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S. Hrg. 111–475 

NOMINATION OF KELVIN J. COCHRAN 

HEARING 

BEFORE THE

OF THE

COMMITTEE ON 

HOMELAND SECURITY AND 

GOVERNMENTAL AFFAIRS 

UNITED STATES SENATE 

ONE HUNDRED ELEVENTH CONGRESS 

FIRST SESSION 

NOMINATION OF KELVIN J. COCHRAN TO BE ADMINISTRATOR, U.S. 

FIRE ADMINISTRATION, FEDERAL EMERGENCY MANAGEMENT AGENCY, U.S. DEPARTMENT OF HOMELAND SECURITY 

AUGUST 5, 2009 

Available via http://www.gpoaccess.gov/congress/index.html 

Printed for the use of the Committee on Homeland Security 

and Governmental Affairs 

( 

(II) 

COMMITTEE ON HOMELAND SECURITY AND GOVERNMENTAL AFFAIRS 

JOSEPH I. LIEBERMAN, Connecticut, Chairman 

CARL LEVIN, Michigan 

DANIEL K. AKAKA, Hawaii 

THOMAS R. CARPER, Delaware 

MARK L. PRYOR, Arkansas 

MARY L. LANDRIEU, Louisiana 

CLAIRE MCCASKILL, Missouri 

JON TESTER, Montana 

ROLAND W. BURRIS, Illinois 

MICHAEL F. BENNET, Colorado 

SUSAN M. COLLINS, Maine 

TOM COBURN, Oklahoma 

JOHN MCCAIN, Arizona 

GEORGE V. VOINOVICH, Ohio 

JOHN ENSIGN, Nevada 

LINDSEY GRAHAM, South Carolina 

ROBERT F. BENNETT, Utah 

MICHAEL L. ALEXANDER, Staff Director 

KRISTINE V. LAM, Professional Staff Member 

JASON T. BARNOSKY, Professional Staff Member 

BRANDON L. MILHORN, Minority Staff Director and Chief Counsel 

JENNIFER L. TARR, Minority Counsel 

ADAM J. KILLIAN, Minority Professional Staff Member 

TRINA DRIESSNACK TYRER, Chief Clerk 

PATRICIA R. HOGAN, Publications Clerk and GPO Detailee 

LAURA W. KILBRIDE, Hearing Clerk 

(III) 

C O N T E N T S 

Opening statements: Page 

Senator Lieberman ........................................................................................... 1 

Senator Landrieu .............................................................................................. 1 

Senator Collins ................................................................................................. 3 

Senator Carper ................................................................................................. 10 

Prepared statements: 

Senator Lieberman ........................................................................................... 17 

Senator Collins ................................................................................................. 18 

WITNESS 

WEDNESDAY, AUGUST 5, 2009 

Kelvin J. Cochran, to be Administrator, U.S. Fire Administration, Federal 

Emergency Management Agency, U.S. Department of Homeland Security: 

Testimony .......................................................................................................... 5 

Prepared statement .......................................................................................... 20 

Biographical and financial information .......................................................... 24 

Pre-hearing questionnaire ............................................................................... 33 

Letter from Office of Government Ethics ....................................................... 54 

Letters of support ............................................................................................. 55 

Post-hearing questions for the Record ............................................................ 59 

(1) 

NOMINATION OF KELVIN J. COCHRAN 

WEDNESDAY, AUGUST 5, 2009 

U.S. SENATE, COMMITTEE ON HOMELAND SECURITY

AND GOVERNMENTAL AFFAIRS, Washington, DC. 

The Committee met, pursuant to notice, at 10:05 a.m., in room 

SD–342, Dirksen Senate Office Building, Hon. Joseph I. Lieberman, Chairman of the Committee, presiding. 

Present: Senators Lieberman, Carper, Landrieu, Collins, and 

Bennett. 

OPENING STATEMENT OF SENATOR LIEBERMAN 

Chairman LIEBERMAN. Well, good morning and welcome to this 

hearing on the nomination of Kelvin James Cochran to be Administrator of the U.S. Fire Administration (USFA) within the Department of Homeland Security (DHS). Senator Landrieu, we are honored that you are here. You probably have a pressing schedule. If 

you would like to give your introduction before Senator Collins and 

I proceed with our opening statements, we would be glad to have 

you do that. 

OPENING STATEMENT OF SENATOR LANDRIEU 

Senator LANDRIEU. Well, thank you, Senator. That would be lovely, and I really appreciate it, and I will be very brief. I really am 

honored to introduce an extraordinary leader to you, to assume the 

position, if approved by this Committee and confirmed, as Administrator of U.S. Fire Administration. 

Chairman Lieberman and Ranking Member Collins, Chief Kelvin 

Cochran is a native of Shreveport, Louisiana, which is why I am 

extremely proud. But more than that, he has just shown himself, 

after years of service, to be a firefighter’s firefighter, looking after 

the lives of his men and women and the professionalism of the departments that he has led. He has, as I said, 28 years of experience 

understanding fire safety, prevention, and emergency response. 

As you all know, the U.S. Fire Administrator is in charge of overseeing, coordinating, and directing national efforts to prevent fires 

and improve fire response. In 28 years, he has gained experience 

in every area of fire service, from firefighting to emergency medical 

services, hazardous materials—we have a lot of that in Louisiana— 

recruiting, public education, research development, employee counseling, etc. 

