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KANSAS STATE UNIVERIATy HEARING

BEFORE THE

SUBCOMMITTEE ON

SCIENCE, RESEARCH, AND DEVELOPMENT

OF THE

COMMITTEE ON

SCIENCE AND ASTRONAUTICS

U.S. HOUSE OF REPRESENTATIVES

NINETY-SECOND CONGRESS

SECOND SESSION

FEBRUARY 17, 1972

[No. 14]

Printed for the use of the

Committee on Science and Astronautics

U.S. GOVERNMENT PRINTING OFFICE

74-606 0 WASHINGTON : 1972
COMMITTEE ON SCIENCE AND ASTRONAUTICS

GEORGE P. MILLER, California, Chairman

OLIN E. TEAGUE, Texas

KEN HECHLER, West Virginia

JOHN W. DAVIS, Georgia

THOMAS N. DOWNING, Virginia

DON FUQUA, Florida

EARLE CABELL, Texas

JAMES W. SYMINGTON, Missouri

RICHARD T. HANNA, California

WALTER FLOWERS, Alabama

ROBERT A. ROE, New Jersey

JOHN F. SEIBERLING, JR., Ohio

WILLIAM R. COTTER, Connecticut

CHARLES B. RANGEL, New York

MORGAN F. MURPHY, Illinois

MIKE McCORMACK, Washington

MENDEL J. DAVIS, South Carolina

BOB BERGLAND, Minnesota

CHARLES F. DUCANDER, Executive Director and Chief Counsel

JOHN A. CARSTARPHEN, Jr., Chief Clerk and Counsel

PHILIP B. YEAGER, Counsel

FRANK R. HAMMILL, Jr., Counsel

W. H. BOONE, Technical Consultant

JAMES E. WILSON, Tecnnical Consultant

RICHARD P. HINEs, Staff Consultant

HAROLD A. GOULD, Technical Consultant

J. THOMAS RATCHFORD, Science Consultant

PHILIP P. DICKINSON, Technical Consultant

WILLIAM G. WELLS, Jr., Technical Consultant

JOHN D. HOLMFELD, Science Policy Consultant

CARL SWARTZ, Minority Staff

JOSEPH DEL RIEGO, Minority Staff

ELIZABETH S. KERNAN, Scientific Research Assistant

FRANK J. GIROUX, Clerk

DENIS C. QUIGLEY, Publications Clerk

A. PATRICK NUCCIARONE, Assistant Publications Clerk

CHARLES A. MOSHER, Ohio

ALPHONZO BELL, California

THOMAS M. PELLY, Washington

JOHN W. WYDLER, New York

LARRY WINN, JR., Kansas

ROBERT PRICE, Texas

LOUIS FREY, JR., Florida

BARRY M. GOLDWATER, JR., California

MARVIN L. ESCH, Michigan

R. LAWRENCE COUGHLIN. Pennsylvania

JOHN N. HAPPY CAMP, Oklahoma

SUBCOMMITTEE ON SCIENCE, RESEARCH, AND DEVELOPMENT

JOHN W. DAVIS, Georgia, Chairman

EARLE CABELL, Texas

JAMES W. SYMINGTON. Missouri

RICHARD T. HANNA, California

JOHN F. SEIBERLING, JR., Ohio

MIKE McCORMACK, Washington

ALPHONZO BELL, California

MARVIN L. ESCH, Michigan

R. LAWRENCE COUGHLIN, Pennsylvania
CONTENTS

WITNESSES

February 17, 1972:

Dr. Lawrence M. Kushner, Deputy Director, National Bureau of

Standards; accompanied by: Mr. Robert Walleigh, Associate

Director for Administration, Dr. Edward Brady, Associate Director

for Information Programs, and Dr. King Walters, Acting Chief, Page

Office of Fire Programs1

III

AUTHORIZATION FOR FIRE RESEARCH AND SAFETY

AND THE STANDARD REFERENCE DATA ACTS (H.R.

13034)

THURSDAY, FEBRUARY 17, 1972

HOUSE OF REPRESENTATIVES,

COMMITTEE ON SCIENCE AND ASTRONAUTICS,

SUBCOMMITTEE ON SCIENCE, RESEARCH, AND DEVELOPMENT,

Washington, D.C.

