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19–010

" SENATE ! 107th Congress 

2d Session 

REPORT

2002

107–344

Calendar No. 765

FIREFIGHTING RESEARCH AND 

COORDINATION ACT

REPORT

OF THE

COMMITTEE ON COMMERCE, SCIENCE, AND 

TRANSPORTATION

on

S. 2862

congress.#13

NOVEMBER 18, 2002.—Ordered to be printed 
(II)

SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION 

ONE HUNDRED SEVENTH CONGRESS

SECOND SESSION

ERNEST F. HOLLINGS, South Carolina, Chairman 

DANIEL K. INOUYE, Hawaii 

JOHN D. ROCKEFELLER IV, West Virginia 

JOHN F. KERRY, Massachusetts 

JOHN B. BREAUX, Louisiana 

BYRON L. DORGAN, North Dakota 

RON WYDEN, Oregon 

MAX CLELAND, Georgia 

BARBARA BOXER, California 

JOHN EDWARDS, North Carolina 

JEAN CARNAHAN, Missouri 

BILL NELSON, Florida 

JOHN MCCAIN, Arizona 

TED STEVENS, Alaska 

CONRAD BURNS, Montana 

TRENT LOTT, Mississippi 

KAY BAILEY HUTCHISON, Texas 

OLYMPIA J. SNOWE, Maine 

SAM BROWNBACK, Kansas 

GORDON SMITH, Oregon 

PETER G. FITZGERALD, Illinois 

JOHN ENSIGN, Nevada 

GEORGE ALLEN, Virginia 

KEVIN D. KAYES, Staff Director 

MOSES BOYD, Chief Counsel 

GREGG ELIAS, General Counsel 

JEANNE BUMPUS, Republican Staff Director and General Counsel 

ANN BEGEMAN, Republican Deputy Staff Director 

ROBERT W. CHAMBERLIN, Republican Chief Counsel 
19–010

Calendar No. 765

107TH CONGRESS REPORT " SENATE ! 2d Session 107–344

FIREFIGHTING RESEARCH AND COORDINATION ACT 

NOVEMBER 18, 2002.—Ordered to be printed 

Mr. HOLLINGS, from the Committee on Commerce, Science, and 

Transportation, submitted the following 

R E P O R T 

[To accompany S. 2862]

The Committee on Commerce, Science, and Transportation, to 

which was referred the bill (S. 2862) to provide for the establishment of a scientific basis for new firefighting technology standards, 

improve coordination among Federal, State, and local fire officials 

in training for and responding to terrorist attacks and other national emergencies, and for other purposes, having considered the 

same, reports favorably thereon with an amendment in the nature 

of a substitute and recommends that the bill (as amended) do pass. 

PURPOSE OF THE BILL

The purpose of this legislation, as reported, is to establish and 

authorize funding for programs under the United States Fire Administration (USFA) to support the development of voluntary consensus standards for new firefighting technology, improve coordination between Federal, State, and local fire officials, and authorize 

the National Fire Academy to train firefighters in responding to 

acts of terrorism. 

BACKGROUND AND NEEDS

As was demonstrated during the terrorist attacks of September 

11, 2001, local firefighters are likely to be the first to respond to 

an incident of domestic terrorism. Nearly 75 percent of the 1.1 million firefighters in the United States are volunteers. These volunteer fire departments protect most of the rural areas and smaller 

communities in the United States, as well as many of the suburban 

areas surrounding large cities. Career firefighters, including municipal firefighters, cover mostly metropolitan cities and cities with 
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populations greater than 50,000. The career fire service is estimated to include about 3,000 fire departments and approximately 

275,000 full-time paid firefighters. The largest career fire department has more than 14,000 full-time employees, although most 

have fewer than 50 employees. Some jurisdictions include fire departments that use both career and volunteer firefighters. The firefighting profession is one of the most hazardous professions in the 

country. In 2001, 446 firefighters died in the line of duty, including 

347 on September 11. 

THE U.S. FIRE ADMINISTRATION

The U.S. Fire Administration (USFA) is a directorate within the 

Federal Emergency Management Agency (FEMA). Its mission is to 

provide leadership, coordination, and support for the nation’s fire 

prevention and control, fire training and education, and emergency 

medical services (EMS) activities. USFA’s goal is the reduction of 

the nation’s loss of life from fire, while also achieving a reduction 

in property loss and non-fatal injury due to fire. 

The USFA contains the following programs: 

Data Collection—USFA’s National Fire Data Center administers a national system for collecting, analyzing, and disseminating data and information on fire and other emergency incidents 

to State and local governments and the fire fighting community. 

Public Education and Awareness—Through partnerships and 

special initiatives, USFA involves the fire service, the media, other 

Federal agencies, and safety interest groups in the development of 

fire safety awareness and education programs. 

Training—USFA’s National Fire Academy offers educational 

opportunities to advance professional development of mid-level and 

senior fire/EMS officers and allied professionals involved in fire 

prevention and life safety activities. The Academy develops and delivers educational and training programs with a national focus that 

supplements and supports State and local fire service training. 

Technology—Through research, testing, and evaluation, USFA 

works with public and private entities to promote and improve fire 

and life safety. Research and special studies are conducted on fire 

detection, suppression, and notification systems. These studies are 

made available to the public free of charge through the USFA Publications Center. 