He served with distinction as chief of the Shreveport Fire Department, assuming responsibility for 600 employees and a $47 

2 

million budget, and then as you know, he moved to Atlanta recently to become chief of the Fire Rescue Department there, with 

over 1,000 members and a $74 million budget. And at the national 

level, he served as President of the Metropolitan Fire Chiefs Association and First Vice President of the International Association of 

Fire Chiefs. 

So not only does he bring, Mr. Chairman and Ranking Member 

Collins, experience running a fairly major department—Shreveport 

is the third largest city in Louisiana—moving to quite an international city of Atlanta, so his experience in those cities, in large 

metropolitan areas, but also he brings his national experience, connecting to fire professionals around the country. He has served this 

community with distinction in many volunteer capacities. 

So I am proud to be with the chief this morning. He is going to 

tell you a story about how he got into this business, which I am 

going to save for him to tell because he tells it better than I do. 

But I am very proud of him, Mr. Chairman, and I think this Committee will find his credentials to be outstanding and excellent, and 

he will have my vote in support as we move him through the process. 

Chairman LIEBERMAN. Thanks very much, Senator Landrieu. 

That was impressive, and it means a lot to the Committee that you 

took the time to come by. Thank you very much. 

Senator LANDRIEU. Thank you. 

Chairman LIEBERMAN. As Senator Landrieu indicated, the Fire 

Administration, I would say for the record, which was established 

in 1974, has been the primary Federal agency addressing the needs 

of the Nation’s firefighters, with the goal of reducing loss of life and 

economic loss due to fire and related emergencies. 

Among its many activities, the agency trains mid- and seniorlevel fire and emergency medical services officers at the National 

Fire Academy, also online; collects, analyzes, and disseminates 

data and information on fire and other emergency incidents; researches and develops fire prevention and fire safety technology; 

and helps the FEMA Administrator carry out the duties under the 

Assistance to Firefighters Grant Program and the Staffing for Adequate Fire and Emergency Response Grant Program, the so-called 

SAFER program, which mean a lot to this Committee and to Members of Congress of all political parties. 

Ever since September 11, 2001, and the catastrophe that was 

Hurricane Katrina, the USFA has also served as a national focal 

point for the expanded role of firefighters in response to both terrorist disasters and large natural disasters, including those of catastrophic dimensions like Hurricane Katrina. 

The Fire Administration has become a lifeline for firefighters, 

who, like other first responders, run directly into the face of danger 

while everyone else is running away from it. So we have always 

felt, on this Committee, that firefighters deserve all the support 

and training we can give them. 

Last year, Congress reauthorized the U.S. Fire Administration, 

and during that process, we had a chance to study the agency 

closely. What we found was a solid organization that serves a 

unique and important role within FEMA, DHS, and the Federal 

Government, and which merits continued support. 

3 

I will not go over your background but just include that in the 

record because Senator Landrieu did a good job, and maybe she 

was suggesting what your record says to me, which is that yours 

is a classic Horatio Alger or American Dream success story, and 

they are always inspiring for us to see come before the Committee. 

Chief, I think you have an understanding of the needs of firefighters, spanning the local and national levels. You have given 

back to your community not just in your professional service but 

also as a volunteer in the Boy Scouts, the Salvation Army, and Volunteers of America. 

Your nomination has been endorsed by the International Association of Fire Fighters, whose president, our dear friend, Harold 

Schaitberger is here; the International Association of Fire Chiefs; 

and the National Fire Protection Association. I would say that you 

have come before the Committee with the all-star team of endorsements, and that means a lot to us. So we wish you the best of luck. 

Senator Collins. 

OPENING STATEMENT OF SENATOR COLLINS 

Senator COLLINS. Thank you, Mr. Chairman. 

As the Chairman has indicated, the agency that Chief Cochran 

has been nominated to lead—the U.S. Fire Administration—plays 

a critical role in securing our Nation. Every day across our Nation, 

firefighters risk their lives and their personal well-being in order 

to protect others. Their job as first responders is to be skilled, selfless, and urgent. In recent years, we have all become more aware 

of their acts of bravery and sacrifice. 

On September 11, 2001, America’s firefighters fearlessly responded to aid and rescue victims. On that day alone, 343 firefighters in New York City lost their lives. In the aftermaths of 

Hurricanes Katrina and Rita, America’s firefighters tirelessly answered the call. 

And in local communities right now, even as we hold this hearing, firefighters are responding to all manner of emergencies—some 

of them life-threatening events that severely test the men and 

women who serve. 

Whether they are career or volunteer, America’s nearly 1.2 million firefighters exemplify professionalism, dedication, and heroism. 

Since 1974, the USFA has been the primary Federal agency for 

firefighters. Its mission is to serve as an advocate and to help reduce loss of life and diminish the economic impact of fires and 

related emergencies. This Committee has worked hard to support 

the Fire Administration’s issues and the needs of our Nation’s fire 

services. 

In 2006, as part of the landmark FEMA reform law, we elevated 

the Fire Administrator to the position of Assistant Secretary in recognition of the Fire Administration’s vital role in our Nation’s preparedness and emergency response system. 

In 2008, we reauthorized the Fire Administration to help the fire 

services better meet their wide-ranging mission. We updated the 

curriculum of the National Fire Academy, expanded the range of 

firefighter training programs, promoted the adoption of national 

voluntary consensus standards for firefighter health and safety, 

4 

and established a fire service position at DHS’s National Operations Center. 