The subcommittee met at 10 a.m. in room B-374 Rayburn House

Office Building, the Honorable John W. Davis (chairman of the subcommittee), Mr. Hanna presiding.

Mr. HANNA. Gentlemen: Will the subcommittee come to order.

This morning we meet to consider the authorization request for

funds to continue research programs under the Fire Research and

Safety and the Standard Reference Data Acts. We will also take testimony on amendments to the basic act of the Bureau of Standards.

I will be pleased to hear of progress from the fire research program

that the Bureau of Standards is carrying out. The importance of contributions to the reductions in loss of life and fire damage is obvious to

all of us. We believe that this program has and will continue to give us

a greater understanding of combustion processes and fire propagation

and will provide the firefighting community with valuable technical

advances to reduce the national loss.

We will also note your contributions to the widespread dissemination of reliable standard reference data. I am sure that the importance

of these data grows daily as our technology becomes more complex and

the need for more rapid application of new technology is required to

maintain our worldwide competitive position.

And last we want to hear your views on the amendments that are

contained in the bill that are designed to improve your operations.

We are happy to welcome you and your colleagues, Dr. Kushner.

You may proceed with your testimony.

STATEMENT OF LAWRENCE M. KUSHNER, DEPUTY DIRECTOR OF

THE NATIONAL BUREAU OF STANDARDS, ACCOMPANIED BY

ROBERT WALLEIGH, ASSOCIATE DIRECTOR FOR ADMINISTRATION; DR. EDWARD BRADY, ASSOCIATE DIRECTOR FOR INFORMATION PROGRAMS; AND DR. KING WALTERS, ACTING CHIEF,

OFFICE OF FIRE PROGRAMS

Dr. KUSHNER. Mr. Chairman, I am delighted for the opportunity

to appear today.

I would like to introduce several of my colleagues from the National

Bureau of Standards who are prepared to supplement my testimony.

(1)
2

On my right, Dr. King Walters, who is the Acting Chief of our Office of Fire Programs; Dr. Edward Brady, our Associate Director for Information Programs, and on my left, Mr. Robert Walleigh, our Associate Director for Administration.

Mr. HANNA. Glad to have all of you gentlemen.

Dr. KUSHNER. Mr. Chairman.

I am pleased to appear before you today in support of H.R. 13034, which would make certain minor changes in the Organic Act of the National Bureau of Standards, and would authorize appropriations

for two important NBS programs—the National Standard Reference

Data System and the Fire Research and Safety Program.

On August 3, 1971, Dr. Lewis M. Branscomb, Director of the National Bureau of Standards, Dr. Edward L. Brady, Associate

Director for Information Programs, and Dr. F. Karl Willenbrock,

Director of our Institute for Applied Technology, described the National Standard Reference Data System and our Fire Research

and Safety activities in considerable detail while appearing before

this subcommittee in support of H.R. 7188 and H.R. 7189. For this

reason, I shall limit my remarks concerning these programs to just.a

brief review of recent activities and changes that have occurred in

our plans for fiscal year 1973 and beyond.

NATIONAL STANDARD REFERENCE DATA SYSTEM

The National Standard Reference Data System (NSRDS) is a

nationwide program to give the technical community of the United

States optimum access to the quantitative data of physical science,

critically evaluated and compiled for convenience. The principal

focus of the program as carried out under the authority of the Standard

Reference Data Act, is on reliable quantitative information about the

physical and chemical properties of well-defined substances. It seeks

to upgrade the quality of experimental work throughout science and

technology in the United States by publishing evaluations and criteria

for carrying out and reporting laboratory measurements. It attempts

to increase the productivity of American science and technology by

insuring the ready availability of reliable data.

At the time of the hearing last August, we had just concluded an

agreement with the American Institute of Physics and the American

Chemical Society under which a new publication mechanism for the

output of the program was to be established. The plans for the new

Journal of Physical and Chemical Reference Data have proceeded

rapidly. The first issue is now being printed and should be available

by the end of this rrionth Material has been scheduled for the remaining three issues which will appear in 1972. The announcement of the

journal has created considerable interest among scientists and engineers, and we are confident that it will lead to much wider utilization

of the data produced under the NSRDS program.