Assistance to Firefighters Grant Program—This program was 

established by Title XVII of the Floyd D. Spence Defense Authorization Act for Fiscal Year (FY) 2001 (the authorizing legislation is 

referred to as the Firefighter Investment and Response Enhancement (FIRE) Act). Congress appropriated $360,000,000 in FY 2002 

for this program to provide competitive grants to local fire departments. It is expected that 5500 fire departments will receive 

awards before the end of calendar year 2002. The grants are used 

for training, wellness and fitness programs, vehicles, firefighting 

equipment, personal protective equipment, and fire prevention. 

NEEDS OF THE FIRE SERVICES

The Science, Technology, and Space Subcommittee held a hearing on October 11, 2001, to examine the needs of the fire service 

in responding to terrorism. According to the testimony at that 

hearing, and press reports on the events of September 11, 2001, the 
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fire service has identified the need for assistance in several areas, 

including equipment standardization, coordination, and training. 

Equipment Standardization—Today’s firefighters use a variety 

of technologies including thermal imaging equipment, devices for 

locating firefighters and victims, and state-of-the-art protective 

suits to fight fires, clean up chemical or hazardous materials spills, 

and contend with potential terrorist devices. For FY 2003, $900 

million was authorized for the Assistance to the Fire Fighters 

Grant Program as part of the National Defense Authorization Act 

for FY 2002 (P.L. 107-107), to provide Federal funding assistance 

for career and volunteer fire departments to buy necessary equipment and prepare for fires and other emergencies. 

It is important to point out that there are no uniform technical 

standards for new equipment for combating fires and other safety 

threats. Without such standards, local fire companies may purchase equipment that do not satisfy their needs, or even purchase 

faulty equipment. For example, Montgomery County, Maryland, 

spent $40,000 on ‘‘Level B’’ protective suits, but they cannot use 

them because the suits have ‘‘booties’’ that are not compatible with 

the firefighters’ boots. Also, in Virginia, Arlington County Chief Edward P. Plaugher has raised concerns about the lack of equipment 

standards, as well as the lack of guidelines for training the workers 

charged with responding to future terrorist attacks. In a September 

10, 2002, story in The Washington Post, Chief Plaugher stated, ‘‘Without clear goals, we risk undermining ourselves while wasting 

precious resources.’’ In addition, a 1998 Blue Ribbon Panel review 

of the USFA recommended greater coordination between USFA and 

other agencies, such as National Institute of Standards and Technology, in order to promote state-of-the-art technology for fire safety. 

Coordination—Another major obstacle facing the fire service 

concerns coordination. Many issues regarding coordination surfaced 

on September 11, 2001. On July 23, 2002, Titan Systems Corporation issued an after-action report, on behalf of the fire department 

of Arlington County, Virginia, which highlighted problems between 

the coordination of Washington, D.C., and Arlington County fire departments in responding to the attack on the Pentagon. The report 

also cited the confusion caused by a large influx of self-dispatched 

volunteers, and increased risks faced by the ‘‘bona fide responders.’’

These conclusions are consistent with an article by the current U.S. 

Fire Administrator, R. David Paulison, in the June 1993 issue of 

Fire Chief magazine, where he described being overwhelmed by the 

number of uncoordinated volunteer efforts that poured into Florida 

after Hurricane Andrew. Additionally, many fire officials and the 

General Accounting Office have highlighted the duplicative nature 

of many Federal programs and the need for better coordination between Federal, State, and local officials. 

Training—The events of September 11, 2001, also demonstrated a need for improved training, especially in the areas of 

building collapse rescue and tactics to respond to terrorist-caused 

catastrophes. In his testimony before the Committee in October 

2001, Kenneth Burris, the Chief Operating Officer of USFA, testified on the need for greater training in leadership and strategic 

skills, including incident management systems and integrated response. Further, the growing trend of wildfires invading urban 
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areas highlights the need for urban firefighters to be prepared to 

deal with these threats. 

LEGISLATIVE HISTORY

On October 11, 2001, the Subcommittee on Science, Technology, 

and Space conducted a hearing on the ‘‘Needs of the Fire Service.’’

At this hearing, witnesses included: Senator Joseph Biden, Jr.; 

Senator Christopher Dodd; Congressman William Pascrell, Jr.; 

Congressman Curt Weldon; Mr. Kenneth O. Burris, Jr., Chief Operating Officer, USFA; Chief John M. Buckman, President, International Association of Fire Chiefs; Battalion Chief Robert Ingram, 

New York City Fire Department; Chief Ed Plaugher, Arlington 

County, Virginia, Fire Department; Mr. Harold A. Schaitberger, 

General President, International Association of Fire Fighters; and 

Mr. James E. Turner, Executive Director of the Delaware Volunteer Fireman’s Association, on behalf of the National Volunteer 

Fire Council. 

On August 1, 2002, Senator John McCain introduced S. 2862, the 

Firefighting Research and Coordination Act. The legislation was cosponsored by Senator Ernest Hollings, Senator Maria Cantwell, 

and Senator Joseph Biden. 