Still, challenges remain, and among the most pressing is the ongoing difficulty that first responders have in communicating with 

one another in real time, on demand, during a crisis. 

Senator Lieberman and I have worked hard, and we have made 

some progress in the area of interoperable emergency communications, but this is an issue that I will be exploring with the chief 

this morning. 

I am also interested in the chief’s perspective on the Department’s first responder grant programs. The Chairman and I have 

consistently fought for more resources for our Nation’s fire departments. That includes the FIRE Act grant program, which is set to 

expire at the end of this fiscal year and must be reauthorized. This 

program has enabled thousands of departments to respond more effectively to emergencies and disasters of all sizes and causes. 

As an original cosponsor of the FIRE Act, I support its clear, unwavering mission to support smaller fire departments with additional funding. Without that assistance, these departments simply 

could not afford the new life-saving equipment, vehicles, or training. I have seen the impact in the State of Maine where smaller 

rural departments, often staffed by volunteers, are so dependent on 

the fire grants in order to upgrade their equipment and training. 

I am impressed with Chief Cochran’s career. It spans several decades from a rank-and-file post in Shreveport, Louisiana, to chief in 

Atlanta. Like the Chairman, I also am impressed with the endorsements that he has gathered from the International Association of 

Fire Chiefs, the Metropolitan Fire Chiefs Association, and, of 

course, a group that the Chairman and I work very closely with, 

the International Association of Fire Fighters. 

I, too, want to welcome the representatives of these organizations 

who are here to endorse the nominee today. 

Thank you, Mr. Chairman. 

Chairman LIEBERMAN. Thank you very much, Senator Collins. 

Chief Cochran has filed responses to a biographical and financial 

questionnaire, answered prehearing questions submitted by the 

Committee, and had his financial statements reviewed by the Office of Government Ethics. Without objection, this information will 

be part of the hearing record, with the exception of the financial 

data, which are on file and available for public inspection at the 

Committee offices. 

Chief Cochran, I think you know that our Committee rules require that all witnesses at nomination hearings give their testimony under oath, so I would ask you to please stand now and raise 

your right hand. 

Sir, do you swear that the testimony you are about to give the 

Committee will be the truth, the whole truth, and nothing but the 

truth, so help you, God? 

Mr. COCHRAN. I do. 

Chairman LIEBERMAN. Thank you very much. Please be seated. 

We would welcome your statement now and introduction of any 

family or friends that you have with you today. 

5 

1The prepared statement of Mr. Cochran appears in the Appendix on page 20. 

TESTIMONY OF KELVIN J. COCHRAN 1 TO BE ADMINISTRATOR, 

U.S. FIRE ADMINISTRATION, FEDERAL EMERGENCY MANAGEMENT AGENCY, U.S. DEPARTMENT OF HOMELAND SECURITY 

Mr. COCHRAN. Good morning, Mr. Chairman, Senator Collins, 

and other Members of the Committee. I am Kelvin James Cochran, 

nominee for Administrator of the U.S. Fire Administration. I want 

to begin my remarks by expressing my gratitude to Senator Mary 

Landrieu for her generous introduction. Then I would like to, Mr. 

Chairman, acknowledge and recognize my wife of 27 years and my 

oldest of three children who are here with me. Carolyn Cochran is 

my wife and Tiffane Cochran is my daughter. 

You mentioned that I have endorsements from several significant 

fire service organizations, and you have recognized President Harold Schaitberger of the International Association of Fire Fighters. 

I also want to recognize the International Association of Fire Chiefs 

and our President, Larry Grorud, who is also with us today, and 

our Executive Director, Mark Light. We also have representatives 

from the National Fire Protection Association with us today, with 

their support of my nomination. 

It is a tremendous honor that I sit before you today. I cannot 

help but reflect on an experience I had as a 5-year-old kid growing 

up in Shreveport, Louisiana, of a house fire across the alley from 

where I lived, where I saw Shreveport firefighters, up close and 

personal for the first time, who made such an impression on me 

that this was the day that my dream was born, that one day I 

wanted to be a firefighter when I grew up. That dream has compelled me from that day to this day, and every day for me is like 

waking up on a holiday because I realize I am an American firefighter, and I have another opportunity to serve our citizens and 

Nation in that capacity. 

Over my 28-year fire service career, I have had several opportunities at the local, State, and national level to serve fire service organizations. I have had the honor of leading and serving as the 

chief of the Shreveport Fire Department in Louisiana; the chief of 

the Atlanta Fire and Rescue Department in the State of Georgia; 

and at the national level, I have been honored to serve as President 

of the Metropolitan Fire Chiefs Association and the First Vice 

President of the International Association of Fire Chiefs. And for 

the past 2 years, I have been privileged to serve as a board member for the U.S. Fire Administration’s Board of Visitors for the National Fire Academy in Emmitsburg, Maryland. Additionally, I 

have been active in fire service professional associations, working 

collaboratively on committees and task forces on issues that positively impact the fire service industry. These experiences have provided me with a broad knowledge base and familiarity with local, 

State, and national-level fire service issues to serve and benefit the 

fire service community. 

If confirmed, I will have the distinct honor of serving the American people and the American fire service as U.S. Fire Administrator. I believe my background and experience will bring administrative and operational experience and expertise to the U.S. Fire 

6 

Administration in the furtherance of its mission and will enhance 

the fire service role in the National Response Framework. 

