose for presentation 

of your material, you will find that your presentation has essentially the same 

three parts: (1) Introduction stating the idea, (2) Body developing the idea, and 

(3) Conclusion restating the idea. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

236 Federal Emergency Management Agency/United States Fire Administration 

Step 6: Practice the presentation in advance 

Most speakers have had the experience of planning a good presentation on paper 

only to have it fall flat when actually delivered. Many factors are responsible for 

such failure. The most common ones include: 

• The spoken words don't flow as smoothly as they seemed to on paper. 

• The presenter loses continuity (because of some distraction). 

• The mechanics of handling audio-visual aids interfere with the 

presentation flow. 

• The presenter is not as knowledgeable about the subject matter as he 

thought he was. 

• Someone in the audience asks a question that the presenter is not prepared 

to answer. 

• The audience is cold and unresponsive. 

• The place where the presentation is given does not lend itself to the type of 

presentation planned. 

All but the last two of these factors can be attributed to a lack of sufficient 

preparation or practice on the part of the presenter. Even the last two problems 

can be minimized to a degree, through foresight. 

Practice will not guarantee success. However, it can (and should): 

• Give the presenter more self-confidence, making the audience more 

willing to view the subject matter as credible. 

• Identify flaws and/or gaps in the material. 

• Provide familiarity with the material, so that the presentation appears to be 

naturally and spontaneously delivered. 

• Allow the presenter to use audio-visual aids so that they will enhance 

(rather than interfere with) the actual presentation. 

• Make it easier to anticipate potential questions, particularly ones that 

might prove troublesome. 

There are three primary methods of practicing a presentation. Using any one, or a 

combination of the three, can be very valuable to the presenter. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 237 

• Give the presentation aloud to yourself. Imagine your audience is there, 

and deliver your presentation just as if you would were they there. Use 

your notes and the audio-visual aids you plan on using. 

• Use a tape recorder. This will give you an opportunity to hear how you 

sound, and to see whether your ideas are coming through as you want 

them to. Listen to the tape objectively by assuming the audience's 

viewpoint. 

• Give a "dry run." Have some knowledgeable friends or co-workers sit in 

on your practice presentation. This is probably the most effective practice 

method, if your dry-run audience is able to react in a manner typical of the 

individuals you expect to be in your actual audience (that is, your dry-run 

audience adopts the same background of knowledge, interests, and 

attitudes). 

Unfortunately, "Practice makes perfect" is not an accurate statement in this 

context, since practice rarely makes a perfect presentation. However, "No 

practice makes disaster" is quite a realistic statement. It is a rare individual who 

can make a well-timed and forceful presentation without first practicing it. 

III. Selection and Use of Visual Aids 

Audio-visual aids (for example, charts and handouts) can add significantly to the 

impact of your presentation and the understanding your audience will gain. 

However, the idea itself must always precede the aids that support it. 

Guides for Selecting Aids

The following basic principles and guidelines should be considered when 

selecting audio-visual aids for use with your presentation: 

• Audibility and visibility. Is the aid right for the audience size and room 

size? Will everyone be able to see and hear it? In addition to size of room 

and audience, consider the seating arrangement, lighting, and other factors 

that might affect audibility or visibility. An aid that cannot be properly 

seen or heard is much worse than no aid at all, as it will annoy and distract 

your audience. 

• Accessibility and availability. Are the necessary equipment and facilities 

available to you? Is so, make certain the aid does not distract the audience 

if it's left in view throughout the presentation. For example, you can insert 

blank sheets of paper between chart sheets so that the chart will be 

covered when you want to turn the audience's attention to something else. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

238 Federal Emergency Management Agency/United States Fire Administration 

• Adaptability. Does the aid fit the presentation? Don't make your points 

fit the aid you have available. Also, make sure you know how to use the 

aid, as any difficulties you have with it will distract your audience and 

detract from your message, and diminish its effectiveness. 

• Attention-capturing quality. Will the aid gain attention and keep it on 

the subject matter rather than on the aid itself? The aid should emphasize 

the subject matter you want remembered. It does not have to be flashy. 

The use of color (in moderation), heavy lettering, underlining, arrows, and 

other such methods can emphasize the points you wish to bring out. 

• Auxiliary nature. The most important thing to keep in mind is that the 

aid should be just what the word implies--it should support the 

presentation, not be the center of attention. A good presentation should be 

able to stand on its own without any aids. Aids should be used only to 

enhance what you are saying. 

Types of Aids and Equipment

Some of the more frequently used types of aids and equipment are listed below: 

Charts 

Charts are the most frequently used type presentation aid. There are various 

methods of displaying charts: 

• Flip charts. Prepared on large sheets of paper and attached (by a clamp) 

to an easel. An advantage of flip charts is that usually they can be rolled 

up and carried fairly easily. 

• Chart cards. Similar to flip charts, except they are prepared on 

posterboard or heavy cardboard. Thus, they are sturdier, look neater, and 

last longer than flip charts; however, they are more costly and are clumsy 

to carry. 

• Slides. Can be prepared to photographing charts. This aid is effective for 

large groups. However, slides usually require a darkened room, which 

means loss of eye contact with your audience. Use of slides also requires 

knowledge of how to use the particular projector available. 

• Overhead transparencies. Becoming increasingly popular, because they 

are practical, inexpensive, and versatile. Transparencies can be projected 

onto a screen or a light-colored wall, and can be used with room lights on. 

In addition, the presenter can write on the transparencies much as he 

would on a chalkboard. Disadvantages include possible blocking of view 

by the projector and occasional difficulties in adjusting transparencies. 

These drawbacks, however, are minor compared with the advantages. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 239 

Given below are some tips for selecting and preparing charts. 

• All charts should be needed; many presentations include too many charts. 

• Charts should present highlights only. 

• Each chart should clarify an idea better than the oral presentation alone 

could. 

• Charts should be kept simple in detail. 

• Charts should be large enough for all to see, and should stand high enough 

so that lettering at the bottom isn't blocked by the audience. 

• Charts should be lettered in large, clear, bold, uncrowded letters and lines. 

• Generally, each chart should contain no more than 10 lines, an at least two 

minutes should be allowed for its use. 

• Color should be used only to highlight important points. 

• Charts should be made carefully, not thrown together, they should be neat 

and reflect creditably on you, your department, and the idea you want to 

project. 

The following are some tips working with slides and overhead transparencies: 

• Place all material in order, handy to the projection area, before the start of 

the presentation. 

• Position the first slide or frame to be used and check for proper focus. 

• If there is an interval during the presentation when projection materials in 

not being used, do something to reduce attention on the projector. Turn 

off the light on an overhead projector. If using a slide projector, cut a 

piece of cardboard the size of a slide and place it between the frames to 

make a break. This will cause a temporary "blackout" and make it 

unnecessary to turn off the machine. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

240 Federal Emergency Management Agency/United States Fire Administration 

Handouts 

Handouts in connection with a presentation can be an effective means of 

increasing learning and retention by your audience if careful thought has been 

given to their preparation and use. The following guidelines may help: 

• Normally, handouts should be made available following the presentation, 

unless you intend for the audience to refer to specific portions of them 

during the presentation. Otherwise, you're inviting the audience to look at 

the handouts when you want them to be listening to you. 

• Make copies of charts only if they are vital for later reference. The 

smaller the number of handouts, the greater the likelihood of their being 

used for future reference. 

• Leave plenty of space on the handouts for note-taking. 

• Include a list of suggested related readings if possible. 

• Include your name, title of lecture, date, and phone number so members of 

your audience can reach you later if they have questions. 

Chalkboard 

The chalkboard is about the most useful, most valuable, and least expensive form 

of visual-aid equipment you can use in a presentation. However, it is not easy to 

use, and requires advanced planning and practice if it is to be used effectively. 

Some of the advantages of using a chalkboard are: 

Flexibility. A chalkboard offers plenty of space, and can be changed relatively 

easily. 

Feeling of spontaneity. The audience can get the feeling that you are giving 

them the latest information—so current, in fact, that a chart could not have been 

prepared. In addition you can make modifications based on questions or 

comments during the course of the presentation. 

Progressive development. An initial step or idea can be developed progressively 

on the chalkboard as you explain each step. 

Audience interest. Writing on a chalkboard helps maintain audience interest, 

and also gives them a chance to make notes. 

The following are some tips for using a chalkboard: 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 241 

• Write neatly and much larger than usual. 

• Hold chalk at a 45 degree angle. If the chalk squeaks, break it in half. 

• Avoid (as mush as possible) talking to the board. (Avoid writing a lot of 

material on the board). 

• Erase material written on the board when it is no longer needed. 

IV. Making the Presentation 

Careful planning of the content and judicious selection for accompanying audiovisual aids lay the groundwork for an effective presentation. The final 

consideration is the actual delivery of the presentation. 

Platform Techniques

Several platform techniques can improve your ability to get your message across. 

These involve interaction with your audience, use of lecterns and pointers, and 

body language. 

Relationship to Audience

• Eye contact. A vital part of good communication is effective eye contact. 

A presenter who speaks to an inanimate spot on the back of the wall loses 

out on a valuable means of determining whether his message is getting 

across--visual feedback. In addition, looking your audience in the eye 

increases the audience's confidence in you and your message. 

• Focus on listener. Remember to deliver your presentation in a manner 

that is understandable, interesting, and meaningful from the point of the 

listener. 

Presentation Tools

Presentation tools include lecterns and pointers: 

• Lecture (or Speaker's stand). The lectern can serve several purposes in 

addition to the obvious one of being a place for your notes. 

• Provides out-of-sight storage space for aids and handouts. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

242 Federal Emergency Management Agency/United States Fire Administration 

• Serves as a resting place for your hands (but avoid gripping it tensely). 

• Can be used to establish a particular type of relationship with the 

audience. For example, speaking from behind the lectern establishes a 

formal relationship, which at times is desirable. Moving to the side or 

front of the lectern tends to remove the "barrier," making for a closer, 

more informal relationship with the audience. Moving behind the lectern 

is a good way of focusing attention on the summary as a more formal part 

of the presentation. 

• Pointer. A pointer is a valuable tool in drawing attention to specific items 

on a chart. However, it is all too frequently a distracting toy. Put it down 

when you're not using it! 

Use of Body

The manner in which you handle yourself during the presentation has a significant 

effect on the audience. The following suggestions should be kept in mind: 

Poise. A poised speaker appears self-confident, relaxed, and capable of doing 

whatever the situation calls for. By paying attention to the following details, even 

an insecure speaker can give this impression: 

• Dress should be in good taste, clean, and comfortable. When your 

relationship with the audience is formal, it is generally not a good idea to 

take off your jacket, loosen your tie, or roll up your sleeves. 

• Approach your position before the audience in a deliberate, unhurried 

fashion. Pause a few moments before beginning to speak; this gives your 

audience a chance to focus on you and feel that they don't frighten you 

(even though they may!). 

• Do what feels most comfortable for you with our hands, but don't keep 

them in motion! Hands should be relaxed, and should not draw attention. 

• Posture should be relaxed without being sloppy, and dignified without 

being stiff. 

Movements. Deliberate, well-timed movements can: 

• Relieve tension. 

• Draw attention away from a visual aid and back to you. 

• Break the hypnotic effect a stationary body has on an audience. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 243 

• Change the mood or pace of the presentation. 

Facial Expression. Your face should reflect the mood you want to create in your 

audience. Lacking some facial expression, you will not inspire interest. 

Vocal Techniques

By giving careful attention to certain basic elements of speaking, most presenters 

can increase their effectiveness substantially. 

• Pitch. Refers to the tone level of the voice. A voice pitch different from a 

person's normal speaking voice usually betrays nervousness and it is 

distracting to an audience. Another problem related to pitch is voice drop 

at the end of a sentence. Without realizing it, many speakers let the last 

few words in a sentence trail off to a point where they become difficult to 

hear. Often, merely by being aware of this, the voice-drop problem can be 

overcome. 

• Intensity. Refers to the force or loudness with which you project. The 

volume must be loud enough so that everyone can hear you, but not loud 

enough to overpower them. Variations in intensity add dynamics--a soft 

voice can, at times, command more attention than a loud one. 

• Pace. Refers to rate of speech. Variation in rate can add considerably to 

the effectiveness of a presentation, provided the rate is always consistent 

with the mood you are trying to convey. A tape recorder can be very 

helpful in showing you how good your timing is. 

• Pauses. Can be effective in drawing attention to points that you consider 

particularly important. Pauses should be used deliberately, however, so 

that you do not give the impression that you are groping for words. 

Audience Retention

Audience retention refers to your audience's ability to retain, or remember, what 

you said after your presentation is over. Audience retention not attention, is the 

concern. The two are related, but are not identical. 

Curiosity will make the introduction gain a reasonably high degree of both 

attention and retention. Even with a good presentation, sharp drop in retention 

occurs after the introduction. For this reason, you must repeat important points 

during the body of your presentation. The use of summary phrases (suggested in 

section II) helps increase retention at this stage. Audience members who have 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

244 Federal Emergency Management Agency/United States Fire Administration 

done some mental wandering will usually make a conscious effort to get back on 

track and carry something of value away from the presentation. 

What have studies of the audience-retention function told us? 

• Audience retention is lowest during the body of the presentation, which is 

the part that normally takes the most time and effort to prepare. This does 

not mean that you should give it less attention. It does mean, however, 

that the body of your presentation is not the place to introduce a key point 

and then drop it, if you want the point to be well-remembered by your 

audience. 

• The introduction and particularly, the conclusion require as much careful 

preparation as the body--possibly even more. Since these portions of your 

presentation are more likely to be retained the key points you want your 

audience to remember must be covered here. 

• You should give attention to methods for simulating your audience during 

the body of your presentation--for example, changes of pace and wise use 

of audio-visual aids. 

Once you have soundly prepared your material, careful attention to the points 

covered in this section will make your presentation more meaningful, and will 

make it more likely that you will achieve your objectives. 

V. Conclusion 

At the heart of an effective presentation is meaningful content, as covered in 

"Steps in preparing a short presentation" (section II). Supporting the content are 

audio-visual aids, discussed in "selection and use of audio-visual aids" (section 

III). Careful selection and use of such aids can provide clarification, a change of 

pace, and stimulus during the body of the presentation. Section IV, "Making the 

presentation," highlights the importance of platform, vocal, and audienceretention techniques. Together, these things--meaningful content, appropriate 

aids, and good delivery style--will help you get your message across in a manner 

that will achieve the objectives of your presentation. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 245 

APPENDIX C: SAMPLE WORKSHOP EVALUATION INSTRUMENT 

Day 1 

We would like your evaluation of the workshop to be anonymous. Please provide the 

following information, however, to help us apply the information you provide to 

improving the materials and future workshops: 

Position: 

Agency: 

Years involved in juvenile firesetting: 

Brief summary of your role in the prevention/intervention of juvenile 

firesetting/arson: 

We would like you to evaluate each session of the workshop: 

1. Please rate the following elements of the workshop session, The Juvenile 

Firesetter: Personality Profiles.

Excellent 

Very 

Good Good Fair Poor 

a. Usefulness of the information 

presented ← ← ← ← ←

b. Clarity of the information presented ← ← ← ← ←

c. Opportunity to ask questions ← ← ← ← ←

d. Opportunity to participate ← ← ← ← ←

e. Pace and amount of information 

covered ← ← ← ← ←

f. What were the strongest or most useful aspects of the session (i.e., what 

was good about it?)? 

g. What were the weakest or least useful aspects of the session? 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

246 Federal Emergency Management Agency/United States Fire Administration 

h. When you return to work, how useful will this session be to you in 

developing or improving a juvenile firesetter/arson program? 

← Extremely useful 

← Very useful 

← Average; added little to current practice or knowledge 

← Not very useful 

← Not useful at all 

i. What would you add or eliminate from the session to improve its 

usefulness? 

2. Please rate the following elements of the workshop sessions, Screening and 

Evaluating Juvenile Firesetters. 

Excellent 

Very 

Good Good Fair Poor 

a. Usefulness of the information 

presented ← ← ← ← ←

b. Clarity of the information presented ← ← ← ← ←

c. Opportunity to ask questions ← ← ← ← ←

d. Opportunity to participate ← ← ← ← ←

e. Pace and amount of information 

covered ← ← ← ← ←

f. What were the strongest or most useful aspects of the session (i.e., what 

was good about it?)? 

g. What were the weakest or least useful aspects of the session? 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 247 

h. When you return to work, how useful will this session be to you in 

developing or improving a juvenile firesetter/arson program? 

← Extremely useful 

← Very useful 

← Average; added little to current practice or knowledge 

← Not very useful 

← Not useful at all 

i. What would you add or eliminate from the session to improve its 

usefulness? 

3. Please rate the following elements of the workshop session, How to Interview 

Juvenile Firesetters. 

Excellent 

Very 

Good Good Fair Poor 

a. Usefulness of the information 

presented ← ← ← ← ←

b. Clarity of the information presented ← ← ← ← ←

c. Opportunity to ask questions ← ← ← ← ←

d. Opportunity to participate ← ← ← ← ←

e. Pace and amount of information 

covered ← ← ← ← ←

f. What were the strongest or most useful aspects of the session (i.e., what 

was good about it?)? 

g. What were the weakest or least useful aspects of the session? 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

248 Federal Emergency Management Agency/United States Fire Administration 

h. When you return to work, how useful will this session be to you in 

developing or improving a juvenile firesetter/arson program? 

← Extremely useful 

← Very useful 

← Average; added little to current practice or knowledge 

← Not very useful 

← Not useful at all 

i. What would you add or eliminate from the session to improve its 

usefulness? 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 249 

Day 2 

We would like your evaluation of the workshop to be anonymous. Please provide the 

following information, however, to help us apply the information you provide to 

improving the materials and future workshops: 

Position: 

Agency: 

Years involved in juvenile firesetting: 

Brief summary of your role in the prevention/intervention of juvenile 

firesetting/arson: 

We would like you to evaluate each session of the workshop: 

4. Please rate the following elements of the workshop session, Intervention 

Services and Referral Mechanisms.

Excellent 

Very 

Good Good Fair Poor 

a. Usefulness of the information 

presented ← ← ← ← ←

b. Clarity of the information presented ← ← ← ← ←

c. Opportunity to ask questions ← ← ← ← ←

d. Opportunity to participate ← ← ← ← ←

e. Pace and amount of information 

covered ← ← ← ← ←

f. What were the strongest or most useful aspects of the session (i.e., what 

was good about it?)? 

g. What were the weakest or least useful aspects of the session? 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

250 Federal Emergency Management Agency/United States Fire Administration 

h. When you return to work, how useful will this session be to you in 

developing or improving a juvenile firesetter/arson program? 