On September 19, 2002, the Committee met in open executive 

session and, by a voice vote, ordered S. 2862 to be reported with 

a substitute amendment offered by Senator McCain. The substitute 

included two major changes: (1) an authorization of $2.2 million to 

USFA for FY 2003 for activities to support the development of voluntary consensus standards for new firefighting technology; and (2) 

a requirement that the Director of FEMA revise the Federal Response Plan to incorporate plans for responding to terrorist attacks, 

particularly in urban areas, and to submit a report on these revisions to the Senate Committee on Commerce, Science, and Transportation and the House of Representatives Committee on Science. 

ESTIMATED COSTS

In compliance with subsection (a)(3) of paragraph 11 of rule 

XXVI of the Standing Rules of the Senate, the Committee states 

that, in its opinion, it is necessary to dispense with the requirements of paragraphs (1) and (2) of that subsection in order to expedite the business of the Senate. 

REGULATORY IMPACT STATEMENT

In accordance with paragraph 11(b) of rule XXVI of the Standing 

Rules of the Senate, the Committee provides the following evaluation of the regulatory impact of the legislation, as reported: 

NUMBER OF PERSONS COVERED

Section 2(a) of this legislation would direct the U.S. Fire Administrator (the Administrator) to support the development of new voluntary consensus standards for new firefighting technologies 

through national voluntary consensus standards organizations. Recipients of grants through the FIRE Act, as defined by section 33 

of the Federal Fire Prevention and Control Act of 1974 (15 U.S.C. 

2229), would be required by regulation to purchase equipment for 
5

which applicable voluntary consensus standards have been established. 

ECONOMIC IMPACT

This legislation would not have an adverse economic impact on 

the Nation. The bill would promote the development of more effective equipment and the establishment of better coordination and 

training to respond to fires, terrorist attacks, and other national 

emergencies. 

PRIVACY

S. 2862 would not have a negative impact on the personal privacy of individuals. 

PAPERWORK

The legislation would not increase paperwork requirements for 

private individuals or businesses. The bill would require two reports from the Federal government. The first report would be from 

the Administrator to the Senate Committee on Commerce, Science, 

and Transportation and the House of Representatives Committee 

on Science, within 90 days after the enactment of this legislation, 

on the need for a strategy concerning the deployment of volunteers 

and emergency response personnel, including a national 

credentialing system, in the event of a national emergency. The 

second report would be from the Director of FEMA to the Senate 

Committee on Commerce, Science, and Transportation and the 

House of Representatives Committee on Science, within 180 days 

after the date of enactment, on revisions that the Director has 

made to the Federal Response Plan for responding to terrorist attacks, particularly in urban areas, including fire detection and suppression, and related emergency services. 

SECTION-BY-SECTION ANALYSIS

Section 1. Short title.

The section would cite the Act as the ‘‘Firefighting Research and 

Coordination Act.’’

Sec. 2. New firefighting technology.

Subsection (a) would establish a new section 8(e) of the Federal 

Fire Prevention and Control Act of 1974 (15 U.S.C. 2207). This new 

subsection would direct the Administrator, in consultation with the 

National Institute of Standards and Technology, the Inter-Agency 

Board for Equipment Standardization and Inter-Operability, national voluntary consensus standards development organizations, 

and other interested parties, to develop new, and utilize existing, 

measurement techniques and testing methodologies for evaluating 

the performance of new firefighting technology, including: 

• personal protection equipment; 

• devices for advance warning of extreme hazard; 

• equipment for enhanced vision; 

• devices to locate victims, firefighters, and other rescue personnel in above-ground and below-ground structures; 
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• equipment and methods to provide information for incident 

command, including the monitoring and reporting of individual 

personnel welfare; 

• equipment and methods for training, especially for virtual 

reality training; and 

• robotics and other remote-controlled devices. 

Under new section 8(e), the Administrator would also be required 

to evaluate the compatibility of new equipment and technology 

with existing firefighter technology, and support the development 

of new voluntary consensus standards through national voluntary 

consensus standards organizations for new firefighting technologies. 

For equipment for which applicable voluntary consensus standards have been established, the Administrator would be directed to 

require, by regulation, that equipment purchased through the Assistance to Firefighters Grant Program established by section 33 of 

the Federal Fire Prevention and Control Act of 1974 (15 U.S.C. 

2229) meet or exceed applicable voluntary consensus standards. 

For the purposes of this subsection, the Administrator would have 

the discretion to determine the applicability of voluntary consensus 

standards to an application under this program. The Committee 

recognizes that the establishment of voluntary consensus standards 

can be a time-consuming process and that developments in new 

firefighting technology may supersede these standards. In order to 

enable fire departments to have access to state-of-the-art equipment, the Committee recommends that the Administrator exercise 

some flexibility in the rare case when a newly developed firefighting technology may make an existing voluntary consensus 

standard irrelevant. 

Subsection (b) would amend section 17 of the Federal Fire Prevention and Control Act of 1974 (15 U.S.C. 2216) by authorizing 

appropriations of $2.2 million for FY 2003 to carry out this section. 

Sec. 3. Coordination of response to national emergency.

Subsection (a) would create a new section 10(b) of the Federal 

Fire Prevention and Control Act of 1974 (15 U.S.C. 2209). New subsection (b) would require the Administrator, after consultation with 

the Director of FEMA, to provide technical assistance and training 

to State and local fire service officials to establish nationwide and 

State mutual aid systems for dealing with national emergencies. 