Since its inception, the U.S. Fire Administration has played a 

significant role in ensuring domestic tranquility through its fire 

prevention, fire protection, and fire safety education programs in 

enhancing America’s response capabilities and efficiency. The postSeptember 11, 2001, and post-Hurricane Katrina U.S. Fire Administration has a revised role and responsibility in preparedness and 

response. 

The principal mission of the U.S. Fire Administration is to provide support to America’s fire departments and fire service organizations to prevent fires, to eliminate or minimize losses of civilian 

and firefighter lives, to minimize injuries to civilians and firefighters who are protecting our Nation, and, additionally, to bolster 

fire service preparedness and response for natural and manmade 

disasters. The mission of the U.S. Fire Administration also includes 

providing for the professional development of America’s fire service 

leaders. If confirmed as U.S. Fire Administrator, I will work to engage Federal partners, fire service stakeholders, and other organizations whose missions are complementary to the U.S. Fire Administration. And I will work to improve all programs and services 

that will enhance the fire service role to prepare for, respond to, 

and mitigate incidents which have the potential of causing harm to 

life, property, and the environment in the United States of America. 

And my final remark, Mr. Chairman, is that the U.S. Fire Administration’s most notable strength is its strong ties with and support from local fire departments, fire service associations, and State 

fire service training institutions. Additionally, the U.S. Fire Administration has a history of collaboration with all fire service stakeholders in planning and decisionmaking, which directly impacts 

fire service programs and operations across our great Nation. 

These strengths have positioned the U.S. Fire Administration to 

maximize its resources to meet the needs of all of its stakeholders 

and fire departments that it serves. If confirmed as U.S. Fire Administrator, I will continue to build upon these strengths to shape 

the future of the U.S. Fire Administration and the fire service of 

the United States of America. 

I thank the Committee for considering my nomination as U.S. 

Fire Administrator. I thank you, Mr. Chairman, for the opportunity 

to appear before you today. And I look forward to answering any 

questions that you might have. 

Chairman LIEBERMAN. Thank you very much, Chief, for that very 

thoughtful opening statement. I am going to start with the standard three questions that we ask of all nominees before us. 

First, is there anything you are aware of in your background that 

might present a conflict of interest with the duties of the office to 

which you have been nominated? 

Mr. COCHRAN. No. 

Chairman LIEBERMAN. Second, do you know of anything, personal or otherwise, that would in any way prevent you from fully 

and honorably discharging the duties of the office to which you 

have been nominated? 

Mr. COCHRAN. No. 

7 

Chairman LIEBERMAN. And, third, do you agree without reservation that you will respond to any reasonable summons to appear 

and testify before any duly constituted committee of Congress if 

you are confirmed? 

Mr. COCHRAN. I agree without reservation. 

Chairman LIEBERMAN. I thank you very much, and we will go to 

a first round of questions of 7 minutes per Senator. Let me focus 

in on a few things that we have talked about so far. 

We expect to consider legislation reauthorizing the Assistance to 

Firefighter Grants, which help fund firefighting equipment, training, and vehicles, as you know. These grants are very important to 

fire departments around the country, which are working for levels 

of government that particularly now are very hard pressed for revenue and, of course, have significant personnel-related costs so the 

purchase of necessary equipment is often put to the bottom. 

What steps, if any, would you like us to consider to improve the 

fire grant program as we reauthorize it? 

Mr. COCHRAN. The Assistance to Firefighters Grants and the 

SAFER grants have benefited the fire service of our Nation tremendously. To have a meaningful approach to improvements, Mr. 

Chairman, I would engage the Grant Programs Directorate along 

with other fire service stakeholders and beneficiaries of our Federal 

grants to fire departments to evaluate our Federal grants as a 

whole to determine if improvements are necessary. 

The grants that we primarily speak of, Assistance to Firefighters 

and SAFER, have benefited our three different types of fire departments that we commonly refer to as volunteer, combination, and 

career departments, and there are tremendous needs that still 

exist. We want to ensure that the viability and credibility of these 

programs are actually doing what they are designed to do and that 

we strengthen their credibility by making sure that they have an 

impact on America’s fire service. 

So a process of collaboration between fire service stakeholders 

with the support of the Grant Programs Directorate would allow us 

to identify areas of improvement, and if confirmed as U.S. Fire Administrator, I will aggressively pursue those recommendations to 

enhance these programs. 

Chairman LIEBERMAN. Good. Well, we will look forward to your 

input as we go forward with the reauthorization, and I appreciate 

the intention to do this as a collaborative process. 

Let me go to the National Response Framework, which you mentioned briefly in your opening statement. This framework sets out 

the Nation’s overall approach to responding to disasters. It includes 

a firefighting annex, referred to as Emergency Support Function 4 

(ESF–4). It is intended to coordinate Federal firefighting support in 

the event of a major incident. Interestingly, because of the role the 

U.S. Forest Service plays in addressing wildfires, it is the coordinating agency for ESF–4. But, of course, the U.S. Fire Administration is included also, in this case as a supporting agency for ESF– 

4. 

I wanted to ask you what you see as USFA’s role in carrying out 

the National Response Framework, both under this firefighting section or annex, ESF–4, and also more generally. 

8 

Mr. COCHRAN. The U.S. Fire Administration should be an extremely potent partner with the U.S. Forest Service in ESF–4. 