← Extremely useful 

← Very useful 

← Average; added little to current practice or knowledge 

← Not very useful 

← Not useful at all 

i. What would you add or eliminate from the session to improve its 

usefulness? 

5. Please rate the following elements of the workshop sessions, Program 

Management, Publicity and Outreach, Monitoring Systems. 

Excellent 

Very 

Good Good Fair Poor 

a. Usefulness of the information 

presented ← ← ← ← ←

b. Clarity of the information presented ← ← ← ← ←

c. Opportunity to ask questions ← ← ← ← ←

d. Opportunity to participate ← ← ← ← ←

e. Pace and amount of information 

covered ← ← ← ← ←

f. What were the strongest or most useful aspects of the session (i.e., what 

was good about it?)? 

g. What were the weakest or least useful aspects of the session? 

h. When you return to work, how useful will this session be to you in 

developing or improving a juvenile firesetter/arson program? 

← Extremely useful 

← Very useful 

← Average; added little to current practice or knowledge 

← Not very useful 

← Not useful at all 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 251 

i. What would you add or eliminate from the session to improve its 

usefulness? 

6. Please rate the group discussions based on case studies (Harry, Mark, Angie, etc.) 

on the following elements:

Excellent 

Very 

Good Good Fair Poor 

a. Usefulness of discussion ← ← ← ← ←

b. Potential for improving working 

relationships among participants ← ← ← ← ←

7. Please rate the panel discussion regarding Building an Effective Firesetter 

Program on the following elements: 

Excellent 

Very 

Good Good Fair Poor 

a. Usefulness of discussion ← ← ← ← ←

b. Potential for improving working 

relationships among participants ← ← ← ← ←

The next nine questions relate to the workshop as a whole. 

8. a. How did the workshop compare with other similar activities you have 

attended? 

← Much better than most 

← Somewhat better than most 

← About the same, average 

← Somewhat worse than most 

← Much worse than most 

b. What other workshops or training activities have you attended in regard to 

the juvenile firesetting/arson problem? 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

252 Federal Emergency Management Agency/United States Fire Administration 

9. In regard to the overall value of the workshop in terms of assisting you in your 

work with juvenile firesetters, was the value of the workshop: 

← Outstanding, exceeded expectations 

← Excellent, very helpful 

← Average, met basic expectation 

← Met minimum requirements, little else 

← Unsatisfactory, left many questions unanswered 

10. What might have been done differently, or included, to improve the workshop? 

11. Was the workshop: 

← Too short--more time was needed to cover additional topics or details. 

← The right length 

← Too long--information was "old hat," covered little new information. 

12. Was the workshop pertinent to your needs and interests? 

← Yes 

← No 

← Partially 

13. a. Were there specific areas in which you gained new knowledge or skills? 

← Yes 

← No 

← Some 

b. If yes, in what areas? 

14. What portion(s) of the workshop are apt to be most helpful to you in the future? 

Why? 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 253 

15. What portion(s) of the workshop are least apt to be helpful to you in the future? 

Why? 

16. Was the workshop: 

← Too basic 

← Just right 

← Too advanced 

The following questions pertain to the three documents distributed for the 

workshop. 

17. Please rate the potential usefulness of each document: 

Excellent 

Very 

Good Good Fair Poor 

Haven't 

reviewed 

yet 

a. Users' Guide ← ← ← ← ← ←

b. Volume I: Guidelines 

for Implementation ← ← ← ← ← ←

c. Volume II: Resource 

Materials ← ← ← ← ← ←

18. Please rate each program component (considering the material in all three 

documents) in terms of its value to you in regard to your work in juvenile 

firesetting: 

Value to work (circle rating) 

High Average Low 

Haven't 

reviewed 

yet 

a. Program Management 5 4 3 2 1 ←

b. Screening, Evaluating, and 

Developing the 

Implementation Plan 5 4 3 2 1 ←

c. Intervention Services 5 4 3 2 1 ←

d. Referral Mechanisms 5 4 3 2 1 ←

e. Publicity and Outreach 5 4 3 2 1 ←

f. Monitoring Systems 5 4 3 2 1 ←

g. Developing Relationships 

with the Justice System 5 4 3 2 1 ←
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

254 Federal Emergency Management Agency/United States Fire Administration 

19. Which components will be most useful to you, and why? 

20. Which components will be least useful to you, and why? 

Thank you very much for your comments. 

Because this workshop is part of a developmental effort, we will follow-up in two ways: 

(1) Sending all participants a follow-up questionnaire covering the actual use and 

value of the workshop and materials, and 

(2) Conducting telephone interviews with a sample of participants, to explore the 

extent of program implementation or changes due to the workshop and materials. 

Please be sure your name, address, and phone number have been provided to the 

workshop trainers. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 255 

APPENDIX D: CASE STUDIES 

HARRY 

Case 1. Harry is eight-years-old and lives with his parents in a comfortable suburban 

community. Harry, an only child, is a quiet boy who prefers playing alone than with his 

neighborhood friends. He is very bright and does well in school, especially in math and 

science. Harry says he wants to be an engineer when he grows up. Teachers describe 

Harry as shy and not very athletically-inclined. They report that he is very cooperative in 

school and well-liked by his classmates. His parents both say there are times when Harry 

becomes demanding, however they feel that this is his way of asking for attention. Harry 

and his parents spend a great deal of time with one another, especially on the weekends. 

One afternoon Harry was playing alone in his room with his new science kit. He was 

beginning the dissection of a frog. Curious about the somewhat thick skin of the frog, he 

decided to see if it were combustible. He went to the kitchen, found some matches and 

returned to his room. He struck one match and held the flame near the frog. The match 

dropped from his hand, fell to the floor and caught his bedroom curtains on fire. Harry 

ran from his room to tell his mother. 

FRANK 

Case 2. Frank is ten years old and lives with his mother and his eleven year old sister in 

a lower-middle income urban area. Frank's mom and dad have been divorced for eight 

years. Frank never has really known his father. For the last two years, Frank's mom had 

been living with a man whom, she says, was very generous to her family. He liked to 

spend time with her children, but he could be extremely rigid and overly punitive, 

particularly when Frank did something which displeased him. Recently, the mother 

separated from him because he physically abused her. Frank witnessed this abuse several 

times, and may also have been a victim. However, when asked, both mom and Frank 

deny that any of the physical abuse was directed at Frank. 

During the time of the separation, Frank's mom began to notice some behavior problems 

in her son. His ability to concentrate dramatically decreased, and reports came from 

school that he was involved in fights with his peers. At home, Frank had frequent temper 

outbursts during which he would become so angry that he would physically destroy his 

toys. Also, Frank was verbally aggressive and belligerent toward his sister. He was 

being generally disruptive both at school and at home. His mom reported this was 

unusual behavior for Frank and that she was very concerned for his well-being. 

Frank's mom noted that he had been curious about fire since the age of three, when she 

found him playing with matches in their kitchen. At that time she taught him how to 

correctly strike a match. Together they would practice striking matches, blowing them 

out and throwing them in the fireplace. He was told never to play with matches. He also 

was encouraged to come to his mom if he ever felt the urge to strike a match, and they 

would do it together. Despite these rules about firestarting, during the past few weeks 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

256 Federal Emergency Management Agency/United States Fire Administration 

Frank's mom found some scraps of burned newspaper in their fireplace. She became 

angry, describing the possible consequences of what could happen if the flaming 

newspaper accidentally caught the house on fire. 

Frank's most recent fire episode involved igniting his model airplane on the gas stove and 

running with it to the fireplace. Unfortunately, he did not reach the fireplace in time, and 

the burning airplane fell on the carpet, starting a small fire. Frightened and confused, 

Frank ran to his mother for help. Luckily she was nearby and able to extinguish the fire. 

Shortly after this incident, she call her local fire department for help in dealing with 

Frank's firesetting activities. 

CARL 

Case 3. Sixteen-year-old Carl lives with his father and younger brother in an upper-class 

urban neighborhood. His mother and father divorced when Carl was twelve, and the 

mother recently remarried. Carl's father, a prominent attorney, leaves for work early, 

comes home late and does a great deal of traveling. While Carl's father is absent much of 

the time, a loving but elderly aunt, as well as a housekeeper, share the responsibility for 

the two boys. Carl's mother lives in another city a few hundred miles away and visits the 

two boys on an irregular basis. 

Carl's father describes his son as "basically a good kid," but wishes he were more 

obedient and respectful. His mother says he is hard to talk to and never takes her 

seriously. Carl's aunt describes him as a charming boy who always seems to get into 

trouble. Although Carl is very bright, he has been expelled from several private schools 

because of his inability to follow the rules. These schools characterize him as the class 

bully and ringleader, and he always seems to be responsible for major class disruptions. 

Carl currently is attending a private day school, where his grades are average and his 

conduct marginally acceptable. 

Carl has a history of antisocial and delinquent behavior which began around the time of 

puberty. Shortly after his mother and father separated, Carl began missing several days of 

school for unexplained reasons. He would leave home early in the morning and return by 

dinner offering no explanation of where he had been or what he had been doing while not 

attending school. After talking with school officials, it was decided to move Carl to 

another educational environment. Several months later, Carl's father received a late night 

telephone call from the local police reporting that they had caught Carl and a few friends 

slashing car tires at a nearby shopping mall. Carl's father was able to convince the police 

not to press charges. In addition, there have been two incidents of shoplifting, one from a 

local drugstore and one from a large sporting goods store. On both occasions apologies 

were accepted, and no punishment or retribution was implemented. Carl has an apparent 

knack for getting into trouble and an ability to avoid experiencing the consequences of 

his antisocial activities. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 257 

Carl's fire behavior emerged at age nine when he was caught setting trash can fires at 

school. Both his father and the school authorities admonished him, and shortly thereafter 

Carl was asked to leave the school because of constant fighting with his peers. The latest 

firestart was of a more serious nature. Carl had been invited to spend the night at the 

house of his friend Kevin. Kevin's parents went out for the evening, and the two boys 

decided to drink the beer which they found in the refrigerator. Both of the boys together 

consumed about two six-packs of beer. They then left the house and rode their bikes 

down to the local park and recreation area. They thought it would be easy and fun to 

break into the building and steal the petty cash from the park director's desk. Once they 

had entered the building through an open window, they worked for several minutes to 

break into the desk where the petty cash was kept. Unsuccessful and frustrated by their 

attempt to obtain the money, they spotted a lighter on a nearby counter and ignited the 

papers in the trash can. They fled from the building on their bikes without attempting to 

extinguish the fire. On their way home they heard the sound of fire engines and assumed 

that they were responding to the fire they had set at the park and recreation building. 

MARK 

Case 4. Mark is the middle of three sons living with his mother and father in a suburban 

middle class neighborhood. He is eleven-and-a-half and he is in the fifth grade. His 

home environment is generally positive and supportive, and with a religious orientation. 

There is a strong degree of cohesion and achievement motivation. In addition, discipline 

methods are appropriate and there is adequate supervision. All of the members of the 

family spend time together focused on child-related activities such as going to baseball 

games and other recreational outings. Socially, Mark appears to be accepted by his peers, 

although his best friend recently died. Mark failed the first grade, and has been placed in 

special education classes. His teachers report that he has numerous academic problems 

and is starting to display conduct problems in school. 

Mark has had several "small" firesetting incidents over the last five years. His parents 

report that Mark has left over 50 burn marks on items around the house. Both parents 

smoke, and ignition sources, such as matches and lighters, are readily available. The last 

fire Mark set was in his own room. He found matches in the house, went to his room and 

set fire to some paper and furniture. He extinguished the fire himself. Just prior to the 

fire, he had been told by his mother that he could not attend an overnight at his friend's 

house because the friend's parents would not be at home. No significant damages 

resulted from the fire. Mark's parents claim that he sets fires when he is angry or upset. 

As a result of setting this last fire, Mark was disciplined by his parents. The eliminated 

his after-school baseball practice for two weeks. Mark was not happy about this 

punishment, and he is threatening to set another fire. 
Trainers' Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

258 Federal Emergency Management Agency/United States Fire Administration 

ANGIE 

Case 5. Angie is a fifteen-year-old black female who is the oldest of three sisters. She 

lives with her mother and father, both of whom are highly successful professionals in the 

entertainment industry. The family environment is somewhat positive, however, there 

are reports by the mother of a high degree of tension and discord between she and Angie. 

The mother also reports that Angie often displays aggressive behavior (arguing, hitting, 

etc.) toward her younger sisters. There appears to be adequate discipline and supervision, 

with a moderate level of imposed punishment. The family typically does not spend a 

great deal of time together participating in recreational activities. Angie has many friends 

with whom she spends the majority of her time. She claims that all her friends smoke 

and she also enjoys it. Her school reports that she has a very high IQ, but her grades and 

conduct are well below average. 

Angie has a significant psychiatric history. Two years ago she was hospitalized for three 

months for depression and a suicide attempt. At the time she received major tranquilizers 

and antidepressant medications. Her recovery was excellent and she has been in 

outpatient psychotherapy on an irregular basis since that time. There appears to be no 

recurrence of that type or degree of psychopathology. Currently she is not on medication 

nor in psychotherapy. 

Angie's firesetting behavior was first noticed by her parents when she was eight. Her 

parents reported that she was found playing with matches without adult supervision. She 

was punished, and told not to engage in that type of behavior again. However, shortly 

thereafter, the housekeeper noticed several small items around the house with burn 

marks, including parts of a carpet and a section of Angie's bedroom curtains. Her parents 

again admonished her, and punished her by not letting her watch television for one week. 

There were no known firesetting incidents until recently. 

Angie's current firesetting incident occurred when she burned a book with a lighter she 

found in the house. She said she had been feeling sad, lonely, and anxious before setting 

the fire, she set the fire because "she felt like it," and she felt great afterward. She 

described it as an impulsive act, she had not planned the fire, nor had she thought about 

potential consequences. Her parents felt that by setting the fire Angie wanted to cause 

physical harm and damage to their household. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 259 

FIRE SERVICE GUIDE TO A 

JUVENILE FIRESETTER EARLY 

INTERVENTION PROGRAM 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

260 Federal Emergency Management Agency/United States Fire Administration 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 261 

TABLE OF CONTENTS 

PAGE 

CHAPTER 1: INTRODUCTION............................................................................. 263 

CHAPTER 2: PROGRAM MANAGEMENT.......................................................... 265 

Program Planning ................................................................................... 265 

Program Structure................................................................................... 266 

Location.................................................................................................. 266 

Multi-jurisdictional Approach................................................................ 267 

Staffing and Responsibilities.................................................................. 269 

Staffing Issues and Concerns ................................................................. 269 

Training .................................................................................................. 270 

Funding................................................................................................... 271 

Liability .................................................................................................. 272 

How to Establish Interagency Links ...................................................... 273 

Juvenile Firesetter Program Workshop .................................................. 275 

Jurisdictional Characteristics.................................................................. 276 

CHAPTER 3: SCREENING AND EVALUATION ................................................ 277 

Objectives............................................................................................... 277 

The Target Populations .......................................................................... 278 

Fire Service Procedures.......................................................................... 279 

Telephone Contact Sheet ............................................................. 279 

USFA's Interview Schedules ....................................................... 279 

CHAPTER 4: INTERVENTION SERVICES.......................................................... 282 

Purpose ................................................................................................... 282 

Situational Influences ............................................................................. 283 

Critical Issues ......................................................................................... 284 

Primary Prevention................................................................................. 284 

Early Intervention................................................................................... 286 

The Juvenile Firesetter Program, Columbus, Ohio...................... 286 

Operation Extinguish, Montgomery County, Maryland.............. 287 

Fire-Related Youth (FRY) Program, Rochester, New York........ 288 

Operation Fire S.A.F.E., Oklahoma City, Oklahoma .................. 289 

Core Intervention.................................................................................... 290 

Other Considerations.............................................................................. 291 

Resource List.......................................................................................... 292 

CHAPTER 5: REFERRAL MECHANISMS ........................................................... 296 

Introduction ............................................................................................ 296 

Identifying Referral Sources and Target Agencies ................................ 297 

Contacting Referral Agencies ................................................................ 298 

Developing Detailed Referral Agreements ............................................ 299 

Differences Across Types of Jurisdictions............................................. 300 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

262 Federal Emergency Management Agency/United States Fire Administration 

CHAPTER 6: PUBLICITY AND OUTREACH...................................................... 301 

Purpose ................................................................................................... 301 

Strategies ................................................................................................ 302 

Partnerships ............................................................................................ 306 

Resource List.......................................................................................... 306 

CHAPTER 7: MONITORING SYSTEMS .............................................................. 307 

Purpose ................................................................................................... 307 

Central Elements of the Monitoring Systems......................................... 309 

System Development and Use ............................................................... 311 

CHAPTER 8: DEVELOPING RELATIONSHIPS WITH THE 

JUSTICE SYSTEM ....................................................................................... 316 

Purpose ................................................................................................... 317 

Relationships with the Probation Department........................................ 319 

Relationship with the Law Enforcement, 

Legal, and Judicial Community ...................................................... 320 

Relationships with the Juvenile Correctional Institutions...................... 320 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 263 

CHAPTER 1: INTRODUCTION 

In Passaic, New Jersey, a firefighter was killed and hundreds of people 

lost their homes in a fire started by a group of teenage boys. In Roanoke, 

Virginia, a seven-year-old boy set fire to a chair in an abandoned building. 

The fire spread to an adjacent house and trapped an elderly woman. In 

Rochester, New York, a two-year-old, playing with matches, started a fire 

that took his life and the lives of five family members. Unfortunately, 

these tragic events are not isolated incidents, but are repeated virtually 

every day in cities and towns across the United States. Arson fires kill 

hundreds of people every year and cause over one billion dollars worth of 

damage annually. 

It is estimated that approximately 40% of all arsons are set by juveniles. 

These fires cause hundreds of millions of dollars in damages annually and 

thousands of needless injuries and deaths. The rate of juvenile fireplay 

and firesetting--short of arson as determined by fire investigators--may 

also be quite high. Studies have shown that the majority of normal 

children possess an interest in fire and nearly half have engaged in 

fireplay. While the majority of the child-set fires are set out of curiosity 

not malice, the damage they cause, both in economic and human costs, are 

real and devastating. 

Clearly the problem of juvenile firesetting and arson is a costly, often 

deadly, problem. Whether the result of a curious child playing with 

matches or the malicious act of a troubled delinquent, juvenile firesetting 

is a serious and vexing problem that requires a special response from the 

community. 

In recognition of the seriousness of the juvenile firesetter problem 

nationally, the Institute for Social Analysis was contracted by the Office of 

Juvenile Justice and Delinquency Prevention and the U.S. Fire 

Administration to conduct the National Juvenile Firesetter/Arson Control 

and Prevention Program (NJF/ACPP). This developmental initiative is 

designed to assess, develop, test, and disseminate information about 

promising approaches for the control and prevention of juvenile firesetting 

and arson. 