These mutual aid systems would include threat assessment and 

equipment deployment strategies, and include means of collecting 

asset and resource information to provide accurate and timely data 

for regional deployment. These mutual aid systems also would have 

to be consistent with FEMA’s Federal Response Plan. The Administrator, in consultation with the Director of FEMA, would be required to develop and make available to State and local fire service 

officials model mutual aid plans for both intrastate and interstate 

assistance. 

Subsection (b) would require the Administrator to report to the 

Senate Committee on Commerce, Science, and Transportation and 

the House of Representatives Committee on Science, within 90 

days after the date of enactment of this Act, on the need for a 

strategy concerning the deployment of volunteers and emergency 

response personnel (as defined in section 6 of the Firefighters’ Safe-
7

ty Study Act (15 U.S.C. 2223e)), including a national credentialing 

system, in the event of a national emergency. 

Subsection (c) would require the Director of FEMA to revise the 

Federal Response Plan within 180 days after the date of enactment 

of this Act to incorporate plans for responding to terrorist attacks, 

particularly in urban areas, including fire detection and suppression and related emergency services. The Director of FEMA would 

also be required to transmit a report to the Senate Committee on 

Commerce, Science, and Transportation and the House of Representatives Committee on Science on these revisions. 

Sec. 4. Training.

Subsection (a) would amend section 8(d)(1) of the Federal Fire 

Prevention and Control Act of 1974 (15 U.S.C. 2206(d)(1) to authorize the Superintendent of the National Fire Academy to conduct 

training in the following areas: 

(i) strategies for building collapse rescue; 

(ii) the use of technology in response to fires, including terrorist incidents and other national emergencies; 

(iii) response, tactics, and strategies for dealing with terrorist-caused national catastrophes; 

(iv) use of and familiarity with FEMA’s Federal Response 

Plan; 

(v) leadership and strategic skills, including integrated management systems operations and integrated response; 

(vi) applying new technology and developing strategies and 

tactics for fighting forest fires; 

(vii) integrating terrorism response agencies into the national terrorism incident response system; and 

(viii) response tactics and strategies for fighting fires at 

United States ports, including fires on the water and aboard 

vessels. 

Subsection (b) would authorize the Superintendent of the National Fire Academy to consult with other Federal, State, and local 

government officials in developing curricula for classes at the Academy. 

Subsection (c) would require the Administrator to coordinate the 

training provided under section 8(d)(1) of the Federal Fire Prevention and Control Act of 1974 (15 U.S.C. 2206(d)(1)) with the Attorney General, the Secretary of Health and Human Services, and the 

heads of other Federal agencies, to ensure that such training does 

not duplicate existing courses available to fire service personnel 

and to establish a mechanism for eliminating duplicative training 

programs. 

CHANGES IN EXISTING LAW

In compliance with paragraph 12 of rule XXVI of the Standing 

Rules of the Senate, changes in existing law made by the bill, as 

reported, are shown as follows (existing law proposed to be omitted 

is enclosed in black brackets, new material is printed in italic, existing law in which no change is proposed is shown in roman):
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FEDERAL FIRE PREVENTION AND CONTROL ACT OF 1974

SEC. 8. NATIONAL ACADEMY FOR FIRE PREVENTION AND CONTROL. 

[15 U.S.C. 2206] 

(a) ESTABLISHMENT.—The Director shall establish, at the earliest 

practicable date, a National Academy for Fire Prevention and Control. The purpose of the Academy shall be to advance the professional development of fire service personnel and of other persons 

engaged in fire prevention and control activities. 

(b) SUPERINTENDENT.—The Academy shall be headed by a Superintendent, who shall be appointed by the Director. In exercising the 

powers and authority contained in this section the Superintendent 

shall be subject to the direction of the Administrator. 

(c) POWERS OF SUPERINTENDENT.—The Superintendent is authorized to—

(1) develop and revise curricula, standards for admission and 

performance, and criteria for the awarding of degrees and certifications; 

(2) appoint such teaching staff and other personnel as he determines to be necessary or appropriate; 

(3) conduct courses and programs of training and education, 

as defined in subsection (d) of this section; 

(4) appoint faculty members and consultants without regard 

to the provisions of title 5, United States Code, governing appointments in the competitive service, and, with respect to 

temporary and intermittent services, to make appointments to 

the same extent as is authorized by section 3109 of title 5, 

United States Code; 

(5) establish fees and other charges for attendance at, and 

subscription to, courses and programs offered by the Academy. 

Such fees may be modified or waived as determined by the Superintendent; 

(6) conduct short courses, seminars, workshops, conferences, 

and similar education and training activities in all parts and 

localities of the United States; 

(7) enter into such contracts and take such other actions as 

may be necessary in carrying out the purposes of the Academy; 

and 

(8) consult with officials of the fire services and other interested persons in the exercise of the foregoing powers. 