Clearly, the frequency and volume of wildland fires and the resources provided through the U.S. Forest Service place them in a 

position where they are the primary Federal agency in ESF–4. 

But due to the target capabilities that rely on the fire service discipline, in other areas outside of wildland fires, the U.S. Fire Administration should be a recognized partner in ESF–4 because it 

will rely on fire service resources outside of wildland fires to manage certain types of disasters. 

I would propose that if there is not a current relationship between the U.S. Forest Service and the U.S. Fire Administration 

that allows them to work side by side, shoulder to shoulder, to 

bring the greatest level of effectiveness to ESF–4, it should be assertively pursued by the U.S. Fire Administrator, and, if confirmed, 

I will lead that initiative. 

Additionally, the U.S. Fire Administration should be the most relied on Federal entity for the Department of Homeland Security 

and FEMA to ensure that the American fire service will be 

equipped and prepared to be a Federal asset in times that Federally, nationally declared disasters occur. 

The U.S. Fire Administrator should be the spokesperson to the 

American fire service for the Department of Homeland Security on 

homeland security issues and on preparedness and response issues. 

Likewise, the U.S. Fire Administration should be a credible spokesperson for the American fire service on meeting their needs where 

gaps exist that hinder us from being a Federal resource in times 

of natural disasters. 

Chairman LIEBERMAN. Well, that was a good answer. I must tell 

you, as I went over this material in preparation for this hearing, 

it surprised me to recall that the Forest Service is the coordinating 

agency for ESF–4. I have a great respect, as we all do, for the Forest Service, but it seems to be a more natural role for the Fire Administrator. I thought you handled that very well. You are not only 

a great firefighter, you are a great diplomat. But you got your point 

across, and I urge you, as you get into this position, if you are confirmed, do not hesitate to get into this. And if you think that really 

there ought to be either a co-leadership or the U.S. Fire Administrator ought to be No. 1 here, do not hesitate to make that case 

to our Committee or, obviously, within the Administration. 

Mr. COCHRAN. Thank you, Mr. Chairman. 

Chairman LIEBERMAN. Thank you. My time is up. Senator Collins. 

Senator COLLINS. Thank you, Mr. Chairman. 

Chief Cochran, I was alarmed to learn that America’s fire death 

rate is one of the highest in the world on a per capita basis, and 

the statistics are truly startling. In 2007, more than 3,400 civilians 

lost their lives as a result of fire. Another 18,000 were injured. The 

same year saw the loss of more than $14 billion in direct property 

losses as a result of fires. And firefighters are paying a high price 

as well: 114 firefighters lost their lives in the line of duty last year; 

60 have already died this year as well. 

We have seen an improvement in fire losses during the last 20 

years, but these numbers are still higher than they should be and 

9 

are really unacceptable. What role can the U.S. Fire Administration play in reducing the number of firefighter deaths and civilian 

casualties? 

Mr. COCHRAN. I share your perspective that even though there 

has been tremendous enhancements, the current numbers in both 

civilian deaths and injuries, firefighter deaths and injuries, and 

property loss are still unacceptable. The U.S. Fire Administration 

has a track record, and a steady track record, of reducing property 

loss and injuries and deaths to civilians. 

We have to take a more assertive role in outreach of our programs in venues that really affect the greatest areas where those 

losses are occurring. Through our National Fire Data Center and 

other resources, we should specifically identify those most common 

areas where the greatest fire losses are occurring as it relates to 

property, identify those common areas where the greatest losses of 

lives and injuries are occurring, and develop or revise our fire prevention and fire safety education programs to aggressively address 

those areas. 

Many of those areas, Senator Collins, are in regions of the Nation that do not have the resources to address those problems with 

their own resources. The U.S. Fire Administration, along with 

other Federal agencies and nongovernmental agencies, should work 

collaboratively together to pool their resources to address areas 

where most of those fire losses are occurring. 

Where firefighters are concerned, we have no notable change in 

the number of firefighters dying in the line of duty and the number 

of injuries that are occurring to firefighters in the line of duty. My 

proposal, if confirmed as U.S. Fire Administrator, would be to engage all Federal agencies and nongovernmental entities that have 

some resources or role in safety and occupational health to develop 

a vulnerability assessment model whereby local fire departments or 

communities can determine at their own level where the most likely vulnerabilities exist that could lead to firefighter line-of-duty 

deaths and injuries and, having determined those areas of vulnerability, develop strategic plans to minimize them. 

Senator COLLINS. Thank you, and please know that this Committee looks forward to working very closely with you to improve 

those statistics because we are talking literally about lives. And as 

you point out, the firefighters themselves are paying such a high 

price. So we look forward to working with you in that area. 

I want to follow up on my comments about interoperable emergency communications. After the attacks on our country in 2001, 

this Committee became more aware of the problem of first responders not being able to communicate with one another and the fact 

that it exacerbated the loss of life on September 11, 2001. 

Therefore, it was particularly disappointing when Hurricane 

Katrina struck 4 years later, in 2005, that we heard exactly the 

same problem happened in New Orleans, in particular, but 

throughout the affected region, and that once again firefighters 

could not talk to police officers who could not communicate with 

emergency medical personnel. 

Since that time, we have continued to pour literally billions of 

dollars into interoperable communications grants. The Chairman 

10 

and I have worked hard to push the Department to make this a 

priority. But we are still not there. 

So it seems to me that this is a problem that is not just about 

money. That certainly is part of the problem because it is expensive, but there is more going on. 

