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86–401 PDF 2003

S. HRG. 107–915

NEEDS OF AMERICA’S FIREFIGHTERS

HEARING

BEFORE A

SUBCOMMITTEE OF THE

COMMITTEE ON APPROPRIATIONS

UNITED STATES SENATE

ONE HUNDRED SEVENTH CONGRESS

SECOND SESSION

SPECIAL HEARING

FEBRUARY 5, 2002—WASHINGTON, DC

Printed for the use of the Committee on Appropriations

(

Available via the World Wide Web: http://www.access.gpo.gov/congress/senate
(II)

COMMITTEE ON APPROPRIATIONS

ROBERT C. BYRD, West Virginia, Chairman

DANIEL K. INOUYE, Hawaii

ERNEST F. HOLLINGS, South Carolina

PATRICK J. LEAHY, Vermont

TOM HARKIN, Iowa

BARBARA A. MIKULSKI, Maryland

HARRY REID, Nevada

HERB KOHL, Wisconsin

PATTY MURRAY, Washington

BYRON L. DORGAN, North Dakota

DIANNE FEINSTEIN, California

RICHARD J. DURBIN, Illinois

TIM JOHNSON, South Dakota

MARY L. LANDRIEU, Louisiana

JACK REED, Rhode Island

TED STEVENS, Alaska

THAD COCHRAN, Mississippi

ARLEN SPECTER, Pennsylvania

PETE V. DOMENICI, New Mexico

CHRISTOPHER S. BOND, Missouri

MITCH MCCONNELL, Kentucky

CONRAD BURNS, Montana

RICHARD C. SHELBY, Alabama

JUDD GREGG, New Hampshire

ROBERT F. BENNETT, Utah

BEN NIGHTHORSE CAMPBELL, Colorado

LARRY CRAIG, Idaho

KAY BAILEY HUTCHISON, Texas

MIKE DEWINE, Ohio

TERRENCE E. SAUVAIN, Staff Director

CHARLES KIEFFER, Deputy Staff Director

STEVEN J. CORTESE, Minority Staff Director

LISA SUTHERLAND, Minority Deputy Staff Director

SUBCOMMITTEE ON VA, HUD, AND INDEPENDENT AGENCIES

BARBARA A. MIKULSKI, Maryland, Chairman

PATRICK J. LEAHY, Vermont

TOM HARKIN, Iowa

ROBERT C. BYRD, West Virginia

HERB KOHL, Wisconsin

TIM JOHNSON, South Dakota

ERNEST F. HOLLINGS, South Carolina

CHRISTOPHER S. BOND, Missouri

CONRAD BURNS, Montana

RICHARD C. SHELBY, Alabama

LARRY CRAIG, Idaho

PETE V. DOMENICI, New Mexico

MIKE DEWINE, Ohio

TED STEVENS, Alaska (ex officio)

Professional Staff

PAUL CARLINER

GABRIEL A. BATKIN

ALEXA SEWELL

JON KAMARCK (Minority)

CHEH KIM (Minority)
(III)

CONTENTS

Page

Opening statement of Senator Barbara A. Mikulski ............................................ 1

Statement of Senator Christopher S. Bond ........................................................... 3

Prepared statement of Senator Christopher S. Bond ........................................... 4

Statement of Peter Morris, Assistant Chief, Bethesda-Chevy Chase Rescue

Squad .................................................................................................................... 7

Prepared statement .......................................................................................... 9

Statement of Stephen D. Paulsell, Chief, Boone County Fire Protection District and Sponsoring Agency Chief, Missouri Task Force 1 ............................. 11

Prepared statement .......................................................................................... 15

Task force equipment caches .................................................................................. 17

Weapons of mass destruction protection for task forces ....................................... 17

Properly fund annual grant program for task forces ............................................ 17

Task force transportation ........................................................................................ 18

Task force system expansion .................................................................................. 18

International response of additional task forces ................................................... 18

Task force system enhancements ........................................................................... 19

Program administration and support .................................................................... 19

Supporting documentation ...................................................................................... 20

National Urban Search and Rescue Response System ......................................... 20

About US&R ............................................................................................................. 20

Incident Support Team ............................................................................................ 20

FEMA task force tools and equipment ................................................................... 20

Urban search and rescue: Commonly asked questions ......................................... 22

Statement of Carlos Olaguer, Firefighter, Baltimore City Fire Department ..... 24

Prepared statement .......................................................................................... 28

Urban search and rescue ........................................................................................ 31

Task forces ............................................................................................................... 34

Urban search and rescue ........................................................................................ 35

Utilization of assets ................................................................................................. 36

Prepared statement of Senator Larry Craig .......................................................... 37

National Interagency Fire Center .......................................................................... 37

Statement of Harold Schaitberger, General President, International Association of Fire Fighters ............................................................................................. 40

Prepared statement .......................................................................................... 43

Existing programs ................................................................................................... 44

The needs ................................................................................................................. 44

Statement of John M. Buckman, III, Chief, International Association of Fire

Chiefs .................................................................................................................... 48

Prepared statement .......................................................................................... 51

Assistance to firefighters grant program ............................................................... 52

Additional firefighter staffing ................................................................................. 52

Office of National Preparedness ............................................................................. 53

USAR expansion ...................................................................................................... 53

Federal leadership ................................................................................................... 54

Statement of Philip C. Stittleburg, Chairman, National Volunteer Fire Council ........................................................................................................................... 54

Prepared statement .......................................................................................... 57

Support of basic firefighting equipment ................................................................ 60

Response to terrorist attacks .................................................................................. 61

Liability of donated fire equipment ........................................................................ 61

Fire grant program .................................................................................................. 62

Fund raising efforts of local fire departments ....................................................... 63

(1)

NEEDS OF AMERICA’S FIREFIGHTERS

TUESDAY, FEBRUARY 5, 2002

U.S. SENATE,

SUBCOMMITTEE ON VA, HUD, AND

INDEPENDENT AGENCIES,

COMMITTEE ON APPROPRIATIONS,

Washington, DC.

The subcommittee met at 10:50 a.m., in room SD–124, Dirksen

Senate Office Building, Hon. Barbara A. Mikulski (chairman) presiding.

Present: Senators Mikulski, Bond, and Craig.

NONDEPARTMENTAL WITNESSES

OPENING STATEMENT OF SENATOR BARBARA A. MIKULSKI

Senator MIKULSKI. The Subcommittee on VA–HUD will now

come to order.

Today is a very special hearing because it will focus on the need

of America’s fire departments and firefighters. What we want to be

able to do today is to find out how we can protect our communities

and how we can protect our first responders.

Since September 11, all eyes have focused on the heroic efforts

of America’s firefighters, whether it was in New York or at the

Pentagon. I know, though, that every day there are firefighters out

there putting themselves truly, literally in the line of fire. We want

to be able to thank you not with words but with deeds, to really

hear from those who are the leadership of America’s firefighters, as

well as the firefighters themselves, about how we can meet the

compelling needs of homeland security.

We are now asking America’s fire departments, whose primary

focus has been the protection of local communities, the prevention

of fires, rescue, search and rescue, to be part of America’s significant effort on homeland security, to be able to be all-hazards agencies to really protect us against fires, against chemical attacks, to

be ready for biological attacks, and to be prepared to deal with

weapons of mass destruction.

We know that you cannot do this on either a local property tax

or, for our volunteer firefighters, you cannot do this on fish fries,

bingo, and tip jars. We are already asking you to put yourself in

the line of fire. You do it often on your own time, and on your own

dime. For the big urban communities, we know that their firefighters are often the last in municipal budget efforts. We hope to

be able to support firefighters the way we, over a decade ago, sup-
2

ported our police departments. You are our public safety officers,

and we are going to make sure we help you out.

I think America does not realize that there are over 1 million

firefighters in the United States of America. Seven hundred fifty

thousand are volunteers. There are already 155,000 nationally registered emergency medical technicians. Actually firefighters and

emergency medical personnel responded to over 16 million emergency calls last year. And every year, more than 100 firefighters

lose their lives in the line of duty.

That is, up until September 11, when a grim and ghoulish thing

happened where there was an aerial attack on the United States

of America. And we saw it at the World Trade Center and we saw

it at the Pentagon. That day in New York City at Ground Zero,

where both my colleague and I have been, 343 New York City firefighters lost their lives in the World Trade Center trying to save

others.

Why were they there? Because of the first World Trade Center

bombing, they were ready to be there first, as quickly as they

could, should there be anything happening to the trade center.

Well, you and I know that no one expected the collapse of two

buildings.

As I said, this Nation cannot merely express its gratitude with

words alone. We want to express our gratitude to those who risk

their lives every day.

We have been thinking about this for some time, our colleagues

in the House, our colleagues in the Senate. We know that there is

a firefighter caucus, of which I have been a member. We created

a Fire Grant program through FEMA. It was authorized at $300

million, which we saw as essentially a down payment to meet local

needs, not to substitute for volunteerism, not to be a substitute for

property taxes, but to be value added for meeting national needs. The first year we provided $100 million. That was for the fiscal

year 2001 appropriations. Last year we were able to come up with

an additional $290 million in an emergency supplemental.

But the needs are so tremendous, and I will tell you our President, President Bush, and Governor Tom Ridge, our Homeland Security Director, have taken note of this. Therefore, the President is

proposing a significant increase of a $3.5 billion grant program for

America’s first responders. And, do we need it.

Even before September 11, in evaluating the Fire Grant program, we saw that FEMA had gotten over 30,000 requests for assistance under the Fire Grant program. Remember, this is by September 8. That totals $3 billion. In my own State of Maryland, 200

separate fire companies sent in requests totalling $40 million.

These requests were for firefighting vehicles, firefighting equipment, and that very crucial personal protective gear.

You all are going to tell me about the cost of a fire truck. I think

it is $300,000. New rescue vehicles, $500,000. Protective gear, well

over $1,000. And now, hopefully, we will now even have unmanned

robots that will go in as preliminaries to you. Communication

equipment. All of this shows the need, and we want to hear what

you think.

I want to pay attention to what President George Bush wants in

homeland security and how we can support you, but I want to pay
3

attention to those of you who respond when either a citizen or a

President calls up 9–1–1. And 9/11 will be forever in our hearts.

So, today we are turning to our firefighters. We are going to listen to them.

Now I would like to turn to my colleague, Senator Bond, for his

comments, and then we are going to hear from our first panel.

STATEMENT OF SENATOR CHRISTOPHER S. BOND

Senator BOND. Thank you very much, Madam Chair, for calling

this important and timely hearing. I think we could spend all day

talking about the heroism, the needs, and what we have learned.

I am going to summarize my formal statement and then give you

a little insight I gathered yesterday.

But I think it is clear, as the chair has recognized, that the

President’s budget recognizes and responds to the harsh realities of

September 11 and what we need to do particularly in this area.

Out of the rubble of this tragedy, Americans who stood tall with

our firefighters, our police, military, and first responders of all

kinds, under these horrific circumstances, we came together as

Americans to respond to the cowardly terrorist attacks. And the

budget that the President submitted and we are supporting is proof

to the world that we are not going to bow down to the threats of

terrorists.

This hearing should allow us to understand better the overall

funding needs of fire departments to meet the traditional firefighting activities. These needs are very different, depending on

whether the department is volunteer or a paid career department.

Many of them are still severely lacking in funds, equipment, and

training to meet traditional local firefighting emergencies. And as

the chair has indicated, the need was already there before September 11.

But we will also hear testimony on how the mission and needs

of firefighters have changed since September 11 and the expanded

role as first responders to threats and acts of terrorism. And they

can be not only a horrifying attack on a world trade center with

an airplane, but they can be biological, chemical, or even radioactive. The new understanding of these threats has made this significant increase in resources necessary.

It is going to be a real source of pride and pleasure to introduce

my good friend, Steve Paulsell, Chief of the Boone County Fire Protection District, and Sponsoring Agency Chief for Missouri Task

Force 1. He does a remarkable job in my neighboring Boone County, Missouri, administering the fire protection district, and as head

of Task Force 1, his personnel made a tremendous difference in

helping victims, as well as assisting to minimize the aftermath of

this tragedy. I have to say that the people of Missouri felt a very

real connection with the horror of New York because we had dedicated volunteers who were willing to go to help. And Steve can give

us a perspective on both the funding needs of volunteer firefighters,

as well as the expectations on first responders, to acts of terrorism.

This issue is extremely important to me. There are 865 rural fire

departments in Missouri, meeting the needs of their communities

on shoestring budgets, guts, and personal commitment.
4

Steve, I say also, has a special understanding as the Sponsoring

Agency Chief of 1 of only 28 urban search and rescue task forces.

They are underfunded, underequipped, but they are dedicated and

committed first-line soldiers responding to the worst acts of terrorism.

The current capacity of first responders varies widely across the

United States. Even the best prepared States are lacking crucial

resources and expertise. And many areas have little or no ability

to cope or respond to a terrorist attack, especially with the new

weapons of mass destruction. We need a comprehensive approach

and we need to back it up with resources. Recent revelations that

show Osama bin Laden and Al Qaeda were looking for

vulnerabilities in our dams, water systems, and nuclear plants provide a new level of concern and responsibility. In these circumstances, we have to identify and support these needs.

But yesterday, as I indicated to my good friend, Senator Mikulski, I visited Ground Zero just to see the progress. It is unbelievable. You are looking at it from 30 floors up, and you see that they

have moved 14 to 15 stories of rubble out of the way. There are

still some areas where we may find remains of the victims, but the

place is beginning to look like a normal construction site. You say,

oh, well, that is very nice.

But then you go down to the ground and you see the family platforms, the places where people have posted a message. I thought

I was tough. I was wrong. I could not handle it. But also you see

so many good messages. The people who have responded from

around the country, the volunteers who are still working there

helping the people engaged in the work and the cleanup, to know

that the Salvation Army and the Red Cross were there, churches

were there, school children from all over the Nation have sent letters, have sent messages, have sent gifts.

PREPARED STATEMENT

I talked to Reverend Harris at St. Paul’s Church, and he told me

so many stories of people volunteering and the volunteers were still

working there. And he told me of the elderly, very poor lady who

lived in the upper Bronx who had heard that people had hurt their

legs. She took the subway all the way down, got through the police

lines by dint of sheer effort, hobbled up to St. Paul’s Church, and

handed Reverend Harris her cane and said that she wanted to

make a contribution. That is the spirit in which Americans have

responded.

So, with that, thank you very much, Madam Chair. We are looking forward to hearing our witnesses.

[The statement follows:]

PREPARED STATEMENT OF SENATOR CHRISTOPHER S. BOND

Thank you, Madam Chair, for calling this important and timely hearing. The

President submitted his Budget for fiscal year 2003 yesterday and one of its cornerstones acknowledges the important role and funding needs of firefighters in our

communities by recommending an unprecedented increase of some $3.5 billion in

FEMA’s budget for the homeland security response capabilities of America’s First

Responders, which includes firefighters, police and emergency medical technicians.

This Budget request recognizes the harsh realities of September 11 and the need

to be ever vigilant to protect the freedom and moral principles that have guided this
5

Nation for over 200 years and which have been a beacon of hope for the oppressed

peoples of totalitarian regimes throughout the world.

Out of the rubble of this tragedy, Americans have stood tall with our firefighters,

police and military leading the way. Under these horrific circumstances, we banded

together as Americans to assist the victims of these cowardly, terrorist attacks and

this Budget request is further proof to the world that we will not bow down to the

oppression and hate that is the ideology of terrorism.

So while this hearing is largely designed to review the FIRE Act grant program

which was initially funded by this subcommittee in fiscal year 2001, it also provides

an important opportunity to hear first hand from the firefighting community about

the funding needs and issues that face firefighters in their enhanced role as First

Responders to acts of terrorism.

This hearing also allows us better to understand the overall funding needs of fire

departments to meet the traditional firefighting activities of their communities.

These needs are very different, depending on whether the department is a volunteer

department or a paid, career department. In particular, many or most volunteer fire

departments are severely lacking in funds, equipment and training to meet traditional local firefighting emergencies. We need to understand better these needs and

how the FIRE Act grant program can be improved to ensure these fire departments

have the necessary equipment and training.

The need clearly is there. In fiscal year 2001, FEMA received over 19,000 applica- tions for available grant funds of $100 million. These applications constituted some

31,000 requests for assistance for a total of $2.9 billion. For fiscal year 2002, we

appropriated some $360 million for the FIRE Act grant program while the act expanded the eligible uses of these funds to include training and equipment to respond

to terrorism or the use of a weapon of mass destruction.

In addition, we will hear testimony on how the mission and needs of firefighters

have changed since September 11 with the recognition that firefighters, police and

emergency medical technicians will have an expanded role as First Responders to

threats and acts of terrorism, be they biological, chemical or the result of the use

of a weapon of mass destruction. The huge increase in funding for the FIRE Act

grant program is largely the result of a new understanding and recognition of the

important role that we expect firefighters to play in response to acts of terrorism.

In particular, I am proud to introduce a witness from Missouri, a good personal

friend, Steve Paulsell, who is the Chief of the Boone County Fire Protection District

and Sponsoring Agency Chief for Missouri Task Force 1. Steve does a remarkable

job in administering the Boone County Fire Protection District, which is a volunteer

fire department and one of the largest in the Nation. In addition, as head of the

Missouri Task Force 1, his personnel made a tremendous difference in helping the

victims of the horrific tragedy at the World Trade Center as well as assisting to

minimize the aftermath of this tragedy. With these dual responsibilities, Steve has

a unique perspective on both the funding needs of volunteer firefighters in meeting

the traditional responsibilities of local fire departments as well as the new expectations for First Responders to acts of terrorism. This is an extremely important issue

to me since there are 865 rural fire departments in Missouri which are volunteer

departments meeting the needs of their communities on shoestring budgets, guts

and personal commitment.

In addition, as the Sponsoring Agency Chief of one of only 28 urban search and

rescue task forces in the United States, Steve has a special understanding of what

will be needed to establish a comprehensive, national First Responder program.

These task forces are currently underfunded and underequipped, but, nonetheless,

are committed to be the front-line solders of our local governments to respond to

the worst aspects of terrorism at the community level. I believe our first obligation

is to realize fully the capacity of these 28 search and rescue task forces to meet First

Responder events.

As noted, the President has requested an increase of some $3.5 billion in the fiscal

year 2003 budget for FEMA in order to provide police, firefighters and emergency

medical technical teams with the needed training, staffing and equipment to work

effectively and quickly to meet the threat and consequences of a terrorist attack. Despite the response to September 11, the current capacity of communities and First

Responders vary widely across the United States, with even the best prepared

States lacking crucial resources and expertise. Many areas have little or no ability

to cope or respond to a terrorist attack, especially ones that use weapons of mass

destruction, including biological or chemical toxins.

The recommended commitment of funding in the President’s Budget is only the

first step. There needs to be a comprehensive approach that identifies and meets

State and local First Responder needs, both rural and urban, pursuant to Federal

leadership, benchmarks and guidelines. As a result, the roles of the Office of Home-
6

land Security and FEMA need to be clearly articulated, especially if the Administration expects the Congress to bless a transition of responsibility for the police as

First Responders from the Department of Justice to FEMA. We also need to address

the fears of local fire departments, especially rural departments, that some fire departments will be shortchanged if these First Responder funds are block granted to

States subject to a State plan.

In addition to these issues, there are recent revelations that Osama bin Laden

and al Qaeda were looking for vulnerabilities in our dams, water systems and nuclear plants. These revelations reemphasis the size of the job facing our Nation in

providing the needed security expected by our citizens and the immediacy of the

problem. Finally, there needs to be coordination and cooperation through the Office

of Homeland Security with the Department of Defense, the National Guard, FEMA,

the Department of Justice and our other domestic agencies to make this work. In

any event, there is much to discuss and debate.

Thank you, Madam Chair. I look forward to the testimony today and I applaud

the early start on this important issue.

Senator MIKULSKI. Thank you, Senator Bond.

I would like to call up now Assistant Chief Morris, and Chief

Paulsell that Senator Bond has already spoken about, and Firefighter Olaguer to present their testimony. Gentlemen, America

welcomes you, and I want you to know that as we sit here today

listening to your testimony, we are neither the Republican Party

nor the Democratic Party. We are the Red, White, and Blue Party.

So, we are here to work on a bipartisan basis to be able to support

you.

Chief Paulsell, Senator Bond has already told us about your wonderful and extensive career.

Assistant Chief Morris, we want to welcome you. For the record,

please show that Assistant Chief Morris is in the volunteer ranks

of the Bethesda-Chevy Chase Rescue Squad. He joined it in 1984.

When he is not saving lives, he is a CNN cameraman covering the

White House. And that tells you something really about the broad

spectrum of who our volunteer fighters are. It was the BethesdaChevy Chase Rescue Squad that responded to the Pentagon. When

I went over there that day, I saw this wonderful rescue squad that

literally was moving heaven and earth to continue the search and

rescue. We look forward to hearing that, but we saw you there in

that horrific undertaking.

Of course, we have Mr. Olaguer from the Baltimore City Fire Department who comes again with an extensive background. He has

been a firefighter. He has been working as a lieutenant, a platform

operator, and a pump operator.

Senator Bond, you should know that Baltimore faced its own crisis in August when a cargo train was trapped in one of the oldest

train tunnels in America. We did not know what was in there. We

did not know if it was going to explode. We did not know if it was

going to be a toxic cloud that was going to explode over Baltimore.

It was a tunnel of several miles.

And Mr. Olaguer went down into that tunnel and it shows you

what our firefighters do. They had to go down through a manhole

cover. They had to go down 8 feet in dark and smoke to a platform

to then go down another ladder, and we did not know if they were

descending into hell, toxic fumes, or what they were going to find

as they did it. And they went fearlessly. They were intrepid. And

thanks to their effort and the cooperation with civil engineering

skills, we were able to get out of that. But just know there was a

time in Baltimore when manhole covers were exploding and we had
7

300-pound manhole covers going through the air as frisbees, and

these men, going down there, did not know what they would find

and we did not know if they could come back out. So, God bless

you for all of that.

Having said all that, why do we not start with you, Mr. Morris,

and then just go down the line, ending with you, Mr. Olaguer.

STATEMENT OF PETER MORRIS, ASSISTANT CHIEF, BETHESDA-CHEVY

CHASE RESCUE SQUAD

Mr. MORRIS. Good morning, Madam Chairwoman and members

of the committee. I am Assistant Chief Peter Morris of the Bethesda-Chevy Chase Rescue Squad.

I would like to take the opportunity to commend you, Senator

Mikulski, and the other members of the subcommittee for providing

the important leadership needed on this critical issue. Senator Mikulski recently visited our station, and the firefighter/rescuers in

our department were very impressed with her interest and her indepth knowledge of the fire/rescue services. We would not be able

to do our jobs without the support of our elected leaders. We consider the members of this subcommittee to be a vital part of our

team. Senator Mikulski, the extra time that you spent at our station sent a strong message to our firefighters that you and your colleagues are committed to finding political solutions that help our

service and ultimately our community. So, we thank you very much

for that.

Bethesda-Chevy Chase Rescue Squad is located in Montgomery

County, Maryland. Our department provides 24-hour fire, rescue,

and emergency medical service to a suburban/urban area of southern Montgomery County and portions of northwest Washington,

D.C. The rescue squad is unusual in that it provides fire and emergency medical service without the benefit of tax funds from Montgomery County or the District of Columbia. We are a vibrant, successful volunteer organization that defies the myth that volunteer

fire and rescue departments can only exist in rural, low-call volume

systems. In 2001, Bethesda-Chevy Chase Rescue Squad units responded to 10,957 emergency incidents.