ISA initially planned to develop one "model" program. However, we 

quickly realized that a program suited to a small, volunteer fire department 

in rural Minnesota would not be appropriate for a large, paid department 

in the Bronx and vice versa. Instead, ISA developed a modular or 

components model. The components describe how to develop, implement, 

and operate a juvenile firesetter program. These components highlight 

seven different aspects of a program, including program management, 

screening and evaluation, intervention services, referral mechanisms, 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

264 Federal Emergency Management Agency/United States Fire Administration 

publicity and outreach, monitoring systems, and developing relationships 

with the justice system. ISA, with assistance from its subcontractors and 

consultants developed three program manuals. The Guidelines for 

Implementation contains a broad range of information about each of the 

components. The Users' Guide provides step-by-step guidelines on how 

to use the information in the Guidelines to implement a juvenile firesetter 

program. The Trainers' Guide describes how to use the information in the 

Guidelines as well as other resources to develop a comprehensive juvenile 

firesetter prevention training workshop. The guide provides a detailed 

curriculum for the training program and provides strategies for modifying 

the curriculum to meet specific needs. 

As noted above, the Guidelines for Implementation contains a vast range 

of information. It includes information not only for the fire service, but 

also for mental health, juvenile justice, and child protective services 

agencies. In writing that manual, ISA attempted to provide the reader with 

the widest variety of program information and purposely did not specify 

the type of program in jurisdiction should implement. However, we have 

found that an "evaluation, education, and referral program" model is the 

one most often implemented by juvenile firesetter programs across the 

country. After the National Juvenile Firesetter/Arson Control and 

Prevention Program was evaluated, it became clear that a shorter manual 

specifically devoted to the development of an early intervention program 

was needed. 

In writing this manual we have culled the information from the Guidelines 

for Implementation and presented what we believe to be the most effective 

program for the fire service to implement. Not every recommendation 

will pertain to all jurisdictions, and program planners should refer back to 

the Guidelines for the most complete information on alternative 

approaches. Like the other program materials, this manual is written 

primarily for the fire service--the agency most likely to house a firesetter 

program. 

ISA advocates an "evaluation, education, and referral program"--where the 

fire service provides initial screening and evaluation of firesetters who 

have been identified, early intervention/fire safety education for curiosity 

firesetters or other firesetters who may benefit from such education, and 

referral to mental health or other appropriate agencies for more troubled 

firesetters. Although some programs include a "counseling" component 

within the fire service, ISA has found that the fire service is best equipped 

to screen juvenile firesetters, generally using the screening tools developed 

by the U.S. Fire Administration, and provide fire safety education when 

appropriate. Any additional counseling is usually best handled by mental 

health or child protective services agencies. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 265 

ISA believes that the fire service should not have to tackle the problem of 

juvenile firesetting alone. Other agencies including schools, mental health 

agencies, juvenile justice agencies, child protective services, and other 

agencies that work with youth, need to work with the fire service to help 

identify juvenile firesetters and provide the appropriate services so that 

these juveniles do not continue to set fires. In most communities, the 

initial impetus to develop a juvenile firesetter program comes from the fire 

service, but as this volume indicates, the fire service should solicit 

assistance from these other agencies--often in the context of developing a 

coordinating council--to provide all the necessary services. 

This manual follows the format of the other materials developed under this 

program. It will discuss an early intervention and referral program in the 

context of the seven components ISA feels are critical to the success of 

any juvenile firesetter program. These components include 1) Program 

Management, 2) Screening and Evaluation, 3) Intervention Services, 4) 

Publicity and Outreach, 5) Referral Mechanisms, 6) Monitoring Systems 

and 7) Relationships with the Juvenile Justice System. 

CHAPTER 2: PROGRAM MANAGEMENT 

Program Planning 

Juvenile firesetter programs often originate out of the concern of one 

inspired individual. These individuals may be members of the fire service 

who have a genuine interest in children or have seen, first hand, the 

damage and pain caused by juvenile firesetting. (If a program is 

established, they often serve as program coordinators). Once the interest 

is generated, the next step is to acquire a detailed understanding of the 

juvenile firesetter problem in the particular jurisdiction. Local fire 

departments are the first place to go to obtain the necessary information. 

Fire incident reports, arson investigation reports, and other records should 

provide data on the extent and nature of the juvenile firesetter problem. 

Information on property loss, injuries, and deaths, if available, give added 

meaning to the numbers. Additional information and arrest data is often 

available from hospital burn units and police departments. 

Once data on the extent of the local juvenile firesetter problem is 

collected, the person interested in the problem will need to meet with fire 

chiefs, community representatives, local city councils, and others to 

determine if the magnitude of the juvenile firesetting problem constitute a 

serious enough issue to warrant community action. These meetings often 

center around: (1) the cost of the problem versus the cost of the solution, 

(2) whether fires set by juveniles are a significant proportion of the fires 

set in the community and (3) whether the numbers of fires set by juveniles 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

266 Federal Emergency Management Agency/United States Fire Administration 

is disproportionally high given the numbers of juveniles in the community. 

Deciding whether the issue of juvenile firesetting is a significant problem 

will probably take many meetings and discussions. Do not be discouraged 

if the process takes longer than expected. Many juvenile firesetter 

programs have been created because one individual had the tenacity to 

keep going back and presenting his or her case. 

If juvenile firesetting is not considered a problem, the path is easy. If, 

however, the community decides that juvenile firesetting is a threat to the 

community, the next issue is deciding how to address the problem. The 

community may decide that the problem is severe enough to establish a 

complete juvenile firesetter program. Communities wishing to implement 

such a program can use the guidelines described in these components and 

can seek assistance from other juvenile firesetter programs. If a separate 

juvenile firesetter program is beyond the resources of a particular 

community, the fire service may choose to bolster existing programs by 

implementing one or more of the components. Each jurisdiction is unique 

and has its own unique problems and resources. Only the members of that 

community can decide what constitutes a serious problem and which 

strategies will be most effective to address the problem. 

Program Structure 

If the members of the community feel that the juvenile firesetter program 

is serious enough to warrant a juvenile firesetter program, they must 

decide what kind of program would best serve their jurisdictional needs 

and then develop such a program. As indicated earlier, ISA advocates an 

early intervention program directed by the fire service for single 

jurisdictions (we will briefly discuss the special case of multiple 

jurisdiction programs later.). The following sections are designed to 

provide information on how to establish a juvenile firesetter program. The 

remainder of this component provides information on such issues as 

location, staffing, training, funding, and establishing interagency links. 

Location 

Fire Service. The primary site for a juvenile firesetter program should be 

within the fire service. The results of the Institute for Social Analysis' 

(ISA) survey of juvenile firesetter programs throughout the country reveal 

that 87% of the programs are administered by the fire service. These 

programs are located in different branches of the fire service, including the 

Office of the Fire Chief, Fire Investigation, and the Fire Marshal. The 

primary reason why juvenile firesetter programs should be established 

within the fire service is the fire service's capacity to identify large 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 267 

numbers of firesetters. The fire service is usually the first agency to 

respond to a fire and many of the firesetters are identified at the scene. 

Indeed, the majority of juvenile firesetter referrals to existing programs are 

from within the fire service, usually followed by parents and then school 

and mental health organizations. 

The fire service's knowledge of fire cause and origin facilitates their 

ability to identify youthful firesetters. The fire service can track a case 

from the identification of the firesetter through the fire investigation, 

assessment, and intervention (education, counseling, prosecution, etc.). In 

addition, many fire departments have established links with some of the 

crucial referral agencies. In the course of their investigations, fire 

investigators often communicate with police, probation, social service, and 

justice personnel. These links are vitally important to the success of a 

juvenile firesetter program (see the Referral Mechanisms Component). 

Although the overwhelming majority of juvenile firesetter programs are 

housed within the fire service, there is still some concern that such a 

program will fall prey to departmental politics. The greatest concern is 

that the program would be terminated when the Fire Chief who instituted 

it leaves. Most departments feel that a juvenile firesetter program is too 

valuable to have such a tenuous existence. Another concern is that 

firefighters and investigators may be hesitant to use the juvenile firesetter 

program. To overcome these potential problems, juvenile firesetter 

programs must be institutionalized within the fire service. Their existence 

cannot rely solely on the motivation and drive of one individual. To 

survive, the juvenile firesetter program must receive support from all 

levels within the fire service and community. 

To gain the support of all the fire service personnel, the program director 

should brief the chief and all the division heads about the juvenile 

firesetter program. Brief memos can be circulated to each fire service 

division describing the juvenile firesetter program services. Each 

firefighter, fire investigator, fire educator, etc., should know about the 

program and understand how it works. The Publicity and Outreach 

component will describe how to inform the general public about the 

juvenile firesetter program. 

Multi-jurisdictional Approach 

The majority of the juvenile firesetter programs surveyed by ISA 

functioned at the local level. More recently, however, a number of 

programs are considering a county or larger, multi-jurisdictional approach. 

Indeed, during the implementation and evaluation phase of the National 

Juvenile Firesetter/Arson Control and Prevention Program, the three sites 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

268 Federal Emergency Management Agency/United States Fire Administration 

selected for implementation all chose to implement a multi-jurisdictional 

approach. One of the greatest advantages of such an approach is that 

many of the referral agencies that work with the juvenile firesetter 

program (e.g., mental health, probation, juvenile court, etc.) are county, 

not local, agencies. A multi-jurisdictional program may span many towns 

and allow these communities to combine their resources instead of 

competing for the limited resources of county agencies with whom they 

work. 

The multi-jurisdictional approach, however, requires additional planning 

and coordinating. The national evaluation of the NJF/ACPP, conducted 

by the American Institutes for Research (AIR), concluded that while "the 

fire service agency may still be the proper location for screening, 

education, and referral services for individual juveniles, ...it may not be 

the best choice for achieving regional coordination." Using the 

experiences of the three implementation sites, AIR suggests, "An agency 

that already spans the boundaries of the region and that already has 

experience building and maintaining networks that may be a more 

effective program vehicle than an individual fire department," for 

managing a regional approach. 

In one of the implementation sites, the program management was operated 

out of the Council of Government's office. The Council had exactly the 

type of networking experiences necessary to implement a regional juvenile 

firesetter program. The Council had extensive contacts over the four 

county area and was able to bring over twenty fire departments together. 

As AIR points out, the Council also had a proven track record with the 

area's public officials. In another site, a non-profit organization worked 

with the District Attorney's Office to develop a firesetter program that 

encompassed numerous fire districts within one judicial district. The nonprofit agency was able to take advantage of the District Attorney's districtwide network in bringing together the appropriate agencies. One 

advantage of using a non-fire service agency to manage a multijurisdictional juvenile firesetter program is that you can avoid interdepartmental rivalries that can sometimes impede the progress of a 

program. 

If a site chooses to develop a multi-jurisdictional program, it will need to 

establish detailed guidelines for referral and feedback to each fire 

department/station within the juvenile firesetter program jurisdiction. 

Each fire department/station within the jurisdiction served by the program 

should be briefed about the program's purpose and services. As is true for 

local juvenile firesetter programs, the multi-jurisdictional program will be 

responsible for assessment, intervention, referral, case tracking and 

follow-up. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 269 

The feasibility of a multi-jurisdictional program will be based on the 

extent of the juvenile firesetter problem in a given jurisdiction and the 

resources available to ameliorate the problem. In some cases, the structure 

of the fire service or referral agencies may make such an approach 

untenable. Each jurisdiction will need to assess which approach is most 

appropriate to meet the needs of the community. 

Staffing and Responsibilities 

Fire Service Personnel. Programs located within the fire service should 

be coordinated by an individual with a genuine interest in the juvenile 

firesetter issue. Ideally that individual should be a senior ranking fire 

official. As noted earlier, programs need support from the highest level in 

the fire service. Many programs are administered by the Office of the Fire 

Chief or Fire Marshal with the coordinators answering directly to the Fire 

Chief or Fire Marshal. The coordinators would be responsible for the dayto-day activities of the juvenile firesetter program. They would be in 

charge of assessment and intervention, either directly or by supervising 

others who are assigned to provide the assessment and intervention 

services. The coordinators would also be primarily responsible for 

facilitating communication between the juvenile firesetter program and 

other agencies. The coordinators should be viewed as managers who are 

responsible for not only the mechanics of running the juvenile firesetter 

program, but also for the leadership and direction of the program. 

In larger departments, additional fire service staff should also be assigned 

to the program. Firefighters, fire investigators, and fire educators can 

provide screening and evaluation services, fire education, and referral 

services. Fire service personnel can be trained to screen juvenile firesetters 

using standard screening instruments. In addition, fire service personnel 

can provide fire safety education to juvenile firesetters. Many fire 

departments employ fire educators who have the responsibility to teach 

fire safety in the schools. Providing fire safety education to the juvenile 

firesetters is often seen as an extension of that responsibility. 

Staffing Issues and Concerns 

The staffing structure presented above can be implemented by 

jurisdictions that have the manpower resources available to staff a juvenile 

firesetter program. Smaller jurisdictions, however, may not have the 

resources or the need to establish an actual juvenile firesetter program. 

These jurisdictions may simply want to incorporate some of the services 

provided by a juvenile firesetter program into existing agencies. Although 

it is recommended that jurisdictions establish a "program" within the fire 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

270 Federal Emergency Management Agency/United States Fire Administration 

department, an alternative possibility for some jurisdictions is to have 

interested people in various agencies take on the responsibilities of the 

juvenile firesetter program staff. These individuals would be responsible 

for assessment, education, referral, and tracking. 

Jurisdictions must also decide whether the juvenile firesetter program will 

be operated by full-time or part-time staff and whether the staff will be 

paid or volunteer. Ideally, a juvenile firesetter program should be staffed 

by at least one full-time, paid fire service employee. Many fire 

departments have separate budgets for the juvenile firesetter program, 

which includes full-time personnel. In other jurisdictions, fire service 

personnel provide juvenile firesetter assessment, education, and referral in 

addition to other responsibilities, such as, fire investigations, fire 

inspections, or school fire safety education. Still other jurisdictions rely 

entirely on fire service personnel who volunteer their off-duty time to help 

provide assessment and education to juvenile firesetters. (In later sections, 

this component will discuss liability concerns surrounding the practice of 

having paid fire service staff volunteer their time to the juvenile firesetter 

program). 

Training 

Regardless of the staff background, all program staff should receive 

training in juvenile firesetting and child related issues. At a minimum, the 

training should include the following topics: 

Characteristics of juvenile firesetters 

How to identify juvenile firesetters 

Developing and managing a juvenile firesetter program 

Screening/assessment techniques 

Interviewing and educating the juvenile firesetter 

Referral and follow-up 

Normal child development 

Juvenile delinquency 

Child Abuse/Neglect 

Legal Issues 

National experts in the field of juvenile firesetting can provide training in 

the characteristics of juvenile firesetters and information on how to 

identify, assess, interview, educate, and refer firesetters. Local fire service 

personnel can provide specific information about the jurisdiction's juvenile 

firesetter problem. 

Personnel from local social services agencies and mental health facilities 

can provide training in child related issues, such as child development, 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 271 

delinquency, abuse, and neglect. Training in these child related issues is 

important to understanding juvenile firesetters. For example, in some 

cases, more seriously disturbed firesetters engage in other acts of juvenile 

delinquency. In other cases, youth will set a fire to draw attention to 

parental abuse or neglect. Juvenile firesetters represent a broad spectrum 

of youth, from developmentally normal children who are simply curious 

about fire to very seriously disturbed youth who require specialized 

treatment. The juvenile firesetter staff need this diverse training because 

they will come in contact with a wide range of juveniles in the course of 

their work. 

Information about the legal issues surrounding juvenile firesetting can be 

obtained through the local prosecutor's office. Program staff need to be 

aware of the arson laws, including the age of accountability. The staff 

should also know how juvenile firesetters are handled by the justice 

system. 

Once the juvenile firesetter program has been established and the program 

staff have received training, the program coordinator or other staff should 

provide an orientation to all fire service personnel, especially arson 

investigators and upper level command staff. This may be done in the 

form of an in-service meeting or one day seminar. (If the resources are 

available, these personnel may also be included in the training seminar). 

All fire service personnel should be aware of the program and the services 

it provides. In addition, all fire service personnel should understand the 

procedures used to refer a firesetter to the program. Questions and 

concerns of the fire service personnel about the program should be 

addressed at this time. An example of a Juvenile Firesetter Training 

Workshop can be found in the Trainers' Guide. 

In addition to the fire service orientation, the program coordinator should 

prepare briefings for the Chief and Deputy Chief to enhance their 

understanding of the problem and gain their support. As the program 

continues, the coordinator should provide the Chief and Deputy Chief with 

brief updates on the progress of the juvenile firesetter program. 

Funding 

As noted earlier, the nature and extent of any juvenile firesetter program 

will depend, to a large extent on the resources available to the program. 

Programs with limited money and manpower have gone to the community 

to acquire the necessary services, materials, and funds. The community 

can offer an unlimited wealth of resources. Corporations may contribute 

money or sponsor specific activities or products. When looking for 

corporate donations, juvenile firesetter program staff should appeal to the 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

272 Federal Emergency Management Agency/United States Fire Administration 

corporation's sense of civic mindedness and self-interest. Contributing 

money to better the community and help eliminate a costly and deadly 

problem is basically good business. The juvenile firesetter program 

should consider establishing local public/private partnerships. These 

partnerships, which include representatives from local businesses and 

public agencies (such as the fire service), have been useful in other 

government programs. Local businesses can donate more than money or 

equipment--they can contribute their management, fund-raising expertise, 

and other in-kind contributions. 

One potential resource for the juvenile firesetter program is local 

insurance companies. Where they may not always be able to offer 

monetary contributions, they may be able to provide in-kind assistance. 

Several juvenile firesetter programs have received generous help from the 

insurance industry regarding public relations activities, such as, printing 

brochures or publishing an article on the problem of juvenile firesetting 

and the promising program solutions. Insurance agencies can be a 

valuable resource because they have a vested interest in facilitating the 

reduction of juvenile firesetting. 

Prior to approaching insurance agencies or other local businesses, the 

juvenile firesetter program should gather as much statistical information as 

possible about the juvenile firesetter problem in their community. 

Information about the cost of juvenile firesetting in economic and human 

terms will help support funding efforts. The most important element of 

juvenile firesetting that needs to be stressed is that the problem is a 

community problem that cannot be alleviated without the assistance of the 

community. 

One additional source of funding can be investigated by the juvenile 

firesetter program. In some jurisdictions the restitution paid by a juvenile 

firesetter as part of a court sentence is not claimed by the insurance 

industry. Often this is because the cost of claiming that money is more 

than the actual amount of the restitution. The program coordinator should 

talk to the court and the insurance agencies about the possibility of 

earmarking those funds for the juvenile firesetter program. 