What do you see as the biggest barriers, the biggest challenges 

to achieving interoperable communications? And what can we do to 

push that goal forward? 

Mr. COCHRAN. There are three layers, I believe, that create barriers. The top two layers I am not as familiar with as I will be, if 

confirmed as U.S. Fire Administrator, and that is, to what extent 

have Federal-level agencies and nongovernmental agencies at the 

national level—stakeholders in public safety, communications, and 

interoperability—unified their efforts toward achieving the goal of 

interoperability for public safety? And what efforts collectively have 

Federal-level and national-level stakeholders engaged in pushing 

forward on achieving broadband spectrum for public safety to address the interoperability issue? 

Of course, those are rhetorical questions, but as U.S. Fire Administrator, if confirmed, I believe my role would be to pursue the answers to those questions; and if there are not credible, combined efforts, to lead the initiatives to bring those parties together to do so. 

Additionally, there are Federal funds that are specifically directed toward the interoperability issue. I believe that it is time for 

us as a Nation to determine if those Federal dollars are actually 

used toward a specific strategic plan that will ultimately reach that 

goal. And I am not sure at this point whether or not we can say 

as a Nation, as elected Federal officials, as the administrator of the 

U.S. Fire Administration and our fire service partners, if we have 

a strategic plan where the Federal dollars directed toward interoperable communications are actually leading toward that end. 

Then, finally, at the local level, there are policies and procedures 

and operational issues that bring the interoperability issue to the 

table, and as U.S. Fire Administrator, I believe I would have a role, 

if confirmed, in making sure that the fire service is doing its part 

to make sure that happens and that we are partnering with emergency managers and law enforcement agencies to make sure that 

happens on the operations end. 

Senator COLLINS. Thank you. 

Chairman LIEBERMAN. Thanks very much, Senator Collins. 

Senator Carper, good morning. Thanks for being here. 

OPENING STATEMENT OF SENATOR CARPER 

Senator CARPER. Good morning, Mr. Chairman. Senator Collins, 

nice to have been with you last night. 

Senator COLLINS. Yes. 

Senator CARPER. Looking out at the audience, I see two young 

women sitting here behind you. Do you have two daughters? 

[Laughter.] 

Mr. COCHRAN. I have two, but only one is here. The other one 

is my wife. 

Senator CARPER. I am sorry. My eyesight is pretty good, and she 

is not that far away. Nice of you to share your husband with us. 

And what is your daughter’s name, the one who is here? 

11 

Mr. COCHRAN. My daughter is Tiffane Cochran. 

Senator CARPER. Tiffane, thanks for sharing the old man with 

the people of this country. 

I enjoyed meeting with you in my office a week or two ago. 

Thank you for coming by and for bringing your family with you. 

Sometimes when people have been nominated for positions like 

this, I say to them at a hearing of this nature when their family 

is not with them, ‘‘Does your spouse know you are doing this? Does 

she know you have been nominated for this position?’’ Obviously, 

she knows, and by her presence here today, I guess she has given 

her approval. And I suspect that we will, too. 

There were a number of things that I liked about your background. First of all, I was just impressed with your demeanor and 

your ability to communicate. I like the depth of your service, not 

only in Shreveport but in Atlanta, and I think it prepares you well, 

and I like your participation in international and national organizations, which I think has given you a good base for undertaking 

this responsibility, should you be confirmed. 

Let me ask a couple of questions. First of all, why do you want 

to do this, or why are you willing to do this? It is going to disrupt 

your life. It is going to give you probably more work than you 

maybe want to do. But it will be a lot of work, and it will not be 

easy. 

Mr. COCHRAN. Well, first of all, Senator, I think the short answer 

is that I just believe I can make a difference. That question is often 

asked in promotional opportunities throughout my career, and my 

answer has been consistently the same. I believe I can make a difference. 

During all of my 28-year career, I have had this passion for serving through the fire service citizens on a local, State, and Federal 

level, and it led me to pursuing leadership opportunities to become 

the chief of the Shreveport Fire Department, later the chief of the 

City of Atlanta Fire Rescue Department, pursuing board member 

elected positions in the Metropolitan Fire Chiefs and the International Association of Fire Chiefs, and participation on other committees and task forces. It is just something that is extremely rewarding to serve our Nation as a firefighter and as a fire chief. 

I believe collectively over the years I have garnered enough experience and training and education where, if confirmed as U.S. Fire 

Administrator, I will continue a track record of service to citizens 

and country and garner support from Federal and nongovernmental stakeholders in the fire service to improve what we do for 

our Nation. 

Senator CARPER. Sometimes we meet people in our lives who 

have what I describe as the ‘‘heart of a servant,’’ and just a need 

to serve, a desire to serve. I think you have that heart of a servant, 

and where does that come from? 

Mr. COCHRAN. Well, the major part of that comes from my faith. 

I just believe that is why I was born, to serve, and one of the 

strange consequences of a relentless desire to serve is being promoted to higher levels to be able to serve at a greater capacity and 

to be able to serve more people. I think that the more lowly you 

are in servanthood, the greater the opportunities that will come 

your way. 

12 

Senator CARPER. I think you are absolutely right. 

You mentioned, as you had opportunities for new responsibilities, 

that you have been asked why do you want to do this, and you 

said, ‘‘I want to make a difference with my life.’’ How do you think 

you might, and what are some of the ways you might make a difference in this role? 