Today I have been asked to provide a local responder’s view of

the terrorism and disaster preparedness world. Our response area

is replete with foreign embassies, residences of senior Government

officials and other dignitaries, the National Institutes of Health,

the National Naval Medical Center, four Metro stations, and a

number of other high-profile Government facilities and potential

targets for a terrorist attack.

Over the years, we have responded to major incidents in neighboring jurisdictions, including the District of Columbia. We share

a close daily working relationship with the District of Columbia

Fire and Emergency Medical Services Department, which means

that we are one of the first outside resources that are called upon

to assist the District in a response to a major disaster.

On September 11, 2001, our units were first called to assist the

District but were sent to the Pentagon once it became clear that

no targets had been struck in the city. Four of our medic units, a

special air supply truck, and a command officer were on scene at

the Pentagon and back-filling Arlington County fire stations within
8

the first hour of the attack. Our air supply unit supported firefighting operations at the Pentagon for the first 24 hours. That

same unit was parked outside of this building for more than a

week supporting the cleanup operations at the Hart Building.

Our experience responding to major incidents over the past several decades and our recent experience responding to the September 11 attack on the Pentagon has taught us four major lessons.

First of all, these incidents reaffirm the critical role of local fire,

rescue, EMS, police departments. And local governments, including

their fire, rescue, EMS, law enforcement and public health departments, are the Nation’s primary defense when a terrorist attack occurs. Local fire and rescue services are the only agencies that can

respond within minutes and save lives while there is still time.

They must be equipped to provide the initial response, immediate

rescue and treatment, and scene stabilization.

Second, the development of Federal assets such as various FEMA

units, including urban search and rescue teams, the metropolitan

medical response system, and civil support teams are good, but

they cannot solve the terrorism problem alone. With the exception

of designated national security events like the Olympics or the

Superbowl where Federal assets are likely to be prestaged and

ready to respond, the response times of Federal assets may be extended. Local responders must be equipped and prepared to deal

with at least the first several hours, if not the first 24 hours of a

terrorist attack.

Third, special efforts and attention need to be devoted to high

threat areas. We know that terrorists are more likely to select symbolic targets, including high profile Government facilities, and we

believe special efforts should be devoted to ensuring that departments in and around high-threat targets have the information and

resources they need to respond effectively. Many of these targets

are Federal facilities or where Federal Government has public safety responsibilities, such as foreign embassies.

Lastly, our department stresses the application of the daily routine doctrine to our domestic preparedness plans and our overall

operations. The daily routine doctrine is a common sense theory in

emergency planning that espouses the idea that what you do regularly you do well. It argues that training and techniques and equipment required to mitigate large emergencies must be part of daily

fire, rescue, and emergency medical services, if these incidents are

to be managed effectively. If we integrate terrorism preparedness

into everyday training and equipment needs, we are most likely to

succeed when the next terrorist attack occurs.

Now, one program that is already in existence that is helping to

meet the mandate of the daily routine doctrine is the Assistance to

Firefighters grant program. This program is using Federal dollars

to bolster the Nation’s fire and rescue systems.

The good news about the Assistance to Firefighters grant program is that it gave out almost $100 million to improve basic fire

and rescue infrastructure in the fiscal year 2001. These improvements will help all types of emergency response whether to a terrorist bombing, an auto collision on an interstate highway, or a

structure fire.
9

The bad news is that slightly more than $2 billion in requests

did not receive funding, and furthermore, emergency medical service preparedness is not currently eligible for grants under this program. Congress authorized up to $900 million for the program each

year through fiscal year 2004, but only $360 million of that authorization has been appropriated for fiscal year 2001. The appropriation should be changed to the full $900 million to include emergency medical services.

We do recommend two changes to the grant program in addition

to funding the full amount.

Grants for terrorism preparedness to fire, rescue, and EMS departments serving large populations, Federal facilities, and specific

target hazards should receive favorable consideration under the

program. In fiscal year 2001, these proposals would not have been

eligible for consideration at all.

And two, emergency medical services are an integral part of the

preparedness puzzle and should be eligible to receive FIRE Act

money. Their role in patient triage, pre-hospital care, decontamination, and incident management at a mass casualty incident should

be plainly evident. They need training and equipment as well.

PREPARED STATEMENT

In summary, we hope that we have provided the committee with

a snapshot of the challenges that we faced in the post-September

11 world. The World Trade Center events certainly demonstrate

that it is possible for terrorists to engineer an incident that even

the world’s largest fire department has difficulty in managing. Nevertheless, we must still strive to be prepared for whatever occurs.

We must enhance our strengths and fix but not inappropriately

focus on our weaknesses. This committee can help by increasing

funding to the Assistance to Firefighters grant program and improving the impact of the program to meet the threats that our

first responders may face today.

Thank you for your time, and I will be available to answer questions.

[The statement follows:]

PREPARED STATEMENT OF PETER H. MORRIS

Good morning, Madam Chairwoman and members of the Committee. I am Assistant Chief Peter Morris of the Bethesda-Chevy Chase Rescue Squad. I would like to

take the opportunity to commend Senator Mikulski and the other members of the

sub-committee for providing the important leadership needed on this critical issue.

Senator Mikulski recently visited our station; the firefighter/rescuers in our department were very impressed with her interest and in-depth knowledge about the fire/

rescue services. We would not be able to do our jobs well without the support of

our elected leaders. We consider the members of this sub-committee to be a vital

part of our team. For Senator Mikulski, the extra time you spent at our station sent

a strong message to our members that you and your colleagues are committed to

finding practical solutions that help our service and ultimately the community. We

thank you for that.

B–CC Rescue Squad is located in Montgomery County, Maryland. Our department

provides 24-hour fire, rescue, and emergency medical services to a suburban-urban

area of southern Montgomery County, MD and portions of northwest Washington,

DC. The Bethesda-Chevy Chase Rescue Squad is unusual in that it provides fire,

rescue, and emergency medical service without the benefit of tax funds from Montgomery County or the District of Columbia. All our services are free. Although we

are part of the Montgomery County Fire and Rescue Service, all funds for capital

improvement and operations are raised primarily through individual contributions
10

and foundation grants. We are a vibrant, successful volunteer organization that defies the myth that volunteer fire and rescue departments can only exist in rural,

low call volume systems. In 2001, Bethesda-Chevy Chase Rescue Squad units responded to 10,957 emergency incidents.

I have been asked to provide a local responder’s view of the terrorism and disaster

preparedness world. It is important to note that while we consider ourselves to be

a local community based fire/rescue department, we do not serve the average community. Our response area is replete with foreign embassies, residences of senior

government officials and other dignitaries, the National Institutes of Health, the

National Naval Medical Center, four Metro stations, and a number of other highprofile government facilities and potential targets for terrorist attacks.

Over the years we have responded to major incidents in neighboring jurisdictions,

including the District of Columbia. We share a close, daily working relationship

with the District of Columbia Fire and Emergency Medical Services Department

(DCF&EMSD), which means that we are one of the first outside resources that are

called upon to assist the District in response to a major disaster. On January 13,

1983, we responded with significant resources when an Air Florida jetliner crashed

into the 14th Street Bridge and, almost simultaneously, a Metro train derailed at

the Federal Triangle station. On September 11th, 2001, our units were first called

to assist in the District, but were sent to the Pentagon once it became clear no targets had been struck in the city. Four of our Medic Units, a special air supply truck

and a B–CC Command Officer were on-scene at the Pentagon and back-filling Arlington County fire stations within the first hour of the attack. Our air supply unit

supported firefighting operations at the Pentagon for the first 24 hours. That same

unit was parked outside of this building for more than a week, supporting the cleanup operations in the Hart Senate Office Building.

One of the most fundamental concepts in determining what first responders need

in order to respond to terrorist attack is an assessment of the threats we may potentially face. The problem that emergency managers face is weighing the value of protecting against a generic threat of a terrorist attack versus preparing to respond to

actual known emergencies such as heart attacks, auto collisions, and structure fires

which occur every day. Our challenge is to balance these competing needs in

crafting an overall strategy for our operations, the community we serve, and our

neighboring jurisdictions.

Our experience responding to major incidents over the past several decades and

our recent experience in responding to the September 11 attack on the Pentagon has

taught us four major lessons.

First, all of these incidents reaffirm the critical role of local fire, rescue, EMS and

police departments. Local governments including their fire, rescue, emergency medical service, law enforcement and public health departments are the Nation’s primary defense when a terrorist attack occurs. Local fire and rescue services are the

only agencies that can respond within minutes and save lives while there is still

time. They must be equipped to provide initial response, immediate rescue and

treatment, and scene stabilization capabilities.

Second, The development of Federal assets such as various FEMA units, including

Urban Search & Rescue (USAR) teams, the Metropolitan Medical Response System,

and Civil Support Teams are good, but cannot solve the terrorism response problem

alone. With the exception of designated National Security events like the Olympics

and the Superbowl, where Federal assets are likely to be pre-staged and ready to

respond, the response times of Federal assets may be extended. Local responders

must be equipped and prepared to deal with at least the first several hours—if not

the first 24 hours of a terrorist attack.

Third, special efforts and attention need to be devoted to high threat areas. We

know that terrorists are more likely to select symbolic targets, including high-profile

government facilities. We believe special efforts should be devoted to ensuring that

departments in and around high-threat targets have the information and resources

they need to respond effectively. Many of these targets are Federal facilities, or

where the Federal government has public safety responsibilities, such as foreign embassies.

Lastly, our department stresses the application of the ‘‘Daily Routine Doctrine’’ to

our Domestic Preparedness plans and our overall operations. The ‘‘Daily Routine

Doctrine’’ is a common sense theory in emergency planning that espouses the idea

that ‘‘what you do regularly—you do well.’’ It argues that training, techniques, and

equipment required to mitigate large emergencies must be part of daily fire, rescue

and emergency medical services operations, if these incidents are to be managed effectively. Restated, if we integrate terrorism preparedness into everyday training

and equipment needs, we are most likely to succeed when the next terrorist incident

occurs.
11

One program already in existence that is helping to meet the mandate of the

Daily Routine Doctrine is the Assistance to Firefighter’s Grant Program. This program is using Federal dollars to bolster the Nation’s fire and rescue systems.

The good news about the Assistance to Firefighter’s Grant Program is that it gave

out almost $100 million to improve basic fire and rescue infrastructure in fiscal year

2001. These improvements will help all types of emergency response whether to a

terrorist bombing, auto collision on an interstate highway, or a structure fire.

The bad news is that slightly more than $2 billion in requests did not receive

funding. Furthermore, Emergency Medical Services (EMS) preparedness is not currently eligible for grants under this program. Congress authorized up to $900 million for the program each year through fiscal year 2004, but only $360 million of

that authorization has been appropriated for fiscal year 2002. The appropriation

should be changed to the full $900 million and should include Emergency Medical

Services. Departments need this money now to meet the increased demands being

placed on them.

We support and encourage strengthening the Peer Review Panel process that was

used to select grant awards. This process performed extremely well given the tight

timelines and constraints that were mandated. This method of allocation provided

an excellent evaluation of the grant proposals with a quick turn-around time on the

funds. Also important is that these grants were awarded directly to fire departments with very little indirect costs used for administration. This direct method of

awarding these grants with low administrative costs is fantastic and should be congratulated and continued.

We do recommend two changes to the Assistance to Firefighter’s Grant Program

in addition to funding the full $900 million:

—Grants for terrorism preparedness to fire, rescue, and EMS departments serving

areas with large populations, Federal facilities, specific target hazards or other

demonstrated needs should receive favorable consideration under the Assistance

to Firefighter’s Grant Program. In fiscal year 2001, these proposals would not

have been eligible for consideration at all.

—Emergency Medical Services are an integral piece of the preparedness puzzle

and should be eligible to receive Fire Act money. Their role in patient triage,

pre-hospital care, decontamination, and incident management at a mass casualty incident should be plainly evident. They need training and equipment as

well.

In summary, we hope we have provided the Committee with a snap shot of some

the challenges we face in the post-September 11th world. The World Trade Center

events certainly demonstrate that it is possible for terrorists to engineer an incident

that even the World’s largest fire department has difficulty in managing.

Nevertheless, we must still strive to be prepared for whatever occurs. We must

enhance our strengths and, fix, but not inappropriately focus on, our weaknesses.

This Committee can help by increasing funding to the Assistant to Firefighters

Grant Program and improving the impact of the program to meet the threats that

our first responders may face today.

Thank you for your time, and I will be available to answer any questions you may

have.

Senator MIKULSKI. Excellent. Thank you very much for that detailed and compelling testimony.

Chief Paulsell?

STATEMENT OF STEPHEN D. PAULSELL, CHIEF, BOONE COUNTY FIRE

PROTECTION DISTRICT AND SPONSORING AGENCY CHIEF, MISSOURI TASK FORCE 1

Mr. PAULSELL. Thank you. Good morning, Madam Chair and

members of the committee. Thank you for the opportunity to speak

with you this morning.

In the interest of the 10-minute rule, I will be presenting an abbreviated text, and the full text and supporting documents are

being provided to you.

Before I begin my comments, I would like to take this opportunity on behalf of our task force and all Missourians to thank my

good friend, Senator Kit Bond, for his tireless efforts in assisting

our organization as we work to achieve our designation as a Fed-
12

eral task force. His enthusiastic efforts here, coupled with the perseverance of our people back home, have produced a resource that

our entire State has become very proud of. Senator, we thank you

very much.

On September 11, as the world watched in horror as the events

of that morning unfolded, over 100 Missourians quickly moved methodically in preparation for an activation to a disaster site, as did

other task forces throughout the country. Members of Missouri

Task Force 1, 1 of 28 FEMA urban search and rescue task forces,

knew that they would be activated. Over 76,000 pounds of equipment, 62 highly trained search and rescue specialists and 4 search

canines were ready for assignment. Work schedules were cleared.

Family commitments were deferred. Baseline medical exams were

conducted, and equipment was loaded. This was to be our first Federal mission, an incredible first test.

By the afternoon of September 12th, Missouri Task Force 1 was

in lower Manhattan working side by side seven other FEMA task

forces and the incredible firefighters of New York City.

During the course of the consequence management following the

attacks at the Trade Center and the Pentagon, 25 of the 28 task

forces were deployed over a 3-week period. Clearly these men and

women performed admirably under incredibly difficult, dangerous,

and challenging conditions. While the personal tragedies seemed

endless, the FEMA urban search and rescue family also suffered

great personal tragedy with the loss of many members of New York

City’s task force, and specifically FDNY Special Operations Chief

Ray Downey who, in addition to being the godfather of our system,

was a very special friend and mentor to all of us. Ray gave so much

to this program. He believed in it. He lived it. He designed it. He

dedicated his life to it. He died in the lobby of the second tower

doing what he had always done: saving people.

On behalf of some 5,200 search and rescue specialists across this

great country who gallantly serve in the FEMA urban search and

rescue system, I come before you today in his memory with our

thoughts, our recommendations, our frustrations, and our intense

and unyielding desire to make this system the system that Ray always dreamed it should be.

Our world, as we know it, has changed. Those of us in the urban

search and rescue business clearly understand that and quite

frankly knew that long before September 11. We are clearly on the

front line of the Federal Government’s response to not only natural

disasters but to acts of terrorism as well.

I feel it is very important to ensure that the uniqueness of this

program is made clear here today. The Federal Government has at

its immediate disposal 28 heavy search and rescue units unmatched anywhere in this world today. They are quietly domiciled

in 28 different communities across this country and staffed by rescue workers serving in their local fire departments every day. They

train, they prepare, they maintain equipment, and they make

themselves available on 6 hours’ notice to go anywhere in the country. Yet, they are not on the Federal payroll.

When activated, a 62-member team goes out the door. They carry

fiber optic search cameras, concrete cutting chain saws, and an

emergency room. They are self-sustaining for 72 hours and carry
13

everything they need, including the kitchen sink. Most of all, what

they bring to an event is an incredible level of expertise and an insatiable desire to help. These people are the absolute best at what

they do.

Dollar for dollar, pound for pound, not only is this partnership

between the Federal Government and local governments an incredible value, it inserts the local response mentality into the Federal

system. These task forces have become the Federal Government’s

rapid reaction force, the domestic Marines, if you will, who if given

sufficient resources, can establish an early disaster beachhead and

commence operations much sooner than other tactical Federal

units. We are the civilian equivalent to the military special operations force. Our people are trained in all relative national standards in rescue, emergency medicine, hazardous materials, and

emergency incident management. It does not take us 48 hours to

activate. These teams are multifaceted, mobile, self-contained, and

capable of interfacing with local incident commanders and clearly

understand how to move fast in a crisis when time is so very critical.

We, along with first responders across this great country, now

find ourselves on the front lines of homeland defense in this new

and expanding era of terrorism. This was again clearly validated

on September 11.

As Congress moves forward on issues funding relative to homeland defense, response to terrorism, and a plethora of other funding

initiatives, we come before you to simply ask that consideration be

given to the following concerns regarding an existing and invaluable program. We have stood on the sidelines for years as we

watched billions of dollars pass by us. We believe this is our moment.

Obviously the equipment operated by these task forces is very

critical. Since the inception of the program in the early 1990’s, the

task forces have yet to become fully equipped. Using the meager

annual Federal grant of $150,000 per year to support training exercises, maintain equipment, and provide protective safety equipment

for personnel, the task forces have been unable to expand their

equipment cache. In fact, the annual grants are not nearly sufficient for us to even maintain our individual systems, let alone enhance them. It is a travesty that, for over a decade now, the Federal Government has not yet fully equipped its own elite search

and rescue teams.

We are very worried about our inability to effect search and rescue operations in an environment contaminated by weapons of

mass destruction. We must immediately equip these task forces

with the appropriate protections so that we may operate in a dirty

bomb environment.

Additionally, as the Federal Government’s rapid reaction force,

this increased capability will enable us to more quickly assist a

local government in dealing with a direct act of chemical or biological terrorism.

Each task force maintains a roster strength of 186 personnel.

They give of their time and their talents to this effort by constantly

training and preparing the equipment. Task forces incur overtime
14

expenses, insurance expenses, training expenses, and protective

clothing expenses for our personnel.

Additionally, the task forces incur equipment maintenance, repair, and replacement expenses. Many of the pharmaceutical and

logistical supplies have shelf lives and must be replaced periodically. Some of the equipment is now in excess of 10 years old. In

addition to maintenance issues surrounding parts availability,

there is always increased technological advances we are financially

unable to take advantage of.

In short, the annual funding is embarrassingly inadequate for

the type of service we are expected to provide. Would you feel comfortable hanging from a 15-story building on a 10-year-old rope?

This program is one of the most cost effective programs in the

Federal system and is at the tip of the spear in the Federal Government’s response to a disaster. And yet, we attempt to operate

it on a shoestring. With each passing day, we get farther behind

in equipment currency and dependability, we miss training opportunities, task force managers spend more time and energy defending their local support of the program to their local bean counters,

and the tip of the spear continues to dull. We must provide appropriate annual grant funding to these units to ensure their viability,

availability, and dependability.

We are required to be on the tarmac within 6 hours of activation

and await military airlift. Ground transportation requires two tractor-trailers and a bus. Most task forces must rely on rental agreements for trucks and buses upon activation. Valuable time is lost

acquiring and loading vehicles.

We are also very concerned about the ongoing availability of military airlift as we continue to support the war on terrorism. In a

search and rescue environment, obviously response time is critical.

Sufficient grant funding should also be provided annually to ensure

that these task forces are preloaded on reliable ground transportation assets and can respond immediately upon activation.

Your Federal task forces are domiciled in local fire departments,

fire departments that day in and day out take care of people immediately. We make tactical decisions in seconds and policy decisions

within minutes, a concept seemingly foreign here in D.C. The sluggishness in the bureaucracy that we continually deal with is the

most frustrating and puzzling thing any of us have ever experienced.

We are constantly amazed at how many people have to review

the simplest of documents and seemingly it takes a minimum of a

month for each. We constantly seek direction and support, yet we

continually seem to find ourselves in a quagmire of in and out

boxes, OMB audits, general counsel reviews, rulemaking, canceled

meetings, and the never-ending pursuit of a decision maker. This

is not a new problem. It has existed for years.

The significance of this program has been proven. The dedication

of 5,200 search and rescue specialists is unmatched. In this regard,

we simply ask that the proper direction and resources be given to

FEMA to ensure that the proper priority, program emphasis, and

attention be given the program to ensure its responsiveness to the

agencies that participate in the program and this country.
15

In conclusion, I would like to thank you for your time and attention. It is indeed an honor and a privilege to be here with you. As

we sit here this morning, I know that there are 5,200 highly dedicated and skilled rescue workers around this country valiantly

waiting to step into harm’s way if needed. Know also that those

same 5,200 are energized with optimism in light of our discussions

here this morning. They have spent years persevering with meager

resources and yet their spirit is unwavering. I also thank you on

their behalf.

PREPARED STATEMENT

We are simply asking, particularly in light of current and anticipated future threats, that the FEMA urban search and rescue program be supported properly and fully. It is an incredible and very

unique resource unmatched anyplace in the Federal response system. Our criticality to our Nation’s response to terrorism in the future will be immense. We simply want to perform to our fullest potential. In our business, there is no room for mediocrity.

Thank you very much.

[The statement follows:]

PREPARED STATEMENT OF STEPHEN D. PAULSELL

Good Morning. Madam Chair and members of the committee, thank you for the

opportunity to speak with you this morning.

My name is Steve Paulsell. I serve as Fire Chief of the Boone County, Missouri

Fire Protection District and also have the distinct honor of serving as the sponsoring

agency chief for Missouri Task Force 1, one of your 28 FEMA Urban Search and

Rescue Task Forces.

Before I begin my comments, I would like to take this opportunity, on behalf of

our task force and all Missourians, to thank my good friend, Senator Kit Bond, for

his tireless efforts in assisting our organization as we worked to achieve our designation as a Federal task force. His enthusiastic efforts here, coupled with the perseverance of our people back home, have produced a resource that our entire State

has become very proud of. Senator, we thank you very much.

On September 11, as the world watched in horror as the events of that morning

unfolded, over one hundred Missourians moved quickly and methodically in preparation for an activation to a disaster site, as did the other task forces throughout

the system. Members of Missouri Task Force 1, one of 28 FEMA Urban Search and

Rescue Task Forces knew that they would be activated. Over 76,000 pounds of

equipment, 62 highly trained search and rescue specialists and 4 search canines

were readied for assignment. Work schedules were cleared, family commitments

were deferred, baseline medical exams were conducted and equipment was loaded.

This was to be our first Federal mission—an incredible first test.

Within four hours, the official activation orders were received. Under our agreement with FEMA, we were to be on the tarmac at Whiteman Air Force Base within

six hours of our activation. Our people and equipment cleared security and were

loaded on 3 Air Guard C–130’s which would take them to McGuire Air Force Base

in New Jersey. Upon their arrival at McGuire, they were billeted for a few hours

for some badly needed sleep. During the night, they were joined by three of our fellow task forces from California.