Progress has been made in all of the data evaluation projects

currently being supported. Four new data compilations have appeared

in print since the beginning of fiscal year 1972. The preparation of

data sheets on chemical substances involved in air pollution, which was

mentioned in the previous hearing, is nearing completion. Although

the funding for the program was not increased in fiscal year 1972,

several new projects have been started through reprograming.
3

The NBS appropriation request for fiscal year 1973, now before the

Congress, includes $2.795 million for the standard reference data

program—an increase of about $500,000. If approved, this increase

will be used to initiate new compilation efforts in the areas of

mechanical properties of materials, thermodynamics, and kinetics of

reactions in solutions, and properties of industrially important gases.

Special attention will be given to certain fields where rapid

technological developments are expected to take place over the next

few years. For example, we are making a study of the data requirements associated with the development of practical methods for

production of heating gas from coal. This study involves experts from

industry, government, and universities who will advise us on contributions which the standard reference data program can make to this

important national effort. Another study is in progress on ways to

provide critically needed data on the properties of gases which are

used in large quantities in the petrochemical industry.

We expect to pay increasing attention to the existing and anticipated

needs for data in major national programs. We believe that the

National Standard Reference Data System provides the necessary

framework for meeting these needs.

FIRE RESEARCH AND SAFETY PROGRAM

I want to comment next on the program which we conduct under

the authority of the Fire Research and Safety Act of 1968. The basic

program of research and development aimed at reducing fire casualties

and losses that was discussed by Dr. Willenbrock last August has

continued. We have strengthened our technical operation by formally

integrating management of the scientific activities in support of the

Fire Research and Safety Act and the Flammable Fabrics Act now

under a new Office of Fire Programs. Two recent activities indicate

the synergistic effects possible through integrating these programs.

The first activity culminated in a report entitled "Ignition Sources

in Accident Cases Involving Flammable Fabrics.' As the title

indicates, accident cases originally collected and investigated for the

flammable fabrics program have been further analyzed to investigate

the source of ignition. Clearly, a fabric fire needs not only a material

that will burn, but also an ignition source. Burn injuries can be

reduced by attaching either necessary condition. The most interesting

fact uncovered was that only a few ignition sources account for most

of these flammable fabrics accident cases. Cigarettes are by far the

biggest hazard in fires involving bedding and furnishings, while for

garments, matches and lighters are the most frequent ignition sources,

followed by the kitchen range.

Thus, use of flammable fabrics data has pointed to a need for work

in another area of fire safety—that is, the need to examine the safety

characteristics of matches, lighters, and kitchen ranges.

In another project we have conducted four full-scale corridor burn

tests since October. In these tests we are investigating the spread of

fire down a corridor and the effect of the carpet on this fire-spread.

As you know, we have promulgated an ignition standard for carpeting,

but firespread is a very different thing because of the much larger

exposure of the carpet to heat. Our corridor burn program can illuminate the relationships (1) between our present carpet ignition
4

test, (2) an improved carpet ignition test, and (3) the full-scale firespread problem. The results should lead to safer buildings.

Moving to another area, we have developed a purchase specification

for .a firefighter's turnout coat for a local fire department. This specification contains the elements of a prototype performance standard for

such coats, and is designed to encourage innovation among suppliers

of these coats which should lead to better protection for firemen.

Another project has discovered certain inadequacies in present test,

methods for fire ladders, and work also has started on the determination of toxic gases to be expected in a fire situation. These activities

were spurred by firemen injuries. The more realistic and stricter test

methods that may result ultimately should reduce fire injury to the

Nation's firefighters.

Additional direct aid to the fire services is coming through a pilot

project to develop a system for reporting fire incidents. This system can be used in the management of fire departments to detect

trends in the alarm rates in different districts so that resources can be

shifted to provide the most effective and economical protection. Also

under development are pilot programs to improve the community

relations of the fire services (the improvement can be measured by

reduction in false alarms and harassment).