Liability 

Another financial (and legal) concern is the issue of liability. Liability 

refers to the potential for programs or referral agencies to be "at risk" for 

legal action because of the actions of a juvenile firesetter. Program staff 

need to take steps to ensure that referral agencies will not be held liable for 

the actions of the juveniles referred to them. Liability waiver forms are 

often used to counter these concerns. The liability waivers should be 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 273 

reviewed by attorneys to make sure they address all the concerns of the 

juvenile firesetter program and the referral agencies. Parents will need to 

read and sign these waivers (which usually release the program or the 

referral agencies from responsibility for the actions of their children). The 

juvenile firesetter program and the program's referral agencies need to be 

able to address the needs of the firesetters but will be limited if they are 

going to be held accountable for the actions of the firesetter. 

Another liability issue arises when fire service personnel volunteer their 

time to work with juvenile firesetters. As mentioned earlier, paid fire 

service personnel sometimes volunteer their time to assist juvenile 

firesetters. The new Fire Labor Standards Act (FLSA) may limit this 

practice. Many states are interpreting the FLSA to mean that the fire 

service is liable for fire service personnel when they are conducting fire 

service related activities regardless of whether they are on- or off-duty. 

Juvenile firesetter programs that use volunteers from the fire service as 

part of their program need to carefully review their state's interpretation of 

the FLSA and how it affects the program. 

How to Establish Interagency Links 

Regardless of how the fire service chooses to tackle the juvenile firesetter 

problem, they will need the assistance of the key community agencies 

which work with juveniles (e.g., police, probation, justice, schools, mental 

health, and social services). The following section will describe 

techniques for gaining support from these community agencies and 

establishing interagency relationships. 

Coordinating Council. Strong interagency relationships and referral 

networks are vital when establishing a juvenile firesetter program. 

Because these relationships are so critical to the success of a program, the 

creation of a coordinating council is essential. Such coordinating councils 

or task forces have been established in Portland, Oregon; Upper Arlington, 

Ohio; Central Oklahoma, and other programs around the country. The 

juvenile firesetter program coordinating council should be composed of 

representatives from all agencies in the jurisdiction whose responsibilities 

relate to juvenile firesetters. At a minimum, the council should include 

representatives from the fire service, police, probation, juvenile court, 

children's protective services, district attorney's office, schools, and mental 

health agencies. These agencies represent the avenues through which 

juveniles are referred to the juvenile firesetter program, as well as, 

resources for the program. Including all of the key agencies on the 

coordinating council will ensure that no juvenile falls through the cracks 

and that all firesetters are identified, evaluated, and receive appropriate 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

274 Federal Emergency Management Agency/United States Fire Administration 

interventions. Ideally, the council should meet once a month to discuss 

the problems or concerns and develop future plans for the program. 

The coordinator of the juvenile firesetter program will have the primary 

responsibility for recruiting the council representatives. If the coordinator 

is a member of the fire service, he/she may also represent the fire service 

on the council. The coordinator should contact the administrator of each 

agency to explain the juvenile firesetter program and the role of the 

council. The coordinator may want to have background materials, such as, 

statistics on the local juvenile firesetter problem and examples of how 

each agency is affected. It is important to stress that the problem of 

juvenile firesetting is a community problem that touches every agency 

mandated to provide services for juveniles. One program coordinator 

caught the attention of other agencies--and ultimately won their support--

by telling them that the next child to die in a fire was their responsibility, 

not his. Descriptions of how other programs work may also help convince 

agencies that juvenile firesetter programs work, if they receive the support 

of other agencies. If the head of the agency is unable to participate on the 

council, he/she should suggest a representative, preferably the person most 

likely to have contact with juvenile firesetters. 

Role of the Council. The primary role of the juvenile firesetter program 

coordinating council is to facilitate multi-agency cooperation to plan, 

implement, and maintain the juvenile firesetter program. The coordinating 

council should institute procedures for referrals to and from the juvenile 

firesetter program and should define the roles of each agency. For 

example, the juvenile firesetter program would be chiefly responsible for 

providing assessment and education, while child protective services and 

mental health agencies would provide counseling services for more 

troubled firesetters. Each agency representative could work toward 

providing the necessary procedures for acquiring services for juveniles 

referred by the juvenile firesetter program, such as, sliding fees, if 

necessary. 

The council will be responsible for developing specific referral 

agreements between the juvenile firesetter program and different agencies. 

These referral mechanisms, which will be described in detail later in the 

Referral Mechanisms Component, should include procedures for 

information exchange between the program and the referral agencies. 

Dual waivers and contracts enable the program staff to learn the status of 

the juveniles they refer for additional services. Referral agencies should 

also be able to learn the status of juveniles referred to the program. 

One of the most important functions of the council representatives is to 

educate the other council members about their agency's strengths and 

limitations. Misunderstandings and problems between agencies often 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 275 

develop because one agency is not familiar with how the other agency 

operates. The fire service, for example, is designed for immediate 

response, but social service organizations are often not able to respond 

with the same speed. The workshop described below is designed to help 

personnel in different agencies understand how their counterparts work. 

The council will maintain communication between agencies and 

troubleshoot when necessary. If a firesetter is not receiving the services 

recommended by the juvenile firesetter program, the council or 

appropriate representatives can intervene to find out why. 

Finally, council representatives will also be called upon to help identify 

other agencies or individuals who work with juvenile firesetters. Council 

representatives should disseminate information about the juvenile 

firesetter program to their agencies and the community and promote the 

program. The goal of the council is to gain support for program form all 

agencies that work with juveniles and to ensure that all those who work 

with juvenile firesetters understand the function of the juvenile firesetter 

program. 

Juvenile Firesetter Program Workshop 

As noted earlier, different agencies have different working cultures. To 

help agencies learn about each other, the juvenile firesetter program 

should sponsor a one-day workshop for employees of each of the agencies 

represented on the council. During the workshop, which is based on a 

seminar sponsored by Rochester, New York's FRY program, the members 

of the coordinating council will serve as a panel to moderate the 

workshop. Members of the key agencies who work with juvenile 

firesetters should be invited to attend. The workshop will give participants 

the opportunity to meet their counterparts in different agencies and learn 

how different agencies operate. 

The juvenile firesetter program may want to have the State Fire Marshal or 

other representative give opening remarks or a keynote address. After the 

welcoming remarks, the program coordinator can begin the workshop by 

describing the characteristics of juvenile firesetters, the nature and extent 

of the problem in what jurisdiction, and the role of the juvenile firesetter 

program. The panel representatives can then be asked to describe how 

their agency works with juvenile firesetters. Attendees can be asked to 

share their experiences with juvenile firesetters. Participants should be 

encouraged to ask the panel members how they might handle a particular 

case. 

After a break for lunch, attendees should be assigned to different groups. 

Each group should include at least one member from each of the different 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

276 Federal Emergency Management Agency/United States Fire Administration 

agencies attending the workshop. Each group should be given a 

description of the different agencies attending the workshop. Each group 

should be given a description of a juvenile firesetting case and instructed 

to discuss how they would handle the case. Each group member would 

then be responsible for describing how his/her agency handles such cases. 

Participating in this activity gives each attendee the opportunity to see 

how different agencies handle the same case. Understanding different 

work styles and philosophies is essential if agencies are going to be asked 

to work together to solve the juvenile firesetter problem. The workshop 

can close with a discussion of the role of the juvenile firesetter program 

coordinating council and what the program needs from each agency. 

The workshop should be conducted after the juvenile firesetter program 

has been established and the staff has been trained. It is designed to give 

the referral and resource agency staff a formal opportunity to learn about 

the juvenile firesetter program and meet their counterparts in other 

agencies. 

Jurisdictional Characteristics 

The structure of any jurisdiction's juvenile firesetter program will be 

affected by: 1) the size and nature of the juvenile firesetter problem; 2) 

the resources (e.g., manpower, money, space, etc.); and 3) the availability 

of private funding, if necessary. As noted earlier, no one program 

structure is best or even feasible for every jurisdiction. Large fire 

departments with the necessary people and funds can staff full-time 

juvenile firesetter programs and provide all of the necessary services using 

multiple personnel. Smaller departments or those with limited funds may 

be able to fund one full-time position or may have different fire service 

personnel assume some of the juvenile firesetter program responsibilities 

in addition to their other duties. 

Like many juvenile firesetter program activities, recruiting representatives 

to serve on the coordinating council takes time. For some programs, 

especially smaller programs, it may take more time than the coordinator 

can supply. At a minimum, the program coordinator should contact each 

potential referral agency and describe the grogram. Referral networks 

need to be established if the juvenile firesetter program is going to meet 

the needs of the youth it sees. Each referral agency needs to understand 

that juvenile firesetting is a community problem and they must be willing 

to be part of the solution. 

The juvenile firesetter program staff must also be prepared to handle the 

turf issues that may exist between agencies. These issues are often 

deeply-rooted, and preclude agencies from working together. One of the 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 277 

major functions of the coordinating council is to maintain communication 

between agencies. Recruiting representatives from all of the key agencies 

listed above will help gain support for the program. All of the agencies 

must be involved in the planning and coordination state of a juvenile 

firesetter program. This involvement will give each agency a vested 

interest in the success of the program and assist in breaking down the 

barriers that may arise over turf issues. 

CHAPTER 3: SCREENING AND EVALUATION 

Objectives 

There are four major objectives to be achieved in the screening and 

evaluation of firesetting youth and their families. The first is the 

assessment of firesetting risk. A complete firesetting history must be 

taken to determine the extent and nature of the problem. In addition, a 

detailed description of the motives and circumstances surrounding the 

most recent firestart must be documented to ascertain the severity of the 

presenting problem. Based upon current information, an estimate must be 

made of the likelihood that firesetting behavior will recur. 

The second objective is the evaluation of the psychosocial and 

environmental features related to firesetting behavior. Firestarting 

episodes do not happen as isolated incidents. Although the majority of 

juvenile firestarts are estimated to be the result of curiosity or accident, 

about one-third of juvenile fires are started by troubled and conflicted 

children. Therefore, for a selected proportion of firesetting youth, there 

must be an assessment of the underlying psychosocial features, which 

accompany their firesetting behavior. 

The third objective is the determination of criminal intent. If juveniles are 

involved in significant fires resulting in property loss, personal injury or 

death, then they are at risk for being arrested for the crime of arson. 

Several factors are taken into consideration for determining criminal 

intent, including whether firesetters have reached the age of 

accountability, the nature and extent of their firesetting histories, and the 

motive and intent of their firesetting. Although legal definitions of arson 

vary from state to state, if an evaluation reveals that there is sufficient 

evidence indicating malicious and willful firesetting, then the youth can be 

arrested for arson. 

The final objective is the development of an intervention plan. The result 

of a comprehensive evaluation is the development of an effective 

intervention plan. Intervention plans must identify the specific steps to be 

taken to eliminate firesetting behavior and to remediate the accompanying 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

278 Federal Emergency Management Agency/United States Fire Administration 

psychosocial problems. In addition, adequate incentives must be set in 

place to ensure that juvenile firesetters and their families will follow 

through with the recommended interventions. 

The Target Populations 

There are three general groups of juvenile firesetters, which must be 

targeted for screening and evaluation. The first group is young children 

under seven years of age. The fires started by the majority of these 

children are the result of accidents or curiosity. In general, they do not 

exhibit significant psychological problems and their family and peer 

relationships are intact and stable. (There are a small number of children 

involved in firesetting who exhibit severe psychopathology, and these 

children are generally referred immediately for psychological evaluation 

and treatment.) 

The second group of firesetters is made up of children ranging in age from 

eight to twelve. Although the firestarting of some of these children is 

motivated by curiosity or experimentation, a greater proportion of their 

firesetting represents underlying psychosocial conflicts. 

The third group of firesetters is adolescents between the ages of 13 and 18. 

These youths tend to have a long history of undetected fireplay and 

firestarting behavior. Their current firesetting episodes are either the 

result of psychosocial conflict and turmoil or intentional criminal 

behavior. 

There are a number of different community agencies that screen and 

evaluate juvenile firesetters and their families. Based on their broader role 

in the network of community services, each of these agencies will have 

different functions regarding their work with firesetters. Consequently, 

the screening and evaluation methods they select will vary depending on 

their specific needs. We will concentrate here on the fire service and the 

screening and evaluation methods used by fire service personnel. 

As noted earlier, the fire service is frequently viewed as the lead agency in 

the community for screening and evaluation juvenile firesetters. The 

primary role of the fire service is the early identification of firesetting 

youth and their families. There are a number of different ways in which 

juvenile firesetters are identified by the fire service. First, parents may 

discover firestarting behavior and voluntarily seek help for their children. 

Second, other community agencies may look to the fire service as the 

experts in working with juvenile firesetters and refer their cases to them. 

Third, fire and arson investigation efforts may reveal the involvement of 

juveniles in significant fires. Finally, if firesetters are arrested for arson, 

probation and juvenile justice may refer them to the fire service for an 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 279 

evaluation of the severity of their firesetting problem. Hence, the fire 

service is likely to see the entire range of juvenile firesetters from young 

children under seven who firestart out of curiosity to adolescents involved 

in recurrent firesetting. 

Frequently the fire service will have two levels of screening and 

evaluation procedures. The first level involves preliminary screening to 

determine the immediate severity of the firesetting problem. This 

generally is done by telephone interview. If there appears to be no 

imminent risk, basic information is obtained and appointments are made 

for additional evaluation sessions. A complete interview with firesetters 

and their families follows and represents the second level of evaluation. 

The primary goals of these interviews are to analyze the severity of the 

firesetting behavior and describe the psychosocial environment. This two 

level system facilitates the handling of emergency problems and 

establishes the conditions necessary for a comprehensive evaluation 

system. 

Fire Service Procedures 

The following instruments and methods are used as screening and 

evaluation procedures by the fire service. 

Telephone Contact Sheet

When parents or community agencies call the fire department to request 

help for firesetting youth and their families, this sheet is used as a 

preliminary screening mechanism. Basic information is gathered such as 

names, addresses, telephone numbers, a brief summary of the firesetting 

problem, and a description of the steps to be taken, which frequently 

includes the dates and times for setting-up personal interviews or the other 

follow-up procedures which are to be implemented for particular cases. 

USFA's Interview Schedules

These interview schedules are designed to provide the juvenile firesetter 

program with systematic methods for evaluating juvenile firesetters and 

their families. The interview schedules consist of a series of questions, 

which are asked of firesetting youth and their families in personal 

interviews. The application of these interview schedules yields 

information regarding the severity of the firesetting problem and 

preliminary data on the psychosocial environment of juvenile firesetters 

and their families. The USFA interview schedules have been widely used 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

280 Federal Emergency Management Agency/United States Fire Administration 

by a number of fire departments throughout the country and represent 

standard practice for many fire departments and juvenile firesetter 

programs. With minimal training, these procedures can be used by fire 

service personnel to screen, evaluate and refer juvenile firesetters and their 

families to appropriate service agencies in the community. There are three 

manuals describing in detail the application of these interview schedules. 

These manuals can be obtained by, calling or writing the U.S. Fire 

Administration in Emmitsburg, Maryland. 

These interview schedules and the manuals, which describe their 

application, are divided into three age groups. The first manual outlines 

the interview schedules and methods for working with children seven and 

under. The second manual describes the interview schedules and methods 

to be applied to children ages seven to thirteen. The third manual contains 

the interview schedules and procedures for working with adolescent 

firesetters. The implementation of the procedures in each of these three 

manuals allows fire departments to screen and evaluate the entire range of 

juvenile firesetters. 

These interview schedules and accompanying manuals are used by fire 

departments extensively throughout the United States. Many departments 

have established juvenile firesetter programs following the guidelines 

suggested in these manuals. The interview schedules also contain 

information, which may be useful to mental health professionals regarding 

the severity of the firesetting problem and the conditions of the 

psychosocial environment. Juvenile firesetters and their families are 

interviewed alone and together for approximately ninety minutes by fire 

service personnel using the interview schedules. The interview schedules 

are organized and presented in slightly different ways depending on the 

age of the firesetter. For children under seven, the interview schedule is 

divided into two sections. Section one focuses on questions regarding 

firesetting behavior and section two requires observations to be made 

regarding the home and the parents. For children seven through thirteen, 

the interview schedule is divided into three sections. The first section asks 

questions related to firesetting history, the second section presents 

questions related to the home and family, and the third section asks 

questions regarding school and peers. For adolescent firesetters the 

interview schedule is divided into two main sections. Section one asks 

questions related to firesetting history and details of the most recent 

firesetting incident. Section two asks questions regarding the 

psychological environment, including information about physical health, 

the home, the family, peers, and school. For all age levels, parents are 

asked to complete a questionnaire, which contains observations about the 

psychological behavior of their children. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 281 

The interview schedules have scoring procedures, which classify 

firesetting youth and their families according to risk levels. These risk 

levels refer to the probability that the juvenile firesetters are likely to 

participate in future firesetting incidents. There are three levels of risk--

little, definite, and extreme--representing increasingly severe firesetting 

behavior. In general, children classified as little risk firestart by accident 

or out of curiosity, and require educational intervention to remediate their 

problem. Juveniles classified as definite and extreme risk firestart because 

of psychological conflict, family difficulties, or as part of a pattern of antisocial and delinquent behavior. They require mental health or juvenile 

justice intervention. Hence, the interview schedules yield a specific 

method for classifying juvenile firesetters according to the severity of their 

presenting problem. This classification system also suggests the type of 

interventions most likely to be beneficial to firesetting youth and their 

families. 

The primary advantage of the interview schedules is that they provide 

systematic procedures for fire service personnel to evaluate the entire 

range of juvenile firesetters and their families. In addition, these interview 

schedules yield a quantifiable method for classifying the severity of the 

firesetting problem and for recommending specific types of interventions. 

Also, only a brief training period is required to teach fire service personnel 

how to use these interview schedules. Their application is well 

documented in three manuals and they are widely accepted and applied 

throughout the fire service. 

The major disadvantage of these interview schedules is that their validity 

and reliability have not been investigated. Therefore, the accuracy and 

consistency of the information which they yield remains open to question. 