Shortly after noon on September 12th, the first four task forces to arrive by air

were transported via escorted convoy into Manhattan where they established their

base of operations at the Javits Convention Center, joining four other Federal task

forces that had previously arrived by ground transportation—Pennsylvania, Ohio,

Massachusetts and Indiana. By that evening, they were on assignment at Ground

Zero at the World Trade Center and, for they next ten days, worked around the

clock, side by side with seven other FEMA task forces and the incredible firefighters

of New York City.

During the course of consequence management following the attacks at the Trade

Center and Pentagon, 25 of the 28 task forces were deployed over a three-week period. Clearly, these men and women performed admirably under incredibly difficult,

dangerous and challenging conditions. While the personal tragedies seem endless,
16

the FEMA Urban Search and Rescue family also suffered great personal tragedy

with the loss of many members of New York City’s task force and, specifically,

FDNY Special Operations Chief Ray Downey who, in addition to being the godfather

of our system, was a very special friend and mentor to all of us. Ray gave so much

to this program. He believed in it. He lived it. He designed it. He dedicated his life

to it. He died in the lobby of the second tower, doing what he had always done—

saving people. On behalf of some 5,200 search and rescue specialists across this

great country who gallantly serve in the FEMA Urban Search and Rescue System,

I come before you today, in his memory, with our thoughts, our recommendations,

our frustrations and our intense and unyielding desire to make this system what

Ray always dreamed it should be.

FEMA’s Urban Search and Rescue System was conceived in the early 1990’s. It

was born of a growing concern for local and State governments’ inability to deal

with the collapse of steel and reinforced concrete buildings in, primarily, earthquake

events. Through cooperative partnerships with 28 local fire departments, FEMA has

developed a national rescue response system and integrated it into the Federal Response Plan. While the system has been activated for hurricanes, tornadoes and

earthquakes, its most notable missions have been to the Oklahoma City bombing

and, of course the Pentagon and World Trade Center.

Funding has been meager, at best. Early Federal grant funding was approximately $80,000 annually. In 1997, Senator Bond was instrumental in increasing the

annual allocation and, today, each task force receives $150,000 annually. Additional

funding for some equipment acquisition has been provided during disasters through

the Stafford Act. Unfortunately, not all task forces have been able to take advantage

of that. It is also very important to point out that a great deal of the operating expenses of these task forces to insure their readiness has been absorbed by the sponsoring agencies.

Our world, as we all know, has changed. Those of us in the urban search and rescue business clearly understand that and, quite frankly, knew that long before September 11. A process, although very minimal, had already been undertaken to bring

6 of the 28 task forces to a level of capability, which will enable them to function

in an environment contaminated by chemical, biological or nuclear agents—Weapons of Mass Destruction. This has been done in anticipation of next week’s Olympic

games in Salt Lake City.

We are, clearly, on the front line of the Federal government’s response to, not only

natural disasters but to acts of terrorism, as well.

I feel it very important to insure that the uniqueness of this program is made

clear here today. The Federal government has, at its immediate disposal, 28 heavy

search and rescue units unmatched anywhere in this world today. They are quietly

domiciled in 28 different communities across this country and staffed by rescue

workers serving in their local fire departments everyday. They train, they prepare,

they maintain equipment and they make themselves available on six hours notice

to go anywhere in the country yet, they are not on the Federal payroll.

When activated, a 62 member team goes out the door with rescue specialists, technical and canine search specialists, physicians, structural engineers, communications specialists, hazardous materials technicians, paramedics and nurses, heavy

equipment operators, safety specialists, logisticians and incident management personnel. They carry fiber optic search cameras and concrete cutting chain saws. They

are self-sustaining for 72 hours and carry everything they need including the kitchen sink. Most of all, what they bring to the event is an incredible level of expertise

and an insatiable desire to help. These people are the absolute best at what they

do.

Dollar for dollar—pound for pound, not only is this partnership between the Federal government and local governments an incredible value, it inserts that local response mentality into the Federal system. These task forces have become the Federal government’s rapid reaction force—the domestic marines, if you will, who, if

given sufficient resources, can establish an early disaster beachhead and commence

operations much sooner than other tactical Federal units. We are the civilian equivalent to the military special operations forces. Our people are trained to all relative

national standards in rescue, emergency medicine, hazardous materials and emergency incident management. It does not take us 48 hours to activate. These teams

are multi-faceted, mobile, self-contained, and capable of interfacing with local incident commanders and clearly understand how to move fast in a crisis when time

is so very critical. Most importantly, however, these units are highly flexible and

readily adaptable.

I come before you today on behalf of the men and women who comprise this system. My comments stem from discussions with task force leaders and sponsoring
17

agency chiefs and, they come from our intense desire to make this system right—

the way Ray Downey wanted it.

We, along with first responders across this great country, now find ourselves on

the front lines of homeland defense in this new and expanding era of terrorism. This

was, again, clearly validated on September 11.

As Congress moves forward on issues funding relative to Homeland Defense, response to terrorism and a plethora of other funding initiatives, we come before you

to simply ask that consideration be given to the following concerns regarding an existing and invaluable program. We have stood on the sidelines for years as we

watched billions of dollars pass by us. We believe this is our moment.

TASK FORCE EQUIPMENT CACHES

There is an urgent need to completely equip the 28 FEMA Urban Search and Rescue Task Forces with basic compliment of equipment prescribed by FEMA.

Obviously, the equipment operated by these task forces is very critical. They deploy with approximately 80,000 lbs. of search, rescue and support equipment. A full

compliment or cache of equipment is valued at $1.8M. Since the inception of the program in the early 1990’s, the task forces have yet to become fully equipped. Using

the meager annual Federal grant of $150,000 per year to support training exercises,

maintain equipment and provide protective safety equipment for personnel, the task

forces have been unable to expand their equipment cache. In fact, the annual grants

are not nearly sufficient for us to even maintain our individual systems, let alone

enhance them.

We must complete these equipment caches. It is a travesty that, for over a decade

now, the Federal government has not yet fully equipped its own elite search and

rescue teams.

An immediate allocation of $10M is necessary to meet this need.

WEAPONS OF MASS DESTRUCTION PROTECTION FOR TASK FORCES

All FEMA US&R Task Forces must be capable of operating in an environment

contaminated by Weapons of Mass Destruction.

We hear a great deal, these days, about weapons of mass destruction. We are also

hearing growing and, in our opinion, very real concern over dirty bomb scenarios.

A dirty bomb is a device in which a conventional explosive device is laced with a

chemical, biological or nuclear agent. Our task forces will be called upon to effect

search and rescue activities in a collapse environment. We MUST be capable of providing agent identification and personal protection for our people while engaged in

a search and rescue mission.

Each task force carries a small complement of hazardous materials mitigation

equipment. This equipment is designed to assist us in minimal protection of our personnel, should a hazardous substance be encountered in a conventional building collapse but it is not sufficient to meet the demands that will be created by a dirty

bomb.

Additionally, as the Federal government’s rapid response force, this increased capability will enable us to more quickly assist a local government in dealing with a

direct act of chemical or biological terrorism.

Six of the 28 teams, as a result of the Salt Lake Olympics, have been trained and

equipped to this level.

I would be remiss if I did not take this opportunity to express another concern

relative to this entire WMD issue. The Federal government has vested significant

funds in the Department of Defense in recent years to enhance chemical, biological

and nuclear defense capabilities. In our estimation, those programs, particularly

now at a time of international crisis, are not positioned, nor always readily available, to provide the homeland defense service they were originally designed for. We

strongly suggest that the entire Federal response plan for domestic WMD events be

reevaluated prior to further funding or expansion with strong consideration being

given to the responsibilities and capabilities of first responders.

An immediate allocation of $31.6M will provide appropriate equipment and training.

PROPERLY FUND ANNUAL GRANT PROGRAM FOR TASK FORCES

Adequate annual grant funding must be provided to the task forces to insure they

are capable of operating at maximum effectiveness. Present funding is terribly inadequate.

Each task force maintains a roster strength of 186 personnel. They give of their

time and talents to this effort by constantly training and preparing the equipment.
18

Task forces incur overtime expenses, insurance expenses, training expenses and protective clothing expenses for our personnel.

Additionally, the task forces incur equipment maintenance, repair, and replacement expenses. Many of the pharmaceutical and logistical supplies have shelf lives

and must be replaced periodically. Some of the equipment is now in excess of ten

years old. In addition to maintenance issues surrounding parts availability, there

is always increased technological advances we are, financially, unable to take advantage of.

In short, the annual funding is embarrassingly inadequate for the type of service

we are expected to provide. Would you feel comfortable hanging from a 15 story

building on a ten year old rope?

This program is one of the most cost effective programs in the Federal system and

is at the tip of the spear in the Federal government’s response to a disaster. And

yet, we attempt to operate it on a shoestring. With each passing day, we get farther

behind in equipment currency and dependability, we miss training opportunities,

task force managers spend more time and energy defending their local support of

the program to their local bean counters and the tip of the spear continues to dull.

We must provide appropriate annual grant funding to these units to insure their

viability, availability and dependability.

Annual grant needs per task force is $1M.

TASK FORCE TRANSPORTATION

Funding must be provided to enhance the mobility of task forces by ground.

Under the Federal response plan, upon receipt of activation orders from FEMA,

we are required to move 62 members and 80,000 lbs. of equipment very quickly. Our

orders direct us to a point of departure at an Air Force base. We are required to

be on the tarmac within 6 hours of activation and await military airlift. Ground

transportation requires two tractor-trailers and a bus. Air transport then requires

3 C–130s or one C–5A military airframe.

Most task forces must rely on rental agreements for trucks and buses upon activation. Valuable time is lost acquiring and loading trucks.

We are also very concerned about the ongoing availability of military airlift as we

continue to support the war on terrorism. In a search and rescue environment, obviously, response time is critical. Sufficient grant funding should also be provided annually to insure that these task forces are preloaded on reliable ground transportation assets and can respond immediately upon activation. In most areas of our

country, several task forces could arrive on site by ground long before airlift arrives.

Annual system cost: $4M

TASK FORCE SYSTEM EXPANSION

Following catastrophic events as were experienced on September 11, there is predictable discussion regarding additional task forces. Should an expansion be warranted, the most cost effective approach is to enhance the task forces.

There is always discussion following events like Oklahoma City and September

11 regarding the possible expansion of the FEMA US&R system to include additional teams. Several important points must be made in this regard.

First, the existing 28 task forces, in our opinion, are under utilized. This poses

training and proficiency challenges. A further dilution of the system would have catastrophic effects on the existing task forces. Even in the aftermath of September 11,

two of the existing task forces were not used.

Second, should there be a desire to expand the program, based on sound threat

assessment, the acquisition of additional caches for the existing task forces would

double the Federal capacity without incurring additional personnel or training expenses. Specifically, we are staffed and trained three deep in each position to insure

immediate deployment capability. Sixty two go and 124 stay home. Within the first

24–36 hours each of our task forces could easily field another 62-member trained

team. All we lack are the additional equipment caches. In other words, for an additional $50.4M, we could double the system capacity utilizing existing trained personnel.

INTERNATIONAL RESPONSE OF ADDITIONAL TASK FORCES

With a growing threat to our interests abroad, an expansion of our international

response system is warranted. Presently, only two of our 28 task forces are prepared

and authorized for overseas deployment.

As we move to enhance our homeland defenses, the vulnerability of our facilities

and those of our allies abroad will increase.
19

Presently, two of the 28 task forces are equipped and maintain agreements with

the Office of Foreign Disaster Assistance within the State Department to respond

outside the United States. We do not believe this is adequate and immediate steps

should be taken to facilitate the overseas deployment of any of the task forces

should they be needed on foreign soil.

This will involve the acquisition of additional logistical supplies, provision for

passport acquisition, immunizations and an adjustment in the State Department’s

philosophy regarding the need for additional teams for international deployment.

TASK FORCE SYSTEM ENHANCEMENTS

FEMA’s Incident Support Teams are vital to US&R missions. Additionally, task

force readiness evaluations are essential to maintaining optimum capability. Both

programs require additional support.

Upon deployment of Urban Search and Rescue assets, FEMA deploys Incident

Support Teams (ISTs) to interface with the local jurisdiction and provide management and coordination of task force resources. This is a very vital function and

maximizes the utilization and efficiency of the task forces in addition to facilitating

a cooperative effort in the local/Federal interface.

An increase in funding is necessary to insure that appropriate and timely task

force readiness evaluations can be effected. It is critical that this quality assurance

system is maintained and conducted. The present system is only capable of conducting one or two evaluations per year. The annual cost for IST support and readiness evaluations is $5M.

PROGRAM ADMINISTRATION AND SUPPORT

Historically, the task forces have experienced significant frustrations with the

Federal bureaucracy. In light of immediate and expanding threats and the need for

a system that is responsive to changing threats, additional support and program

emphasis is required at FEMA.

Your Federal task forces are domiciled in local fire departments—fire departments

that day in and day out take care of people—immediately. We make tactical decisions in seconds and policy decisions within minutes—a concept seemingly foreign

here in D.C. The sluggishness and the bureaucracy that we continually deal with

is the most frustrating and puzzling thing any of us have ever experienced.

We are constantly amazed at how many people have to review the simplest of documents and, seemingly, it takes a minimum of a month for each. We constantly seek

direction and support yet we continually seem to find ourselves in quagmire of in

and out boxes, OMB audits, General Counsel reviews, rulemaking, cancelled meetings and the never ending pursuit of a decision maker. This is not a new problem.

It has existed for years.

We ask that program staff be empowered to provide direction and we be allowed

to operate a responsive program capable of saving lives. It is our mindset—it is the

way we do business. While we are sure that FEMA’s urban search and rescue program is woefully understaffed, we also believe that it has more to do with the mentality and, perhaps, the conflict between two drastically different delivery cultures.

Particularly in this time of uncertainty, we must be able to adjust quickly to meet

changing needs.

We realize that the Federal government, clearly, must do business differently

than we do at the local level but we also propose that, particularly in light of the

criticality of our mission that some direction be given to this program to streamline

its ability to do business. Specialized rescue course development takes two years,

policy and procedures never get completed and rulemaking to develop more equitable MOA’s seems to get stalled someplace for up to three years—we can’t even

find it.

The significance of this program has been proven. The dedication of 5,200 search

and rescue specialists is unmatched. In this regard, we simply ask that the proper

direction and resources be given to FEMA to insure that the proper priority, program emphasis and attention be given the program to insure its responsiveness to

agencies that participate in the system.

CONCLUSION

In conclusion, I would like to thank you for your time and attention. It is indeed

an honor and a privilege to be here and know that this type of interest exists for

your Federal urban search and rescue program. As we sit here this morning, know

that there are 5,200 highly dedicated and skilled rescue workers around this country valiantly waiting to step into harm’s way, if needed. Know also that those same

5,200 are energized with optimism in light of our discussions here this morning.
20

They have spent years persevering with meager resources and yet, their spirit is

unwavering. I also thank you on their behalf.

We are simply asking, particularly in light of current and anticipated future

threats, that the FEMA Urban Search and Rescue Program be supported properly

and fully. It is an incredible and very unique resource unmatched anyplace in the

world. Our criticality to our Nation’s response to terrorism in the future will be immense. We simply want to perform to our fullest potential. In our business, there

is no room for mediocrity.

Thank You.

SUPPORTING DOCUMENTATION

NATIONAL URBAN SEARCH AND RESCUE RESPONSE SYSTEM

The National Urban Search and Rescue (US&R) Response System, established

under the authority of the Federal Emergency Management Agency (FEMA) in 1989

is a framework for structuring local emergency services personnel into integrated

disaster response task forces.

These task forces, complete with necessary tools and equipment, and required

skills and techniques, can be deployed by FEMA for the rescue of victims of structural collapse.

ABOUT US&R

Urban search-and-rescue (US&R) involves the location, rescue (extrication), and

initial medical stabilization of victims trapped in confined spaces. Structural collapse is most often the cause of victims being trapped, but victims may also be

trapped in transportation accidents, mines and collapsed trenches.

Urban search-and-rescue is considered a ‘‘multi-hazard’’ discipline, as it may be

needed for a variety of emergencies or disasters, including earthquakes, hurricanes,

typhoons, storms and tornadoes, floods, dam failures, technological accidents, terrorist activities, and hazardous materials releases. The events may be slow in developing, as in the case of hurricanes, or sudden, as in the case of earthquakes.

INCIDENT SUPPORT TEAM

The Incident Support Teams supports the US&R Task Forces in accomplishing

their mission through logistical, electronic and coordination expertise.

FEMA TASK FORCE TOOLS AND EQUIPMENT

The equipment cache used to support a task force weighs nearly 60,000 pounds

and is worth about $1.4 million. Add the task force members to the cache and you

can completely fill a military C–141 transport or two C130’s.

Logistics specialists handle the more than 16,400 pieces of equipment needed to

support the task force. To ensure rapid response and to avoid burdening the already
21

suffering community more, the task force equipment cache must be a mobile emergency room, construction site, communications center, high-tech engineering firm

and camp rolled into one.

The equipment cache allows the task force to be totally self-sufficient for up to

four days.

The equipment cache consists of five types of equipment: medical, rescue, communications, technical support and logistics.

Medical supplies include various medicines, intravenous fluids, blankets, suture

sets, airways, tracheal tubes, defibrillators, burn treatment supplies, bone saws and

scalpels.

The search component of the equipment is a lot like the equipment at a normal

construction site. Common building supplies such as concrete saws, jackhammers,

drills, lumber and rope are used to safely and slowly remove victims from the rubble.

The communications section allows rescuers to stay in contact in case of a find

or an evacuation. Generators, lights, radios, cellular phones, laptop computers and

other electronics equipment are used.

More than 500 items make up the technical support cache, the most high-tech of

all the equipment. Snake-like cameras and fiber optic scopes are used to locate victims trapped in rubble. Sensitive listening devices that can detect even the slightest

human sound locate victims who are still alive.

The logistics section cares for the needs of the rescuers as they work in 12-hour

shifts around the clock. Supplies include sleeping bags, cots, food and water, as well

as cold weather gear.
22

URBAN SEARCH AND RESCUE: COMMONLY ASKED QUESTIONS

Washington, D.C., September 18, 2001—The terrorist attacks on the World Trade

Center and the Pentagon have thrust FEMA’s Urban Search and Rescue (US&R)

teams—and rescue teams in general—into the spotlight. Their important work has

transfixed a world, brought a surge of gratitude and support, and raised many questions. Below are some answers to questions being asked about US&R and the rescue

efforts.

What is FEMA’s National US&R response system?

This system is a framework for structuring local emergency personnel into integrated disaster response task forces. These task forces, complete with necessary

tools and equipment, and specialized training and skills, are deployed by FEMA in

times of catastrophic structural collapse.

How many FEMA US&R teams are there?

There are 28 teams: one from Arizona; eight from California; one from Colorado;

two from Florida; two from Virginia, and one each from Indiana, Maryland, Massachusetts, Missouri, Nebraska, Nevada, New Mexico, New York, Ohio, Pennsylvania,

Tennessee, Texas, Utah and Washington State.

How are FEMA US&R teams different from other search and rescue teams?

FEMA teams organize existing search and rescue capability into a national program that can quickly deploy to an event. They have additional training, and must

be able to deploy within six hours and to sustain themselves for 72 hours. They

must also have a roster that fills 31 different positions with at least two people for

each position. To receive the FEMA certification, the team must be approved by a

US&R oversight board that includes leaders in the field and FEMA officials. One

of the difficulties in obtaining the certification is being able to staff a complete roster of at least 62 trained individuals.

What kind of positions make up the 31 in each team?

First, all team members are trained and certified emergency medical technicians.

Then positions fall into roughly four categories: search and rescue; medical; technical and logistics. The search and rescue positions include engineers with expertise

in shoring up, bracing, evaluating, breaching and lifting structural components, rescue specialists, and search specialists who use trained and credentialed search dogs,

cameras and listening devices. The medical positions include physicians, EMTs,

nurses and others who can set up and staff a mobile field hospital. Technical positions include hazard materials specialists and communications specialists, among

others.
23

What are the first steps the teams take when they arrive at a site?

The FEMA US&R team meets with the field incident commander—the local firefighter or emergency specialist who is in charge of the site. After a general situation

update and briefing, some team members set up a base of operations at the site,

including tents, equipment and a stage area. Meanwhile, search and rescue specialists and structural engineers inspect the site. They look for major problem areas,

likely areas to search, the condition of the collapse and hazardous materials. Also

at this time, logistics team members are contacting local vendors to obtain heavy

equipment, shoring materials, food, portable toilets and other supplies.

Then what happens?

The search and rescue specialists being to gently and carefully move into the

structure into areas that are not in imminent danger of collapse to get a better idea

of the damage. They will have looked at blueprints of the building to understand

its layout and will mark areas that need bracing and areas where victims can be

seen. During this preliminary search, if any victim is found alive, the survey halts

and stabilization efforts are concentrated there to get the victim out. After this preliminary search, the detailed search begins with dogs, cameras and listening devices. Medical services are given to any victims who are found alive, so they are

treated while they are being extricated.

What comes next?

Major shoring up is the priority at this point, as additional search is not possible

until the site is safe. Shoring up will take place, often, in many different places on

the site and searches will be conducted simultaneously. As more and deeper parts

of the structure are shored up, the searchers are able to penetrate deeper into the

collapsed structure and are not seen from the outside. The search continues as long

as it’s possible that victims remain alive.

What makes the task so difficult?

Essentially the teams have to ‘‘de-layer’’ the site. Layers of slabs ‘‘pancake’’ on top

of each other during a collapse. Within each layer are potential safe areas for victims. But the site has to be dug out from the top to the bottom and from the outside

to the inside or the pile will collapse further, threatening rescue workers and potentially killing buried, but alive victims.

Is that why rescuers don’t dig from underneath the structure to reach people?

Yes, to do so is impossible without injuring or killing rescuers.

Why do rescuers use ‘‘bucket brigades’’ to remove the debris rather than heavy equipment, such as bulldozers or cranes?

Heavy equipment can’t get close enough to the core of the site. The equipment

is blocked by twisted steel and slabs, at a minimum. Plus using heavy equipment

would destabilize the structure, risking the lives of rescuers and victims buried in

the rubble. Only by hand can the pulverized concrete, glass, furniture and other debris be removed. In a large site, such as the World Trade Center, the bucket brigade

has to span a long way across potentially unstable parts of the structure to firm

ground that can handle large trucks to haul it away. The site itself spans four

square city blocks and seven different collapsed buildings.

In the World Trade Center, for example, what amount of debris are we talking about?

In the first five days after the collapse of the towers, 30,000 tons of debris had

been removed by hand; there are 600,000 tons left.

Do bulldozers or cranes ever help?

Yes, when it is determined that the rescue effort is over and that no one remains

alive in the structure, large equipment can be moved in to remove debris.

Since water is necessary to keep trapped victims alive until they are rescued, why

don’t rescuers shower the site with water in the hopes it will reach them?

Water creates significant problems for rescuers, slowing down the rescue process

and potentially destabilizing the site because of run-off.

How often are the US&R teams rotated?

The teams work 12 hours on and 12 hours off. They may rotate members within

the team—remember each position has at least two members—or they may rotate

complete teams. Typically, no team stays on site for more than seven days before

being rotated out.
24

Since there are so many teams, why are there only eight at the World Trade Center

and four at the Pentagon?