Other projects involve developing standard methods of test which

will be used to measure the smoke generated when various building

materials burn, and work on sprinkler standards to utilize modern

technology which may provide a much less expensive system.

For fiscal year 1973, we have requested the appropriation of $4,928

million for the fire research and safety program This increase of

more than $3.6 million over the level for fiscal year 1972 would enable

us to initiate a series of grants and contracts with city, county, and

local fire jurisdictions, universities, and industry to apply existing

technology and to develop new technology for fire fighting and prevention In addition, the in-house programs now underway and

planned will be expedited to provide the support required for effective

management of the grant and contract effort.

The expanded program will be conducted in close collaboration

with the firefighting community and the building design community.

Insofar as possible, demonstration programs and investigations will

be carried out in local fire departments. The program will have three

primary thrusts: Fire prevention, improved fire detection and control,

and improvement of firefighting techniques and equipment.

In the area of fire loss prevention, some experimental public education programs will be introduced in selected communities in fiscal

year 1973. The effectiveness of improved building inspection and

code enforcement techniques will be explored. The problems of protecting and/or removal of people during a fire will be approached in

a systems context, with particular attention to the problems of highrise buildings, hotels, and hospitals.

Currently available smoke and fire detectors will be evaluated to

develop performance criteria for detector selection and improved

detector design and location practice. Automatic fire suppression

systems, such as sprinklers, will be studied to determine the feasibility of developing systems for residential as well as commercial use.
5

Expanded programs in support of the fire services will include

demonstration projects to test protective gear, and performance

standards for new equipment aimed at lowering acquisition and

maintenance costs. Demonstration projects for regional fire dispatch

centers will be organized so that areas containing numerous small

fire service jurisdictions can be better protected. A program to stimulate interchange of techniques and ideas in the fire service through

interdepartmental exchange of personnel also is proposed.

In addition, strengthened research, data collection, and information

dissemination programs will support these new activities. We view

this major expansion of the fire research and safety program, planned

for fiscal year 1973, as a major step toward the development of a

program of sufficient size to make a significant impact on the national

fire problem.

CONTINUING AUTHORIZATION

Before leaving the two authorization requests, I want to note that

we are particularly pleased that H.R. 13034 would authorize appropriations for these important programs for subsequent years as well

as fiscal year 1973. As Dr. Branscomb indicated in his testimony

concerning this matter, we believe that a continued authorization,

consistent with the authorization for the great majority of NBS

activities, is appropriate for these programs because of their continuing

nature and accumulating value While we prefer that the planning

and budgetary process for these activities be similar to that of most

other NBS programs, as would be the case if H.R. 13034 is enacted,

we shall welcome the opportunity to report our progress at such times

as the subcommittee may desire.

ORGANIC ACT AMENDMENTS

I would now like to review the amendments to the NBS Organic

Act which are incorporated in H.R. 13034. We propose five relatively

minor amendments to the act of March 3, 1901, as amended, to clarify

our authority in certain matters and permit improvements in our fiscal and administrative practices.

A detailed statement of purpose and need accompanied the draft

legislation when it was submitted to the Congress by the Department

of Commerce. I shall attempt to summarize that statement, and illustrate the need for the proposed amendments.

MULTIPLE YEAR APPROPRIATIONS

First, we propose the addition of a new section 18 to the Organic

Act which would provide statutory authorization for appropriations.

for NBS to be on a multiple-year basis, or without fiscal year limitation in special cases. The need for such flexibility with respect to

appropriations for certain research and development activities arises

from the many uncertainties in planning and scheduling of such work.

This need is widely recognized, and most Federal agencies engaged in

research and development programs have been granted the authorization that we seek.

74-606 0-72 2
6

The proposed amendment alone would not result in multiple-year

appropriations for NBS. The final determination whether to limit the

availability of appropriations is made when the Congress acts on the

appropriation bill. However, an appropriation bill providing for a departure from single-year availability would be subject to a point of

order if an authorizing statute had not previously been enacted.

The need for multiple-year appropriations becomes most apparent

when initiating major new programs. The complex interacting problems involved in the recruitment of staff, procurement of equipment,

and negotiation of contracts for new endeavors are further complicated when funds expire at the end of 1 fiscal year and the level of

support for the succeeding year is uncertain.