A primary concern is that children identified as little risk may actually be 

exhibiting signs of more serious firesetting behavior. One way to address 

this problem is to monitor little risk firesetters for a period of time 

subsequent to their evaluation and educational intervention. Also, in cases 

where definite and extreme firesetting youth have been identified, it is 

recommended that other assessment strategies be used in conjunction with 

the interview schedules. For example, as a general rule these types of 

cases should be referred for additional evaluation by mental health 

professionals. While these interview schedules provide an important first 

step in screening and evaluating juvenile firesetters, virtually nothing is 

known about the quality of the information they yield. Therefore, back-up 

procedures must be set in place. In many cases, this includes being able to 

consult with a mental health practitioner for cases, which need additional 

clarification. This will ensure that juvenile firesetters and their families 

receive appropriate assessment and intervention. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

282 Federal Emergency Management Agency/United States Fire Administration 

CHAPTER 4: INTERVENTION SERVICES 

Purpose 

The Intervention Services component presents the primary intervention 

strategies designed to reduce the incidence of juvenile involvement in 

firesetting behavior and arson-related activities. These strategies reflect 

three major intervention approaches. The first strategy is primary 

prevention. The goal of primacy prevention is to provide substantial fire 

safety and educational experience to juveniles so that they develop firecompetent behaviors and avoid participation in unsupervised firestarts. 

The second strategy is early intervention. Youth participating in fireplay 

and firesetting behavior motivated by accident, curiosity or 

experimentation can be identified and educated to reduce the likelihood of 

their future involvement in unsupervised firestarts. The third strategy is 

core intervention. Recurrent firesetters frequently experience significant 

psychological and social conflict and turmoil related to their firestarting 

activities. It is hypothesized that if these psychosocial problems can be 

adjusted or remediated, then not only are the chances of involvement in 

future firesetting episodes greatly reduced, but the quality of life is likely 

to improve for these juveniles and their families. ISA recommends that 

such core intervention be delivered by mental health or other social 

service providers. 

The three intervention strategies--primary prevention, early intervention, 

and core intervention--are aimed at reducing juvenile involvement in the 

entire range of unsupervised fireplay and firesetting activities. Each of the 

strategies has specific intervention objectives and they are aimed at 

particular target populations. Primary prevention efforts involve several 

community agencies including the schools, the fire service, and law 

enforcement. The fire service is the lead community agency providing 

early intervention services. They use many different types of program 

models to work with juvenile firesetters. Core intervention services 

involve mental agencies and professionals and the probation and juvenile 

justice systems. 

Each of the three intervention strategies are designed to achieve specific 

objectives. Primary prevention efforts are intended to reduce the 

incidence of first-time unsupervised fireplay and firesetting in populations 

of otherwise normal youth. This is accomplished by providing children of 

all ages with educational experiences focused on the rules of fire safety 

and prevention and understanding the consequences of fireplay and 

firesetting. 

Early intervention programs are focused on identifying both children atrisk for fireplay or firesetting activities and those involved in first-time 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 283 

fireplay and firesetting episodes. In addition, their objective is to prevent 

the recurrence of fireplay and referral mechanisms within the fire service 

and other supporting community agencies are designed to meet these 

objectives. 

Core intervention services are aimed at eliminating recurrent firesetting 

behavior and providing treatment and remediation for the contributing 

psychosocial determinants. Mental health intervention is the primary 

method used to stop recurrent firesetting and treat the underlying causes of 

the behavior. Probation and juvenile justice efforts provide legal 

incentives to youth and their families to pursue treatment for their patterns 

of antisocial and delinquent behavior. If treatment recommendations are 

not followed, the juvenile justice system can implement legal 

consequences and punishments related to firesetting and arson offenses. 

Situational Influences 

The design and implementation of juvenile firesetter programs will depend 

upon the commitment of time and resources participating agencies are 

willing to make in their community. For example, schools must decide 

whether primary prevention programs designed to teach fire safety are a 

high priority for their curriculum. Fire departments, heavily committed to 

suppression activities, will need to direct their focus to the prevention 

aspect of fighting fires. Law enforcement, probation and juvenile justice 

must elect to pay particular attention to the firesetting population of 

juveniles, as opposed to other groups of delinquent youth. Frequently 

additional program efforts aimed at specific problems areas or target 

populations can be incorporated into existing operations, thereby keeping 

costs at a minimum. Nevertheless, the level of time and resources 

committed to juvenile firesetter intervention programs is directly related to 

their content, utility, and effectiveness. 

Juvenile firesetting must be viewed as a community problem, and as such, 

it deserves community-wide attention. Although fire departments may 

take the lead role in developing programs for juvenile firesetters, their 

efforts alone will not resolve the problem. It is crucial that there be 

working linkage established between the various community agencies 

capable of helping juvenile firesetters and their families. Schools, the fire 

service, law enforcement, juvenile justice and mental health must all 

establish open communication channels with one another so that an 

organized effort is mounted to reduce juvenile involvement in firesetting 

and arson-related activities. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

284 Federal Emergency Management Agency/United States Fire Administration 

Critical Issues 

The success of juvenile firesetter intervention programs depends on 

several factors. First, the community must be educated about the 

problems of juvenile firesetting. An effective public relations campaign 

must be developed to teach parents and adults how to recognize the 

problem in children and where and how to go for help to resolve it. 

Regardless of the level of intervention, from primary prevention to core 

intervention, the public must understand the seriousness of juvenile 

involvement in firesetting and they must be knowledgeable enough to take 

the first steps to get the appropriate help. 

Each community agency focusing their attention on the problem of 

juvenile firesetting is likely to have slightly different roles and 

responsibilities, depending on the nature and extent of their services. 

Those agencies and professionals involved in helping juvenile firesetters 

must be trained in how to work with this special population of youth. 

Although training needs will vary according to the type of services 

offered, designing and implementing intervention programs often requires 

special expertise and information. Education manuals coupled with 

training seminars are important resources for establishing and maintaining 

effective intervention services. 

Primary Prevention 

Primary prevention programs are aimed at reducing juvenile involvement 

in first-time unsupervised fireplay and firesetting incidents. The basic 

premise of these programs is that if children understand the rules of fire 

safety and prevention and the consequences of firestarting, they are less 

likely to initiate or participate in non-productive firesetting. Primary 

prevention efforts are educational programs designed to teach children of 

all ages fire safety and survival skills. 

There are several different educational models used in primary prevention 

programs. The models employed largely depend on the sites which 

operate the programs. Primary prevention programs are found in the 

schools, the fire service, and law enforcement. Schools can offer a wide 

range of prevention activities including fire safety education curriculum 

and activities, slide presentations, films, and assemblies. The fire service 

can mount national and local media campaigns, use district fire houses to 

provide tours and educational seminars for youth, and work with their 

school districts to present unique educational experiences. Law 

enforcement can incorporate fire safety education as part of their general 

anti-crime efforts aimed at youth. Primary prevention programs can use a 

variety of different learning strategies and activities to accomplish the 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 285 

common objective of teaching youth how to develop fire-safe and 

competent behaviors. 

It is recommended that community organizations or agencies launch a 

comprehensive fire prevention effort designed to reach a broad age-range 

of children. Educational programs for preschool children should be 

explored as well as programs aimed at elementary, middle, and high 

school aged youth. Schools are the obvious site where maximal efforts 

can be focused to reach the majority of children. The amount of time set 

aside for teaching fire prevention and safety will depend on the level of 

effort schools are willing to commit. A minimal effort might consist of a 

fire education presentation to youth coupled with the distribution of 

printed material to parents. A more comprehensive approach might be the 

adoption of a fire safety curriculum. There are several excellent packages 

of fire safety and prevention programs already developed for schools. The 

particular program or set of programs developed depends on the available 

resources and the range and depth of desired services. It is strongly 

recommended that schools integrate primary prevention efforts into their 

ongoing curriculum plans. 

Fire service efforts can be important adjuncts in helping to promote the 

development of fire safety behaviors in children and their families. For 

example, parents who first notice their children's interest in fire or who 

have found their children playing with matches may instinctively call their 

local fire department for help. Fire departments can offer to talk with 

these youth, have them tour the local fire house and provide short-term 

educational services designed to teach fire prevention to children and their 

families. In addition, the fire service can work with their local schools to 

enrich fire prevention programs by offering classroom visits or assemblies, 

slide presentations, and films designed to communicate information on fire 

safety and prevention. Finally, local fire departments can support national 

programs, such as National Fire Prevention Week, by mounting active 

print and television media campaigns designed to promote fire safety. 

There are a wide variety of primary prevention programs currently 

operating in communities throughout the country. A sample of these 

programs include: 1) Learn Not to Burn, developed by the National Fire 

Prevention Association; 2) Knowing About Fire, developed by the 

National Fire Service Support System; 3) Fire Safety Skills Curriculum, 

developed in St. Paul, Minnesota; and 5) Kid's Safe Program, used by the 

Oklahoma City Fire Department. These and other programs are listed in 

the Resource List at the end of this chapter. Programs are encouraged to 

contact the U.S. Fire Administration and juvenile firesetter programs 

around the country. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

286 Federal Emergency Management Agency/United States Fire Administration 

Early Intervention 

The fire service is the leading community agency involved in the 

development of early intervention programs for juvenile firesetters. The 

primary objective of early intervention programs is to identify children atrisk for participating in unsupervised fireplay and firesetting incidents. In 

addition, these programs are aimed at preventing the recurrence of firsttime firesetting episodes motivated by accident, curiosity, or 

experimentation. These objectives are accomplished by setting-up shortterm evaluation, education, counseling, and referral services designed to 

stop firesetting behavior and identify related psychosocial problems. 

As noted earlier, ISA advocates an evaluation, education, and referral 

program model. This approach is the one most frequently employed by 

fire departments across the country and is the recommended strategy for 

building effective juvenile firesetting programs. To implement this model, 

fire departments must establish methods for screening and evaluating the 

firesetting risk of children and their families. The recommended screening 

methods are discussed in the Screening and Evaluation chapter. The 

identification of risk levels allows fire departments to determine the most 

appropriate strategies for remediating the current firesetting problem. If 

children are identified as little risk, then it is likely that short-term 

education intervention will stop any further firesetting behavior. Fire 

departments have successfully implemented a number of different 

educational programs. If youth are identified as definite or extreme risk, 

while they may benefit from educational programs, they are likely to need 

core intervention services. Fire departments must know how to refer 

firesetters and their families to the appropriate service agencies. 

Again there are many programs that have implemented evaluation, 

education, and referral programs. The following programs are examples 

of evaluation, education, and referral interventions for juvenile firesetters 

which have operated in fire departments across the country. They were 

selected because certain features of these programs represent outstanding 

or exceptional aspects of the evaluation, education and referral program 

model. Additional information can be obtained by contacting the 

programs listed in the Resource List at the end of this component. 

A. The Juvenile Firesetter Program, Columbus, Ohio 

The primary purpose of this Juvenile Firesetter program is to prevent 

juveniles who are setting fires and playing with matches and lighters from 

starting additional fires. The majority of these juveniles are referred from 

fire investigators, with a smaller number coming from children's services 

and mental health agencies. These children and their families are 

evaluated using USFA's interview Schedules. All youth attend 4-6 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 287 

educational sessions. This educational segment of the program is one of 

the outstanding features of its operation. Those youth identified as 

definite or extreme risk are referred for further core intervention services. 

Follow-up evaluation forms are sent every six months for two years to 

participating families and the resulting data indicate a 7% recidivism rate. 

While the format of this juvenile firesetter program represents a standard 

example of the evaluation, education, and referral program model, the 

educational feature of this approach deserves special mention. Prior to 

their participation in the educational sessions, juveniles complete written 

pretests designed to assess fire safety knowledge. They then attend 4-6 

educational sessions at their local firehouse, depending on their age and 

the history of their firesetting behavior. Audio-visual teaching aids are 

used extensively. The Official Fire Safety Manual, containing games and 

puzzles designed to each fire safety and prevention rules, is used with all 

youth. Separate manuals have been developed for children 4-6 years, 7-9 

years, and 9-12 years. In addition, the family does homework, including 

designing a Home Fire Escape plan and conducting a home fire safety 

inspection. In the final educational meeting, children complete post-tests 

to assess the amount of increased knowledge of fire safety and prevention 

accrued from the program. This represents a comprehensive approach by 

fire service personnel to provide educational experiences for children at 

the firehouse. 

B. Operation Extinguish, Montgomery County, Maryland 

Operation Extinguish is one of the programs run by the Montgomery 

County Fire Department's Division of Fire Prevention. Youth are referred 

to fire prevention by their parents, from the youth division of the police 

department, and from the juvenile services administration. All juveniles 

are evaluated using family assessment methods and following the 

guidelines recommended by USFA's Interview Schedules. All children 

also attend fire safety classes conducted by the division of fire prevention. 

These classes represent an outstanding feature of this program. Families 

of juvenile firesetters are referred to a private mental health agency for at 

least six family counseling sessions. This also is a unique program 

feature. Firesetters and their families are referred for other services on an 

as-needed basis. Release from Operation Extinguish is contingent upon 

completion of the prescribed intervention plan. 

Operation Extinguish has two unique program features. The first is a 

highly structured format of fire education classes. Three two-hour fire 

safety classes are run for groups of juvenile firesetters. Firesetters attend 

the first two classes and may bring their siblings. Parents also attend the 

last class. Audio-visual aids are used along with a manual, A Question of 

Burning. Week one covers the history of fire facts. Fire prevention, 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

288 Federal Emergency Management Agency/United States Fire Administration 

recognition of fire hazards, escape planning and survival techniques are 

discussed. Arson and arson laws in the state of Maryland are reviewed. 

The homework, to be completed by week three, is assigned and consists of 

developing a home fire escape plan. Week two focuses on burn injuries. 

Children participate in writing exercises designed to help them think about 

the potential consequences of firesetting. Week three summarizes fire 

safety rules for parents. Escape plans are reviewed and the importance of 

knowing how to react in fire emergencies is discussed. By the end of the 

third session, both children and parents report being satisfied with the 

educational experience. 

The second unique program feature is that the majority of firesetters and 

their families are referred for at least six family counseling sessions. The 

entire family is encouraged to participate in these sessions, since it is 

likely that siblings also may be involved in fireplay and firesetting 

activities. Counseling sessions are tailored to meet the individual needs of 

families. Families participating in these sessions report that their 

communication is greatly improved as a result of these counseling 

sessions. 

C. Fire-Related Youth (FRY) Program, Rochester, New York 

The FRY program is housed in the Rochester Fire Department. It receives 

the majority of its referrals from within the fire department. When the 

program receives referrals, fire investigators conduct complete 

investigations of the firesetting incidents. In addition to investigating the 

scene and conducting a records check, investigators interview children and 

their parents. The interview are not designed to draw definite conclusions 

about the psychosocial functioning of juveniles, rather they are intended to 

provide investigators with more information about the fire. The USFA 

Interview Schedules are used as guidelines during these interviews. After 

interviewing the parents, investigators meet with the child to talk about the 

incident and provide fire safety education. The exact nature of the 

education depends on the age of the child. The majority of juvenile 

firesetters interviewed are referred for additional services. 

There are two outstanding features of the FRY program. The first is their 

well-established linkages with numerous service agencies within their 

community. The FRY program can refer juvenile firesetters to one of four 

mental health agencies, the Police Department's Family and Crisis 

intervention team, Child Protective Services, Probation, or Family Court. 

This referral system also includes a dual waiver form that allows a free 

flow of information between the FRY program and all referral agencies. 

The solid referral network established by the FRY program ensures that 

children and their families will receive the services necessary to stop 

firesetting and remediated the related psychosocial problems. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 289 

The second exceptional program feature is the complete documentation of 

the FRY program in two sequential manuals. These manuals not only 

describe the operation of the program, but they report investigative studies 

concerning a number of different topics including a complete description 

of the population of firesetting juveniles and explanations of their 

firestarting behavior. These manuals provide visibility and credibility for 

the FRY program. 

D. Operation Fire S.A.F.E., Oklahoma City Oklahoma 

Operation Fire S.A.F.E. was one of the three implementation sites selected 

to participate in the National Juvenile Firesetter/Arson Control and 

prevention Program National Evaluation. The program is targeting the 

Central Oklahoma area, which includes four counties (Oklahoma, 

Canadian, Cleveland, and Logan) and thirty-five fire departments. The 

program has established an Operational Committee comprised of the area 

fire departments and the Association of Central Oklahoma Governments 

(ACOG). This committee has primary responsibility for developing the 

program. Individual members or subcommittees have taken responsibility 

for the developing specific aspects of the program, including video 

development, site selection, logo development/selection, development of 

the initial contact and evaluation forms, and working with the mental 

health guidance centers and the District Attorney's Office. 

Operation Fire S.A.F.E. is targeting a very large, diverse area with 

multiple fire service, mental health, juvenile justice, human service, and 

police agencies. Operation Fire S.A.F.E. established twelve 

geographically diverse sites to provide assessment and fire safety 

education to the area's juveniles. Fire departments in the central 

Oklahoma area that are not equipped to handle juvenile firesetters can 

refer them to one of the seven sites. Each site will have 1) a set of 

U.S.F.A. screening instruments; 2) a video library; 3) TV/VCR; 4) 

standardized forms developed by Operation Fire S.A.F.E. (initial contact, 

interview form, information release waiver, summary form); and 5) toys. 

Operation Fire S.A.F.E. is fortunate to have the support of the area's 

mental health professionals. The program has been working with the 

county guidance centers to develop a consistent regional system for 

referring families in a need of mental health counseling. The Guidance 

Center Coordinator developed a six-month pilot referral program for the 

Oklahoma City Fire Department, which is being implemented. That 

department refers families to one guidance center for 12-week group 

therapy. The remaining fire departments are continuing to refer families 

to the other area guidance centers, clinics, and individual practitioners. 

After the pilot program is evaluated, it may be picked up by the other 

guidance centers. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

290 Federal Emergency Management Agency/United States Fire Administration 

In addition, the Oklahoma County Guidance Center completed a five-part 

training series for the Oklahoma City Fire Department Fire S.A.F.E. 

interviewers on effective interviewing techniques. The guidance center 

counselors have offered the same course to other area departments 

involved in Operation Fire S.A.F.E. The guidance center will also be 

offering a monthly discussion group for Fire S.A.F.E. interviewers to 

discuss their feelings and frustrations. 

The program has also been working with the Oklahoma County District 

Attorney's office. One area of concern was Operation Fire S.A.F.E.'s 

policy statement which asserted that any information collected as part of 

the Operation Fire S.A.F.E. assessment be kept strictly confidential and 

not be used for fire investigation. Although the statement has been 

accepted, the program has been cautioned that the fire investigators should 

complete their investigations before referrals to the program are made. 

Operation Fire S.A.F.E. is also trying to establish a mechanism that would 

provide "motivation" for parents who refuse or are reluctant to have their 

child participate in the program after a fire has been set. The program is 

working with the Department of Human Services to encourage 

involvement. When parents are extremely reluctant, the case is treated as 

a "neglect" case by DHS. 

One key component of the juvenile firesetter program is the development 

of a video describing operation Fire S.A.F.E. The eleven minute video, 

developed as part of this program, will provide information to the media, 

school administrators and counselors, parents, mental health professionals, 

and other agencies that work with juvenile firesetters on the purpose of the 

program, how to access the program, the locations of assessment/ 

education sites, etc. Operation Fire S.A.F.E. also developed a program 

brochure and poster to accompany the video which will be used as part of 

the program's public education campaign. 