It has to do with space limitations at the site. You can only have so many workers

‘‘attacking’’ the structure at one time before it becomes too dangerous. Also, the

FEMA US&R teams augment the skilled and determined local rescuers as well, so

there are sufficient numbers of rescuers at any time.

What kind of risks do the US&R teams face?

Of greatest concern, of course, is being crushed by a structural collapse. Rescuers

also get cuts and scrapes, broken bones, respiratory injuries due to hazardous material/fumes, dust and carbon monoxide, and burns. They are also susceptible to diseases such diphtheria, tetanus and pneumonia.

How are the teams paid?

When they are activated by FEMA, they are paid by FEMA. Otherwise, they work

their regular jobs.

Who funds their equipment?

FEMA funds the equipment. Each team has about $1.7 million worth of equipment, and team member may each carry as much as 60 pounds of equipment and

protective clothing on their body.

How long will they stay at a site?

Until it is determined that no victims could possibly be alive. In Oklahoma City,

the teams stayed for 15 days.

Does FEMA hire members of the US&R team and how can I apply?

FEMA does not hire team members; FEMA credentials teams that meet the stringent criteria and are approved by the US&R oversight board. The training is extensive and the commitment required is significant.

Senator MIKULSKI. Chief, thank you very much for that outstanding contribution. I feel like I have just listened to the

Schwarzkopf of the firefighting community.

I am ready to organize and mobilize. Your testimony was outstanding, along with Assistant Chief Morris. I can understand why

Senator Bond is so proud of you and the work you do. We are delighted you are part of the panel.

Mr. PAULSELL. Thank you very much. It is an honor to be here.

Senator MIKULSKI. We will come back to you because you have

given us a good blueprint.

Firefighter Olaguer.

We would like to hear from you now. But, before we do, I want

to acknowledge the presence of another outstanding colleague, Senator Larry Craig of Idaho, who comes really from the perspective

of a rural population from very rugged terrain that also faces, in

addition to these new threats we are talking about, the whole

issues around firefighting and forest fires.

So, there has to also be regional sensitivity. As Assistant Chief

Morris mentioned, for those of us who are in the Capital Region,

there is one kind of threat. Missouri, with its very strategic location and knowing the flooding and issues and so on, is another.

Then you have the west that faces other types of firefighting challenges. Yet, we are going to call upon them, as you said, to back

up where others need to be deployed.

So, Senator Craig, we are just delighted that you are here.

Why do you not go ahead?

STATEMENT OF CARLOS OLAGUER, FIREFIGHTER, BALTIMORE CITY

FIRE DEPARTMENT

Mr. OLAGUER. Thank you. Did you have an opportunity to get

this picture here?
25

Senator MIKULSKI. Yes.

Mr. OLAGUER. Okay, thank you. It is a representation of what I

am talking about.

Senator MIKULSKI. You went down in the tunnel. Right?

Mr. OLAGUER. Physically I did not go in the manhole, no. I dealt

with the north end of the tunnel on the third alarm response. My

unit did. And also once the trains were pulled out, we were extinguishing the product and having to remove the product on there.

Senator MIKULSKI. You tell us your story and what you think you

need to.

Mr. OLAGUER. The story is quite compelling.

Madam Chair, members present, and guests, my name is Carlos

Olaguer, and I am a Baltimore City firefighter.

On July 18th of last year, Baltimore City firefighters responded

to a train fire inside the Howard Street Tunnel, a tunnel built in

1895, 1.7 miles long and directly beneath the heart of the city. My

unit, truck company 26, located in the northeast part of the city,

responded on the third alarm to the north entrance of the tunnel

at Mt. Royal Avenue.

Surrounding the north entrance are historic buildings and cultural centers which are a part of many great cities.

Truck 26 was initially dispatched for additional manpower and

rapid intervention and had several minutes to reach the staging

area and prepare for the task at hand. First due fire companies,

anticipating diesel smoke from the train’s engine, had no idea of

the magnitude of the fire. The amount of smoke emanating from

the north end of the tunnel was so thick and toxic that citizens

above the tunnel had to be tended to and cleared from the area.

The next morning, engine 27, also stationed with truck 26,

staged near the south entrance of the tunnel near Camden Yards.

The south end of the tunnel is, once again, 1.7 miles from the north

entrance and almost 5 miles from our own station engine 27 and

truck 26.

Prior to the tunnel fire, seven fire companies were closed in Baltimore City. Six of these seven were closer to the tunnel fire than

engine 27 and truck 26.

Engine 27 was to advance hose lines into the south end and attack the fire from within. The pump operator, stationed above

ground in his wagon, was responsible for maintaining water flow

to the firefighters down below. He would position himself near the

opening of the tunnel to try to maintain radio contact, then retreat

to the engine to make any adjustments needed. He would then return to his listening position. Although many attempts were made,

engine company 27 was unable to reach the train from the south

entrance.

Engine 27 was later repositioned to a manhole opening directly

above the still burning train. Through this opening, firefighters

came in direct contact with the burning train. Each firefighter entering the hole was now being exposed to direct heat and smoke

and whatever chemicals were spewing from the train. Please keep

in mind that the train had been burning for more than 24 hours

at this point.

On the fifth day of the tunnel fire, boxcars were finally removed

from the tunnel and pulled to a remote location near Fort
26

McHenry. Truck 26 was again dispatched along with aerial tower

102 and engine company 14. The task at hand was to forcibly enter

the boxcars and extinguish all contents. The process began on the

day shift and my shift relieved on the scene at 1700 hours, or 5:00

p.m. We were subsequently relieved at 3:00 a.m. and returned to

our own station.

It is important to note that similar operations were being done

at the north end of the tunnel. Trains were taken out of the south

and also on the north end.

Madam Chair, the events I described placed the citizens and firefighters of Baltimore City in great peril. The horrific events of September 11 brought new awareness and respect to our Nation’s firefighters. 9/11 forever changed this country. For firefighters, we will

never forget the heroism of the New York brothers and sisters and

the ultimate sacrifice made by 343 dedicated firefighters who died

saving tens of thousands of lives.

However, it would be a mistake for this committee or anyone else

to frame the needs of the fire service by the events of 9/11. Across

the country in communities large and small, firefighters and paramedics answer the call every day. Whether it is a train derailment

in Baltimore, a raging forest fire in the west, or a vacant warehouse in Worcester, Massachusetts, we respond. We serve and in

all too many cases we die.

The sad irony is that in spite of our sacrifice and dedication, we

are simply not provided with the resources and equipment to do

our job safely and effectively. As municipal and county budgets

tighten, the fire service becomes the unfortunate target of cuts. Our

industry is hemorrhaging and we need your assistance now.

I can only speak to the needs of our Maryland firefighters. Across

the board in every category in which FIRE Act money can provide

revenue, there are deficiencies. In training, equipment, apparatus,

communications, safety and health issues, and staffing, we come up

short.

Training budgets have been slashed to put more firefighters on

the street. As a result, we are not receiving adequate training. The

long-term impact will create a firefighting force that is ill-equipped

to handle emergencies such as the train derailment or a future terrorist attack. More disturbingly, it will impact our ability to handle

more everyday responses such as a normal dwelling fire. Like the

military, training and preparation are key ingredients to a successful operation.

An often forgotten-about component of response capabilities is

communications. The Baltimore train derailment provides an example of the inadequacies of our communications system. Very candidly, firefighters operating inside of the tunnel were completely

out of radio communications with the outside units and command

center except when you got down near the tunnel, if you will. Essentially we were on our own. If you will take a look at the pictures

provided, you must visualize being a half a mile inside a tunnel

with heavy fire, confirmed hazardous and explosive chemicals, and

smoke so thick that you could not see your hand in front of your

face and knowing that no one knows where you are or even if you

are alive or dead.
27

The situation is not unique to this scenario. In many high-rise

and older buildings, we have several sub-basements. I traveled in

one here in Washington this morning. In the hulls of container

ships, and in large industrial complexes, the radios do not always

work. Our safety and the efficiency of the operation are compromised.

Like many other Americans, I have watched recent news accounts stating that firefighters operating inside the twin towers

were out of radio communications with command. I also recall an

article last spring prior to 9/11 detailing problems with the radio

system in New York. I cannot help wonder what if there was a

problem that could have been fixed. Would 343 of my brothers have

died?

Another major problem with respect to firefighter safety is the

lack of personal protective clothing and equipment. As I stated earlier, I drive a ladder truck and function as a firefighter. I am not

a chief officer or a budget person, so I do not know exactly how the

money is gotten or where it goes. I do know that firefighters need

to perform their jobs safely.

Once again, I will use the train derailment as an example.

Firefighters work in flame retardant clothing called turnout or

bunker gear. These garments protect us against extreme heat and

adverse conditions under which we work. In normal fires, they get

completely soaked by water and become very heavy and cumbersome, weighing over 40 pounds. While inconvenient, this is part

of the job.

However, in incidents like the train derailment, firefighters are

on the scene for days at a time. We have only one set of gear. By

industry standards our gear should be decontaminated after exposure to hazardous chemicals. It is not. Firefighters who entered the

tunnel and whose gear was exposed to PCB’s, ammonium, and

other carcinogens were forced to work in the same gear for days on

end. Having a second set of gear would dramatically lessen possible

long-term health hazards and possibly add to a longer life, if you

will.

At least in the Baltimore department, we have adequate self-contained breathing apparatus and pass devices to locate trapped

members. Some departments do not. Technology exists through

thermal imaging to locate and monitor firefighters operating inside

any structure. If all departments had this technology, both firefighter and civilian deaths would be reduced dramatically.

At the end of the day, the most important resource for fire departments is manpower. It takes firefighters willing and ready to

go into a burning building to put out the fire and save lives.

Madam Chair, in Baltimore we simply do not have enough firefighters to do the job. Consider this. When you served in the city

council in the early 1970’s, Baltimore had 11 firefighting battalions, 55 engine companies, 30 truck companies, 2 hose wagons, 2

chemicals units, and 4 fire boats. Today the same city has 6 battalions, 33 engine companies, 19 truck companies, 1 HAZMAT unit

and 2 fire boats.

When I came into the department in 1974, the hose wagons were

gone, a chemical unit was disbanded, several engine companies had
28

been closed, and Baltimore’s Inner Harbor renewal project was

being compromised by the dismantling of the Marine Division.

A more contemporary and compelling statistic is that since 1990

our suppression force, in terms of engines and trucks in service,

has been cut by 26 percent. In that same period, our call volume

has soared from almost 70,000 responses to 116,392 responses.

That is a 47 percent increase in responses. We do not have enough

firefighters to do the job.

Years ago, our fire department could handle multiple incidents

at the same time and still have adequate resources to respond to

other calls. Sadly today that is not the case. Two small fires occurring at the same time completely deplete our resources. Firehouse

closings have created a situation that extends response time and

threatens people’s lives.

To put the citizens’ minds at ease, the city has instituted an interesting program called rotated closures. Essentially each day one

firehouse is shut down and firefighters are dispersed throughout

the city to man other companies. It is designed to save on overtime

costs. However, the community is left unprotected. Since the residents still see a fire truck, they believe they are being protected.

It is a sham.

This occurs for one reason: lack of resources. And I am not here

to debate whether firefighting expenses are a local, State, or Federal responsibility. I am here as a front-line firefighter and a taxpaying citizen who believes that protecting our citizens is government’s responsibility.

Across the country, fire departments need money to hire additional personnel. It is our most critical need.

Madam Chair and members of the committee, you can address

our issues. I ask you to fully fund the FIRE Act. Give America’s

firefighters the full $900 million that has been authorized and allocate half of that money to a staffing program. America’s first responders need your assistance.

PREPARED STATEMENT

The events of 9/11 have brought the needs of the fire service to

the forefront. The greatest tribute that could be paid to our 343 lost

New York brothers and Eric Shafer, the last Baltimore firefighter

to die in the line of duty, is for Congress to provide the resources

to allow America’s firefighters to do our job safely and effectively.

Thank you very much, and I will be available for questions.

[The statement follows:]

PREPARED STATEMENT OF CARLOS OLAGUER

Madam Chair, members present, and guests.

My name is Carlos Olaguer and I am a Baltimore City Firefighter.

On July 18, of last year Baltimore City Firefighters responded to a train fire inside the Howard Street Tunnel, a tunnel built in 1895, 1.7 miles long and directly

beneath the heart of the city.

My unit, Truck Company 26, located in the northeast part of the city responded

on the 3rd alarm to the North entrance of the tunnel at Mt. Royal Avenue.

Surrounding the north entrance are historic buildings and cultural centers which

are a part of many great cities.

Truck 26, was initially dispatched for additional manpower and rapid intervention

and had several minutes to reach the staging area and prepare for the task at hand.
29

First due fire companies, anticipating diesel smoke from the train’s engine had

no idea of the magnitude of the fire. The amount of smoke emanating from the

north end of the tunnel was so thick and toxic that citizens above the tunnel had

to be tended to and cleared from the area.

The next morning Engine 27, also stationed with Truck 26, staged near the south

entrance of the tunnel near Camden Yards. The south end of the tunnel is 1.7 miles

from the north entrance and almost five miles from the station of Engine 27 and

Truck 26.

Prior to the tunnel fire seven fire companies were closed in Baltimore City. Six

of these seven were closer to the tunnel fire than Engine 27 and Truck 26.

Engine Co. 27 was to advance hose lines into the south end and attack the fire

from within. The pump operator, stationed above ground with his wagon was responsible for maintaining water flow to the firefighters down below. He would position himself near the opening of the tunnel to try to maintain radio contact then

retreat to the engine to make any adjustments needed. He would then return to his

listening position. Although many attempts were made, Engine Co. 27 was unable

to reach the train from the south entrance.

Engine Co. 27 was later repositioned to a manhole opening directly above the still

burning train. Through this opening firefighters came in direct contact with the

burning train. Each firefighter entering the hole was now being exposed to direct

heat and smoke and whatever chemicals were spewing from the train. Please keep

in mind that the train had been burning for more than 24 hours at this point.

On the 5th day of the tunnel fire, boxcars were finally removed from the tunnel

and pulled to a remote location Near Fort McHenry. Truck Co. 26 was dispatched

along with Aerial Tower 102 and Engine Co. 14. The task at hand was to forcibly

enter the boxcars and extinguish its contents. The process began on the day shift

and my shift relieved on the scene at 1700 hrs (5pm.). We were subsequently relieved at 3 am and returned to our own station.

It is important to note that similar operations were being done the north end of

the tunnel.

Madam Chair, the events I described placed the citizens and fire fighters of Baltimore City in great peril. The horrific events of September 11th brought new awareness and respect to our Nation’s fire fighters. 9/11 forever changed this country. For

fire fighters, we will never forget the heroism of our New York brothers and sisters

and the ultimate sacrifice made by 343 dedicated fire fighters who died saving tens

of thousands of lives.

However, it would be mistake for this committee, or anyone else, to frame the

needs of the fire service by the events of 9/11. Across the country, in communities

large and small, fire fighters and paramedics answer the call every day. Whether

it is a train derailment in Baltimore, a raging forest fire in the west or a vacant

warehouse in Worchester Massachusetts, we respond. We serve. And, in all too

many cases, we die.

The sad irony is that in spite of our sacrifice and dedication, we simply are not

provided with the resources and equipment to do our job safely and effectively. As

municipal and county budgets tighten, the fire service becomes the unfortunate target of cuts. Our industry is hemorrhaging and we need your assistance now.

I can only speak to needs of our Maryland fire fighters. Across the board, in every

category in which fire act money can provide revenue, there are deficiencies. In

training, equipment, apparatus, communications, safety and health issues and staffing, we come up short.

Training budgets have been slashed to put more fire fighters on the street. As a

result, we are not receiving adequate training. The long-term impact will create a

fire fighting force that is ill equipped to handle emergencies such as the train derailment or a future terrorist attack. More disturbingly, it will impact our ability to

handle more everyday responses such as a normal dwelling fire. Like the military,

training and preparation are key ingredients to a successful operation.

An often forgotten about component of response capabilities is communications.

The Baltimore train derailment provides an example of the inadequacies of our communications system. Very candidly, fire fighters operating inside of the tunnel were

completely out of radio communications with outside units and the command center.

Essentially, we were on our own. Take a look at the pictures provided. You must

visualize being a half mile inside of a tunnel with heavy fire, confirmed hazardous

and explosive chemicals and smoke so thick you couldn’t see your hand in front of

your face, and knowing that no one knows were you are or, even, if you’re alive or

dead.

The situation isn’t unique to that scenario. In many high-rise and older building

that have several sub-basements, in the hulls of container ships, and in large indus-
30

trial complexes, the radios do not always work. Our safety and the efficiency of the

operation are compromised.

Like many other Americans, I’ve watched recent news accounts stating that fire

fighters operating inside the twin towers were out of radio communications with

command. I also recall an article last spring—prior to 9/11—detailing the problems

with the radio system in New York. I can’t help but wonder: What if there was a

problem and what if it could have been fixed, would 343 of my brothers have died?

Another major problem with respect to fire fighter safety is the lack of personal

protective equipment. As I stated earlier, I drive a ladder truck and function as a

fire fighter, I’m not a chief officer or a budget person, so I don’t know precisely what

everything costs. I do know what fire fighters need to perform their jobs safely. Once

again, I’ll use the train derailment as an example. Fire fighters work in flame retardant clothing called turnout or bunker gear. These garments protect us against

the extreme heat and adverse conditions under which we work.

In normal fires, they get completely soaked by water and become very heavy and

cumbersome, weighing over forty pounds. While inconvenient, this is part of the job.

However, in incidents like the train derailment, fire fighters are on the scene for

days at a time. We have only one set of gear. By industry standards, our gear

should be decontaminated after exposure to hazardous chemicals. It isn’t. Fire fighters who entered the tunnel and whose gear was exposed to PCBs, ammonium, and

other carcinogens were forced to work in the same gear for days on end. Having a

second set of gear would dramatically lessen possible long-term health hazards.

At least in the Baltimore department, we have adequate self-contained breathing

apparatus and pass devices to locate trapped members. Some departments do not.

However, technology exists through thermal imaging to locate and monitor fire

fighters operating inside any structure. If all departments had this technology both

fire fighter and civilian deaths would be reduced dramatically.

At the end of the day, the most important resource fire departments have is manpower. It takes fire fighters willing and ready to go into a burning building to put

out the fire and save lives. Madam Chair, in Baltimore we simply do not have

enough fire fighters to do the job. Consider this, when you served in the city council

in the early 1970s, Baltimore had eleven fire fighting battalions with 55 engine companies, 30 truck companies with two hose wagons, two chemical units and four fire

boats. Today, the same city has only 6 battalions with 33 engine companies, 19

truck companies, one HAZMAT unit and two fireboats.

When I came into the department in 1974 the hose wagons were gone a chemical

unit was disbanded, several engine companies had been closed and Baltimore’s

Inner Harbor Renewal Project was being compromised by the dismantling of the

Marine Division

A more contemporary and compelling statistic is that since 1990 our suppression

force, in terms of engines and trucks in service, has been cut by 26 percent. In the

same period, our call volume has soared from 69,665 responses to 116,392, a 47 percent increase. We don’t have enough fire fighters to do the job.

Years ago, our fire department could handle multiple incidents at the same time

and still have adequate resources to respond to other calls. Sadly, today, that isn’t

the case. Two small fires occurring at the same time completely deplete our resources. Fire house closings a have created a situation that extends response time

and threatens people’s lives.

To put the citizens’ minds at ease, the city has instituted an interesting program

called ‘‘rotating closures.’’ Essentially, each day one firehouse is shut down and the

fire fighters are dispersed throughout the city to other companies. This is designed

to save on overtime costs. However, a community is left unprotected. Since the residents still see a fire truck, they believe that they are protected. It’s a sham.

This occurs for one reason: lack of resources. I am not here to debate whether firefighting expenses are a local, State or Federal responsibility. I am here as a frontline firefighter and a taxpaying citizen who believes that protecting our citizens is

government’s responsibility.

Across the country, fire departments need money to hire additional personnel. It

is our most critical need.

Madam Chair and members of the committee, you can help address our issues.

I ask you to fully fund the FIRE Act. Give America’s fire fighters the full 900 million that has been authorized and allocated half of that money to a staffing program. America’s first responders need you assistance.

The events of 9/11 have brought the needs of the fire service to the forefront. The

greatest tribute that could be paid to our 343 lost FDNY brothers and Eric Schafer,

the last Baltimore fire fighter to die in the line of duty, is for Congress to provide

the resources to allow, America’s fire fighters to do our job safely and effectively.

Thank you and I’ll be happy to answer any questions.
31

URBAN SEARCH AND RESCUE

Senator MIKULSKI. Thank you very much, Mr. Olaguer.

I am going to ask a few questions and then turn to my colleagues

and then move to the next panel.

First of all, that was outstanding testimony. I would like to

thank each and every one of you. It was exactly the kind of testimony that the committee wanted to hear, kind of what are the basics that we need to do. I know that as each and every one of you

are at this table, you are representing thousands who are depending on you to articulate these issues. And we will be hearing from

the leadership of the professional associations and the firefighters

union.

Mr. Paulsell, I would like to just ask a question of you in terms

of the urban search and rescue issues and then go to you, Assistant

Chief Morris, and then move with my colleagues. I want to be sure

they have a chance.

We have these 28 FEMA units. Chief, you outlined what you

needed from FEMA. Chief Morris, when I went to the Pentagon

and you were there, is Chevy Chase not one of the 28?

Mr. MORRIS. No, Senator. Montgomery County is home to one of

the 28 teams. The rescue squad is not part of that unit.

Senator MIKULSKI. Could you reiterate, in terms of a must-do

list, what we need to do to really be able to strengthen these 28

units? You referred to them as the special forces of the firefighting

community. And then I want to go back to the firefighters. What

do you think specifically, if you had three things that you felt that

by the time we finished our appropriations in October, we actually

had money in the Federal checkbook, not wish lists or dream

teams, are the three things we could do to maximize your potential?

As I understand your testimony, there might be a desire in Congress to say, well, if we have got 28, let us double it. That is the

way Congress talks when they want to show they want to do something. Let us double and go to 56. You have a different point here.

And also, what do you need from FEMA for urban search and

rescue? Then we are going to go to the firefighter grant program.

Mr. PAULSELL. Good question.

The first thing we need to do is complete the equipment caches,

the basic urban search and rescue equipment cache for each one of

those task forces so that when they go out the door, they go out

the door with all the equipment that they need to effect search and

rescue safely and thoroughly.

Senator MIKULSKI. Working with the task force, what do you

think that is?

Mr. PAULSELL. I think to completely fill out the equipment

caches for these task forces, we are talking around $1 million.

Senator BOND. Each?

Mr. PAULSELL. No, in total.

Senator MIKULSKI. $1 million?

Mr. PAULSELL. That will complete the equipment caches.

Senator MIKULSKI. But that is not your equipment. That is what

you have stored. What do you mean by equipment caches?
32

Mr. PAULSELL. Each task force goes out the door with about $1.8

million worth of equipment. The equipment cache is predetermined

by FEMA.

I am sorry. I misquoted. It is $10 million. I am looking at my

notes here.

Senator MIKULSKI. You caused a collective gasp here.

Senator BOND. Chief, you cannot come before an appropriations

committee and only ask for $1 million.