A good example can be found in the NBS appropriation request for

fiscal year 1973. We are seeking $1414 million for the new experimental technology development and application incentives program proposed by the President in his 1973 budget message. This experimental

program will investigate the usefulness of a variety of incentives and

mechanisms to stimulate the generation and application of research

and development in ways that will make our economy more competitive with other nations, improve its productivity and provide new

technological solutions to national problems.

The program will be conducted in close collaboration with the

non-Federal sector. Most of the funding will be devoted to costsharing contracts to support joint experiments with industry and

trade associations, groups of small companies, private standardization bodies, State and local governments and other organizations.

The urgent need for the results of this program demands that it

be implemented as fully as possible in fiscal year 1973. However,

the evaluation of projects proposed by private groups, and the development of effective cooperative mechanisms will be time consuming.

It also can be anticipated that the non-Federal partners in these

experiments may experience delays in arranging their share of the

funding. These and other uncertainties create some questions concerning our ability to obligate all of the $14.4 million in 1 year in an

efficient and effective manner.

For these reasons we have requested that the portion of our fiscal

year 1973 appropriation intended for this new program be made available without fiscal year limitation. Without the authorization that

would be provided by adding the proposed section 18 to our Organic

Act, such an appropriation could be subject to a point of order

objection.

AUTHORITY To TEACH

The second amendment that we propose would clarify the authority

of the Bureau to engage in teaching and training activities at institutions of higher learning in areas of special NBS competence.

Paragraph 19 of section 2 of the NBS Organic Act provides the

basis for the extensive program of publications, exhibits, and demonstrations through which the science and technology evolved at NBS

are transferred to the scientific and industrial community. Under

its authority, we annually issue hundreds of technical publications

and join in the sponsorship of numerous symposia designed to acquaint scientists and engineers with the latest developments that are

within the sphere of competence of NBS.
7

One of the most effective ways to accomplish this transfer of highly

technical knowledge and skills is through teaching and training

activities. This has been demonstrated through numerous special

training courses that the Bureau has conducted at various times on

subjects ranging from radio frequency measurements to inspection

techniques used by State and local weights and measures officials.

In general, these teaching and training efforts have been programs

of limited duration conducted in the Bureau's own facilities. A notable

exception is the Joint Institute for Laboratory Astrophysics (JILA)

that we have operated in cooperation with the University of Colorado

on the university campus since 1962.

At that time, it was determined that this Nation's objectives in

space and in other emerging fields of science and technology required a

substantially increased research effort in the measurement problems

peculiar to hot gases and stellar atmospheres. Moreover, there were

few scientists in this country trained in this highly specialized field

known as laboratory astrophysics, and there was no academic institute

devoted primarily to such research and training of students.

While NBS had some unique talents and facilities in this field, it was

concluded that the expansion of research and training activities needed

to meet national goals could only be accomplished in an academic

setting. Accordingly, JILA was established in cooperation with the

University of Colorado on the campus of the university. Here, Government and university scientists, together with distinguished visiting

scientists from all over the world, have worked in close collaboration to

produce outstanding research results and an exceptional center for

graduate study in this specialized field.

A key element in the success of JILA was the administrative determination that NBS scientists at JILA be permitted to participate in

teaching activities as part of their official duties. This was considered

essential in view of the particular objectives and circumstances associated with that program. The university for its part contributes

research support by graduate students assigned to the NBS projects.

While we have no immediate plans for the establishment of another

joint institute, the unusual success of that arrangement has convinced

us that active participation in the programs of academic institutions

may be, in selected cases, the most effective way for NBS to discharge

some of its responsibilities. The proposed amendment to section 2

would specifically authorize the use of NBS scientific or technical

personnel for part-time or intermittent teaching or training activities

at educational institutions of higher learning without additional compensation as a part of their official duties. This clarification of the

Bureau's authority to use such means for transferring its technical

expertise and enhancing its research programs would facilitate the

development of appropriate cooperative programs with the academic

community.