(d) PROGRAM OF THE ACADEMY.—The Superintendent is authorized to—

(1) train fire service personnel in such skills and knowledge 

as may be useful to advance their ability to prevent and control fires, including, but not limited to—

(A) techniques of fire prevention, fire inspection, firefighting, and fire and arson investigation; 

(B) tactics and command of firefighting for present and 

future fire chiefs and commanders; 

(C) administration and management of fire services; 

(D) tactical training in the specialized field of aircraft 

fire control and crash rescue; 
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(E) tactical training in the specialized field of fire control 

and rescue aboard waterborne vessels; øand¿

(F) strategies for building collapse rescue; 

(G) the use of technology in response to fires, including 

terrorist incidents and other national emergencies; 

(H) response, tactics, and strategies for dealing with terrorist-caused national catastrophes; 

(I) use of and familiarity with the Federal Emergency 

Management Agency’s Federal Response Plan; 

(J) leadership and strategic skills, including integrated 

management systems operations and integrated response; 

(K) applying new technology and developing strategies 

and tactics for fighting forest fires; 

(L) integrating terrorism response agencies into the national terrorism incident response system; 

(M) response tactics and strategies for fighting fires at 

United States ports, including fires on the water and 

aboard vessels; and

ø(F)¿ (N) the training of present and future instructors 

in the aforementioned subjects; 

(2) develop model curricula, training programs, and other 

educational materials suitable for use at other educational institutions, and to make such materials available without 

charge; 

(3) develop and administer a program of correspondence 

courses to advance the knowledge and skills of fire service personnel; 

(4) develop and distribute to appropriate officials model questions suitable for use in conducting entrance and promotional 

examinations for fire service personnel; and 

(5) encourage the inclusion of fire prevention and detection 

technology and practices in the education and professional 

practice of architects, builders, city planners, and others engaged in design and planning affected by fire safety problems. 

(e) TECHNICAL ASSISTANCE.—The Administrator is authorized, to 

the extent that he determines it necessary to meet the needs of the 

Nation, to encourage new programs and to strengthen existing programs of education and training by local fire services, units, and 

departments, State and local governments, and private institutions, 

by providing technical assistance and advice to—

(1) vocational training programs in techniques of fire prevention, fire inspection, firefighting, and fire and arson investigation; 

(2) fire training courses and programs at junior colleges; and 

(3) four-year degree programs in fire engineering at colleges 

and universities. 

(f) ASSISTANCE TO STATE AND LOCAL FIRE SERVICE TRAINING

PROGRAMS.—The Administrator is authorized to provide assistance 

to State and local fire service training programs through grants, 

contracts, or otherwise. Such assistance shall not exceed 4 per centum of the amount authorized to be appropriated in each fiscal 

year pursuant to section 17 of this Act. 

(g) SITE SELECTION.—The Academy shall be located on such site 

as the Director selects, subject to the following provisions: 
10

(1) The Director is authorized to appoint a Site Selection 

Board consisting of the Academy Superintendent and two other 

members to survey the most suitable sites for the location of 

the Academy and to make recommendations to the Director. 

(2) The Site Selection Board in making its recommendations 

and the Director in making his final selection, shall give consideration to the training and facility needs of the Academy, 

environmental effects, and the possibility of using a surplus 

Government facility, and such other factors as are deemed important and relevant. The Director shall make a final site selection not later than 2 years after the date of enactment of 

this Act. 

(h) CONSTRUCTION COSTS.—Of the sums authorized to be appropriated for the purpose of implementing the programs of the Administration, not more than $9,000,000 shall be available for the 

construction of facilities of the Academy on the site selected under 

subsection (g) of this section. Such sums for such construction shall 

remain available until expended. 

(i) EDUCATIONAL AND PROFESSIONAL ASSISTANCE.—The Administrator is authorized to—

(1) provide stipends to students attending Academy courses 

and programs, in amounts up to 75 per centum of the expense 

of attendance, as established by the Superintendent; 

(2) provide stipends to students attending courses and nondegree training programs approved by the Superintendent at 

universities, colleges, and junior colleges, in amounts up to 50 

per centum of the cost of tuition; 

(3) make or enter into contracts to make payments to institutions of higher education for loans, not to exceed $2,500 per 

academic year for any individual who is enrolled on a full-time 

basis in an undergraduate or graduate program of fire research 

or engineering which is certified by the Superintendent. Loans 

under this paragraph shall be made on such terms and subject 

to such conditions as the Superintendent and each institution 

involved may jointly determine; and 

(4) establish and maintain a placement and promotion opportunities center in cooperation with the fire services, for firefighters who wish to learn and take advantage of different or 

better career opportunities. Such center shall not limit such assistance to students and graduates of the Academy, but shall 

undertake to assist all fire service personnel. 

(j) BOARD OF VISITORS.—Upon establishment of the Academy, the 

Director shall establish a procedure for the selection of professionals in the field of fire safety, fire prevention, fire control, research and development in fire protection, treatment and rehabilitation of fire victims, or local government services management to 

serve as members of a Board of Visitors for the Academy. Pursuant 

to such procedure, the Director shall select eight such persons to 

serve as members of such Board of Visitors to serve such terms as 

the Director may prescribe. The function of such Board shall be to 

review annually the program of the Academy and to make comments and recommendations to the Director regarding the operation of the Academy and any improvements therein which such 

Board deems appropriate. Each member of such Board shall be re-
11

imbursed for any expenses actually incurred by him in the performance of his duties as a member of such Board. 