Mr. PAULSELL. Is $10 million better? I’m sorry.

Senator MIKULSKI. My little lungs gasped. That is why I am

coughing.

Senator CRAIG. He has just learned his lesson.

Mr. PAULSELL. I will never, ever do that again, Senator. I promise.

Mr. PAULSELL. $10 million to fill out the existing equipment

caches so that they have all the equipment they are prescribed to

have.

The second thing we need to do is provide annual grant funding

in excess of $150,000 a year to keep that equipment cache current,

keep the training up, and we are talking about around $1 million

per year per task force. That would be an annual recurring fund.

The third thing we need to do is equip all of these task forces

immediately so that they can operate in an environment of weapons of mass destruction. If, as an example, a dirty bomb was detonated in Kansas City, Missouri, we would be called upon to effect

search and rescue operations. We do not have the chemical and biological protection necessary to do that safely and protect our people.

Senator MIKULSKI. Is that both training and equipment?

Mr. PAULSELL. Training and equipment, right.

What we would like to see from FEMA is a program priority set

within FEMA so that they have sufficient staff and they have sufficient agency focus to be responsive to this program so that we do

not get caught up in what we all call bureaucracy and we can move

along quickly. We have a number of systems in place where participants in this program freely give of their time to participate in

working groups and committees to develop training standards and

performance standards and so on, but we get caught up in, it seems

like, tiers and tiers of approval within FEMA to get this out the

door. And time, more now than ever, is of the essence and we need

to move this program along and get the necessary support from the

agency.

Senator MIKULSKI. Well, I want to come back to this tiers and

tiers and layers and layers of bureaucracy. We do not want tiers

and we do not want to shed tears. That is kind of our goal.

This is a touchy subject and I really turn to you and others on

the panel. The way FEMA is set up is to work through Governors,

which is fine because we are talking about the response. FEMA

was originally set up to respond to natural disasters in which a

Governor had to declare an emergency and FEMA would come in

with money. It would not come in to fund people directly, except

the hazards people, the FEMA people, the emergency management

people.
33

Here this is local control. These are local firehouses. This is done

through States not only the rescue. These are cities. These are

communities. These are independent. If you are a volunteer fire department, you are an independent unit. Am I right, Assistant Chief

Morris?

Mr. MORRIS. Well, we in Montgomery County operate in a system

where it is a series of 19 fire rescue departments that are providing

service to Montgomery County. Like I said earlier, Montgomery

County is home to one of these FEMA teams.

As an incident commander in the field, I have many of these resources from that team at my disposal if I want them. So, an investment in those FEMA teams is also an investment in the resources available to the local community.

Senator MIKULSKI. Yes, but now I want to switch to the Fire

Grant program and then turn to my colleagues.

I believe in local control, local decision making, and not trickledown money to you. I am afraid it will get all caught up in a lot

of bureaucracy, that the coordinators who do not communicate any

better than your radio equipment works for you, that the money

just gets all tied up in bureaucracy and sign-offs, one page at a

time.

So, my question would be, number one, do you believe the money

should come directly to the urban search and rescue teams and

come directly, in the Fire Grant program to local departments? Or

do you believe it should go through the State and then be allocated

and then you apply there?

Mr. MORRIS. Senator, I would advocate it going to the local departments directly. One of the things I was impressed with about

the Fire Grant program was the process for applying seemed to be

simplified so that many local departments could not only submit a

grant proposal, but then there was a peer review process that we

felt streamlined the operation and made it very easy and in very

short order for that money to be awarded. We support the peer review process and a continuation of the program. The fewer steps

you take out of it, the faster it is going to reach the citizens.

I will just give you one example. Montgomery County is still trying to make purchases from a Justice Department grant that is 3

years old, and it has just been mired in red tape.

Senator MIKULSKI. Well, we want to hear more about that.

One last question. When those radios failed, what was the means

of communication with our firefighters? What would be the single

most important thing we should direct FEMA to focus on in terms

of protection for the local firefighter?

Mr. OLAGUER. As far as communication was concerned——

Senator MIKULSKI. We watched you. All of Baltimore and I think

all of America was pulling for you. But pulling for you is one thing,

but you being out in PCB-saturated clothes every day deserves a

lot better attention here.

Mr. OLAGUER. I would think so.

Standard communication was difficult between the guys above

ground trying to monitor their people under the ground. What

looked like a good time for everybody—and the TV cameras were

up and the public information officer was saying we have everything under control—was above ground. Underground, the best ex-
34

ample I can give is we had one individual who was lost in the tunnel. We did not know if he had one person, four people, five. We

had no idea where he was. He was in the north end of the tunnel.

Baltimore County units were dispatched and a cave-in unit was

dispatched. Other units just showed up who were monitoring our

radio and happened to show up at the scene, and then confusion,

of course, ensued because there was no command structure organized with the other jurisdictions. It really was a tense and

strained situation at one time.

The next thing we know, here came a car full of the people we

thought were trapped. Of course, they were overcome and had to

be tended to by medic units, but no one knew where he was, how

he was, what was going on because we could not hear what he was

saying and they could not hear what command was saying up top.

And that was an incident that was featured in the morning

paper the next day with—I do not have a picture here. But I am

saying that was the feature that morning in the morning paper,

was this group that went in. No one had contact with him.

You literally need technology and advances in setting up communication relay systems, antennas in particular buildings and tunnels and areas like that. That is just one small improvement just

on the communication side.

Senator MIKULSKI. Thank you very much.

Senator Bond, why do I not turn to you and then Senator Craig?

TASK FORCES

Senator BOND. Thank you, Madam Chair.

To follow up with firefighter Olaguer’s comments about the need

for better communications equipment, I asked a rather simple

question yesterday of acting FEMA Regional Administrator Paccino

in New York City, and I said why did you not have a structural

engineer or a specialist who could advise and warn the command

staff and the firefighters about the danger of collapse. And the

chilling response was, we did. We could not communicate it. And

to me that was one of the most chilling things I learned. Madam

Chair, obviously communications and command structure are very

important.

Let me turn back to Chief Paulsell. It appears that the Chair has

seen the set-up questions that the Chief gave me to ask.

Senator BOND. But I will follow up with some of the ones that

you did not ask, Madam Chair.

Is there a need for the task forces perhaps to deploy overseas?

What would need to happen and what is the need there?

Mr. PAULSELL. Well, presently out of the 28, there are 2 of the

existing task forces that have a prearranged agreement with the

Office of Foreign Disaster Assistance to the Secretary of State’s Department. Our concern there is that as we tighten up our borders

here in the United States, we have vulnerability overseas in our assets there, as do our allies. And we have seen some deployments

to some terrorist attacks at some of our embassies and Marine barracks and those sorts of facilities in the past.

We would like to see our Government move forward to facilitate

a broader response from these task forces, particularly in light of

the fact that we have a number of them on the west coast that can
35

deploy much quicker going to the west. That involves some additional logistical support and supplies to support us overseas, passports, immunizations, that sort of thing, and just some prior planning and some funding. And I quite frankly do not have those numbers here today.

Senator BOND. Senator Mikulski raised a question and I was not

clear about your answer. Is there a need for additional task forces

in the system?

Mr. PAULSELL. We believe that the task forces that presently are

in place are probably underutilized. In a way that is fortunate because that speaks to the number of disasters that we respond to.

But on the other hand, that makes it difficult for us to maintain

skills and currency and that sort of thing. So, those task forces

within the system do not see a need to expand. If there was an

identified need through some sort of threat assessment, quite

frankly by doubling the equipment cache in the existing task

forces, you could double your capacity without adding extra training and personnel.

We have to maintain a current roster staff of 186 to ensure that

we are three deep in each one of the 62 positions to ensure aroundthe-clock availability. Once that initial wave of 62 go out the door,

within 24 hours every one of these task forces could field another

team of 62 if we had the equipment to go.

Senator BOND. So, in other words, you have the personnel. You

have essentially three full task forces, but you only have equipment

for one.

Mr. PAULSELL. For one.

Senator BOND. And if there is a need for additional teams to be

in the field, it would seem that the simplest thing is to provide

double equipment so that at least two teams of each task force

could go out, obviously keeping one back.

Mr. PAULSELL. That is correct.

Senator BOND. But you train all 186. Just with an additional

level of equipment, you can maintain it.

Mr. PAULSELL. That is right.

URBAN SEARCH AND RESCUE

Senator BOND. What other areas in FEMA’s urban search and

rescue response system need attention?

Mr. PAULSELL. Well, I think we have touched on most. I think

there is probably a need to address transportation assets. Presently

most of us have to rely on renting trucks and buses to get out the

door to get to our point of departure at a military air base. We are

concerned about our ability to do that. We could be out the door

quicker if we had the funding levels to support a ground transportation system.

Secondarily, we are a little bit concerned also, as we continue the

war on terrorism, about the availability of military airlift resources. Our planes are going to be busier in the military and may

not be readily available to get us across the country. If we had

ground assets preloaded, ready to go that were dependable and not

dependent on using excess or surplus property equipment that we

get through the Federal excess program, that costs a lot of money
36

to maintain and is not very dependable, we could be on the road

and moving quicker than we are.

UTILIZATION OF ASSETS

Senator BOND. It seems to me that this is an area where Governor Ridge can perhaps bring some more coordination and resources. We are blessed in Missouri with a lot of C–130’s. Maybe

we will even get some C–17’s at some time. I know the C–130’s

came and picked you up at Whiteman. But when we are combining

the homeland defense, it would seem reasonable.

But let me ask you. We have some technical capabilities at Fort

Leonard Wood, Missouri, chem/biological response. We have National Guard. How do you see the broader scheme that we could

utilize the resources we have from the Doctrine and Training Command in Fort Leonard Wood, the National Guard, and the urban

search and rescue task forces? Is there not potential for a much

more effective utilization of all these assets together?

Mr. PAULSELL. Certainly. There are some concerns that I have

kind of beyond the realm of the task force program. The military

has put forth a great deal of emphasis on weapons of mass destruction research, training, and capability. Through the National

Guard program, they have established civil support teams across

the country to respond to domestic acts of terrorism involving

chemical and biological warfare. I really have some questions and

some doubts as to the effectiveness of those teams long term and,

quite frankly, right now their availability because we are at war

and military assets are primarily used in that regard as well.

My fellow panelists here this morning spoke about the challenges

faced at the first responder level. If those resources and those capabilities are available within the military structure, then clearly

they need to be made available to the first responders of this country in terms of training and research and assistance and support

and not kept purely within the military establishment. The chemical weapons school at Fort Leonard Wood, Missouri is an incredible and developing resource that should be made available to firefighters, not only task forces but firefighters across this country.

What comes of that and what is learned in that process needs to

be shared and it cannot only exist on a military base. There has

to be a disbursal program that can be taken to the Senator’s State

out west and not rely necessarily on him transporting all these firefighters to a military installation.

I think there is a marriage there and the National Fire Academy

is a good model of that of how they have done a hand-off package.

But I think we need to get these people married up, the military

establishment and the intelligence establishment and the people on

the front line of this war that we are facing, and get that information and that material and that training and capability to the local

level and get it to the street quickly.

Senator BOND. Madam Chair, if I just may make one additional

point we had talked about earlier. Training, the protective equipment, chemical or biological or nuclear, but when there is an incident involving one of those, detailing the military specialists to

join, if they are specialists in chem attack or specialists in biological or specialists in radioactive management, would seem to me to
37

be helpful, if they were available from the military, to assist in a

command and advice structure to a USAR task force.

Senator MIKULSKI. I think that is very interesting. We are going

to be having Joe Allbaugh, apart from the overall FEMA budget,

just on this topic and the FEMA role in homeland security, as well

as all the other things FEMA has to talk about. An excellent point.

Are you done, Senator?

Senator BOND. Yes, thank you.

Senator MIKULSKI. Senator Craig.

Senator CRAIG. Madam Chairman, first of all, let me thank you

for this hearing and let me ask unanimous consent that my opening statement be a part of the record.

Senator MIKULSKI. Absolutely, without objection.

[The statement follows:]

PREPARED STATEMENT OF SENATOR LARRY CRAIG

Madam Chairman and Senator Bond, thank you for holding this very important

hearing on issues that affect our nation’s fire fighters.

These brave men and women put their lives on the line to serve and protect their

communities—not only on September 11, but every day. Time after time, they are

the first on the scene to respond to an emergency.

Now today, in the fight against terrorism, we are again turning to fire fighters

as the first line in our homeland defense. And while we owe them a debt of gratitude that we could never repay for taking on this difficult and dangerous job, gratitude is not enough. It is critical to their safety, as well as the safety of the communities they protect, for them to have access to adequate resources in the way of

equipment, training, and personnel.

I have spent a lot of time talking to the fire fighters in my state of Idaho, both

the volunteer and career forces. While I understand the terrible threat that terrorism poses in an urban setting—I visited both ground zero in New York City and

the Pentagon—I hope my colleagues will keep in mind that the largely rural, public

lands states of the West, like mine, present special challenges in fire fighting that

equally deserve Congressional attention.

Let me thank the witnesses who have agreed to share their expertise with us

today. I look forward to hearing your testimony and your suggestions as to how we

might better support the fire fighters across our country.

NATIONAL INTERAGENCY FIRE CENTER

Senator CRAIG. Let me make a couple of observations because

time is an issue with me here, and I apologize.

We have the privilege in Boise, Idaho of hosting the National

Interagency Fire Center which is a cache deployment facility both

for equipment and personnel for fires within the Forest Service,

BLM, Park Service, Bureau of Rec, Madam Chairman, you name

it. It also deploys caches of equipment and material to FEMA at

times of national emergency.

Madam Chairman, I heard the Chief mention this, talking about

relationships of resources and bringing them together. I think we

need to be very cautious about recreating anything. The FEMA

model and these task forces that have been mentioned here today

are a model that we looked at 2 years ago following the catastrophic fire events in the west of that summer, to see where we

could find resources of knowledge and training to bring into the

Federal firefighting system, both for the Forest Service and the

BLM, because we ran woefully short of trained people to take crews

into the fires and all of that and we ran short of equipment.
38

As you know, Senator Pete Domenici and I and others led that

charge to get more money into that, echoing remnants of the Los

Alamos issue and others, and we were successful in that.

What I found out during that time is there is phenomenal talent

that is out there, but that it is segregated and oftentimes independent of others. And they do not communicate well, nor do they

cross-train, nor do they share. And shame on us.

I think 9/11, hopefully, and the role of Tom Ridge and others and

our response to it can begin to break down these barriers not only

of information and training and sharing—I do not deny the argument of additional equipment and modern equipment and updates

and adequate uniforms and all of that kind of thing. That clearly

is necessary. But what I have found over the years in watching the

Interagency Center in Boise, as its role adjusts and changes and

spreads, it is not just a firefighting center anymore, it has ready

caches on hand to immediately load on an aircraft and get to a hurricane upon a FEMA request. We have some excellent models if we

will begin to share them and integrate them, along with the additional resources to make that happen and the complement of training. So, your hearing is very timely in that respect.

I am also pleased to hear the chief say we may not need any

more of these top quality response task forces as much as we need

the training and the material and the equipment, and as you mentioned, the ability with stashes of equipment to bring the second

team out and the third team out of these trained folks. That makes

a lot of sense to me based on the experience I have had in observing this.

We have also, both in the professional firefighter and the volunteer firefighter range, with the resources that we put together 2

years ago, additional training, a higher level of professionalism. It

was clearly there with the professional full-time firefighter. The

volunteers did their very best on even increasingly limited resources as you moved out to the smaller community to the county

that was much more rural, and at the same time, we find all of a

sudden cast into the role of having to participate or having to be

the first responder in a chemical spill of magnitude, 75 to 100, even

300 miles away from an urban-based, broader-talented, oftentimes

more resourced team. So, it is clear across the board that we really

need to beef up in these areas.

I guess those are general observations that I would make and

take no more of the committee’s time.

On a personal note, Madam Chairman, I am going to not be able

to be here for the next panel, but Mr. Harold Schaitberger, General

President of the International Association of Firefighters. Who is

this person out here? We have not met. This gentleman here. He

and I have been at cross purposes for the last several months, not

with my intent. That came as a result of a debate on the floor and

a position paper that the Republican Policy Committee put out

some months ago. As you know, we had that debate on the floor

on a Daschle amendment some time ago.

Harold, I have a letter that I want to hand-deliver to you as I

leave the room. But I also want to look you straight in the face and

apologize that it was not my intent by a headline in a paper that

was published to impugn the integrity of you or any of the high
39

quality professional firefighters of this Nation. Certainly that was

not my intent.

The substance of the paper produced under the headline did not

do that. It talked about the differences and policy and priority and

relationships of State to Federal Government. But tragically

enough, the headline did and could have been and you did interpret

it to impugn the reputation of the people you represent. So, I wanted you to hear it first and foremost from me that that was not my

intent and I apologize to you for that.

We are here united as a Congress, Democrat and Republican, to

make sure that we amplify the role you play, the role that your

people play, both professional and voluntary, and do so not just

with words but with resources so that we can build even better

first responder teams of men and women who put their lives on the

line as the first people to the incident.

So, I wanted you to hear that from me because I am not going

to be able to stay and listen to your testimony. I will read that testimony.

And I thank you very much, Madam Chairman, for getting this

group before us today. We have a lot of work to do in this area.

We do not have time to reinvent, but we certainly have time to

break down the barriers and begin a greater cross reference of material and training that I think brings us together in a first responder homeland defense mode that clearly this country needs.

Thank you.

Senator MIKULSKI. Thank you very much, Senator Craig.

We are really now going to have to turn to our panel because we

have to adjourn no later than 1 o’clock. We want to thank everybody. Certainly what you had to offer has been excellent.

I know you want to say one more thing, but could you come

around and say that to me while everybody comes up?

Mr. OLAGUER. Okay.

Senator MIKULSKI. Can we call up the leadership? I think this

is a very good way to begin.

We want to welcome each and every one of you. First of all, the

first panel was just excellent. I think they gave it to us from really

a hands-on, on-the-ground perspective. But I know that each and

every one of you represents the leadership of America’s firefighting

community. So, I want to turn to you now.

We have Mr. Harold Schaitberger, who is the President of the

International Association of Firefighters; Mr. Philip Stittleburg,

who chairs the National Volunteer Fire Council; and of course,

Chief John Buckman, who is the head of the International Association of Fire Chiefs. We feel with you three, you really represent the

core leadership of America’s firefighting community and each from

a different perspective, and we welcome that.

I would like to turn now to really a long-standing friend. Harold

Schaitberger and I go back a very long time. When we started this

firefighter caucus, I was in the House of Representatives, and for

some time we have been concerned about those issues. Of course,

after the horrific events of 9/11, we knew all that you were facing.

But rather than me talking, let us start with you, Mr.

Schaitberger, and then just go right down. We are happy to take
40

your testimony. Please be candid tell it like it is. No holds barred.

We want straight talk and fast action.

STATEMENT OF HAROLD SCHAITBERGER, GENERAL PRESIDENT,

INTERNATIONAL ASSOCIATION OF FIRE FIGHTERS

Mr. SCHAITBERGER. Madam Chair, thank you very much. I really

do appreciate the opportunity to appear before you and the members of this subcommittee on behalf of our Nation’s career firefighters. As General President of our international union, I really

have the privilege and honor of representing more than a quarter

of a million professional firefighters and paramedics in this country

of ours.

And it is no exaggeration. We have all watched and felt and have

spoken in our own personal ways about the horrific acts of September 11. It has been said it has certainly changed this world of

ours. It was an absolutely tragic day for our Nation. It was a catastrophic moment for thousands of innocent civilians, but I have to

tell you that for our profession and my union, it was absolutely our

darkest day. The 343 FDNY firefighters who made that ultimate

sacrifice and worked, along with their colleagues, brothers and sisters, to try to save—and in fact, saved—tens of thousands of civilians from the hellish carnage of the World Trade Center were my

members. The 343 families that they left behind, the 631 children

are an extension of my union’s family, and we will be continuing

to deal with and supporting and handling those issues.

My focus today is also on the thousands of my members who

made the immediate response to the terrorist attacks both in New

York and at the Pentagon. For over 100 years, IAFF members have

been protecting the citizens of our Nation from all hazards. They

are the first on the scene when there are incidents involving fire,

natural disasters, hazardous material incidents. They are our Nation’s primary providers of emergency medical care. They are the

ones who do search and rescue individuals that are trapped and in

danger. They perform the high angle rescues that we hear about,

the confined space rescues. They do water rescues. They are truly

dedicated and skilled in so many ways. And now, in addition to

these traditional responsibilities, they are also on the front lines in

our war against terrorism that is being carried out on this country’s soil.

If we are going to be successful in fulfilling both our traditional

mission and our newest responsibility, we must have adequate resources. It really is that simple. Sadly, as we meet here today, we

simply do not have adequate resources. We have a need for additional firefighters, more training, more equipment, and this cannot

just be borne by our local communities any longer. The Federal

Government must step up and must begin to shoulder this burden.

It was just over 1 year ago when Congress took the historic step

of creating the Nation’s first real program of direct assistance to

local fire departments. And this, unfortunately, only after decades

of our Federal Government not only recognizing, but providing

hundreds of millions of dollars, rightfully so—the responsibility and

fiscal responsibility that our Government recognizes—to support

our Nation’s law enforcement and education needs. Our Nation’s

fire service needs are no less important.
41

We are pleased to report to you that the FIRE Act was a success.

The down side, very straightforward, very candid. Simply not nearly enough money. It was not enough funding to even begin to meet

the needs expressed by our fire services throughout this country.

Madam Chair, we are well aware—and we congratulate you and

the vital role you played and members of this great body in funding

the FIRE Act at $360 million for the current fiscal year. We appreciate the administration’s new homeland security initiative, and I

have had the pleasure of meeting and spending time with Governor

Ridge and with Director Allbaugh to talk about the real needs.

But we are also concerned, as much as we applaud what we see

in the budget initially and what we hear in the words about homeland security, as to whether these resources are really going to be

able to meet where the tire meets the road, and that is down to

the fire department for actual training and actual equipment for

our Nation’s first responders.

The FIRE Act and the President’s proposal for homeland security

in my view really should only be the beginning. We must undertake a comprehensive effort to ensure that every fire department

in America has the personnel, training, and equipment that it

needs to safely and efficiently and effectively protect our Nation’s

citizens.

Madam Chair, a vibrant, strong, and effective fire department response is built on three very straightforward foundations: an adequate number of firefighters on each piece of apparatus responding,

proper training, and the right equipment. If you shortchange it and

take just one away, you are going to allow the entire structure to

potentially collapse.

The first and foremost need of the fire service is adequate personnel. All the training, all the sophisticated equipment is not really worth much if we are not going to have an adequate number of

firefighters deployed at the scene to do the job. Across our Nation,

two-thirds of all fire departments, large and small, are operating

with inadequate staffing. In your own State, Madam Chair, the

overwhelming majority of the fire departments operate with two

and three firefighters assigned to a piece of apparatus. That is

below the international consensus standard and OSHA regulations

for safe fire ground operations issued by our own Department of

Labor.

In earlier testimony, as we have heard from my brother Carlos

Olaguer, the City of Baltimore is simply in a dire situation. But it

does not stand alone. In nearly every other jurisdiction in Maryland, the problems are also evident. Prince George’s, Howard, and

other Maryland jurisdictions, counties that should be capable and

should be able to provide sufficient personnel simply are not. These

departments are riding with two and three firefighters, which I believe is dangerous to our people and which should be unacceptable

to this Congress and to our Government and certainly below our

national standard.