SERVICES FOR FOREIGN INSTITUTIONS

The third amendment would clarify the authority of the Bureau to

perform its services for international organizations and for friendly

countries and their institutions. At present, section 3 of the Organic

Act provides specific authority for NBS to exercise its functions only

for the Federal Government, State and local governments, and for

institutions and firms in the United States.
8

• The need for this clarification stems primarily from the ever-increasing significance of measurement services and standardization activities

as vital elements in the international trade of the United States. In

recent years, our country has become increasingly dependent on the

export of high technology products. The Secretary of Commerce has

emphasized in his report to the Congress on the U.S. metric study the

importance .of U.S. participation in the expanding international

standardization activities associated with these products if the United

States is to maintain its favorable competitive position. Closely

related is the need for adequate international exchange of measurement science and services.

For many years the Bureau has cooperated with the national

standards laboratories of other nations, working in close coordination

with the Department of State and with the International Bureau of

Weights and Measures that was established by the Treaty of the

Meter. We also have cooperated with other foreign scientific institutions when they were engaged in studies of direct concern to NBS or

other Federal agencies. These activities have been considered necessary for NBS to fulfill its responsibilities for the correlation of our

national measurement system with those of other nations.

In addition, the standard reference materials that are prepared and

sold by the Bureau have been purchased in substantial quantities by

foreign laboratories. These highly characterized reference materials

are used in a variety of technological operations to check the chemical

composition, color, viscosity, and other basic properties of numerous

kinds of materials. The determination of kind and form of reference

materials to be offered by the Bureau has been dictated by the needs

of U.S. industry. However, their sale to foreign organizations is equally

necessary because reference materials provide an important basis for

determining the nature and quality of many products sold in international trade. Moreover, these reference materials are designed for

and work best with U.S. analytical equipment, thus encouraging the

use of these products in foreign laboratories.

While the Bureau has felt justified to participate in cooperative

international scientific exchanges, and its products such as publications

and reference materials have been sold to foreign customers, NBS has

been hesitant about extending its various technical services directly

to foreign organizations because of the limitations implied in its organic

act. At present, calibration and measurement services normally are

provided for foreign organizations only when the request is made by

another national standards laboratory, or is endorsed by another

Federal agency suc,h as the Department of State.

Yet, in many cases such services could be an important factor

in facilitating international trade. In particular, the extension of

calibration and related measurement services to underdeveloped

countries would encourage the purchase and use of U.S.-produced

instruments and equipment in their laboratories and emerging industries. Through their adoption of measurement devices and techniques

compatible with U.S. practice, the way is cleared for continuing fruitful exchange of goods and services with the United States.

The need to support U.S. interests in international trade and commerce is also the basic reason that NBS services should be available

to international organizations and friendly foreign governments con-
9

cerned with the development of the technical standards and specifications that increasingly influence the course of such trade.

The proposed clarification of the authority of NBS would enable

it to respond more rapidly and effectively in those situations where its

services can make an important contribution to U.S. objectives in

international trade and international scientific programs. These services would be provided selectively when they are not available elsewhere, and are essential to U.S. objectives. It is not the intention of

NBS to extend its services automatically to all foreign customers. As

NBS services to commercial laboratories normally are on a reimbursable basis, the proposed assistance to commercial organizations of other

nations would be at no additional cost to the United States.

LIMITATION ON CONSTRUCTION AND IMPROVEMENT OF FACILITIES

The fourth amendment which we seek would increase the monetary

limitation on construction and improvement of NBS buildings and

facilities. The Bureau's ever-changing activities in science and tech-

• nology require occasional minor additions in our facilities. Section 14

of the organic act presently limits the size of such construction or

improvement projects to $40,000 unless specific provision is made for

the project in the appropriation concerned.

While specific appropriation authority is requested for extensive

construction and improvement of buildings and facilities, it is not

always possible to anticipate relatively minor needs that far in advance. However, the $40,000 limitation on such unexpected projects

has become so restrictive because of increased construction costs

since 1958 when that level was set, that even comparatively small

projects frequently must be delayed until specific appropriation

authority is obtained. To avoid these inefficient delays, we request

that the limitation of unscheduled construction and improvements

be raised to $75,000.