(k) ACCREDITATION.—The Superintendent is authorized to establish a Committee on Fire Training and Education which shall inquire into and make recommendations regarding the desirability of 

establishing a mechanism for accreditation of fire training and education programs and courses, and the role which the Academy 

should play if such a mechanism is recommended. The Committee 

shall consist of the Superintendent as Chairman and eighteen 

other members appointed by the Administrator from among individuals and organizations possessing special knowledge and experience in the field of fire training and education or related fields. The 

Committee shall submit to the Administrator within two years 

after its appointment a full and complete report of its findings and 

recommendations. Upon the submission of such report, the Committee shall cease to exist. Each appointed member of the Committee shall be reimbursed for expenses actually incurred in the 

performance of his duties as a member. 

(l) ADMISSION.—The Superintendent is authorized to admit to the 

courses and programs of the Academy individuals who are members of the firefighting, rescue, and civil defense forces of the Nation and such other individuals, including candidates for membership in these forces, as he determines can benefit from attendance. 

Students shall be admitted from any State, with due regard to adequate representation in the student body of all geographic regions 

of the Nation. In selecting students, the Superintendent may seek 

nominations and advice from the fire services and other organizations which wish to send students to the Academy. 

SEC. 8. FIRE TECHNOLOGY. 

[15 U.S.C. 2207] 

(a) DEVELOPMENT.—The Administrator shall conduct a continuing program of development, testing, and evaluation of equipment for use by the Nation’s fire, rescue, and civil defense services, 

with the aim of making available improved suppression, protective, 

auxiliary, and warning devices incorporating the latest technology. 

Attention shall be given to the standardization, compatibility, and 

interchangeability of such equipment. Such development, testing, 

and evaluation activities shall include, but need not be limited to— (1) safer, less cumbersome articles of protective clothing, including helmets, boots, and coats; 

(2) breathing apparatus with the necessary duration of service, reliability, low weight, and ease of operation for practical 

use; 

(3) safe and reliable auxiliary equipment for use in fire prevention, detection, and control, such as fire location detectors, 

visual and audio communications equipment, and mobile 

equipment; 

(4) special clothing and equipment needed for forest fires, 

brush fires, oil and gasoline fires, aircraft fires and crash rescue, fires occurring aboard waterborne vessels, and in other 

special firefighting situations; 

(5) fire detectors and related equipment for residential use 

with high sensitivity and reliability, and which are sufficiently 
12

inexpensive to purchase, install, and maintain to insure wide 

acceptance and use; 

(6) in-place fire prevention systems of low cost and of increased reliability and effectiveness; 

(7) methods of testing fire alarms and fire protection devices 

and systems on a non-interference basis; 

(8) the development of purchase specifications, standards, 

and acceptance and validation test procedures for all such 

equipment and devices; and 

(9) operation tests, demonstration projects, and fire investigations in support of the activities set forth in this section. 

(b) LIMITATION ON MANUFACTURE AND SALE OF EQUIPMENT.—The 

Administration shall not engage in the manufacture or sale of any 

equipment or device developed pursuant to this section, except to 

the extent that it deems it necessary to adequately develop, test, 

or evaluate such equipment or device. 

(c) MANAGEMENT STUDIES.— (1) The Administrator is authorized to conduct, directly or 

through contracts or grants, studies of the operations and management aspects of fire services, utilizing quantitative techniques, such as operations research, management economics, 

cost effectiveness studies, and such other techniques and methods as may be applicable and useful. Such studies shall include, but need not be limited to, the allocation of resources, 

the optimum location of fire stations, the optimum geographical area for an integrated fire service, the manner of responding to alarms, the operation of citywide and regional fire 

dispatch centers, firefighting under conditions of civil disturbance, and the effectiveness, frequency, and methods of building 

inspections. 

(2) The Administrator is authorized to conduct, directly or 

through contracts or grants, research concerning and productivity and efficiency of fire service personnel, the job categories 

and skills required by fire services under varying conditions, 

the reduction of injuries to fire service personnel, the most effective fire prevention programs and activities, and techniques 

for accurately measuring and analyzing the foregoing. 

(3) The Administrator is authorized to conduct, directly or 

through contracts, grants, or other forms of assistance, development, testing, and demonstration projects to the extent 

deemed necessary to introduce and to encourage the acceptance of new technology, standards, operating methods, command techniques, and management systems for utilization by 

the fire services. 

(4) The Administrator is authorized to assist the Nation’s 

fire services, directly or through contracts, grants, or other 

forms of assistance, to measure and evaluate, on a cost-benefit 

basis, the effectiveness of the programs and activities of each 

fire service and the predictable consequences on the applicable 

local fire services of coordination or combination, in whole or 

in part, in a regional, metropolitan, or statewide fire service. 

(d) RURAL ASSISTANCE.—The Administrator is authorized to assist the Nation’s fire services, directly or through contracts, grants, 

or other forms of assistance, to sponsor and encourage research 

into approaches, techniques, systems, and equipment to improve 
13

fire prevention and control in the rural and remote areas of the Nation.