And in Missouri, Senator Bond, fire departments throughout the

State, including the capital and St. Louis County do not meet the

minimum staffing requirements in this country.

Congress would never allow our military to engage in a war with

two-thirds of its divisions understaffed, but incredibly this is ex-
42

actly what we are asking our local fire departments to do. Whether

it is through the FIRE Act or some new fire staffing initiatives, we

ask this committee to provide the resources to ensure that every

fire department in America has the minimum staffing it needs to

respond to emergencies safely and efficiently. We encourage your

committee to fully fund the FIRE Act at $900 million and to dedicate $450 million of that money towards staffing.

The second need of the fire service is training. Far too many jurisdictions lack the funds to hire training instructors, purchase

training equipment, or have access to training facilities and are unable to provide new firefighters with even basic level training.

While basic firefighter training is needed by so many of our

members, all firefighters I believe now need advanced training in

HAZMAT and weapons of mass destruction response and mitigation. Terrorism, using weapons of mass destruction, is no longer a

theory. We have experienced it, and it is now a constant threat to

our Nation. September 11, Oklahoma City, and other terrorist acts

have demonstrated that these madmen will employ appallingly unthinkable measures to achieve their goals.

In fact, just a few short weeks after September 11, our Nation

experienced its first biological terrorism when anthrax was mailed,

targeting leaders and members of this great body right here, in a

building that is just next door, as well as our media. And during

those frantic days in October, thousands of frightened Americans

called their local fire departments to report suspicious white powder incidents, quickly overwhelming the capability of the few dedicated HAZMAT crews that we have. And as a result, it was frontline firefighters who responded to these calls, far too many of

whom lacked any HAZMAT training. It is now clear that all firefighters need operations level hazardous materials and weapons of

mass destruction response training.

The members of this committee can begin to address this training shortage by fully funding the FIRE Act.

Additionally, this committee has jurisdiction over two innovative

HAZMAT programs. From the vantage point of front-line emergency responders, two components of HAZMAT that are doing the

job now, that do the job and train our people in their own jurisdictions. And the advantage of that is self-evident because training for

terrorism in your own community allows first responders to not

only learn the tactics and methods of effective response, but also

to apply these hypothetical concepts to concrete targets in their jurisdictions.

I am proud to note that the IAFF is also in partnership with

EPA and NIEHS which offers training programs to fire departments throughout this Nation.

A third foundation, equipment. A lot has been said today about

equipment, and I would simply say that of the 30,000 FIRE Act

grant requests submitted last year, over 27,000 were for just three

categories: personal protective gear, firefighting equipment, and vehicles. Less than 5 percent of those grant requests were awarded.

And I had members who were part of the group that evaluated the

requests, and they were appalled and it broke their heart to turn

down requests to replace 15-year-old turnout gear, and they only
43

turned down those requests because there were departments that

were even more dire in need.

As my organization has become more increasingly aware of weapons of mass destruction response, I am convinced that we really

have a threat, and I do not believe the threat is necessarily by nuclear devices launched by foreign Nations nor necessarily by tactical nuclear weapons in a suitcase being walked around by cells,

although, God forbid, those are threats that we have to be focused

on. I believe the real threat is dirty bombs and we have heard the

term ‘‘dirty bomb’’ mentioned. It is a very simple device with catastrophic results. You simply take a conventional explosive, ammonium nitrate and fuel oil like in Oklahoma City, dynamite, and

then introduce radioactive material to it. You can have a catastrophic incident.

And our first responders, our Nation’s firefighters who are the

first that are expected to be on that scene, are not now properly

trained to identify nor do they have the equipment to even attempt

to determine whether it is a radioactive incident. And all the wonderful military ops and all the special operations are just terrific,

but that is 4 hours, 5 hours, and how many more hours later while

we have our people on the front line doing their job and they need

the ability to do it correctly.

So, in conclusion, Madam Chair, let me just say that I would ask

you and the distinguished Members of Senate, starting with this

committee, to please fully fund the FIRE Act, to provide the resources directly to the fire departments, to ensure that these resources are not siphoned off by levels of government, but get to the

departments where it is needed.

PREPARED STATEMENT

I see a lot of attention about prevention components, intelligent

and prosecution components, and treatment components by all

these threats. Every one starts with the possibility of an incident

or an actual incident, and it is firefighters who will be there first.

We need your help.

[The statement follows:]

PREPARED STATEMENT OF HAROLD A. SCHAITBERGER

Madam Chair. I appreciate the opportunity to appear before this subcommittee

today on behalf of the Nation’s professional fire fighters.

My name is Harold Schaitberger, and I am the General President of the International Association of Fire Fighters (IAFF). I started my career in 1966 as a fire

fighter with the Fairfax County, Va., Fire and Rescue Department and I now have

the honor of representing more than 245,000 professional fire fighters and paramedics who protect 80 percent of our Nation’s population.

It is no exaggeration to say that September 11, 2001 completely changed the

world. The 343 firefighters, who made the ultimate sacrifice that day and rescued

tens of thousands of civilians from the hellish carnage of the World Trade Center

tragedy, are my brothers, as are the thousands of fire fighters who responded to the

terrorist attacks in New York and at the Pentagon.

While the horrific event brought public recognition and acclaim to our profession

and membership, the mission of the fire service remains unchanged. Before and

after September 11, America’s Bravest are the country’s first responders. Each and

every day, they risk their lives protecting communities across our Nation.

Madam Chair, I come before this subcommittee as a man on a mission to build

a living memorial to these fallen heroes. In tribute to them, and to provide for our

common security, the IAFF is dedicated to improving homeland security, enhancing

the safety of our Nation’s fire fighters, and ensuring that our Nation’s fire service
44

is prepared to respond to any and all challenges we may face in the future. The

question isn’t if another terrorist attack will occur, but when and where.

For nearly 100 years, IAFF members have been protecting the citizens of our Nation from all hazards. We are the first on the scene when there are incidents involving hazardous materials, we are the Nation’s primary providers of emergency medical care, and we are the ones who search for and rescue people who are trapped

and in danger.

And now, in addition to these traditional responsibilities, we are also at the

frontlines in the war against terrorism. For firefighters, every day is September 11.

Every time the alarm goes off, my members steel themselves to the possibility that

they are responding to the latest act of terror. In the past, America’s domestic warriors, our fire fighters, have had to respond to isolated incidents. In this new world,

our fire and emergency medical services need to be prepared for a coordinated, wellorchestrated series of attacks on American citizens. In this first war of the 21st Century, the battle lines are drawn in our own communities and firefighters are, and

will continue to be, our Nation’s first line of defense.

If we are to be successful in fulfilling both our traditional mission and our newest

responsibilities, we must have adequate resources. Sadly, as of today, we do not.

The need for additional firefighters, training, and equipment is tremendous and it

can no longer be borne solely by local jurisdictions. The Federal Government must

help shoulder this burden.

EXISTING PROGRAMS

It was just over one year ago when Congress took the historic step of creating the

Nation’s first program of direct assistance to local fire departments. The FIRE Act

was created in the closing days of the 106th Congress, and—in large measure

thanks to your leadership—the program was funded at $100 million.

We are pleased to report that the first year of the FIRE Act was an unqualified

success. In 9 months, the United States Fire Administration—with help from the

fire service—issued regulations, developed evaluations criteria, evaluated more than

30,000 requests for grants, and disbursed $100 million in grants.

The only downside to last year’s FIRE Act grant program was that there was simply not enough funding to meet the need. Fire departments submitted grant requests totaling close to $3 billion. Clearly the $100 million disbursed last year is

only a small drop in the $3 billion need bucket.

In recognition of this need, and in response to the events of September 11, funding for the FIRE Act was increased for the current fiscal year to a total of $360

million. Madam Chair, we are well aware of the vital role you played in both the

regular appropriations process and the supplemental appropriation to secure this

funding. For that our Nations fire service, and my members are indebted to you.

We are mindful that even prior to September 11, and the heightened awareness

of our profession, you took the lead in increasing FIRE Act funding. It was our

honor to stand with you in a firehouse in Arbutus, Maryland the day before the attacks as you announced the Senate’s first increase in funding.

We are also appreciative of President Bush’s recent proposal to spend $3.5 billion

to train and equip the Nation’s first responders. I had the opportunity to discuss

the vital role fire fighters play in our Nation’s Homeland Security with Governor

Ridge late last year, and I have full confidence that he understands the importance

of providing fire fighters with the tools they need to get the job done. We are eagerly

looking forward to reviewing the details of this proposal, and look forward to working with Congress and the Administration on this important initiative.

But the FIRE Act and the President’s Homeland Security proposal are only the

beginning. We must undertake a comprehensive effort to ensure that every fire department in America has the personnel, training and equipment it needs to safely

and effectively respond to emergencies that occur daily and the extraordinary calamities like acts of terrorism or floods, hurricanes and other natural disasters.

THE NEEDS

Madam Chair, a vibrant, strong, and effective fire department is built upon three

foundations: (1) an adequate number of fire fighters (2) proper training and (3) the

right equipment. Staffing, training, and equipment are the three pillars that support our Nation’s fire departments. Shortchange or take one away and the whole

structure collapses.

Personnel

The first and foremost need of the fire service is adequate personnel. Across our

Nation, two thirds of all fire departments—large and small—operate with inad-
45

equate staffing. In order to come into compliance with accepted industry standards,

the International Association of Fire Chiefs has estimated that 75,000 new fire

fighters are needed.

In your own State, Madam Chair, virtually all fire departments are in need of additional staffing. The fire departments in Prince George’s, Anne Arundel, Howard,

and other counties respond with three or less fire fighters per apparatus.

In the City of Baltimore, the fire department claims to meet the minimum staffing

of four fire fighters per apparatus. While this is technically true, Baltimore is able

to achieve this only by closing fire stations and using gimmicks. Since 1990, runs

by the city fire department have increased by 47 percent while the city has closed

15 fire stations marking a 26 percent reduction in coverage. Additionally, Baltimore

employs the practice known as ‘‘rotating closures’’ where the city closes a station

per day on a rotating basis and literally bets the lives of its citizens that a lifethreatening emergency will not occur in the area protected by the closed station.

This fire fighter shortage is so dire that the Baltimore Fire Department cannot

respond to more than one multi-alarm emergency at a time. And it is completely

overwhelmed in major incidents like the tunnel train derailment that occurred in

Baltimore’s Inner Harbor last summer.

Throughout Missouri, the home of the distinguished Ranking Minority Member,

fire departments are understaffed. Cities in St. Louis County, including University

City (the largest in the county), run with three on a pumper and two on a ladder

truck. These jurisdictions are forced to violate State law by relying on mutual aid

to have an adequate number of fire fighters respond to an incident.

In Jefferson City, the State capital, the fire department runs with three or less

fire fighters per apparatus and cannot even afford to hire fire fighters to serve on

its weapons of mass destruction teams. Fire fighters have been asked to volunteer

to serve on the team, undergo training, and respond while off duty.

The fire fighters of Baltimore, Maryland and Jefferson City, Missouri are as brave

and capable as any in the Nation, but there is simply no way that they can safely

protect the public with two people on a rig. Responding to emergency incidents with

only two people makes it impossible for the first responding unit to comply with

OSHA’s ‘‘2-in/2-out’’ standard for safe fireground operation, and places the lives of

those firefighters in jeopardy.

Congress would never allow our Army to engage in a war with two thirds of its

divisions understaffed. Incredibly, this is exactly what we are asking our local fire

departments to do in this current war on our home soil.

Currently, there are several proposals under consideration that would enable the

Federal Government to fund the creation of new fire fighter positions. Legislation

was introduced last year to create a program modeled after the COPS program,

which has successfully put more police officers on the street. The Senate Committee

on Commerce, Science and Transportation is also developing fire service legislation

that would include a staffing component.

Madam Chair, without any new authorization your committee can remedy this

chronic problem. The FIRE Act could easily be used as the appropriate vehicle for

a major staffing initiative. The law already allows fire departments to request funding to ‘‘hire additional fire fighters,’’ but FEMA has opted to exclude hiring from

the list of grants it will fund. We believe that specific direction from this committee

would enable FEMA to structure grants in such a way that could accommodate

staffing. To ensure that staffing would not devour the rest of the FIRE Act program,

we recommend that the FIRE Act be fully funded at $900 million, with half of the

money set aside for staffing.

The question of whether the funding for staffing is included as part of the FIRE

Act or as a separate initiative is of secondary concern to the members of my organization. Whatever the appropriate vehicle, the Nation’s fire fighters call upon this

committee to work to provide the necessary resources for a nationwide fire fighter

staffing initiative.

Training

The second pillar that needs to be fortified is training. Far too many jurisdictions

lack the funds to hire training instructors, purchase training equipment, or have access to training facilities. As a consequence, fire departments in these jurisdictions

do not provide new fire fighters with the basic level of training identified by the National Fire Protection Association as necessary to perform the job safely and effectively. Throughout the Nation, too many fire fighters essentially receive on-the-job

training. This is a situation that endangers not only the lives of the new fire fighters, but their fellow fire fighters and the public that they are sworn to protect.

While basic fire fighter training is a need for many fire fighters, all fire fighters

need advanced training in hazmat and weapons of mass destruction (WMD) re-
46

sponse and mitigation. Terrorism using WMD threatens our Nation as never before.

September 11, Oklahoma City, and other terrorist acts have demonstrated that

these madmen will employ appallingly unthinkable measures to achieve their goals.

In fact, just a few short weeks after September 11, our Nation experienced its first

biological terrorism when anthrax was mailed targeting elected officials and the

media. During those frantic days in October, thousands of frightened Americans

called their local fire department to report suspicious white powder, quickly overwhelming the capability of all dedicated hazmat crews. As a result, it was frontline

fire fighters who responded to these calls, far too many of whom lacked hazmat

training. It is now clear that all fire fighters need operations level hazardous materials/WMD response training.

Two solutions to the training shortage are the FIRE Act and the Administration’s

Homeland Security proposal. The members of this subcommittee have direct influence on both items and the IAFF urges you to fully fund both programs.

The FIRE Act and the Homeland Security proposal complement each other and

offer the promise of covering the full spectrum of training. With full funding for the

FIRE Act, cash strapped fire departments can begin to get the basic fire fighter

training that is desperately needed. For the more specialized training, the Homeland Security proposal could be the means to fund the needed hazmat/WMD terrorism response training across the Nation.

Additionally, this subcommittee has jurisdiction over two innovative hazmat training programs. From the vantage point of front line emergency responders, the two

crucial components of any hazmat training program are that the training is conducted in the local jurisdiction incorporating the unique aspects of the communities,

and that it uses trainers who are both certified instructors and professional firefighters.

The advantage of training in one’s own jurisdiction is self-evident. Training for

a terrorism event in your own community allows first responders to not only learn

the tactics and methods of effective response, but also apply these theoretical concepts to concrete targets in their jurisdiction. This value-added piece is missing

when firefighters are forced to attend remote training sites.

The value of qualified firefighters teaching other firefighters is in the benefit

gained by shared experiences. The bond of common experiences allows firefighter instructors to more effectively communicate the lessons of a training course than, say,

a person from the academia or the military. These firefighter instructors know the

fire fighting jargon and can speak the language and because they are both firefighters and subject matter experts, they command a great amount of respect from

their students.

I am proud to note that the IAFF, in partnership with the EPA and NIEHS, offers

training programs to all fire departments—free of charge—in hazmat response. The

IAFF program focuses on emergency responder safety and has all the elements of

a successful training program. We use skilled instructors, who are both hazmat

technicians and certified instructors, to train fire departments to safely and effectively respond to conventional, biological, chemical, or nuclear hazmat incidents. Additionally, our program conducts the training in the community and incorporates the

unique aspects of the localities. I am also proud to note that this training is available to all fire fighters, career and volunteer.

Especially since September 11, the demand for our training program far outpaces

our funding to deliver it. If this subcommittee increases the appropriations to the

EPA and NIEHS for our training program, we can meet this ever-growing demand

and improve the security of our Nation.

Equipment

The third pillar that needs to be reinforced is equipment. Recently, the IAFF,

which represents more than 90 percent of all the professional fire departments in

the Nation, conducted a survey of our State Associations. Twenty-two States participated in the survey, representing 1364 fire departments (54 percent of all IAFF

Locals).

Among the survey findings were:

—43 percent of fire departments are in need of additional turnout gear (i.e., coats,

gloves, helmets, and boots).

—50 percent of fire departments are in need of additional respirators.

—70 percent of fire departments do not have adequate maintenance programs for

their protective gear.

—66 percent of fire departments are in need of better communications equipment.

Our bleak survey results were validated by the analysis of last year’s FIRE Act

data. Of the 30,000∂ grant requests submitted last year for the six eligible categories, 27,384 were for the three categories of personal protective equipment, fire
47

fighting equipment, and vehicles. The 27,384 grant requests in these three areas accounted for $2.71 billion. Less than 5 percent of those grant requests were awarded.

As you know, the FIRE Act’s purpose is to assist those fire departments most in

need. Thus, there was a heavy emphasis on basic firefighting needs. The vast majorities of the grant requests were not for State of the art or specialized equipment.

They were for the basic everyday firefighting and personal protective equipment.

A number of IAFF members served as grant evaluators. Some of them have told

me they literally shed tears during the evaluation process because they denied requests to replace 15-year-old threadbare turnout coats that are shared by several

fire fighters, because there were many departments in worse circumstances. It is a

deplorable situation when fire fighters who possess barely functional equipment

must consider themselves lucky because there are fire departments in such dire

need that their fire fighters do not have basic equipment at all.

And beyond the need for basic equipment, there is a tremendous need for advanced hazmat equipment, in particular hazmat detecting equipment. As my organization has become increasingly involved in WMD emergency response, I have become convinced that the greatest threat to our safety comes not from sophisticated

nuclear devices launched by foreign Nations, but from so-called ‘‘dirty bombs’’ that

utilize a conventional explosion to release radioactive material. With minimal technical expertise, anyone with access to agricultural fertilizer could unleash an atomic

reaction that threats thousands of lives.

In the event of such a dirty bomb detonation, calls to 911 will only report an explosion and fire. Fire fighters responding to the scene will be completely unaware

of the radiological contamination dispersed miles beyond ground zero.

For years we have been told that it is the job of the military, with their specialized training and sophisticated monitoring devices, to respond to such incidents. But

the reality is that these military teams, as capable as they are, could be hours away.

Meanwhile, the fire fighters are on the scene within minutes.

Thus, it is vital that all first responders have access to monitoring devices, and

be provided with the proper training to use them accurately. When fire fighters are

made aware of the radiological dangers, we can take the appropriate procedures to

limit our exposure so that we can begin to conduct rescue and decontamination missions.

This subcommittee has the means to begin addressing the atrocious lack of equipment, both basic and specialized. First, again the FIRE Act must be fully funded.

With approximately 26,000 requests unfulfilled from last year, we can be sure that

basic firefighting and personal protective equipment will again be in demand.

Second, fully fund President Bush’s proposals for Homeland Security. $3.5 billion

for equipment and training will go a long way towards closing the gap between the

needs of the fire service for hazmat equipment and the resources available to obtain

it.

CONCLUSION

Too often, the fire service has been neglected when it comes to planning and devoting resources to do our job. Yet, we are the first responders and the ones making

the ultimate sacrifice to protect our Nation. As we pray for a quick and decisive resolution to the war in Afghanistan, we must not forget that the fire service stands

guard, day-in and day-out, protecting our communities and our Nation.

The Federal Government, including Congress and the Administration, has begun

to recognize that firefighters are the lynchpin to an effective and strong homeland

security. The firefighters of the IAFF will be ready when the next alarm rings or

when terrorists strike again. But our ranks are thin and reinforcements are needed

quickly.

Congress must follow through and provide the resources to ensure that fire fighters have adequate staffing, proper training and the right equipment so that we will

be able to do our job. Fully funding the FIRE Act and Homeland Security proposal,

and increasing the funding for hazmat training are ways this subcommittee can

meet this obligation. Our organization will never forget the sacrifice of 343 members

on September 11. Hopefully their sacrifice and heroism will be the catalyst for the

Federal Government to embrace its responsibility and provide the resources to allow

our members to do their job safely and effectively.

Thank you for this time to present the view of the IAFF. I will be available for

questions by the committee.

Senator MIKULSKI. Thank you very much. That was very compelling.

Chief Buckman, why do we not turn to you?
48

STATEMENT OF JOHN M. BUCKMAN, III, CHIEF, INTERNATIONAL ASSOCIATION OF FIRE CHIEFS

Mr. BUCKMAN. Good afternoon, Madam Chair and members of

the subcommittee. I am John Buckman, Chief of the German

Township Volunteer Fire Department in Evansville, Indiana, and

President of the International Association of Fire Chiefs. The IAFC

represents the leaders of America’s fire and emergency services.

Thank you for the opportunity to advise you about the pressing

needs of America’s fire and emergency services and the status of

the Assistance to Firefighters grant program administered by

FEMA.

In the autumn of 2000, Congress authorized and funded the Assistance to Firefighters grant program. Its purpose is to assist departments in securing the fundamental tools of firefighting. You

have heard the statistics. You know how many people applied. You

know how much money they asked for.

FEMA established an office to administer the program and the

criteria for the selection of recipients. Working to achieve the goals

and priorities established by Congress, FEMA consulted with major

fire service organizations and developed the specifics of the first

Assistance to Firefighters grant program quickly and efficiently.

And let me say one thing about FEMA. They performed. Even

with the events of September 11 and all the things that FEMA was

called upon to do in those ensuing days, they still got the FIRE Act

grant program done, completed, and the money out the door.

The events of September 11 demonstrated, once and for all, the

critical role of the fire service in responding to national disasters.

As a result, Congress has enacted several significant enhancements

to the grant program for future years. Most significantly is your

authorization to increase the funding to $360 million for fiscal year

2002, and an additional 2 years of funding at a level of $900 million, triple the original amount.

In addition new grant categories were added, including grants for

equipment related to the response to terrorism incidents. These

changes will pay extraordinary dividends to local fire departments

and the citizens they protect around the country, and we thank you

and Congress for enacting them.

As this record indicates, in a very short time the grant program

has developed an impressive record of funneling desperately needed Federal resources directly to those who are on the front line of

homeland security. That is America’s fire service. Based on that

record, we encourage you and Congress to utilize the Assistance to

Firefighters grant program for any funds appropriated for the purpose of assisting the fire services’ missions of domestic defense.

In his State of the Union address 1 week ago today, President

Bush made a commitment to a sustained strategy for increased

homeland security. The President has made clear that he considers

a critical component of this strategy to be increased Federal funding for America’s first responders.

In order to ensure that the full benefits of this increased funding

are realized by the American people, we urge you and Congress to

utilize the Assistance to Firefighters grant program for that portion

of funding meant for the fire and emergency services.
49

We do not think there is a need to establish any new programs

for terrorism preparedness. The mechanisms to get necessary local

resources are already in place within FEMA. Let us use them. Use

the existing programs. Congress can ensure that appropriated

funds quickly reach where the rubber meets the road. It is America’s fire service, the only people in the United States who are situated locally, trained, equipped, and sworn to respond within minutes to all incidents that are communities face.