PROTECTION OF NBS PROPERTY

The last of the proposed amendments would alter section 15(b)

of the organic act by granting the Secretary of Commerce the authority to provide care, maintenance, and protection of the buildings and

property of NBS without limiting such authority to buildings located

in the District of Columbia as provided in the act of April 29, 1926,

which assigned this responsibility to the Secretary. The Bureau has

moved its offices and staff from the District of Columbia to Gaithersburg, Md., and also operates a large installation in Boulder, Colo.

It is important, therefore, that the authority of the Secretary to

provide for the care, maintenance, and protection of NBS property

outside the District of Columbia be clearly established.

CONCLUSION

In conclusion, I wish to observe that the legislative authority that

would be granted through enactment of H.R. 13034 would not significantly alter the basic functions or responsibilities of the Bureau.

However, enactment of this legislation is needed to authorize appro-
10

priations for two important continuing programs. In addition, it

would resolve some uncertainties that have troubled NBS management

for several years and would facilitate more efficient management

procedures. For these reasons, we urge your favorable consideration

of H.R. 13034.

Mr. HANNA. Thank you very much. You have given us a pretty

full coverage of the major portions of the bill. I want to get a little

expansion on what you have said here with a few questions.

You have on page 2 indicated that you believe that the journal

that you are putting out will lead to a wider utilization of the data

that is being produced now. What is your coverage now? What kind

of use is there of the data produced under the NSRDS programs prior

to the journal?

Dr. KUSHNER. Mr. Chairman, may I call on Dr. Edward Brady,

who supervises this program, to provide a more complete answer?

Mr. HANNA. Yes.

Dr. BRADY. We have various ways of measuring the usefulness

and the impact of the data, Mr. Hanna. We have the figures for the

distribution of each of the publications that have been produced.

These figures run between 2,000 and 4,000 copies of each of the publications that have been produced so far. We also have a history of

incidents involving the use of the data that indicate the impact in

some specific cases; that is, we have both a quantitative measure of

use by the sales and distribution figures, and some qualitative indications of the effects the use of the data actually has had in design of

equipment and saving of time of the individual scientists.

Mr. HANNA. Are you users primarily people in the scientific

community?

Dr. BRADY. We have some figures on that, sir. The figures indicate

that the largest number of purchasers are from private industry. The

second is from the academic community. And third from Government

laboratories.

Mr. HANNA. You say you are going to move into new data compilations. What fat your future plans for the new data compilations

right now? Where do you stand in terms of your planning?

Dr. BRADY. For the plans for future years, for fiscal 1973 and

onward, we are planning to initiate a number of new projects in

mechanical properties of substances, for example, such properties as

the strength of materials, the relationship between stress and strain

of materials, breaking strengths, elastic limits, elastic constants, and

such data.

We also are proposing to expand the work on the thermodynamics

and kinetics of reactions that occur in solution. This would include

data on the rate at which reactions occur in both aqueous and nonaqueous solutions, data on the heats evolved in the reactions, solubilities, and related data. These kinds of data are needed for application

in all chemical process development and in such studies as control of

pollution, and control of the environmental effects of chemical and

metallurgical processes of all kinds.

Mr. HANNA. I am glad you put that last part in because, I think,

one of the great needs that we have in the data field right now is to

get a base line from which we can develop standards that are enforceable for improvement in the atmosphere.
11

I think if you could make clear that this is one of the things we are

going to accomplish, that you are driving toward, that you'd get a

lot of support for an expansion in this particular program.

I think as we move along and see the performance records of the

Clean Air Act, the Clean Water Act, we are going to realize that we

set up standards that are going to be awfully hard to achieve because

we don't know where the base line is.

I am glad to hear you put that into your explanation.

You say on page 4 that you have a report surrounding ignition

sources involved with flammable fabrics and you indicated that a lot

of these would come from common household areas. Do you have a

copy of that report that could be made a part of this record?

Dr. KUSHNER. We will be happy to make that available.

It may be appropriate to emphasize that the study covered by that

report utilized flammable fabric accident data. Thus the study

derived support from both the fire research and safety program and

the flammable fabrics program which, of course, is subject to separate

authorization.

Mr. HANNA. All right, without objection it will be incorporated.