(e) DEVELOPMENT OF NEW TECHNOLOGY.—

(1) IN GENERAL.—In addition to, or as part of, the program 

conducted under subsection (a), the Administrator, in consultation with the National Institute of Standards and Technology, 

the Inter-Agency Board for Equipment Standardization and 

Inter-Operability, national voluntary consensus standards development organizations, and other interested parties, shall—

(A) develop new, and utilize existing, measurement techniques and testing methodologies for evaluating new firefighting technologies, including—

(i) personal protection equipment; 

(ii) devices for advance warning of extreme hazard; 

(iii) equipment for enhanced vision; 

(iv) devices to locate victims, firefighters, and other 

rescue personnel in above-ground and below-ground 

structures; 

(v) equipment and methods to provide information 

for incident command, including the monitoring and 

reporting of individual personnel welfare; 

(vi) equipment and methods for training, especially 

for virtual reality training; and 

(vii) robotics and other remote-controlled devices; 

(B) evaluate the compatibility of new equipment and 

technology with existing firefighting technology; and 

(C) support the development of new voluntary consensus 

standards through national voluntary consensus standards 

organizations for new firefighting technologies based on 

techniques and methodologies described in subparagraph 

(A). 

(2) NEW EQUIPMENT MUST MEET STANDARDS.—For equipment 

for which applicable voluntary consensus standards have been 

established, the Administrator shall, by regulation, require that 

equipment or systems purchased through the assistance program established by section 33 meet or exceed applicable voluntary consensus standards.

ø(e)¿ (f) COORDINATION.—In establishing and conducting programs under this section, the Administrator shall take full advantage of applicable technological developments made by other departments and agencies of the Federal Government, by State and 

local governments, and by business, industry, and nonprofit associations. 

SEC. 10. MASTER PLANS. 

[15 U.S.C. 2209] 

(a) ENCOURAGEMENT BY ADMINISTRATOR.— The establishment of 

master plans for fire prevention and control are the responsibility 

of the States and the political subdivisions thereof. The Administrator is authorized to encourage and assist such States and political subdivisions in such planning activities, consistent with his 

powers and duties under this Act.

(b) MUTUAL AID SYSTEMS.—
14

(1) IN GENERAL.—The Administrator, after consultation with 

the Director of the Federal Emergency Management Agency, 

shall provide technical assistance and training to State and 

local fire service officials to establish nationwide and State mutual aid systems for dealing with national emergencies that— (A) include threat assessment and equipment deployment 

strategies; 

(B) include means of collecting asset and resource information to provide accurate and timely data for regional deployment; and 

(C) are consistent with the Federal Emergency Management Agency’s Federal Response Plan. 

(2) MODEL MUTUAL AID PLANS.—The Administrator, in consultation with the Director of the Federal Emergency Management Agency, shall develop and make available to State and 

local fire service officials model mutual aid plans for both 

intrastate and interstate assistance.

ø(b)¿ (c) MASTER PLAN DEFINED.—For the purposes of this section, a ‘‘master plan’’ is one which will result in the planning and 

implementation in the area involved of a general program of action 

for fire prevention and control. Such master plan is reasonably expected to include (1) a survey of the resources and personnel of existing fire services and an analysis of the effectiveness of the fire 

and building codes in such area; (2) an analysis of short and long 

term fire prevention and control needs in such area; (3) a plan to 

meet the fire prevention and control needs in such area; and (4) an 

estimate of cost and realistic plans for financing the implementation of the plan and operation on a continuing basis and a summary of problems that are anticipated in implementing such master plan. 

SEC. 17. AUTHORIZATION OF APPROPRIATIONS. 

[15 U.S.C. 2216] 

(a) There are authorized to be appropriated to carry out the foregoing provisions of this Act, except as otherwise specifically provided, with respect to the payment of claims, under section 11 of 

this Act, an amount not to exceed $25,210,000 for the fiscal year 

ending September 30, 1980, which amount includes— (1) $4,781,000 for programs which are recommended in the 

report submitted to the Congress by the Administrator pursuant to section 24(b)(1); (2) $9,430,000 for the National Academy for Fire Prevention 

and Control; (3) $307,000 for adjustments required by law in salaries, 

pay, retirement, and employee benefits; (4) $500,000 for additional rural firefighting technical assistance and information activities; (5) $500,000 for the study required by section 26 of this Act; 

and 

(6) $110,000 for the study required by section 27 of this Act. 

(b) There are authorized to be appropriated for the additional administrative expenses of the Federal Emergency Management 

Agency, which are related to this Act and which result from Reorganization Plan Numbered 3 of 1978 (submitted June 19, 1978) and 
15

related Executive orders, an amount not to exceed $600,000 for the 

fiscal year ending September 30, 1980. 

(c) There are authorized to be appropriated to carry out this Act, 

except as otherwise specifically provided with respect to the payment of claims under section 11 of this Act, an amount not to exceed $23,814,000 for the fiscal year ending September 30, 1981, 

which amount includes—

(1) not less than $1,100,000 for the first year of a three-year 

concentrated demonstration program of fire prevention and 

control in two States with high fire death rates; 

(2) not less than $2,575,000 for rural fire prevention and control; and 

(3) not less than $4,255,000 for research and development for 

the activities under section 18 of this Act at the Fire Research 

Center of the National Bureau of Standards, of which not less 

than $250,000 shall be available for adjustments required by 

law in salaries, pay, retirement, and employee benefits. 