Mr. COCHRAN. I believe that the issues that Senator Collins addressed with regard to reducing loss of property, reducing the loss 

of civilians’ and firefighters’ lives and injuries to civilians and firefighters is the greatest way that I could really make a difference. 

I also believe that there are new initiatives in fire prevention 

and fire safety education that should be initiated to minimize further loss of lives in multi-family complexes and senior citizens’ 

complexes and that fire home sprinklers are one of the greatest 

public safety and fire safety initiatives—fire prevention initiatives 

are the future—in which I would, if confirmed, want to see the U.S. 

Fire Administration play a greater role. 

In just 5 to 10 years, I would hope to have made a difference so 

that, as a Nation, we can see a marked decrease in the number of 

line-of-duty deaths and injuries to firefighters after having served 

as U.S. Fire Administrator. 

Senator CARPER. As you and I discussed, Delaware has not a lot 

of paid firefighters. We have a number in Wilmington; they are 

good, too. But we have a lot of volunteer firefighters, and I suspect 

the same is true in Maine, and I believe in Connecticut, but particularly true in Delaware. 

We talked a bit about the challenge in recruiting and retaining 

volunteer firefighters. It is tough to get people to volunteer for a 

number of service opportunities these days. Fortunately, many do. 

But what is your experience and understanding of volunteer firefighting issues? And how might you be working with that community if you are confirmed? 

And, second, can you describe some of the common challenges between volunteer and career firefighters that you think can be overcome? 

Mr. COCHRAN. Yes, sir. In the city of Shreveport, Louisiana, was 

the largest fire department in northwest Louisiana. And even 

though we were the big boys, so to speak, there were risks in our 

community that, if they were to occur, we would not have enough 

resources to meet the needs for the citizens of Shreveport, and it 

made it necessary for us to build relationships with local volunteers. 

Subsequently, there were issues that could occur in volunteer 

communities that they did not have the resources to meet on their 

own, and they would rely on the Shreveport Fire Department to 

help them meet their needs. 

So I have a tremendous respect for a joint partnership where 

both volunteer and career departments are structured and have relationships to support each other. 

In addition to that, I have a tremendous respect for the fact that 

in our Nation, if there is going to be fire protection in a community, 

it has to be provided completely through volunteers—men and 

women who have decided that they are going to organize themselves in such a way that, should fires occur, they will provide the 

13 

support necessary to extinguish fires or rescue entrapped victims. 

That is a tremendous commitment from working people when there 

is no funded fire protection available. 

The U.S. Fire Administration should play an ongoing role, as it 

has in the past, to make sure that we are a support to any community that relies solely on volunteers to have its resource needs met 

or available when fires do occur. 

And, finally, in my role as board member for the International 

Association of Fire Chiefs (IAFC), we have a section known as the 

Combination and Volunteers Section of the International Association of Fire Chiefs. We also have a relationship with the National 

Volunteer Fire Council. Since I have a history of working with career departments, I will not try to attempt to think that I am keenly aware and sensitive to all volunteer issues, but will rely on the 

Volunteer and Combination Section of the IAFC and the National 

Volunteer Fire Council for the U.S. Fire Administration to be intimately involved with them, to see to it that we are using our resources to help them meet their needs long term. 

Senator CARPER. All right. Thanks for that response. My time 

has expired. 

Mr. Chairman, thanks very much for holding this hearing, and 

it is nice to see you again, Chief, and to meet your family. 

Mr. COCHRAN. Nice to see you, sir. 

Chairman LIEBERMAN. Thanks, Senator Carper. 

Chief, I think we will give each of the Members of the Committee 

a chance to ask one more question. Mine is on the Fire Academy, 

which provides very valuable training to firefighters and has done 

so over the years, both at its residential facility in Emmitsburg, 

Maryland, and also by distance learning in cooperation with fire 

service organizations and, in fact, universities. 

In 2008, the Fire Academy, as an example, provided more than 

4,000 courses and reached more than 121,000 students, which is an 

impressive figure. I know you have benefited from the academy’s 

training and spoken of its importance to your career development. 

I wonder, as you are coming in as Fire Administrator, what do you 

see as the academy’s major challenges and its major opportunities? 

Mr. COCHRAN. Thank you, Mr. Chairman. I believe that the challenge that we face with the National Fire Academy is to continue 

our pattern of growth in meeting the training and educational 

needs of the American fire service. To do that, we have to have a 

sustained program of periodic review of courses that are still making a difference to enhance their viability in today’s fire service and 

in the future; but also we have to continue to scan the fire service 

environment for other training needs that local- and State-level fire 

training institutions are strapped to actually meet. 

The National Fire Academy touches many fire service careers on 

an annual basis. Last year, over 8,000 participants came to the 

Emmitsburg campus, and through our other outreach programs 

through Internet and other means, State training and local institutions, well over 115,000 firefighters were touched—volunteer, combination, and career departments alike. So we have to continue to 

strive for excellence in that regard. 