The understaffing of fire departments is an issue that must be

addressed. Whether a department is a career, combination, or volunteer, the level of staffing is an immediate issue, especially in

light of today’s reality.

Working with our counterparts at the International Association

of Firefighters, we have strongly endorsed the bipartisan legislation, Staffing for Adequate Fire and Emergency Response, the

SAFER bill, introduced by Senators Dodd and Warner, that will

provide Federal assistance to local fire departments for the purpose

of hiring new firefighters. Local governments would be required to

pay an increasing share of the costs associated with new firefighters over a 3-year period until the local government assumes all

responsibility for funding the new positions.

General President Schaitberger urged this morning to fully fund

the Assistance to Firefighters grant program, one-half of that being

allocated to staffing. And we agree with his objective and fully support it.

We anticipate that volunteer and combination fire departments

will also have the opportunity to apply for grants to fund staffing

within their departments. We believe that it is important that volunteers and combination departments have this opportunity.

The primary objective of adding 75,000 additional firefighters is

raising the staffing level of fire departments throughout the country to four firefighters per unit. A four-person unit will yield a 100

percent increase in operational capacity with three-person companies. Under Federal administrative law and proper safety practices,

firefighters must operate in teams of at least two people. Therefore,

staffing a fire apparatus with four people will yield two working

teams of two each, doubling the capacity of apparatus staffed with

three personnel. Raising staffing levels to four personnel is a large

undertaking but it is necessary.

Another aspect of this problem is the increased difficulty in recruiting and retaining volunteer firefighters. As a volunteer fire

chief myself, I personally know how difficult that is. The reasons

for this problem are varied and the solutions are complex. We will

continue to work with Congress and you on these issues.

However, I would like to take a moment to applaud the National

Fire Academy and their work in the volunteer incentive program.

They have developed courses specifically designed for the volunteer

firefighters to attend the National Fire Academy and to be exposed

to the leadership courses that they present. Their curriculum reflects the diverse needs of the volunteer fire service, and the financial aid enables any volunteer firefighter in this country to attend

their classes. The National Fire Academy is a critical supporter of

the volunteer fire service and we are grateful.
50

In 1997, the Department of Defense and Justice began training

and equipping local firefighters and police to deal with incidents of

terrorism involving weapons of mass destruction. Similar programs

have since been authorized by Congress bringing the Department

of Health and Human Services, FEMA, and other Federal agencies

into this effort. Without doubt, we have made progress. But preparedness efforts need to be more clearly focused.

In May of last year, President Bush proposed an Office of National Preparedness at FEMA. The ONP was to serve as a single

point of contact for State and local public safety agencies charged

with reviewing all Federal training and response programs spread

all across a myriad of Federal agencies.

We have strongly endorsed the creation of the Office of National

Preparedness in prior testimony before Congress and we reiterate

that endorsement today. It has the support of America’s first responders and represents a crucial step in the right direction. It is

the logical extension of FEMA’s responsibilities for disaster response and is consistent with President Bush’s public announcement in May last year concerning the organization and management of Federal terrorism response programs and his creation of

the Office of Homeland Security.

In the days immediately following the attacks of September 11,

many Americans heard for the first time urban search and rescue,

USAR, teams. As Chief Paulsell testified, there are 28 teams. We

would agree with his analysis that we do not need more teams but

we need to fully fund the existing teams.

In the metropolitan Washington area, for example, there are

USAR teams in Fairfax County, Virginia and Montgomery County.

In the event of a major structural collapse, such as occurred in

New York City or in San Francisco a few years ago with their

earthquake, any of these teams can be activated by FEMA. They

travel distances far beyond their local jurisdictions to perform crucial rescue operations. By any measure, the effectiveness of USAR

teams in response to a wide variety of disasters has been impressive. Building upon this proven track record, the IAFC has put

forth several suggestions to enhance the effectiveness of USAR

teams.

First, we are pleased to note that FEMA Director Joe Allbaugh

has already proposed action on one of our initial recommendations,

authority for credentialing, training, and deploying USAR teams

will move to the U.S. Fire Administration. This organizational

change will ensure that FEMA staff with operational fire experience will be leading the USAR program and coordinating the Federal response to a major disaster.

We also encourage the following additional changes to the USAR

program. The IAFC believes that USAR should be expanded and

upgraded by the formation of smaller, more mobile ‘‘USAR Lite’’

teams. Under the existing system, the Federal Government should

assist the fire service in expanding a proven concept by creating

additional smaller units within each State, which would include

staffing levels and equipment caches with sufficient personnel and

equipment to effectively function for 4 to 24 hours. These teams

will be designed to be smaller, quicker to deploy, and in closer

proximity to the emergency, and therefore have easier and more
51

rapid access to emergency scenes. Short response times are critical

to saving lives. They are a critical consideration in search and rescue operations when looking for people buried beneath rubble.

Time is what saves lives. This immediate response would be followed by the deployment of more traditional USAR teams, which

would be activated and deployed in their usual manner.

We also believe there is a need for what we call command overhead teams. In talking with the firefighters, the chief officers from

Arlington County that responded to the Pentagon incident, one of

the problems they had was in having enough qualified people to

manage the incident. The command overhead teams are similar to

what the Bureau of Land Management does in wildland fires. It is

often the case in prolonged major incidents where managing the incident, having enough skilled and competent people to do that, becomes a major issue. These local fire departments would welcome

outside assistance to help manage the incident. The command overhead teams involve the creation of small groups of qualified, competent command officers who can be called upon on short notice to

provide assistance to local efforts in an emergency at the request

of a local incident commander.

The U.S. Fire Administration is a directorate within FEMA. Its

mission is to provide leadership, coordination, and support for the

Nation’s fire prevention and control, fire training and education

programs. The U.S. Fire Administration’s ultimate objective is to

significantly reduce the Nation’s loss of life from fire.

Historically, leadership at the U.S. Fire Administration has been

unstable. As the fire service moves forward with changes that it

will make as a result of September 11, those changes will place an

even greater leadership burden on the U.S. Fire Administration.

That is why the Federal Government must move forward now to

ensure that constancy and depth of leadership is in place throughout the U.S. Fire Administration.

I know my time is up. I will summarize with this comment.

Senator MIKULSKI. We have to leave the room at 1:00.

PREPARED STATEMENT

Mr. BUCKMAN. The fire service is America’s domestic defender.

We are the first ones inside and most of the time we are the last

ones outside. We need and deserve Federal assistance because we

have proven time and time again that we respond to all the communities’ emergency needs. We need your help.

Thank you very much.

[The statement follows:]

PREPARED STATEMENT OF JOHN M. BUCKMAN, III

Good morning, Madam Chair and members of the subcommittee. I am Chief John

Buckman, chief of the German Township Volunteer Fire Department in Evansville,

Indiana and president of the International Association of Fire Chiefs (IAFC).

The IAFC represents the leaders of America’s fire and emergency service, which

consists of over 31,000 fire departments in the United States staffed by more than

1.1 million fire fighters and emergency medical services personnel. Of those, more

than 800,000 are volunteers and about 250,000 are career personnel.

Thank you for this opportunity to advise you about the pressing needs of America’s fire and emergency service and the status of the Assistance to Firefighters

grant program administered by the Federal Emergency Management Agency

(FEMA).
52

ASSISTANCE TO FIREFIGHTERS GRANT PROGRAM

In the autumn of 2000, Congress authorized and funded the Assistance to Firefighters grant program. Its purpose is to assist local departments in securing the

fundamental tools of fire fighting. In its first year, nearly 20,000 fire departments

sought support from the Federal government to improve fire prevention programs,

upgrade training, purchase personal protective gear, apparatus and equipment, and

enhance fitness and wellness programs to better enable personnel to mitigate the

all-hazards incidents to which we respond. Grant requests totaling nearly $3 billion

were received by FEMA for the $100 million available in fiscal year 2001.

FEMA established an office to administer the program and criteria for the selection of recipients. Working to achieve the goals and priorities established by Congress, FEMA consulted with major fire service organizations and developed the specifics of the first Assistance to Firefighters grant program quickly and efficiently.

The events of September 11th demonstrated, once and for all, the critical role of

the fire service in responding to national disasters. As a result, Congress enacted

several significant enhancements to the grant program for future years. Most significantly, funding for the program was increased to $360 million for fiscal year

2002 and the program was reauthorized for an additional two years at a funding

level of $900 million—triple the original amount. In addition, new grant categories

were added including grants for equipment related to the response to terrorism incidents. These changes will pay extraordinary dividends to local fire departments and

the citizens they protect around the country and we thank you and Congress for enacting them.

As this record indicates, in a very short time the grant program has developed

an impressive record of funneling desperately needed Federal resources directly to

those who are on the frontline of homeland security, America’s fire service. Based

on that record, we encourage you and Congress to utilize the Assistance to Firefighters grant program for any funds appropriated for the purpose of assisting the

fire service’s mission of domestic defense.

In his State of the Union address one week ago today, President Bush made a

commitment to a sustained strategy for increased homeland security. The president

has made clear that he considers a critical component of this strategy to be increased Federal funding for America’s fire and emergency service. In order to ensure

that the full benefits of this increased funding are realized by the American people,

we urge you and Congress to utilize the Assistance to Firefighters grant program

for that portion of funding meant for the fire and emergency service. We do not

think there is a need to establish any new programs for terrorism preparedness. The

mechanisms to get necessary resources to local responders are in place. Let’s use

them. By using this existing program, Congress can ensure that appropriated funds

quickly reach America’s fire service—the only people in the United States who are

situated locally and trained, equipped, and sworn to respond within minutes to all

incidents, natural or man-made, which threaten the American homeland.

ADDITIONAL FIREFIGHTER STAFFING

The understaffing of fire departments is an issue that must be addressed. Whether a department is a career, combination, or volunteer, the level of staffing is an

immediate issue, especially in the light of today’s reality.

Working with our counterparts at the International Association of Fire Fighters

we have strongly endorsed bipartisan legislation—the Staffing for Adequate Fire

and Emergency Response (SAFER) bill—introduced by Senators Christopher Dodd

and John Warner that would provide Federal assistance to local fire departments

for the purpose of hiring new fire fighters. Local governments would be required to

pay an increasing share of the costs associated with the new fire fighters over a

three-year period until the local government assumed all responsibility for funding

the new positions.

The primary objective of adding 75,000 additional fire fighters is raising the staffing level of fire departments throughout the country to four fire fighters per unit.

A four-person response unit will yield a 100 percent increase in operational capacity

compared with three-person companies. Under Federal administrative law and proper safety practices, fire fighters must operate in teams of at least two people. Therefore, fire apparatus staffing of four will yield two working teams of two, doubling

the capacity of apparatus staffed with three personnel which can only form one

operational team. Raising staffing levels to four personnel is a large undertaking,

but it is necessary.

Another aspect of this problem is the increasing difficulty in recruiting and retaining volunteer fire fighters. As a volunteer fire chief, I personally know how difficult

this is. The reasons for this problem are varied, and the solutions complex. We will
53

continue to work with Congress on these issues. However, I would like to take a

moment to applaud the National Fire Academy for its effective support of the volunteer fire service. Its curriculum reflects the diverse needs of the volunteer fire service and their generous financial aid enables many volunteer fire fighters to attend

their classes. The National Fire Academy is a critical supporter of the volunteer fire

service, and for that we are grateful.

OFFICE OF NATIONAL PREPAREDNESS

In 1997, the Departments of Defense and Justice began training and equipping

local fire fighters and police to deal with incidents of terrorism involving weapons

of mass destruction. Similar programs have since been authorized by Congress,

bringing the Department of Health and Human Services, FEMA, and other Federal

agencies into the effort. Without doubt we have made progress, but preparedness

efforts need to be more clearly focused.

In May of last year, President Bush proposed an Office of National Preparedness

(ONP) at FEMA. The ONP was to serve as a single point-of-contact for State and

local public safety agencies, charged with reviewing all Federal training and response programs spread across myriad Federal agencies.

We have strongly endorsed the creation of the Office of National Preparedness in

prior testimony before Congress, and we reiterate that endorsement today. It has

the support of America’s first responders and represents a crucial step in the right

direction. We are pleased that this Committee approved and funded the Office of

National Preparedness. It is a logical extension of FEMA’s responsibilities for disaster response and it is consistent with President Bush’s public announcement in

May of last year concerning the organization and management of Federal terrorism

response programs and his creation of the Office of Homeland Security.

USAR EXPANSION

In the days immediately following the attacks on September 11, 2001, many

Americans heard for the first time about the Federal Emergency Management Agency’s ‘‘Urban Search and Rescue’’ (USAR) teams. There are 28 teams, largely composed of local fire fighters with specialized training and equipment and extensive

experience that can be deployed to major incidents throughout the country.

In the metropolitan Washington area, for example, there are USAR teams in Fairfax County, Virginia, and Montgomery County, Maryland. In the event of a major

structural collapse—such as occurred in New York City, or a few years ago in the

San Francisco earthquake—these teams or any of the other 26 can be ‘‘activated’’

by FEMA. They travel to the scene of disasters to perform crucial rescue operations.

By any measure, the effectiveness of the USAR teams, in response to a wide variety of disasters, has been impressive. Building upon this proven track record, the

IAFC has put forth several suggestions to enhance the effectiveness of the USAR

teams.

First, we are pleased to note that FEMA Director Joe Allbaugh has already proposed action on one of our initial recommendations—authority for credentialing,

training and deploying Urban Search and Rescue teams will move to the U.S. Fire

Administration (USFA). This organizational change will ensure that FEMA staff,

with significant operational fire experience is in charge of this critical component

of the Federal response to any major disaster.

We also encourage the following additional changes to the USAR program. The

IAFC believes the USAR program should be expanded and upgraded by the formation of smaller, more mobile ‘‘USAR Lite’’ teams. The Federal government should

assist the fire and emergency service in expanding a proven concept by creating additional smaller units in each State, which would include staffing levels and equipment caches with sufficient personnel and equipment to effectively function for 4 to

24 hours. These teams will be designed to be smaller, quicker to deploy, and closer

in proximity to the emergency, and would therefore have easier and more rapid access to emergency scenes. Short response times are a critical consideration when the

lives of people buried beneath rubble are at stake. This immediate response would

be followed by the deployment of the more traditional USAR teams, which would

be activated and deployed in their usual manner.

We also believe there also is a need for what we call ‘‘Command Overhead

Teams.’’ It is often the case in prolonged, major incidents that a fire department’s

commanders are fully engaged in addressing the instant issues and are hardpressed to anticipate what might develop and to then plan for the future. They

would welcome outside assistance. The ‘‘Command Overhead Teams’’ concept involves the creation of small groups of three-to-five experienced command officers
54

who can be called upon on short notice to provide assistance to local efforts in an

emergency at the request of a local incident commander.

The USAR program has a well-deserved reputation for excellence. Based on this

record we strongly encourage FEMA to implement these recommendations in order

to further enhance the operational capabilities of this critical national resource.

FEDERAL LEADERSHIP

The U.S. Fire Administration is a directorate within 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 activities. The U.S.

Fire Administration’s ultimate objective is to significantly reduce the Nation’s loss

of life from fire, while also achieving a reduction in property loss and non-fatal injury due to fire.

Historically, leadership at the U.S. Fire Administration has been unstable. As the

fire service moves forward with changes that it will make as a result of the September 11th tragedy, those changes will place an even greater leadership burden

on USFA. That is why the Federal government must move forward now to ensure

that constancy and depth of leadership is in place throughout the organization to

prepare the U.S. Fire Administration for the challenges that lie ahead and to meet

the needs of the Nation.

Fortunately, FEMA Director Joe Allbaugh understands this need and has taken

decisive action to provide leadership at the U.S. Fire Administration and provide it

with the resources and oversight to effectively carry out its mission. We applaud Director Allbaugh’s appointment of a strong leader with a distinguished fire service

background as U.S. Fire Administrator. We further appreciate Director Allbaugh’s

recognition, as evidenced by his advocacy, of the role of America’s fire and emergency service community in protecting our Nation’s communities. His actions since

assuming office will enhance the safety and security of all Americans.

CONCLUSION

Madam Chair, our testimony today has been strongly supportive of FEMA. The

reason for this is simple. They have earned the support of the fire and emergency

service based on a proven track record of providing invaluable training, equipment,

and resources to America’s local ‘‘first responder’’ community both on-scene at disaster sites and during the ongoing planning and training that all responder organizations must constantly pursue. They clearly recognize that America’s local fire departments are the first line of disaster response in this country.

It is for this reason that we encourage Congress to utilize this Agency as you look

to significantly enhance and improve America’s readiness capabilities. President

Bush has budgeted an unprecedented amount of Federal support for America’s ‘‘first

responders’’ in the name of homeland security. We strongly urge Congress to utilize

existing programs, specifically the Assistance to Firefighters grant program administered by FEMA, to ensure that these funds are quickly disbursed to the local responders who will use them efficiently and effectively to provide for the security of

the American homeland.

The International Association of Fire Chiefs very much appreciates the opportunity to appear before you today to discuss FEMA and the Assistance to Firefighters grant program. I am happy to answer any questions you may have.

Senator MIKULSKI. Thank you very much, and we do not want

to cut anybody off. This has been so important, it ought to go on

for a long time.

Mr. Stittleburg, why do you not bring to us the views of the National Fire Council? And we welcome you from Wisconsin. We have

good representation here.

STATEMENT OF PHILIP C. STITTLEBURG, CHAIRMAN, NATIONAL VOLUNTEER FIRE COUNCIL

Mr. STITTLEBURG. Thank you, Madam Chairlady. I had the pleasure of making your acquaintance last fall at the fallen firefighters

memorial service in Emmitsburg, and I thank you for your attendance there.
55

Senator MIKULSKI. It was when President Bush was there and

then we shortly began to bomb Afghanistan. Harold and we were

all there.

Mr. STITTLEBURG. It was indeed an important day. I thank you

for your attendance. You did us honor by your presence.

My name is Chief Phil Stittleburg. I am Chairman of the National Volunteer Fire Council. I have been in the volunteer fire

service for 30 years. I spent about 25 years of that serving as chief

officer.

There are about 800,000 volunteer firefighters in the United

States. About 90 percent of the fire departments in this country are

volunteer fire departments. About 75 percent of all firefighters in

this country are volunteer firefighters, and we protect about 38

percent of the United States population.

Volunteers give of their time, their talents. Sometimes they give

their very lives. This donated time and talent that they provide

translates directly into substantial dollar tax savings for the taxpayers. Estimates run as high as $60 billion. That is with a B, $60

billion or more a year provided just simply by the donated services

of volunteer firefighters nationwide.

Volunteers were deeply involved in all the events surrounding

September 11. Volunteer departments responded to the plane crash

in Somerset County, Pennsylvania. We were part of the response

to the Pentagon, as you have already heard. Volunteer departments

provided backup to the World Trade Center disaster. A number of

the firefighters from New York City who lost their lives, in fact, in

the trade center were also volunteers in their own home communities.

September 11 sent many messages. I think the clearest of all is

that the fire service is indeed the first responder to terrorist attacks. Terrorism is going to expand our responsibilities. I can tell

you we will meet that challenge. That is part of the proud history

of the fire service, meeting challenges.

I will tell you also we will not meet it without a struggle. One

of the struggles that the volunteer fire service encounters is that

of funding. Most, if not all, of us struggle routinely for the dollars

we need to operate. The dollars provide protective clothing to our

members, safety equipment, the necessary training that they need,

and that is not even taking into account the money it takes to actually buy the equipment to mitigate the hazard itself.

It is not just a rural problem. Suburban areas likewise are seeing

expanded demands for their services which translates into greater

demand for dollars. And technology I think offers some solutions,

but it is often solutions at a high price.

In the first panel there was some discussion about the radio communications. A couple of years ago, I had an opportunity to speak

with a major radio communications manufacturer. I said, what is

in the pipeline? What kind of technology is out there that you are

going to be giving us in the coming years? And his response was,

anything you want. And I said, well, what do you mean by that?

And he said, it is as simple as this. If you can dream it, we can

build it, but you cannot afford to buy it.

What we need to do is support the development of technology

that becomes affordable, and we can do that in a number of ways.
56

I suggest we can do it through exploring technology transfer. We

look to industry. We look to the space program. We look to the military for other pieces of technology that are already in place that

are adaptable to our mission. I think Chief Paulsell made some reference. The marriage he referred to it as. We need to be able to

draw upon that technology that is already there.

Most of the previous speakers already referred to the Assistance

to Firefighters grant program, and I will simply echo what they

said by indicating, first of all, it was a tremendous first step. It was

certainly a step in the right direction and it was a giant step. Unfortunately, it is not enough.

Just to highlight the significance of it because when that program was being considered, I heard some people say, well, I wonder if the fire service is really listening. I wonder if really the need

is there. Well, there were 31,000-plus grant requests received from

nearly 19,000 fire departments. Bearing in mind there are only

26,000 fire departments in the United States, there were nearly

19,000 departments requesting money. $3 billion requested; $100

million appropriated. Interestingly enough, 1,855 grants were

awarded. 1,379 of those were awarded to communities under

20,000 people.

And I salute you for your efforts in that regard having increased

that appropriation for this year to $360 million. You have also expanded the category to fire department sponsored EMS, and that

was a good move. EMS is a rapidly expanding area for us, and that

was I think a very wise choice. The $900 million that is proposed

for 2003 and 2004, I would certainly strongly encourage you to support that and authorize those funds.

President Bush has recommended the role that volunteers play

in homeland defense, and specifically he has asked the public to

volunteer. He has talked about something called the first responder

initiative. As I understand it, he proposes that to enhance homeland security and proposes $3.5 billion in fiscal year 2003 for that.

We certainly support that. We would wish to be closely involved in

the development of that program and would ask your support for

it also.

As to the distribution of funds, I would echo what I think nearly

every speaker ahead of me has said, and that is the Assistance to

Firefighters grant program I think has been an absolute model of

Government efficiency. As my colleague, Chief Buckman said, it

put the money where the people needed it and it did it quickly. It

did it with very little shrinkage. It did it by bringing in people who

volunteered their time to review the grant applications, people who

were knowledgeable and in a position to fairly evaluate those at a

cost to the Government of only the travel. They donated their time

and their talents to do this.

Another issue for the volunteer sector is that of recruitment and

retention. Chief Buckman mentioned staffing. That is our staffing.

Recruitment and retention of our staffing, and it is a serious problem for us. There are about 100,000 less volunteer firefighters in

this country today than there were in 1983, and I find that to be

a pretty frightening statistic. I am not here to tell you that the volunteer fire service is dying. To paraphrase Mark Twain, the reports
57

of our demise have been greatly exaggerated. However, there is a

problem and we do need help to stay healthy.

There are, I believe, a number of factors that contribute to this

challenge that we face in recruitment and retention, one of which

is fund raising demands. As equipment becomes more expensive, as

more equipment is required, more time is spent on raising the

funds to buy that equipment, which seems to me to be illogical.

In some areas, calls are increasing, and that of course, is a matter of concern.

Training requirements continue to increase, and that certainly

has an impact.

And this all occurs at a point when there is less time to volunteer. All the statistics seem to show that we spend more time at

our jobs today than we did years ago. There are more two-earner

families now, so there are less people to share the housekeeping

duties and things of that nature.