The funds authorized in paragraph (3) shall be in addition to funds 

authorized in any other law for research and development at the 

Fire Research Center. 

(d) Except as otherwise specifically provided with respect to the 

payment of claims under section 11 of this Act, to carry out the 

purposes of this Act, there are authorized to be appropriated-

(1) $20,815,000 for the fiscal year ending September 30, 

1982, and $23,312,800 for the fiscal year ending September 30, 

1983, which amount shall include—

(A) such sums as may be necessary for the support of research and development at the Fire Research Center of the 

National Bureau of Standards under section 18 of this Act, 

which sums shall be in addition to those funds authorized 

to be appropriated under the National Bureau of Standards Authorization Act for fiscal years 1981 and 1982; and 

(B) $654,000 for the fiscal year ending September 30, 

1982, and $732,480 for the fiscal year ending September 

30, 1983, for executive direction by the Federal Emergency 

Management Agency of program activities for which appropriations are authorized by this subsection; and 

(2) such further sums as may be necessary in each of the fiscal years ending September 30, 1982, and September 30, 1983, 

for adjustments required by law in salaries, pay, retirement, 

and employee benefits incurred in the conduct of activities for 

which funds are authorized by paragraph (1) of this subsection. 

The funds authorized under section 18 shall be in addition to funds 

authorized in any other law for research and development at the 

Fire Research Center of the National Bureau of Standards. 

(e) Except as otherwise specifically provided with respect to the 

payment of claims under section 11 of this Act, to carry out the 

purposes of this Act, there are authorized to be appropriated—

(1) $15,720,000 for the fiscal year ending September 30, 

1984, and $20,983,000 for the fiscal year ending September 30, 

1985; and 

(2) such further sums as may be necessary in each of the fiscal years ending September 30, 1984, and September 30, 1985, 

for adjustments required by law in salaries, pay, retirement, 
16

and employee benefits incurred in the conduct of activities for 

which funds are authorized by paragraph (1) of this subsection. 

The funds authorized under this subsection shall be in addition to 

funds authorized in any other law for research and development at 

the Fire Research Center of the National Bureau of Standards. 

(f) Except as otherwise specifically provided with respect to the 

payment of claims under section 11 of this Act, to carry out the 

purposes of this Act, there are authorized to be appropriated 

$22,037,000 for the fiscal year ending September 30, 1986 and 

$18,300,000 for the fiscal year ending September 30, 1987. 

(g)(1) Except as otherwise specifically provided with respect to 

the payment of claims under section 11 of this Act, there are authorized to be appropriated to carry out the purposes of this Act—

(A) $17,039,000 for the fiscal year ending September 30, 

1989; 

(B) $17,737,000 for the fiscal year ending September 30, 

1990; 

(C) $18,464,000 for the fiscal year ending September 30, 

1991; 

(D) $25,550,000 for the fiscal year ending September 30, 

1992; 

(E) $26,521,000 for the fiscal year ending September 30, 

1993; 

(F) $27,529,000 for the fiscal year ending September 30, 

1994; 

(G) $29,664,000 for the fiscal year ending September 30, 

1998; 

(H) $30,554,000 for the fiscal year ending September 30, 

1999; 

(I) $44,753,000 for fiscal year 2001, of which $3,000,000 is 

for research activities, and $250,000 may be used for contracts 

or grants to non-Federal entities for data analysis, including 

general fire profiles and special fire analyses and report 

projects, and of which $6,000,000 is for anti-terrorism training, 

including associated curriculum development, for fire and 

emergency services personnel; 

(J) $47,800,000 for fiscal year 2002, of which $3,250,000 is 

for research activities, and $250,000 may be used for contracts 

or grants to non-Federal entities for data analysis, including 

general fire profiles and special fire analyses and report 

projects, and of which $7,000,000 is for anti-terrorism training, 

including associated curriculum development, for fire and 

emergency services personnel; and 

(K) $50,000,000 for fiscal year 2003, of which $3,500,000 is 

for research activities, and $250,000 may be used for contracts 

or grants to non-Federal entities for data analysis, including 

general fire profiles and special fire analyses and report 

projects, and of which $8,000,000 is for anti-terrorism training, 

including associated curriculum development, for fire and 

emergency services personnel. 

(2) Of the amounts referred to in paragraph (1), not more than 

$4,150,000 is authorized to be appropriated for each fiscal year for 

National Emergency Training Center site administration. 
17

(h) In addition to any other amounts that are authorized to be 

appropriated to carry out this Act, there are authorized to be appropriated to carry out this Act— (1) $500,000 for fiscal year 1995 for basic research on the development of an advanced course on arson prevention; (2) $2,000,000 for fiscal year 1996 for the expansion of arson 

investigator training programs at the Academy under section 

24 and at the Federal Law Enforcement Training Center, or 

through regional delivery sites; (3) $4,000,000 for each of fiscal years 1995 and 1996 for carrying out section 25, except for salaries and expenses for carrying out section 25; and (4) $250,000 for each of the fiscal years 1995 and 1996 for 

salaries and expenses for carrying out section 25.

(i) DEVELOPMENT OF NEW TECHNOLOGY.—There are authorized to 

be appropriated to the Administrator to carry out section 8(e) 

$2,200,000 for fiscal year 2003.

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