In the future, one of the greatest challenges is going to be how 

do we assist the American fire service in overcoming the tremenVerDate Nov 24 2008 11:39 Jun 15, 2010 Jkt 053120 PO 00000 Frm 00017 Fmt 6633 Sfmt 6633 P:\DOCS\53120.TXT SAFFAIRS PsN: PAT
14 

dous level of attrition and loss of formal knowledge and institutional knowledge. I think the National Fire Academy is one of the 

greatest solutions to that future challenge, and there is no substitute for the on-campus experience in training fire officers and 

chief officers for the future. But our current capacity is not suitable 

to meet the current demand, so we have to look for future ways of 

expanding capacity on the Emmitsburg campus to bring young fire 

officers and chief officers to Emmitsburg so that the expectation of 

quality leadership that Americans have come to expect in their 

local-level fire departments can still be met through the programs 

at the Emmitsburg campus. 

Chairman LIEBERMAN. Excellent. Thank you. Senator Collins. 

Senator COLLINS. Thank you, Mr. Chairman. 

Let me associate myself with the comments that the Chairman 

just made about the importance of the Fire Academy. I have had 

many professional firefighters from Maine go to take advantage of 

the course work, but the demand is greater than can be accommodated, and yet that training is so specialized that it is not available 

in very many other places. So I look forward to working with you 

on that. 

I also want to associate myself with the comments made by Senator Carper about the volunteer fire services. In Maine, we are fortunate to have absolutely top-notch professional firefighters, and 

we are also fortunate to have very hard-working volunteers who 

staff more than 96 percent of Maine’s fire departments; 96 percent 

are comprised of either volunteer or mostly volunteer firefighters. 

So paying attention to both the professional departments and the 

volunteer and the combination departments is critical, as Senator 

Carper indicated. 

I also want to encourage you to keep the Fire Grant program 

with little bureaucracy. One of the reasons it is so popular now is 

that it has a peer review system that works extremely well to ensure that the money does not get siphoned off by bureaucracy but 

really goes directly to fire departments. And I think it is very successful. 

My final question has to do with public awareness campaigns. 

The data that I used in my first question to you are startling in 

terms of how much we have to do to improve public awareness and 

education and improve safety. And one of the Fire Administration’s 

primary responsibilities is public awareness and education. 

All of us are concerned when we learn of a household where lives 

were lost in a fire because they did not have smoke alarms, just 

something as basic as that. There is so much more that could be 

done to educate families on how to evacuate their home when there 

is a fire. 

What can the Fire Administration do to improve its education 

and awareness campaigns to decrease the loss of life and property? 

Mr. COCHRAN. That is a great question, Senator, but I have to 

ask: Was that a fire alarm that we just heard? [Laughter.] 

Senator COLLINS. It was, fortunately, not a fire alarm. Those 

were bells telling us that we are in the midst of a quorum call, so 

you can relax, and you do not have to evacuate us. 

Mr. COCHRAN. I can relax. 

15 

Senator COLLINS. But we would look to you if, in fact, we had 

to evacuate. 

Mr. COCHRAN. I am prepared to lead us if that is the case. 

The role that the U.S. Fire Administration has in fire safety education and fire prevention, as I mentioned earlier, has had good results, but there is still work to be done in outreach for prevention 

efforts. The greatest categories of fire deaths are still children 5 

years and younger and senior citizens above 50. And it is pretty 

clear where demographically those deaths occur. They are in lowto moderate-income communities, minority communities, and certain types of dwellings. Rather than continue a broad-brush approach to fire safety education, we should have a more targeted, focused approach on the areas where the risks are greatest. 

I believe we have programs that actually focus in those areas 

currently, but in my current assessment, I am not aware of how 

assertive and how specifically targeted they are. If confirmed as 

U.S. Fire Administrator, I believe it would be prudent for me to 

bring together all of our partners in fire prevention and fire safety 

education within the U.S. Fire Administration and other Federal 

agencies to make sure that our programs are targeted programs in 

the areas where the greatest needs are. 

Again, some communities and municipalities do not have the personnel or other resources to effect fire safety education programs 

to address those needs. 

There should be, in my estimation, noncompetitive grants and 

other programs available to address those needs in communities 

that cannot afford to meet them. 

Senator COLLINS. Thank you, Mr. Chairman. Thank you, Chief. 

Chairman LIEBERMAN. Thanks, Senator Collins. 

Chief, I think your testimony and appearance today have been 

very impressive. You obviously, from your biography, have a lot of 

experience that is relevant to the position to which you have been 

nominated, but I have been impressed by the way you have handled the questions. You are very well informed. You have some 

ideas based on your experience that you are taking in some sense 

of priority. So I thank you very much for your testimony. You have 

given me, certainly, confidence about your capacity to handle this 

position. 

We are going to close the hearing record at the close of business 

today. In other words, any additional statements or questions by 

yourself or questions from us, are due at the close of day because, 

if possible, with Senator Collins’ agreement—I do not know whether it is going to be possible—I would like to try to get you confirmed before we formally go on recess for a month, which presumably will be on Friday. But thanks for your career; thanks for your 

willingness to serve. 

Senator Collins, would you like to add anything? 

Senator COLLINS. I just concur in your assessment of the nominee, and I also pledge to try to move Chief Cochran’s nomination 

through the full Senate prior to our adjourning for the recess. 

Chairman LIEBERMAN. Thank you. 

Chief, would you like to quit while you are ahead or say anything 

in your defense? [Laughter.] 

16 

Mr. COCHRAN. Absolutely. Thank you, Senator Lieberman; thank 

you, Senator Collins. 

Senator COLLINS. Thank you. 

Chairman LIEBERMAN. Thank you. The hearing is adjourned. 

[Whereupon, at 11:01 a.m., the Committee was adjourned.] 

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