Core Intervention 

Children and adolescents involved in recurrent firesetting behavior and 

displaying serious psychopathology are candidates for core intervention 

services. In addition, youth whose firesetting is willful or malicious and 

an expression of criminal intent also are likely participants for core 

intervention. Core intervention services are those modalities which 

provide long-term help for juvenile firesetters and their families to 

eliminate firesetting behavior and remediated the accompanying 

psychopathology. There are two major modalities of core intervention, 

mental health treatment and the probation and juvenile justice system. If 

the juvenile firesetter program believes that a child they have screened is 

in need of core intervention services, that child should be referred to the 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 291 

appropriate agencies. Establishing referral mechanisms in covered in the 

next chapter. 

Other Considerations 

When developing an early intervention program, juvenile firesetter 

programs will have a vast amount of educational materials from which to 

choose those most appropriate for their service needs. Program staff 

should consider contacting the U.S. Fire Administration, the National Fire 

Protection Agency, and other fire departments to inquire about available 

materials. Although ISA does not advocate one set of materials over 

another, we do feel strongly that certain approaches should be avoided. 

We do not believe that scare tactics or the use of graphic pictures of burn 

victims are an effective way to teach fire safety education. Although some 

programs do use these techniques, we do not feel they are appropriate, 

especially for young children. In general, programs have moved away 

from having children visit burn victims in local burn units. Such visits are 

not seen as fair to the burn victim or as an effective educational tool for 

the firesetter. On a different note, programs also sometimes have children 

tour the local fire station and sit on the fire truck. Children usually enjoy 

these tours and they can be viewed as a reward. Tours should only be 

given AFTER the child has completed their fire safety education. 

Children should not be rewarded for setting a fire, but could participate in 

a fire station tour at the completion of their intervention. 

One final factor to consider in developing intervention services is ensuring 

follow-through by firesetters and their families. At the very least, 

agencies referring juveniles and families for additional intervention can 

follow through on their own with telephone calls to the referral agency to 

ascertain whether the recommended contact actually occurred. Different 

community agencies may have various ways of providing incentives or 

creating leverages so that follow-through with the intervention plan is 

more likely to occur. For example, fire departments can offer children a 

tour of the firehouse or visit with the fire chief if they pursue their 

educational intervention. Law enforcement, probation, and juvenile 

justice can help youth avoid arrest and incarceration by diverting them to 

mental health counseling. Mental health can suggest to firesetting youth 

and their families that their quality of life is likely to improve as a result of 

participation in treatment. Schools can refuse to accept firesetters in their 

classrooms. There are a number of leverages which can be successfully 

implemented in certain circumstances to help insure follow-through with 

the intervention plan. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

292 Federal Emergency Management Agency/United States Fire Administration 

RESOURCE LIST 

School Curriculum and Programs 

Primary Prevention

1. CTS'S Fire Safety Project 

Sesame Street Fire Safety Resource Book 

Contact: Children's Television Workshop 

1 Lincoln Plaza 

New York, NY 10023 

(212) 595-3456 

2. Learn Not to Burn

Contact: National Fire Protection Association 

1 Batterymarch Park, 

P.O. Box 9101 

Quincy, MA 02269 

(617) 770-3000 

3. Knowing About Fire

Contact: Paul Schwartzman 

National Fire Service Support Systems, Inc. 

20 North Main Street 

Pittsford, NY 14534 

(716) 264-0840 

4. Fire Safety Skills Curriculum

Contact: Judy Okulitch 

Program manager 

Office of the State Fire Marshal 

3000 Market Street, NE, #534 

Salem, OR 97310 

(503) 378-3475 

5. The Juvenile Crime Prevention Curriculum

Contact: Public Relations Department 

The St. Paul Companies 

385 Washington Street 

St. Paul, MN 55102 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 293 

6. Follow the Footsteps to Fire Safety

Contact: City of St. Paul 

Department of Fire and Safety Services 

Fire Prevention Division 

100 East Eleventh Street 

St. Paul, MN 55101 

(612) 228-6203 

7. Project Open House

Contact: Richard A. Marinucci 

Farmington Hills Fire Department 

28711 Drake Road 

Farmington Hills, MI 48331-2525 

(313) 553-0740 

8. Kid's Safe Program

Contact: Fire Safety Eduction Curriculum for 

Preschool Children 

Oklahoma City Fire Department 

Public Education 

820 N.W. 5th 

Oklahoma City. OK 73106 

(405) 297-3314 

Fire Service Programs 

1. National Fire Prevention Week

2. Curious Kids Set Fires

Contact: U.S. Fire Administration 

National Fire Academy 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

3. Big Fires Start Small

Contact: National Fire Protection Association 

1 Batterymarch Park, 

P.O. Box 9101 

Quincy, MA 02269 

(617) 770-3000 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

294 Federal Emergency Management Agency/United States Fire Administration 

4. Firebusters

Contact: Earl Diment 

Office of Community Relations 

Portland Fire Bureau 

55 Southwest Ash 

Portland, OR 97204 

(503) 823-3700 

5. Public Fire Education Today

Contact: U.S. Fire Administration 

National Fire Academy 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

Fire Department Programs in Schools 

1. Slide presentations

Contact: Office of the Fire Chief 

Fourth Floor East 

Largo Government Center 

9201 Basil Court 

Landover, MD 20785 

2. Films

Contact: Juvenile Firesetter Program 

Fire Prevention Division 

Fire Marshal's Office 

301 2nd Avenue South 

Seattle, WA 98104 

(206) 296-6670 

3. Assemblies

Contact: Juvenile Firesetter Program 

Fire Prevention Division 

301 2nd Avenue South 

Fire Marshal's Office 

Seattle, WA 98104 

(206) 296-6670 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 295 

Contact: Captain Henry Begroot 

Fire Prevention 

San Jose Fire Department 

4 North 2nd Street, Suite 1100 

San Jose, CA 95113 

(408) 277-4444 

Law-Enforcement Program 

1. McGruff

Contact: The National Crime Prevention Council 

1700 K Street, N.W., Second Floor 

Washington, DC 20006 

Early Intervention 

Evaluation Education and Referral Program

1. The Juvenile Firesetter Program, Columbia, Ohio

Contact: Lonnie Poindexter 

Juvenile Firesetter Program 

Bureau of Fire Prevention 

300 N. Fourth Street 

Columbia, OH 42315 

(614) 645-7641 

2. Operation Extinguish, Montgomery County, Maryland

Contact: Mary Marchone 

Division of Fire Prevention 

101 Monroe Street 

Rockville, MD 20850 

(301) 271-2442 

3. Fire Related Youth (FRY) Program, Rochester, New York

Contact: Jerold Bills 

FRY Program 

Rochester Fire Department 

Room 365 

Public Safety Building 

Civic Center Plaza 

Rochester, NY 14614 

(716) 428-7103 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

296 Federal Emergency Management Agency/United States Fire Administration 

4. Juvenile Firesetter Program, Portland Oregon

Contact: Don Porth 

Portland Fire Bureau 

55 Southwest Ash 

Portland, OR 97204 

(503) 823-3700 

5. Operation Fire S.A.F.E.

Contact: Jane Sutter 

Association of Central Oklahoma Governments 

6600 North Harvey Place, Suite 200 

Oklahoma City, OK 73116 

(405) 848-8961 

CHAPTER 5: REFERRAL MECHANISMS 

Introduction 

Juvenile Firesetter Programs should occupy a central position between the 

sources of juvenile firesetter (fire service, schools, parents)--the people 

who detect the firesetter--and the target agencies (counseling services, 

juvenile court, etc.)--the agencies or people who provide specialized 

treatment or sanctions to the juvenile firesetter. 

In most programs a substantial number of firesetters will be detected by 

fire service personnel and brought to the program for some education/ 

intervention; consequently, many of the "referrals" occur within the fire 

service and do not require the assistance of others, either in finding the 

firesetters or addressing their problems. A typical case of this kind is the 

young child without any significant pathology who is identified by a fire 

investigator, referral to the program, screened by the fire service, provided 

fire safety education, and released. In many jurisdictions these may be the 

most frequent kind of cases. However, all other cases require effective 

referral systems so the (a) people outside the fire service will bring the 

firesetter to the attention of the program, and (b) the juvenile firesetter 

who exhibits serious problems of adjustment or delinquency can receive 

the appropriate additional resources. The screening and intervention 

activities conducted within the program represent the very heart of any 

program, but they are not at all sufficient to ensure that all firesetting 

youths are receiving the help (or sanctions) they deserve. Indeed, without 

a wide range of referral sources the program will never see a sizable 

segment of the juvenile firesetter population, and without the appropriate 

agencies and individuals to whom youths can be sent for additional help, 

many firesetters (especially the more troubled youths) will never receive 

the services they need. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 297 

A graphic depiction of the desired referral network is shown in Figure 4.1. 

Typical sources of referrals are shown on the left, with the fire service 

typically providing most of the referrals, followed by parents, schools, etc. 

On the right are the major types of referral targets, agencies that can 

provide the appropriate additional services to the juvenile firesetter, and 

the family. 

Several points of this figure deserve special attention. First, it shows a 

large number and variety of possible referral sources and target agencies. 

Although these may vary widely across jurisdictions, it is important that 

the program give serious consideration to developing referral 

arrangements with all such agencies and groups. Second, two of the three 

key target agencies--social services and mental health agencies--may also 

serve as referral sources as well. Third, this depiction is necessarily an 

over simplification of the actual sequence of events involved in many 

referrals. For example, as shall be discussed below, the arrangements 

among the criminal justice agencies, the program, and the mental health 

and social service agencies can be quite complicated, involving several 

decision points and transfers for any one case. Fourth, some referral 

mechanism will be for the purpose of Fig. 4.1 here merely recording and 

tracking juvenile firesetter cases that are not actually seen by the program. 

Although we feel that the juvenile firesetter program should be able to 

screen all firesetters, often they do not. At a minimum, ISA feels that the 

juvenile firesetter program should be aware of every fire set by a juvenile 

in its jurisdiction. 

Identifying Referral Sources and Target Agencies 

The foundation for the referral mechanisms is laid in the early stages of 

program planning and development. The first step in the development of 

effective referral mechanisms is the identification of all potential referral 

sources and target agencies. The types of agencies and groups shown in 

Figure 4.1 should serve as a start for the identification of referral sources 

and agencies to be developed. Once a list of referral types is developed, 

the program should complete a worksheet providing the names of specific 

organizations, a description of the preferred referral arrangement, the 

individuals who will serve as the primary contact or liaison to the 

program, and their addresses and telephone numbers. 

To some degree, much of the identification process will have been 

accomplished during the planning and coordination stage. However, the 

individuals from the various agencies who will serve as the functional 

contacts for referrals may be different from those who are first involved in 

planning and coordination and the actual approval of the referral 

relationship. Therefore, it is likely that at least two levels of agency 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

298 Federal Emergency Management Agency/United States Fire Administration 

officials will be involved in the development of these mechanisms: (1) 

Relatively high-level officials with the authority to bind the agency to a 

referral agreement, and (2) individuals who will have continuing 

responsibility for the operation of the referral mechanism. 

Although the selection of referral agencies will depend on the particular 

nature of the juvenile firesetter problem in the area, virtually all programs 

in jurisdictions of medium-to-large size should explore the possibility of 

referral arrangements with all the types of agencies listed in Figure 4.1. 

The only exceptions will be small jurisdictions that do not have social and 

mental health service agencies or the multiple levels of the criminal justice 

system. If counseling and therapy services are not available locally, the 

program should investigate the possibility of referral arrangements with 

such agencies in neighboring towns and cities. 

The target agencies selected will also be dependent, at least to some 

degree, on the nature and severity of the problems of the juvenile 

firesetters; e.g., the extent to which the youths display serious problems of 

adjustment and delinquency, whether family counseling is required, etc. 

We suggest, however, that the referral mechanism be arranged (at least the 

groundwork laid) for all the major target agencies so that if the need 

arises, the resources will be there. 

Target referral agencies--places to which the firesetters are to be sent for 

special services--should be screened carefully for quality. If they are 

government operated (e.g., a community mental health center) there is less 

concern about quality, since these organizations typically have to meet 

standards that are carefully developed and regularly monitored. Private 

social service and mental health organizations (which are increasing in 

number) and individual practitioners should be carefully screened 

before sending them referrals. Practitioners should be certified and/or 

licensed in their respective fields--social worker, psychologist, etc. If the 

organizations have referral relationships with other programs or 

institutions in the area, you can call them and ask for their opinion of the 

quality of services. 

You should also examine the particular capabilities and capacities of the 

target referral agencies--are they equipped to handle the cases you may be 

sending them? 

Contacting Referral Agencies 

The source and target agencies should first be contacted by telephone and 

mail to present the basic idea to them. The emphasis should be placed on 

the special needs of the firesetter population and the mutual benefits of a 

referral arrangement for the program, the agency, the firesetter and his/her 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 299 

family, and the community at large. Face-to-face meetings should then be 

arranged to discuss the desired referral arrangement. The central purpose 

of these meetings is twofold: (1) To convince the agency of the 

importance of a referral relationship; and (2) to communicate the nature of 

the referral relationship. For source referrals, it is important to provide 

detailed guidance on the characteristics of the youths to be sent to the 

program and the circumstances under which they are to be referred. For 

target agencies, it is important to describe the types of youth that will be 

sent to them and the services they are likely to need. 

Some juvenile firesetter programs have gone to extreme lengths to 

convince agencies to send referrals to the program. In Rochester, the 

program told agencies that if they did not agree to send referrals to the 

program, "the next death caused by a juvenile firesetter would be on their 

conscience." Although this tactic is not appropriate for all circumstances, 

programs should adopt a programmatic approach, doing whatever works 

(within ethical boundaries). Another approach is to make use of the 

personal and political connections that the program has with influential 

officials at the agencies. For example, the Fire Chief can be very 

influential in securing the cooperation of other public safety officials. 

Once the program has gained a toehold in the mental health or educational 

community, supportive members of those communities can be helpful in 

recruiting other individuals and agencies into the referral network. 

Developing Detailed Referral Agreements 

After the agencies have agreed in principle to the referral arrangement and 

the details of the arrangement have been discussed, a written agreement 

should then be drawn up that specifies clearly the nature of the 

relationship and the specific responsibilities of each party. These 

agreements need not be elaborate legalistic documents; in most situations 

a single-page agreement will suffice. In some instances, initial agreements 

may be unwritten, oral agreements, but written statements of 

understanding should be developed at some point. 

At some point in the discussions, the liability issue should be discussed in 

some detail with the agency. Written waivers of liability may be 

appropriate in certain cases. If in doubt about the proper course of action 

with respect to liability, you may want to consult a knowledgeable 

attorney. 

The establishment of a referral agreement is only the beginning of a 

referral relationship between the program and the agency. The 

arrangement will be effective only so long as it is cultivated and 

maintained through continuing contact with agency officials. In 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

300 Federal Emergency Management Agency/United States Fire Administration 

particular, it is important to provide timely and informative feedback to 

the source referral agencies about the status of youths referred to the 

program--results of screening, intervention outcomes, referrals out to other 

agencies, etc. Periodic meetings with the representatives of all agencies 

who are part of the juvenile firesetter referral network will also help to 

maintain the relationships, and will also provide a vehicle for addressing 

any problems before they become serious. Cases conferences are one 

possible strategy for maintaining communication and strengthening the 

referral network. 

Some juvenile firesetter program has parents sign waivers allowing the 

referral agencies (both referral source and target referral agencies) to share 

information with the juvenile firesetter program. These waivers or 

releases permit the juvenile firesetter program to inform the referral source 

that the youth was assessed by the program staff and allows the program 

to forward the results of their assessment to a treatment agency. In 

addition these releases allow target agencies, such as mental health 

facilitie's and child protective services, to apprise the juvenile firesetter 

program of the status of a case. This exchange of information will enable 

program staff to monitor each case and ensure that referral linkages are 

successfully accomplished and no youth falls between the cracks. 

Problems have developed in some jurisdictions when youth are referred to 

the juvenile firesetter program and the referral source is never informed 

about the outcome of the case. 

Differences Across Types of Jurisdictions 

As with virtually any facet of the juvenile firesetter program, the nature 

and extent of referral mechanisms will be dependent upon the 

characteristics of the community in which it operates. Key characteristics 

influencing the referral mechanisms include: (a) the nature and severity of 

the juvenile arson problem, (b) the size of the jurisdiction, and (c) the 

availability of relevant resources. 

The central factor in this regard is probably the size of the jurisdiction, 

which may range from small towns in rural areas to major metropolitan 

areas. The discussion above is most relevant to the medium-to-large cities 

where most of the juvenile firesetting is concentrated. In small, rural 

towns the problem of juvenile firesetting is likely to be less severe than in 

the large cities--both the incidence of firesetting and the seriousness of the 

youth's problem--so a huge network of complex referral networks will 

probably be neither needed nor available. The major types of referrals as 

shown in Figure 4.1 are applicable to small towns as well, although the 

sheer number of agencies and individuals will be considerably fewer than 

in the larger cities. Consequently, the work of developing and maintaining 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 301 

the referral network is likely to be less difficult and time-consuming. On 

the other hand, many of the target agencies where the youths are sent for 

special services may be located in other towns and cities. Identifying 

these agencies and working out practical referral arrangements with them 

may require considerable time and effort tracing down the best and most 

appropriate resources. With respect to the counseling and therapy 

resources, the program may consider identifying one or two individual 

therapists (rather than entire agencies) who could provide most of the 

services. 

CHAPTER 6: PUBLICITY AND OUTREACH 

Purpose 

This chapter describes how juvenile firesetter programs can develop a 

public information and education campaign to raise the public awareness 

about juvenile firesetting and the juvenile firesetter program. 

Surprisingly, many communities are often unaware of the juvenile 

firesetter problem or misinformed about the characteristics of firesetters. 

Parents may be reluctant to obtain help for their children suspected of 

firesetting for fear that they will be "put away." What many parents do 

not realize is that the majority of fires set by children are set out of 

curiosity. Without proper identification ad education, however, simple 

curiosity can have deadly consequences. 

The juvenile firesetter program has a responsibility to the community to 

inform them that a program exists to help juvenile firesetters. It is 

important for the community to understand that juvenile firesetter 

programs are designed to provide education for young firesetters and 

identify and refer troubled firesetters to counseling if necessary. Many 

juvenile firesetter programs are hindered because the community is 

unaware of the services they provide. This component will outline 

strategies that can be used inform and educate the public about the 

program and the service it provides. 