President Bush in his State of the Union address asked for everyone to commit to service to their neighbors to become volunteers. Let me tell you, when it comes to that, we are the experts.

We have been doing that for 300 years. We wrote the book on it.

He laid out a plan for the USA Freedom Corps, which would create a new citizens corps. As I understand it, FEMA is to coordinate

the citizens corps. The Bush administration I believe has proposed

$230 million for fiscal year 2003. Once again, I would strongly urge

that you support that.

PREPARED STATEMENT

We have a vested interest in promoting and protecting the volunteers in this country. America has a vested interest in promoting

and protecting the volunteers of this country. I am very honored to

share these thoughts with you today. I thank you for your past

support. I ask you for your future support. I can assure you that

we take good care of the dollars you give us, and the dollars you

give us directly benefit your constituents.

I would be pleased to take any questions. Thank you.

[The statement follows:]

PREPARED STATEMENT OF PHILIP C. STITTLEBURG

Madam Chairman and members of the committee, my name is Phil Stittleburg

and I am Chairman of the National Volunteer Fire Council (NVFC). The NVFC represents the interests of the Nation’s nearly 800,000 volunteer firefighters, who staff

over 90 percent of America’s fire departments. I have served in the volunteer fire

service for the last 30 years and have been the Chief of the LaFarge Volunteer Fire

Department in Wisconsin for the last 25 years. I have had experiences in all phases

of the first responder community, including chemical and hazardous materials incidents, information management, EMS, rescue and fire.

In addition to serving as NVFC Chairman, I have represented the NVFC on a variety standards-making committees, including ones that set industry standards on

firefighter health and safety. I also serve on the National Fire Protection Association’s Board of Directors and I am an adjunct instructor for the National Fire Academy. I earn my livelihood as an attorney, which includes serving as an Assistant

District Attorney on a half-time basis for the last 28 years. These positions give me

an excellent opportunity to work in emergency services in both the law enforcement

and fire service professions. On behalf of the volunteer fire service, I appreciate the

opportunity to comment on needs and challenges we face.

According to the National Fire Protection Association (NFPA), nearly 75 percent

of all firefighters are volunteers. In most years more than half of the firefighters

that are killed in the line of duty are volunteers. In addition to the obvious contribu-
58

tion that volunteer firefighters lend to their communities as the first arriving domestic defenders, these brave men and women represent a significant cost saving

to taxpayers, a savings sometimes estimated to be as much as $60 billion.

September 11, 2001 is a date that will be long remembered for the horrible losses

our Nation suffered, including the loss of so many of our brothers and sisters in the

emergency services. September 11 will also be remembered for the heroics of those

brave men and women who ran into the World Trade Center to render aid to their

fellow New Yorkers, those who valiantly fought the raging fire at the Pentagon in

Arlington, VA, and the fire companies who responded to the Somerset County, PA

plane crash. Volunteer fire, rescue, EMS, and technical specialty teams answered

and responded on that fateful day at Somerset and the Pentagon incidents and provided backup support to many departments who responded to the World Trade Center. Finally, September 11 will be remembered for ushering in America’s new all out

war against terrorism at home and abroad.

The September 11 tragedies in New York, Arlington, Virginia and Southwestern

Pennsylvania made it clear to all Americans that the fire service is the first responder to all terrorist attacks this country may face. Administration officials and

Members of Congress continue to warn Americans of a ‘‘clear and present danger’’

of follow-up terrorist attacks. The question now is when and where, not if, the next

terrorist attack will occur. As America’s domestic first responders, the fire service

will be on the front lines of any incident and must be prepared to respond to and

defend our citizens from the ravages of terrorist attacks using conventional weapons

or weapons of mass destruction. This expands our normal services beyond the delivery of fire, EMS, rescue, and technical specialty services to our citizens. These services already have time and training demands that are escalating annually.

America’s fire and emergency services are in need of your assistance and you, as

Members of the United States Senate, can make a difference by partnering with the

fire service to give America’s domestic defenders the tools they need to help fight

this new war.

One of the largest problems faced by America’s volunteer fire service is funding.

Many volunteer fire departments struggle to provide their members with adequate

protective clothing, safety devices and training to protect their communities, as

mandated by regulations and standards. These fire companies, in towns across

America, are being asked to respond to emergency calls involving hazardous materials, structural fire suppression, search and rescue, natural disasters, wildland

fires, emergency medical services, and terrorism.

Many of these emergencies occur at Federal facilities and buildings and on Federal lands. In addition, these incidents can damage America’s critical infrastructure,

including our interstate highways, railroads, bridges, tunnels, financial centers,

power plants, refineries, and chemical manufacturing and storage facilities. We as

a fire service are sworn to protect these critical facilities and infrastructure.

In these difficult times, while volunteer fire departments are already struggling

to handle their own needs and finances, they are now forced to provide more services. Often, local governments are unable to afford the extensive training and specialized equipment that these activities require.

The funding problems in America’s volunteer fire service are not just limited to

rural areas. As suburbs continue to grow, so does the burden on the local fire and

EMS department. Even though many of these departments have the essentials, they

are unable to gain access to new technologies. At no other time have advances been

greater in equipment to protect them and make their jobs safer. Yet because the

newer technology is so expensive, many volunteer fire departments are forced to

forgo the purchase of the new technology or use outdated equipment.

Long before the terrorist attacks of September 11, the national fire service organizations began working together to enhance readiness and increase funding levels for

programs related to America’s fire departments. Many Members of Congress have

been with us since day one and have fought hard for improvement in the fire service. Unfortunately, it has taken a horrible tragedy for all of America to fully appreciate the risks our firefighters and EMS personnel take on a daily basis and the

level to which they need to be prepared.

The following items are some of the needs of America’s fire service:

First and foremost, we urge Congress to fully fund the Federal Emergency Management Agency (FEMA) Assistance to Firefighters Grant Program. This direct

grant program has proved to be the most effective program to date in providing local

volunteer and career fire departments not only with the tools they need to perform

their day-to-day duties, but it has also enhanced their ability to respond to large

disasters as well.

In 2000, Congress took a giant step in addressing the needs of America’s fire service by creating this grant program and funding it at the $100 million level. Every
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fire department across the country was eligible for funding for safety and firefighting equipment, apparatus, training, prevention, and wellness and fitness programs. In the first year of the program, the U.S. Fire Administration (USFA) and

FEMA received 31,295 grant applications from 18,915 fire departments totaling

$2.99 billion in requests. In the end, USFA/FEMA awarded 1,855 competitive grants

to local fire departments, including 1,375 to volunteer and combination fire departments. In addition, 1,379 grants totaling $55,377,798 were awarded in communities

with populations below 20,000 people. Many of these were rural volunteer fire departments that struggle the most to provide their members with adequate protective

gear, safety devices and training to protect their communities.

Thanks to your leadership, Madam Chairman, and the support of your colleagues, the funding for the program was increased to a total of $360 million in fiscal year

2002. This increase in funding has allowed FEMA to add fire department based

emergency medical services (EMS) as an eligible category this year. EMS calls continue to be the fastest growing burden on local fire departments and these new

grants will help to ease that burden. Late last year, Congress also passed a reauthorization of the FEMA Assistance to Firefighters Grant Program for $900 million

for each of the fiscal years 2002 through 2004. We respectfully request that Congress fully fund this program at the $900 million level in fiscal year 2003.

An increase in funding for the program will allow more departments to obtain the

firefighting and safety equipment, training, and vehicles they so desperately need

to do their jobs. It would also allow FEMA to continue to expand the grant categories the program offers to include fire department construction and modification,

as well as grants for recruitment and retention initiatives.

Terrorism and hazardous materials response training and equipment are of vital

importance to America’s fire service. Even the best-prepared localities lack adequate

resources to respond to the full range of terrorist threats this country faces. Many

jurisdictions, especially those in rural and suburban areas protected by volunteers,

have little or no capability to respond to terrorist attacks using weapons of mass

destruction.

In the President’s budget, the Administration has outlined plans for a new First Responder Initiative, which proposes to spend $3.5 billion in fiscal year 2003 to dramatically enhance the homeland security response capabilities of America’s local

fire, EMS, and police departments. This proposed program, which would be administered through FEMA, will allocate approximately $105 million for planning, $2 billion for equipment, $1.1 billion for training, and $245 million for exercises. The National Volunteer Fire Council fully supports this program and we ask Congress to

do the same.

However, although we understand that some small fire departments are better

served through structured training from State training organizations, we are concerned about the possibility that a large portion of this new funding for equipment

and training will get bogged down in State agencies and will not get down to the

local first responders. We look forward to working with the Congress and FEMA to

ensure that this program reaches needy departments. The efficient administration

of the Assistance to Firefighters Grant Program could well serve as a model for distributing these funds.

In addition, although we understand the special needs and concerns of America’s

large metropolitan areas, Congress and FEMA cannot forget smaller communities,

whose fire, rescue and EMS personnel also need the basic training and equipment

to recognize and respond to these incidents. While these communities may not seem

to be prime terrorist targets, it is this very perception that makes them especially

vulnerable.

Another critical need in America’s volunteer fire service is the recruitment and

retention of volunteer personnel. Over the past 20 years the volunteer fire service

has seen its ranks decrease by nearly 15 percent. Major factors contributing to the

problem of recruiting and retaining volunteers include but are not limited to constant fundraising demands, increase in emergency calls, more rigorous training

standards, and people working further away from the communities in which they

live.

In the President’s State of the Union address last week, he encouraged all Americans to commit to service of their neighbors and their Nation by becoming volunteers. He also laid out a plan to create a new USA Freedom Corps, which will include a newly created Citizen Corps, along with the existing AmeriCorps, Senior

Corps, and Peace Corps programs. The programs will work with local officials and

community groups to offer expanded volunteer opportunities for Americans at home

and abroad.

The Citizen Corps would further utilize volunteers to identify threats and respond

to emergencies, including much-feared biological or chemical attacks. The Citizen
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Corps will enable Americans to volunteer to participate directly in homeland security efforts in their own communities. Community-based Citizen Corps Councils will

help drive local involvement in Citizen Corps, developing community action plans,

assessing possible threats, identifying local resources and coordinating other Citizen

Corps programs. These Councils will include leaders from law enforcement, fire and

emergency medical services, businesses and other community-based institutions.

We understand that the Federal Emergency Management Agency will coordinate

the Citizen Corps effort and the Bush Administration has proposed more than $230

million in funding in their fiscal year 2003 budget. The NVFC and the volunteer

fire service looks forward to playing a large role in this exciting new initiative and

we urge Congress to support it.

When I began my testimony today, I stated that the volunteer fire service is in

need of your assistance and that you, as Members of Congress, could make a difference with the necessary funding. I hope that I have painted a picture that illustrates that the need is real, that the money does go a long way, and that the continued support of the fire service by Congress is indeed a national concern.

Madam Chairman, I thank you for your time and your attention to the views of

America’s fire service, and I would be happy to answer any questions you may have.

Senator MIKULSKI. Thank you very much. That was all excellent,

outstanding testimony, and exactly kind of the navigational chart

we need to move ahead.

Senator Bond, I know you have a caucus meeting. Why do I not

turn to you and then I will do the wrap-up questions.

SUPPORT OF BASIC FIREFIGHTING EQUIPMENT

Senator BOND. Thank you very much, Madam Chair. I will be

brief. I think we have so many good things to work on here, we are

going to need to continue to have your input.

Mr. Schaitberger, I was really impressed by the facts and the figures you gave us about the declining of the inadequate support of

basic firefighting equipment. Frankly, I would hope that your message is heard by the citizens of St. Louis County and the citizens

of Baltimore, that there has to be a renewed emphasis on the local

support of firefighting. There is no way that the Federal Government is going to pick up these expenses, and I do not think anybody wants to have firefighting controlled by the Federal Government.

But having said that, we are firmly committed and we know that

this committee is going to provide the maximum support that we

can, the fire grant and all the other programs, because they ought

to be in addition to what the local governments ought to do.

One of the things that worries me, from what you say, is that

if we triple the fire grants, there may be cutbacks. What do you

suggest we do to make sure that what we provide from the Federal

Government does not supplant or excuse the local governments

from making their essential contributions to the basic system?

Mr. SCHAITBERGER. I think the experience with the first FIRE

Act grants is a great example of how it can work. That money went

directly to fire departments, and the way the act is structured, the

way the regulations are provided helped to ensure that the money

really went to the departments. That is our biggest concern. We

have seen a lot of money in this Federal Government go to a lot

of State and local agencies and quite often the funds do not get

down to the program level where they are intended. That is, quite

frankly, some of my great concern with our homeland defense as

at least I am reading some of the very general descriptions of those

funds.
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So, my suggestion is straightforward. You write it and design it

to make sure that it goes to the departments.

Senator BOND. And I think we probably will continue to have a

maintenance of effort requirement because we are demanding

more.

Senator MIKULSKI. It is in addition to, not in lieu of.

RESPONSE TO TERRORIST ATTACKS

Senator BOND. Yes, the terrorism and the other things require a

much greater response, and we cannot tolerate the Federal funds

going in to enhance your capabilities while lessening the local commitment.

I might turn to Chief Buckman. As you mentioned, we have pro- vided $360 million this year but now allow some of that funding

for training and equipment to respond to the terrorism incident.

What is your view on how much of the funds should be used to

build the capacity of fire departments to respond to terrorist acts?

Several scenarios have been mentioned in the testimony. Should

that be targeted towards terrorist attacks and perhaps providing

radiation detection equipment? The dirty bomb scenario is a possible use. What kind of criteria would you suggest?

Mr. BUCKMAN. Whatever percentage I say would be wrong because I have not done the threat assessment, but I do believe that

FEMA either has or is in the process of doing a threat assessment

and what the local responders’ capabilities are. I would say once we

have done that and completed that threat assessment, then we can

determine a percentage of what that new money might go for as

it relates to responding to terrorism.

Senator BOND. Chief Stittleburg, I have seen in your background

that in your spare time you practice law. So, as a fellow recovering

lawyer, let me ask a legal related question.

LIABILITY OF DONATED FIRE EQUIPMENT

One of the things that we have heard from a number of areas,

particularly where volunteer fire departments need equipment and

they seek donations, many corporations, many businesses that

have equipment that they might donate are concerned about the

possible liability that would ensue if they donated equipment. Obviously, nobody is going to forgive an intentional or willful turnover

of equipment, but if there is equipment that is being phased out

in businesses, everybody thinks it is good, it would be helpful for

the fire departments, volunteer and perhaps even career fire departments, to get it, is there a liability issue that we ought to address to make it easier to get equipment into the hands of fire departments?

Mr. STITTLEBURG. Well, Senator, we certainly view it that way

and in fact have supported legislation that would grant immunity

in those sorts of situations to the donor for precisely that reason,

to encourage the passing on of equipment, though used still serviceable, to those that are more needy. That has certainly been, in

fact, a priority piece of legislation with us for some time.

Senator BOND. Well, Madam Chair, we will have some more

questions for the record. I appreciate your time and the time of our

witnesses, and I thank both panels for some very compelling testi-
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mony and laying the groundwork for a lot of effort that we are

going to have to put in. We thank you. We thank your members

and your participants for all you do. We are going to be coming to

the rescue of our under-resourced fire and first responder communities.

Senator MIKULSKI. Thank you very much, Senator Bond. I think

what is clearly emerging here are a couple of principles, and I will

go to my questions.

FIRE GRANT PROGRAM

First of all, I think what we are all clear about is what we want

to be able to do to our first responders is to help them become allhazard responders. So, in our own hometown of Baltimore where

we have many chemical plants, whether it was caused by an accident or whether it was caused by a malevolent intent, the response

is the same. While we figure out who did it or why it happened,

your response has to be the same. So, we need to have you as allhazard responders.

The second is keep local control and not go through trickle-down

bureaucracies and coordinators of the coordinators. Therefore,

there should be direct funding to the fire departments themselves,

and also that should be in addition to not in lieu of local funding.

And third, really do not reinvent the wheel. We have a couple of

basic programs that even now while we are sorting out what does

the President mean, how does the President want to do it in this

very condensed appropriations year because we have to be done by

October 4, and we want to be done with our bill really in June.

Senator BOND. June.

Senator MIKULSKI. It is like a little echo chamber here.

If we really focus on doing the appropriate funding level for the

Fire Grant program where everybody is learning how to use it and

also the urban search and rescue, we will really have created a momentum, knowing that whatever we do this year is not the only

thing we are going to do or the only way we are going to do it. But

we have got to keep the momentum going and get those resources

now.

Am I correct in saying that is really your core recommendations

and to stay the course?

Harold, in many ways you represent big city/urban. You represent a lot more than that, but really the big cities that are often

the biggest target of threat, and then the suburbs come in doing

the backup like Mr. Morris talked about. What do you think is the

best way to really help these urban fire departments? Stick with

the Fire Grant program for now.

Mr. SCHAITBERGER. Right now the Fire Grant program I think

works great. We just have to make sure, particularly in the big cities, that we do not allow the mayors, city councils to back in the

grant by, in effect, reducing their initial obligation to the department which they were responsible for or which they intended to

provide and you simply are allowing the Federal dollars to come in

the front door of the department while the city dollars are going

out the back door. There has to be assurance that their commitment to their fire departments fiscally are maintained or growing

and then the Federal dollars added to it.
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Senator MIKULSKI. So, that would be the maintenance of effort

that Senator Bond talked about.

Mr. SCHAITBERGER. Yes.

Senator MIKULSKI. So, again, our effort becomes in addition to

not in lieu of.

Mr. SCHAITBERGER. Correct.

Senator MIKULSKI. Yes. I think that is really an excellent recommendation.

Did you know in the Fire Grant program Baltimore City got

$300,000?

Mr. SCHAITBERGER. I did. That is not a surprise, Madam Chair.

Senator MIKULSKI. No, no, no. It was all competitive. I want you

to know this. I want to also say this because I am going to really

need the help of the leadership. Senator Bond and I, my counterparts in the House, Congressman Walsh and Congressman Mollohan, really said no earmarking. No earmarking. This had to be

based on, first of all, the criteria of the bill, peer review, and evaluation. Essentially our job is to get the money to the Fire Grant

program but not to designate it. I am really going to need your help

to resist your fire departments requesting earmarks because we

will lose control over it.

And I love earmarks. I have been doing a lot of good with earmarks.

But really, I like the way this Fire Grant program worked. The

peer review. Again, you talked about that the firefighters were actually there. They knew how to evaluate it. I read the testimony

where they were in tears about how threadbare equipment, fire departments could not be funded, and so on. So, please help me by

keeping it peer-reviewed and then go for at least the $900 million.

That would be an excellent approach.

FUND RAISING EFFORTS OF LOCAL FIRE DEPARTMENTS

Let me go to the fund raising of the volunteer fire departments.

Could you tell me, is this a big deterrent in terms of the recruitment of volunteer firefighters? And if you could tell me how much

time is spent by the volunteer firefighters? Mr. Stittleburg, maybe

you could comment on this and Chief Buckman.

Mr. STITTLEBURG. It is certainly a significant factor, Madam

Chairlady, and it varies from department to department across the

Nation because some departments draw more of their funds from

the municipality. Some, on the other hand, are totally funded by

their own fund rasing. But it certainly is in every instance a significant commitment of time.

One of the things I think, to the volunteer sector, the grant program provides is literally buying time. That may seem to be inconsistent, but in addition to the value of the equipment that is purchased, which has its own utilitarian value, when we get the

money from FEMA to buy that equipment, we literally have bought

back time that would have been spent by us doing this fund raising. So, it has a double value to us beyond just the value of the

equipment received. It also redeems our time to take the training

which is now going to be targeted, for instance, toward terrorism

and issues of this nature.
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I do not have a specific number I can give you, but I can tell you

that it is not uncommon for it to be several hours per week frequently spent just on the fund raising activities.

Senator MIKULSKI. Thank you. Interesting insights.

Chief Buckman?

Mr. BUCKMAN. I would agree with Chief Stittleburg in that it is

really difficult to quantify, but I would say this that it is probably

at least one or two nights a week in many fire departments. But

if you can imagine trying to raise $300,000 to buy a fire truck. How

much time would that take? Whether you are selling raffles, chicken dinners, or doing bingo, how much time is that going to take?

It is going to take a tremendous amount of time.

The young people who join the volunteer fire departments today

do not join to raise money. They join to make runs and help people.

And that is where the conflict comes in in the volunteer fire service. The chief says we have got to raise money. The young volunteers say, I am not going to participate, but I want new equipment.

So, that becomes a retention issue as well. Well, if I am not going

to get new equipment, I am not going to volunteer anymore. So, we

do need help with recruitment and retention, and we do need help

with these funds through the FIRE Act.

Senator MIKULSKI. I think that is excellent. What you were saying is if there is only so much time a person can give, and even

if they are willing to do the fund raising, essentially the chicken

dinners and the bingo calling—and in our State we have money

wheels; other States do it differently—but you are either going to

be at the fire hall on a Friday night raising money and your family

is proud of you because you are a volunteer or you are going to be

there on Friday night ready to answer a call. But you do not get

any more time because of family and job. You just cannot. I think

that is an excellent, excellent viewpoint.

I think the liability issues for donated equipment—though as

wonderful as donated equipment is and we appreciate it, we would

never run a clothing drive for our Marines.

Mr. BUCKMAN. Thank you, Madam Chair. You are exactly right.

Senator MIKULSKI. In other words, I could see some additional

things like computers, the kinds of things particularly like technology, if they had those palm machines that they are ready to

turn over so you could better communicate among yourselves. But

we are not running used clothing drives or used car sales for our

fire departments. This is not a charity operation. We do not want

you to have to forage for funds, which is essentially what you are

doing. And we need you to have what is the most protective gear

available at the time. Best available technology, best available gear

that we can then help you be able to afford to buy.

And what does it mean? I am just going to come back and close

out by this. I believe the better equipped fire departments are, the

lower home ownership insurance rates will be. In other words, the

more we can do fire prevention—we have not even talked about all

your education, the way you go into schools, the way you are often

the ‘‘officer friendlies’’ of fighting fires, the way you go around to

make sure everybody has got smoke detectors. We are talking

about terrorism here, but often your first job is to prevent fires in
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local communities and be able to respond to them. This really takes

a tremendous effort.

I have lots more questions.

We want to think this through. I like President Bush’s commitment. We appreciate that. We appreciate that he actually put it in

his budget. Now we have to sort out how he wants to do it organizationally, but while we are sorting that out—and there are going

to be turf issues and Justice does not want to do this and all of

those things—you should not have to worry about that. Let us

worry about it. Give us your advice and commentary. We might be

able to get it done, but for this year, to make a really firm commitment to full funding as a minimum—minimum—to our Fire Grant

program and keeping politics out of it, and at the same time really

do our maximization of our urban search and rescue, I think then

we will have done a very good job this year, knowing next year we

have another good job to do.

Mr. SCHAITBERGER. It sounds like music to my ears.

Mr. STITTLEBURG. Madam Chairman, I can think of little that

would make me happier.

CONCLUSION OF HEARING

Senator MIKULSKI. Well, let me just say to each and every one

of the people that you represent at this table, thank you. God bless

you and God bless America.

The subcommittee stands recessed until the call of the Chair.

[Whereupon, at 1:06 p.m., Tuesday, February 5, the hearing was

concluded, and the subcommittee was recessed, to reconvene subject to the call of the Chair.]

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