A note of caution--juvenile firesetter programs must be fully prepared to 

handle the requests for information and referrals generated from a 

publicity campaign. Programs must take care not to publicize anything 

they are not prepared to provide. The juvenile firesetter program will lose 

credibility quickly if the program staff say they can provide prompt 

assessment and education to firesetters and then place juveniles on waiting 

lists because they do not have adequate staff. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

302 Federal Emergency Management Agency/United States Fire Administration 

Strategies 

Pamphlets, brochures, and posters. At a minimum, juvenile firesetter 

programs should develop a simple brochure to describe the program and 

provide parents and other members of the community with a telephone 

number to call for additional information. For brochures, pamphlets, and 

posters, the old adage, "less is more" applies. The materials should be 

simple, with one or two major messages. These materials should briefly 

highlight the juvenile firesetter program's services and provide a contact 

for individuals to call. The juvenile firesetter program staff should 

consider soliciting funds, services (e.g., printing), or in-kind contributions 

from local businesses to defray the cost of design, production, and 

mailing. The coordinating council described in the Program Management 

component may help the juvenile firesetter program with fund-raising for 

these types of public relations activities. 

The brochures can be distributed through the schools, local Parent/Teacher 

Associations, pre-schools, daycare centers, and pediatricians' offices. 

Stores may allow the brochure or poster to be displayed in a store window 

or cashier's desk. Brochures or pamphlets should also be sent to all 

community organizations, service organizations, hospitals, physicians, and 

government agencies that work with juveniles. 

Newspaper, TV, and radio exposure. The most effective way to 

publicize a juvenile firesetter program is through local news media 

exposure. For example, Columbus, Ohio's juvenile firesetter program was 

suffering because the public was unaware of its existence. With the help 

of the local television news media and newspaper, the fire department was 

able to inform the public about the problem of juvenile firesetting and the 

services offered by the program. Program staff gave interviews about the 

local juvenile firesetter problem and explained how the community could 

use the Columbus Juvenile Firesetter Program. 

The juvenile firesetter program staff cannot wait for the media to come to 

them. They must go to local newspapers, radio stations, and television 

stations. If the juvenile firesetter program wants to use the local media, 

the program coordinator or spokesperson will have to call or meet with 

news reporters, assignment editors, and local news show producers. It is 

the spokesperson's job to "sell" the story to local media, explaining the 

importance of getting information about the juvenile firesetter program to 

the community. The spokesperson needs to have a clear understanding of 

them message the program wants to convey to the public and be able to 

convey that message to the local media. 

The spokesperson should have three or four key pieces of information to 

convey. Examples may include messages such as, 1) the majority of 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 303 

firesetters are curious children who need education, 2) the key to 

providing services to firesetters, whether curious or troubled, is 

identification and assessment, 3) children playing with fire is a very real 

and dangerous problem, 4) parents should not be afraid to seek assistance 

if they suspect that their children are playing with fire, or 5) the juvenile 

firesetter program is designed to provide assessment, education ad referral 

for firesetters. Local communities may have messages that apply to their 

specific jurisdiction. A second key requirement is knowing the target 

audience. A message targeting parents may be different than a message 

targeting community agencies. The issue of target audience will be 

discuss, further in the section on Public Service Announcements. 

Juvenile firesetter programs should consider writing brief fact sheets and 

press releases which can be made available to the local media. Fact sheets 

can be used to give the media background information about the juvenile 

firesetter program. Fact sheets are usually brief and can be updated as 

necessary. A press release is a brief (one page) announcement of a 

newsworthy story or event. The release gives the important information 

about the event to the media. Every release should have the name, 

address, and telephone number of the juvenile firesetter program. 

An excellent resource on how to work with the media was written and 

published by the National Crime Prevention Council (NCPC). The book, 

Ink and Airtime, provides ideas and step-by-step guidelines on how to 

write press releases, fact sheets and articles. The book also tells readers 

how to get their information on radio and television and how to 

systematically develop a media campaign. 

Juvenile firesetter programs can also benefit from the information in 

media kits developed by the U.S. Fire Administration (USFA) and the 

National Fire Protection Association (NFPA). Both media kits contain 

information on the nature and extent of juvenile firesetting which can be 

used to educate communities about the program of juvenile firesetting. 

One way to get media attention is when a juvenile firesetting incident has 

occurred. Parental interest and media awareness are heightened after such 

an event. A description of the program and its services can be used as a 

sidebar to the story about the incident. In addition, if the juvenile 

firesetter program staff have identified themselves to the media, they may 

be interviewed and asked to give an expert opinion about juvenile 

firesetting. This is again an excellent opportunity to discuss the juvenile 

firesetter program. The important thing to remember is that no juvenile 

firesetting incident should be reported in the media without also 

mentioning the juvenile firesetter program. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

304 Federal Emergency Management Agency/United States Fire Administration 

In addition to newspapers, radio, and television, juvenile firesetter 

programs can also use community newsletters or magazines, newsletters 

of major corporations, and university and college newspapers to publicize 

the program. The program staff can write short articles about the juvenile 

firesetter problem and the steps the program has taken to alleviate the 

problem. Program staff can then meet with the editors of the newsletters 

and magazines to discuss the articles. These types of publications are 

designed to serve the community and highlight community programs and 

activities and can be an excellent way to educate the community about the 

juvenile firesetter program. 

Public Service Announcements. Public service announcements (PSA's) 

can also be used to inform the community about the juvenile firesetter 

program. They have the potential to reach a wide audience. PSA's 

provide information about a problem or program without trying to sell a 

product. One of the greatest advantages of PSA's is that the radio and 

television time are donated by the media. Competition for media time and 

space, however, is very tough and stations are cutting back on the amount 

of airtime they are willing to devote to PSA's. PSA's must, therefore, be 

well-thought-out and creative. 

Several fire departments and the National Fire Protection Agency (NFPA) 

have developed "generic" or open-format PSA's. These are PSA's that 

describe the problem of juvenile firesetting in general, but allow the local 

program to "customize" the PSA by leaving space at the end for 

information about how to contact the local juvenile firesetter program. 

The PSA developed by the NFPA entitled, "Got a light, keep it out of 

sight," can be ordered through local NFPA representatives. The Phoenix 

Fire Department also has an open-format PSA developed by Fire-Pal. The 

Phoenix Fire Department has made the PSA available to local juvenile 

firesetter programs for a reproduction fee. 

Juvenile firesetter programs may want to develop their own PSA's. Before 

developing a PSA, the juvenile firesetter program staff must decide who 

they want to reach—their target audience—and the best way to reach 

them. Two of the largest, relatively untapped, sources of referrals are 

parents and school personnel. PSA's should be designed to capture the 

attention and support of these two groups. 

The juvenile firesetter program staff will need to decide on the content of 

their message. PSA's are usually short, 15-30 second ads that focus on a 

specific message. The content of the PSA message will vary according to 

a number of different criteria, including target audience (parents, children, 

teachers, etc.), nature of the juvenile firesetting problem in the community 

and the goal of the PSA (education, referral to the program, etc.). Some 

PSA's, targeted toward parents, describe misconceptions about juvenile 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 305 

firesetters. One such misconception is that they are "bad" kids or that they 

have deep-rooted psychological problems. Although some juvenile 

firesetters are troubled and need counseling, the majority are young 

children who need fire safety education. Other PSA's are used to inform 

the public that juvenile firesetting is a real and deadly problem that, in 

many cases, can be avoided. Still others may address kids and warn them 

about the dangers of playing with matches and lighters. Regardless of the 

message, the PSA should give the audience a specific name and telephone 

number to contact for more information. 

Unfortunately, although the media donates PSA time and space, 

developing a PSA is not a low cost venture. Programs with limited funds 

will need to look to the community for funds or services. Companies may 

be able to donate paper, tapes, personnel, video equipment or other 

valuable materials in lieu of money. Programs unfamiliar with producing 

audio and video tapes may want to consider using PSA's which have 

already been developed. The vehicle used to promote the juvenile 

firesetter program (radio or television) will depend largely on the amount 

of resources available. 

If the resources and expertise are available, the juvenile firesetter program 

will still have to compete with other agencies for the media time and 

space. Program personnel should address this problem directly by going 

to local newspapers and radio and television stations and meeting with the 

public service staff. The juvenile firesetter program director or another 

staff member will need to explain the severity of the problem and the 

importance of eliciting community support for the juvenile firesetter 

program. Ink and Airtime advises program staff to go to these meetings 

armed with all of the information available, including local and national 

statistics, evidence of program success, and endorsements from prominent 

members of the community. 

Speakers bureaus, hot lines, and other services. The juvenile firesetter 

program or the coordinating council can establish other services to 

promote the program. For example, juvenile firesetter programs in 

Columbus, Ohio and San Jose, California have established speakers 

bureaus. These bureaus are comprised of individuals who have expertise 

in one or more areas of fire safety and prevention. These individuals 

volunteer their time to speak to community groups, schools, service 

organizations, and other interested groups. The speakers can provide 

valuable information and promote the use of the juvenile firesetter 

program. 

The Juvenile Firesetter Program Task Force, Inc. in Columbus, Ohio also 

maintains a Juvenile Firesetter Care Line where parents can receive 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

306 Federal Emergency Management Agency/United States Fire Administration 

information and help for their children. Volunteers from the community 

can be trained to man the hot-line and assist parents. 

Partnerships 

The nature and extent of the juvenile firesetter program publicity and outreach campaign will be limited to the resources available to the program. 

Programs with limited money and manpower have formed partnerships 

with community organizations and local businesses to acquire the 

necessary services, materials, and funds. The community can offer an 

unlimited wealth of resources. Corporations may donate money or 

sponsor specific promotional activities or products. As noted in the 

Program Management component, the juvenile firesetter program staff 

should appeal to a corporation's sense of civic mindedness and selfinterest when attempting to solicit donations from corporations. 

Contributing money to better the community is basically good business. 

The juvenile firesetter program coordinator should also request assistance 

from individual community members. Individuals with expertise in 

writing, advertising, audio and visual communications, design, and other 

skills can be asked to donate their skills. The problem of juvenile 

firesetting is a community problem that cannot be alleviated without the 

assistance of the community. 

RESOURCE LIST 

Ink and Airtime: 

National Crime Prevention Council (NCPC) 

1700 K. Street, N.W., Second Floor 

Washington, DC 20006 

Public Service Announcements: 

Fire Pal 

c/o Phoenix Fire Department 

520 West Van Buren 

Phoenix, AZ 85003 

National Fire Protection Association 

1 Batterymarch Park 

Quincy, MA 02169 

(617) 770-3000 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 307 

Media Kits: 

"Curious Kids Set Fires" 

U.S. Fire Administration 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

"Big Fires Start Small" 

National Fire Protection Association 

1 Batterymarch Park 

Quincy, MA 02169 

(617) 770-3000 

Newsletters: 

"Hot Issues" 

State Fire Marshall 

4760 Portland Road, N.E. 

Salem, OR 97305 

CHAPTER 7: MONITORING SYSTEMS 

The purpose, content, format, and use of systems for monitoring juvenile 

firesetters and firesetting incidents are covered in this component. While 

many juvenile firesetter programs have developed some internal system to 

monitor their caseloads, others simply maintain individual case files with 

no systematic way to track cases, determine final dispositions, report to 

funding agencies, etc. Very few have systems capable of being used for 

evaluation purposes. As described in this component, simple monitoring 

systems are recommended for all juvenile firesetting programs regardless 

of size. They need not be elaborate, expensive, semi-comprehensible 

computerized systems; both manual and simplified computer systems can 

be perfectly adequate for careful monitoring. 

Purpose 

Monitoring systems serve different purposes, depending on the 

information they contain and the uses to which they are put. At the most 

elemental level, a management information system is needed for case 

tracking, caseload analysis, and reporting of program operations and 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

308 Federal Emergency Management Agency/United States Fire Administration 

results. A Management Information System (MIS) should include case 

characteristics of the firesetter and the firesetting incident, services 

rendered, dates of key events, and the final disposition of the case. It is 

used as a management tool to monitor individual cases, determining the 

status of each case at any given point and ensuring that needed treatment 

has been completed. An MIS provides the means for summarizing and 

analyzing the program's caseload (the number of cases handled, case type, 

firesetter characteristics, number and type of services rendered, etc.), 

tracking and reporting the number and type of program activities 

(presentations given, etc.), and providing data for annual reports, 

evaluations, and funding agencies. Most juvenile firesetter programs 

maintain some version of an MIS, or at least have the basic ingredients 

(such as case records) for the making of one. 

Extending the MIS to include recidivism and other follow-up data 

provides the basic building blocks for an evaluation system. An 

evaluation system would contain all of the information above plus followup data on firesetting recidivism and other programs such as delinquency, 

school or family problems, etc. The evaluation system is an extension of 

the MIS, rather than a separate system. Much of the data in such an 

evaluation system may come from the program's routine follow-up 

contacts with families of firesetters and the referral agencies to which they 

are referred. It provides the basic data needed for self-evaluation and 

program monitoring, as will as those needed for an independent evaluation 

of the program. Some juvenile firesetter programs have routinized 

systems for tracking recidivism and judging the effectiveness of program 

efforts, and will be used to illustrate the purposes and use of an evaluation 

system. 

The third type of monitoring system suggested for juvenile firesetter 

programs is an incidence reporting system. The purpose of an incidence 

reporting system is to record basic information on all known juvenile 

firesetting incidents, whether or not the firesetter is identified and handled 

by the juvenile firesetter program. This system would provide the basic 

information on all known juvenile firesetting incidents, whether or not the 

firesetter is identified and handled by the juvenile firesetter program. This 

system would provide the basic data needed to monitor jurisdiction-wide 

rates of juvenile arson and firesetting and gauge the effectiveness of 

education and outreach efforts of the program. The incidence reporting 

system would be an extension of the routine records kept by fire service 

officials, and ideally, would include firesetting incidents that have not 

come to the attention of law enforcement and fire officials. 

As noted earlier, we believe that, at a minimum, the juvenile firesetter 

program should be aware of every juvenile-set fire in its jurisdiction. 

Sometimes schools and other agencies choose to handle a juvenile 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 309 

firesetter internally without contacting the juvenile firesetter program, 

particular if the fire did not warrant fire suppression. It is very important 

for the juvenile firesetter program to have that information, because if a 

child ultimately does set a fire that warrants the attention of the fire 

department, it is likely that the fire service will treat that individual case 

differently if they believe it is a first offense versus if they know that the 

child in question has been lighting numerous fires in school. In order to 

provide the child with the services he or she needs, the juvenile firesetter 

program needs to be aware of the child's firesetting history. Developing 

strong referral networks should facilitate obtaining the necessary 

information. 

Central Elements of the Monitoring System 

The case information and other data to be kept in each of the proposed 

three systems are described in this section. The development, form, and 

use of these systems--data collections issues, whether systems should be 

manual or computerized, which agency should maintain the system, 

analysis, and reporting, etc.--are described in the following section, 

"System Development and Use." 

Management Information System. The data to be included in the 

Management Information System are drawn from the individual case files, 

primarily from intake, screening, and assessment instruments, and from 

other program records (perhaps newly created for this purpose). There are 

four categories of data included in an MIS: 

I. Case characteristics 

a. Source of referral 

b. Age, sex, race, family status of firesetter 

c. Details of the firesetting incident—motive, presence of 

others, location of fire, materials used, damage estimate, 

injuries, deaths 

d. Past firesetting incidents 

e. Initial assessment after screening (e.g., little, definite, or 

extreme risk) 

II. Services rendered 

Dates, content, and length of educational sessions; dates, purposes, 

and agencies of referral(s); number and type of counseling 

sessions; details of other services (restitution, community service, 

etc.) 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

310 Federal Emergency Management Agency/United States Fire Administration 

III. Case disposition 

a. Dates and outcomes of all services rendered, gathered 

through routine reporting by all cooperating agencies or 

direct follow-up 

b. Status of case in criminal justice system 

IV. Program Activities 

a. Education/prevention activities, school-based or 

community or other--type, number, attendance, content 

b. Training for others in the field--type, curriculum, number 

trained 

c. Resource/materials development 

d. Other--media coverage, Task Force participation, etc. 

The first three categories, case characteristics, services rendered, and case 

disposition information, are the most important elements of the 

Management Information System. The data will be as accurate and 

complete as the individual case files and other program records. Each 

case should have a case file, which would contain intake forms, screening 

instruments, and disposition information in each case file. 

Evaluation system. Data for an evaluation system requires follow-up 

activities with police, fire, prosecution, courts, and probation agencies; 

schools; parents; social service agencies; and private treatment facilities. 

Data collection procedures are discussed in the following section. The 

following information on all cases handled is to be included in the 

evaluation system: 

• Firesetting recidivism--information on any further firesetting 

incidents. 

• Delinquency--any and all acts of vandalism, stealing, etc. 

• School problems--truancy, chronic tardiness, disciplinary 

problems, academic and behavioral problems, etc. 

• Family/home problems--running away, lack of parental control, 

etc. 

• Personal and interpersonal problems--emotional and behavioral 

problems, poor peer relation ships, etc. 

Incidence reporting system. Like the evaluation system, the incidence 

reporting system requires information from a variety of sources, although 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 311 

the fire department is clearly the primary source. The incidence reporting 

system should cover the jurisdiction of the juvenile firesetter program--

e.g., a city, county, etc. It will include all known or suspected juvenile 

firesetting incidents, whether or not they are reported to the authorities 

(data collection is discussed in the following section). The system would 

include information on: 

• Firesetting incidents--date, location, ignition materials used, 

items/structures ignited, damage estimate, injuries, death, reported 

or not, reasons for not reporting if known. 

• Known or suspected firesetters--age, sex, motive, presence of 

others, past incidents. 

System Development and Use 

Management information and evaluation systems. The development 

and use of the management information and evaluation systems will be 

covered here under one heading. The evaluation system should be 

considered simply an extension of the MIS because the data collection, 

computerization, and other issues are quite similar. The fire department is 

best equipped to build and maintain these systems. 

Cooperation and coordination from all agencies is needed to build and 

maintain a comprehensive monitoring and evaluation system. The 

responsibility of each agency in regard to reporting requirements and 

providing data should be spelled out in interagency agreements. For a 

developing program, monitoring issues should be identified from the start 

and built into discussions among involved agencies for the inception of 

program planning. These issues include confidentiality, policies or 

regulations that prohibit sharing information, routinized data collection 

procedures, and resistance to participating in data collection because of 

time constraints or lack of resources. 

Each agency may have confidentiality concerns, at minimum, or statutory 

regulations that limit the individual information they may share with 

others. Schools, in particular, will be very concerned about releasing any 

information on students. Law enforcement agencies, particularly 

probation and the courts, are severely limited in the extent to which any 

information on juveniles can be provided to outsiders, and in some 

jurisdictions, the fire and police departments are considered outsiders. 

While these concerns may be mitigated if the monitoring system is 

maintained by fire officials within the juvenile firesetter program, 

confidentiality protections should be reviewed and safeguarded. Access to 

records should be controlled whether the system is manual or 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

312 Federal Emergency Management Agency/United States Fire Administration 

computerized, and only grouped results should be reported outside of the 

program. 

Each agency involved in the juvenile firesetter program must make a 

commitment to inform the program about particular events concerning 

youth in the program. The data collection effort should not be 

burdensome; simple reporting forms can be developed to facilitate case 

tracking and disposition. In one program, for example, counseling 

agencies submit monthly reports on clients referred to them by the 

juvenile firesetter program and Child Protective Services reports quarterly 

on the number of family sessions held and progress made. When a family 

terminates counseling, the entire case file kept by the counselor is returned 

to the juvenile firesetter program. In another program, the program 

follows up with both the parents and the referral agencies within a month 

or two after referral to confirm that the recommended contact has 

occurred. 

The management information and evaluation system may be kept 

manually, but since personal computers have become increasingly 

prevalent in the workplace, computerization is advised. A manual system 

may suit a small program perfectly, if its caseload is not large and its 

reporting requirements are small. Simple logs, carefully organized and 

kept up to date, will provide a small program with basic information very 

quickly. Computerization is needed when either the caseload is too large 

to handle summary computations easily and accurately or when reporting 

requirements are frequent and/or detailed, making interim computations 

and status reports cumbersome to produce. When a program reaches 

somewhere between 75 and 100 cases per year, computerization is 

probably warranted. 

If operating on a manual system, key information from case files should 

be placed on monthly activity logs that enable summaries to be easily 

calculated. For example, the sample log on the following page will tell 

you at a glance the number of cases handled in July, their referral sources, 

and initial intervention steps. With minor calculations, the average age 

and other information about the firesetter and firesetting incident can be 

summarized. A program developing a manual MIS should decide what 

information is to be kept on logs, after reviewing their management and 

reporting needs. Perhaps two logs will be needed, one to describe basic 

case information (dates, referral sources, individual and incident 

characteristics) and one to record referral, intervention, and disposition 

data. A log should be used as a "tickler system," enabling program staff to 

quickly view the status of a case and monitor it for the delivery of 

intervention services. 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 313 

In a computerized system, information from case records would be entered 

directly into a computer using a database management program (e.g., 

Dbase). Simple queries on a case by case basis can be made through the 

database program, such as the date of referral to the program, and many 

database programs enable more complex queries to be made easily, such 

as the number of cases referred to the Community Mental Health Center. 

Tables, summary statistics, and routine reports can be produced by 

programming through the database program. Statistical packages such as 

SPSS are probably not needed for monitoring purposes although their 

statistical capabilities may be helpful in producing specific information 

needed by a juvenile firesetter program. 

One advantage of a computerized system is that it provides a basic 

database from which information can be drawn, sliced anyway the 

program desires. For example, manually kept logs and provide a program 

with a running total of the years' caseload. But if new questions or needs 

arise--to look at referral sources during a given quarter or investigate 

whether kids 13 or over have caused more serious fires than those under 

13, for example--the hand tallies can become burdensome and inaccurate. 

Such information would be at your fingertips in a computerized system. 

To maintain an MIS capable of providing a full picture of juvenile 

firesetting in a given jurisdiction, computerization is needed. A 

computerized database can contain much more information than a manual 

system (the results of screening tests and details of the firesetting incident, 

for example) and therefore answer much more complex questions (such as 

do second-time firesetters improve more with inpatient or outpatient 

treatment). Without a computerized system, these questions require the 

hand-culling of individual case files. On the other hand, computerized 

systems require more care. Data must be entered on a timely basis and 

one must know how to get information out of it without expending 

substantial time in training or programming. 

 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

314 Federal Emergency Management Agency/United States Fire Administration 

July 1993 

Name` Age Sex Fire 

Location 

Property 

damage 

amount 

Injury 

Y/N 

Screened 

Y/N Intervention Referred from 

Referred 

to 

A generic computer system could be developed by a central agency (such 

as the U.S. Fire Administration/FEMA) at relatively low coat and tailored 

to each program as needed. Alternatively, a juvenile firesetter program 

might hire local experts (or find volunteers among local computerniks) to 

develop a computer program. We feel most juvenile firesetter programs 

will have the in-house expertise needed to enter data and operate the 

system on an ongoing basis. It should not be a time-consuming job; rather 

only an hour or two a week should keep the system current. 

The analysis produced via the computerized system or summarized 

manually in regard to the management information system should enable a 

program to answer questions such as the following: 

1. How many cases have been handled this year relative to last year? 

2. What are the individual and family characteristics of the juveniles 

handled? 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 315 

3. What are the characteristics of the fires set by the juveniles 

handled by the program? 

4. Which referral agencies are used the most? 

5. How long, on the average, are juveniles and families in treatment? 

To extend the MIS to become an evaluation system, follow-up activities 

must take place with a number of key agencies to determine the long-term 

effectiveness of the intervention strategies in terms of recidivism. For 

evaluation purposes, a program needs to know, minimally, of any 

recurrence of firesetting behavior, and should want to know about juvenile 

delinquency, continued problems at school or home, etc. Quarterly 

contacts should be made with the family and key agencies for a year or 

two after the precipitating incident to inquire about recidivism and related 

problems. In the Houston program, cross-reference checks are made 

among participating agencies to look for recidivists and the program 

director makes monthly phone calls to the family for a year to check on 

the juvenile's progress. Other programs have formally conducted surveys 

of families to explore recidivism issues and what the family felt about the 

juvenile firesetter program and the referral services that may have been 

offered. Examples of these surveys can be found in the Guidelines for 

Implementation. 

The key agencies include the police and fire departments, courts and 

probation, schools, parents, social service agencies, and public treatment 

facilities. The follow-up may consist of routine reporting or periodic 

telephone calls to determine if the agency has had any further contact with 

the juvenile and, if so, for what reasons. Parents are probably the best 

single source of follow-up information, if sufficient rapport has been built 

to enable the parents to report any additional delinquent behaviors or other 

problems. Telephone contact should be made with the parents rather than 

sending an impersonal form. 

These recidivism data should be added to the computerized database or 

manual logs as they are gathered. Together with the MIS data, this 

information forms the basis for a comprehensive evaluation. The 

information is obviously valuable to the program, to assess its own 

effectiveness and effectiveness of participating agencies. An independent 

evaluator will want to verify the information and collect more detailed 

information on treatments and outcomes, but the MIS will provide the 

basic building blocks for an outside evaluation. Finally, the MIS data are 

easily available when preparing annual reports, proposals, news releases, 

etc. 

Incidence reporting system. Incidence reporting systems, as discussed 

previously, are valuable for analyzing the full problem of juvenile 

firesetting and determining where services are needed and where services 

(education, particularly) have been effective. Since fire departments will 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

316 Federal Emergency Management Agency/United States Fire Administration 

have the basic systems in place needed to maintain an incidence reporting 

system, the real challenge is in data collection. In too many jurisdictions, 

there is no means to identify fires set by juveniles versus those set by 

others. 

A juvenile firesetting incidence reporting system should contain fire and 

individual information as previously presented. The data should be 

gathered via existing records or new forms developed for this purpose, 

from all fire departments covering jurisdictions of interest depending on 

the areas served by the juvenile firesetter program. The Portland, Oregon 

program is building a statewide database on juvenile firesetters. Portland 

has also conducted a risk analysis to the city to identify high-risk areas for 

juvenile firesetters and implement education/intervention strategies as 

appropriate. The state of New York, in conjunction with the Rochester 

program, is also developing a statewide computer system. 

In addition to gathering and analyzing reported juvenile firesetting 

incidents, methods to assess the incidence of unreported fires are needed. 

Several options are available. One way is to identify and survey 

organizational entities (primarily schools and parents organizations) that 

record firesetting incidents that are small and not reported to the fire 

department. 

Another, more basic assessment of the juvenile firesetting problem is to 

survey youth directly to gather information on their firesetting behavior. 

Juvenile firesetting is substantially underreported, and many youth set 

fires that never come to the attention of parents or authorities. 

Anonymous surveys of students in the schools (as conducted by the 

Rochester program) are probably the best single source of information on 

juvenile firesetting incidents as well as fireplay activities that do not result 

in actual fires. Strict anonymity must be upheld for truthful self-reports to 

result. This type of survey will provide information on the full extent of 

the juvenile firesetting problem in a jurisdiction and is as valuable as 

reported fire statistics. 

Because of the volume of data and need for summary statistics, the 

incidence reporting system should be computerized. In many 

departments, the creation of this system will be relatively easy. Fire 

incidence reports that are routinely computerized may be sorted to reflect 

just the juvenile problem. 

CHAPTER 8: DEVELOPING RELATIONSHIPS WITH THE JUSTICE SYSTEM 

The juvenile firesetter program needs to develop relationships with all of 

the key agencies that work with juvenile firesetters. As noted in the 

Referral Mechanisms component, these agencies include police, social 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 317 

services, schools, mental health, and the juvenile justice system. It is the 

relationship with the juvenile justice system which will be the focus of this 

component. Too often juvenile firesetters are referred to the juvenile 

justice system and never come to the attention of the juvenile firesetter 

program. Juvenile firesetter programs need to be aware of all incidents of 

firesetting so that no juvenile firesetter falls through the cracks. The 

juvenile firesetter program is in a unique position of being able to assess 

all firesetters and track them through referral agencies. In addition, the 

juvenile firesetter program can be a resource for probation, juvenile court, 

and correctional facilities. The juvenile firesetter program's potential as a 

resource to the juvenile justice system, however, is based on the strength 

of relationship between the program and the justice agencies. 

Purpose 

The purpose of this component is to provide information to assist 

programs in developing effective relationships between the juvenile 

firesetter program and the justice system. Specific objectives of this 

component are the following: 

• To help the juvenile firesetter program identify delinquent 

firesetter; 

• To develop working relationships between the juvenile firesetter 

program and specific agencies of the criminal justice system 

including probation, family court, prosecutor's office, and juvenile 

court; and 

• To help the juvenile firesetter program better assist delinquent 

firesetters in residential correctional facilities. 

Model approaches to have been used in three cities--Rochester, NY, 

Charlotte, NC, and Portland, OR--are summarized below. Recognizing 

that each program will differ in such areas as state law, program structure 

and manpower, programs should review these models and consider the 

procedures most appropriate to their particular program and jurisdiction. 

Rochester, New York

All fires set by juveniles are investigated by fire investigators assigned to 

the Fire Related youth (FRY) Program. Investigators approach every case 

of juvenile firesetting as a criminal investigation. After collecting 

information about the case, the investigators meet with the youth and 

provide fire safety education. In Rochester, all juvenile firesetters come to 

the attention of the FRY program prior to being referred to other agencies, 

including juvenile justice. Cases may be referred to prosecution as a last 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

318 Federal Emergency Management Agency/United States Fire Administration 

resort to get services to children in need or when the child has engaged in 

numerous other delinquent activities. The FRY investigators work very 

closely with the Probation Office and the Presentment Agency. The 

Probation Intake Unit will handle the case first. Intake Unit staff will 

decide whether the case can be "adjusted" without going to court or 

whether the case will be referred for prosecution. If adjustment is being 

considered, the probation department will consider the youth's risks and 

strength. Probation staff may refer to juvenile to a mental health or social 

service facility. Cases referred to prosecution are petitioned through the 

Presentment Agency to Family Court. The presentment attorneys work 

very closely with the FRY investigators and rarely lose a case sent to 

prosecution. Before a case gets to court, the judge assumes that every 

effort has been made to keep the youth out of court. If the judge finds that 

there is enough evidence to justify the charge, s/he will ask Probation to 

conduct a family evaluation and make a recommendation to the court. 

Often the judge will also consider the FRY investigator's recommendation. 

Charlotte, North Carolina

All arson or suspicious fires are investigated by the Arson Task Force. If 

a juvenile is suspected, the Task Force members often try to persuade the 

youth to confess to setting the fires. How the case proceeds often depends 

on whether the juvenile confesses. If the juvenile does not confess, the 

case is referred to the District Attorney's Office for prosecution. If the 

juvenile does confess, the Task Force then decides whether to proceed 

with prosecution or refer the juvenile directly to the juvenile firesetter 

program which is housed in another division of the fire service. The 

decision is based on a number of considerations including whether the 

incident is a first offense and whether the youth destroyed another's 

property. If the youth is referred to court, the case is referred to a Court 

Intake Counselor. The intake officer will meet with the parents and the 

youth and decide whether the petition for prosecution is warranted. The 

intake officer can recommend a deferred sentence under the condition that 

the youth participate in the juvenile firesetter program. If the case goes to 

court, the youth is interviewed by a court counselor who makes a 

recommendation to the court. The court counselor can also recommend 

that the youth participate in the juvenile firesetter program. If such a 

recommendation is accepted by the court, it then becomes a court order. 

The judge may also court order the youth to other agencies or facilities. 

Portland, Oregon

In Portland, Oregon, all juvenile firesetters are reported to and investigated 

by, the Portland Fire Bureau. In 1986, the Fire Bureau developed a 

program to reduce the incidence of juvenile firesetting. Juveniles 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 319 

apprehended for fire related offenses may be referred directly to the 

juvenile firesetter program or they may be referred to the program via the 

juvenile justice system. Those referred to the justice system are more 

likely to be the older juvenile who has been 1) involved in a more serious 

incident, 2) identified as a "troubled firesetter," or 3) identified as a repeat 

offender. If a youth is referred to juvenile court, the case is assigned to an 

intake probation officer. The intake officer will review all of the records 

and make a decision to close the case; divert the case to the juvenile 

firesetter program, social service agency, mental health professional, or 

another diversion program; or refer the case to the District Attorney's 

Office. If the district attorney chooses to prosecute the case, a petition of 

charges is filed with the juvenile court. At this point the case is assigned 

to an adjudication officer, who prepares the case summary and 

recommendations. If the judge finds that a crime was committed, s/he 

must decide whether to sentence the juvenile to a correctional facility, 

mental health facility, or place the juvenile on probation. As a condition 

of probation, the juvenile may be court ordered to attend fire safety 

education through the juvenile firesetter program, or participate in mental 

health counseling. 

Relationships with the Probation Department 

Within the justice system, a representative of the probation department 

(intake unit) is usually the first person to encounter the juvenile firesetter. 

Therefore, the juvenile firesetter program must inform and educate the 

probation department, especially those assigned to the intake unit, about 

the program. For example, a representative from the juvenile firesetter 

program should make an in-service education presentation to the staff of 

the probation department. 

The staff of the probation department should receive periodic updates, fact 

sheets, newsletters or yearly updates as to the status of the juvenile 

firesetter program. Prepared by the juvenile firesetter program staff, these 

communications can contain statistics, case studies, intervention 

technique, list of placement facilities, referral methods, etc. The updates 

are designed to keep the probation department abreast of what the juvenile 

firesetter program is doing. 

The juvenile firesetter program should plan and coordinate a procedure by 

which the probation department refers all juvenile firesetters to the 

program for an evaluation if such an evaluation is warranted. This process 

will ensure that all juveniles are identified and evaluated and offered 

educational intervention, if appropriate. One way to plan and coordinate 

such a procedure which has been used in some jurisdictions would be for 

the probation department to assign a particular probation officer (most 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

320 Federal Emergency Management Agency/United States Fire Administration 

likely in the intake unit) to handle all cases involving juvenile firesetters. 

That intake officer would be able to work closely with the juvenile 

firesetter program staff. 

In addition, a representative from the juvenile firesetter program routinely 

should be present at all conferences concerning the treatment and/or 

placement of a juvenile firesetter. Input from the juvenile firesetter 

program will be invaluable in discussions with child protection agencies, 

mental health agencies, correctional facilities, and representatives from 

community placements. 

Relationships with the Law Enforcement, Legal, and Judicial 

Community 

The members of the law enforcement, legal (prosecutive and defense), and 

the judicial community must be aware of, and educated about, the juvenile 

firesetter program. Certainly, the juvenile firesetter program can be an 

invaluable referral source for the district attorney's office, trial lawyers, 

and the juvenile judges. 

Effective methods of informing and educating the members of these 

professional communities include supplying them with brochures 

explaining the program, conducting in-service education seminars, and 

sending fact sheets, periodic newsletters, and annual reports about the 

activities of the program. These methods will not only inform and 

educate, but will also continue to enhance the professional image of the 

juvenile firesetter program. Such an image is imperative if the 

professional community is to utilize the services of the juvenile firesetter 

program. 

Relationships with the Juvenile Correctional Institutions 

Some juvenile firesetters will be placed in juvenile correctional 

institutions for rehabilitation. The juvenile firesetter program can also 

educate the various correctional institutions about the existence and the 

contents of the program. Similar relations should be fostered with the 

correctional institutions as with the probation department. 

For example, the juvenile firesetter program should be aware that a 

juvenile firesetter is being held at a particular correctional institution. 

Also, the juvenile firesetter program, once it is aware that a juvenile 

firesetter is to be admitted to a correctional institution, should inform the 

institution that the program has evaluated and/or educated the juvenile. A 

dual waiver, which is signed by the juvenile firesetter's parent or guardian, 

would allow the juvenile firesetter program to share information they may 
Fire Service Guide 

The National Juvenile Firesetter/Arson Control and Prevention Program 

Federal Emergency Management Agency/United States Fire Administration 321 

have about the juvenile with the correctional facility and allow the facility 

to share information with the program. 

The juvenile firesetter program should provide periodic in-service 

educations programs to appropriate staff of the correctional facilities, 

many of whom are likely to hold inaccurate perceptions of the juvenile 

firesetter. For example, the overwhelming majority of correctional 

facilities, as well as community placements such as halfway houses, 

believe that the juvenile firesetter is a highly dangerous individual. They 

perceive the juvenile firesetter as one who is always on the verge of acting 

out and starting a fire. In actuality, the juvenile firesetter is less likely to 

act out by starting a fire once he/she is placed in a structured environment 

and away from the psychological and sociological factors that helped 

produce the original firesetting behaviors. 

The juvenile firesetter program should maintain an open line of 

communication with the correctional facilities. Correctional facilities 

rarely maintain specific treatment programs for juvenile firesetters. One 

such program, is operated by the Upper Arlington, Ohio Juvenile 

Firesetter Program. The Upper Arlington program offers a 12 week 

educational program to juveniles incarcerated for arson. Juvenile firesetter 

pogroms should encourage and participate in the development of similar 

programs for juveniles. If a structured program in not possible within the 

correctional facility, then juvenile firesetter programs should make its staff 

readily available to the staff of the correctional facility to establish 

individual treatment plans for specific cases.