(Information requested for the record follows:)
12

NATIONAL BUREAU OF STANDARDS REPORT

10 629

IGNITION SOURCES IN ACCIDENT CASES INVOLVING FLAMMABLE FABRICS

U.S. DEPARTMENT OF COMMERCE

NATIONAL BUREAU OF STANDARDS
13

NATIONAL BUREAU OF STANDARDS

The National Bureau of Standards ' was established by an act of Congress March 3, 1901. Today,

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14

NATIONAL BUREAU OF STANDARDS REPORT

NBS PROJECT

4053200 November 11, 1971

NBS REPORT

10 629

IGNITION SOURCES IN ACCIDENT CASES INVOLVING FLAMMABLE FABRICS

by

Henry Tovey

and

Richard R. Giroux

IMPORTANT NOTICE

NATIONAL BUREAU OF STANDARDS REPORTS are usually preliminary or progress accounting documents intended

for use within the Government. Before material in the reports is formally published it is subjected to additional evaluation

and review. For this reason, the publication, reprinting, reproduction, or op,en-literature listing of this Report, either in

whole or in part, is not authorized unless permission is obtained in writing from the Office of the Director, National

Bureau of Standards, Washington, D.C. 20234. Such permission is not needed, however, by the Government agency for which

the Report has been specitically prepared if teat agency wishes to reproduce additional copies for its own use.

U.S. DEPARTMENT OF COMMERCE

NATIONAL BUREAU OF STANDARDS
15

TABLE OF CONTENTS

1.

2.

3.

Introduction

Some Observations

Fabric Cases

Tables

Table 1:

Table 2:

on Sources of Ignition in Flammable

Page

1

1

2

Sources of Ignition for Major Fabric Product

Categories

Sources of Ignition and Intermediary Materials

for Garment Cases 4

Table 3: Sources of Ignition and Intermediary Materials

for Furnishings Cases 5

Table 4: Sources of Ignition and Intermediary Materials

for Bedding Cases 6

Table 5: Ranges as Sources of Ignition for Major Fabric

Product Categories 7

Table 6: Gas Ranges as Sources of Ignition for Major

Fabric Product Categories, and Intermediary

Materials Involved 7

Table 7: Electric Ranges as Sources of Ignition for

Major Fabric Product Categories, and Intermediary

Materials Involved 8

4. The Flammable Fabrics Accident Case and Testing System 8
16

Ignition Sources in Accident Cases Involving Flammable Fabrics

1. INTRODUCTION

The Flammable Fabrics Accident Case and Testing System of the

Office of Flammable Fabrics, National Bureau of Standards, has two

primary functions. The first is to develop candidate priorities

for national mandatory standards for the flammability of fabric

products. The second is to provide the basis for the development

of realistic tests, which can discriminate between highly hazardous

products and those of lower potential hazard.

However, the FFACT System can also provide insights into other

aspects of the flammable fabric product problem. Thus, for example,

an examination of the data in FFACTS indicates that appropriate

modifications of a few frequently involved ignition sources, such

as matches and ranges, could lead to a significant reduction in

deaths, injuries, and property losses suffered by the American

people as a result of accidental fabric fires.

This report provides a preliminary look at the fabric flammability

problem from the point of view of the ignition source.

2. SOME OBSERVATIONS ON SOURCES OF IGNITION IN FLAMMABLE FABRIC

CASES

The following seven tables present data on the involvement of ignition

sources in flammable fabric accideht cases in the FFACT System. It

should be noted that the cases in FFACTS have not been selected on a

statistical basis, and that they do not, therefore, constitute a

statistically representative sample of all fabric fire accidents in

the United States. Thus, garment cases make up 3 out of 4 cases

cited, with furnishings and bedding cases sharing the remainder

about equally; however, this distribution is probably a reflection

of an early bias of the system in favor of apparel cases. But while

the data are not based on a statistically designed sample, it is

believed that they can provide insight into the relative role of the

various ignition sources in flammable fabric accidents.

The tables in this report have been derived from a data base of 1090

cases in the FFACT System on October 21, 1971. For these 1090 cases

the originating source of ignition was known for 1041 cases, and

both the sources of ignition and the fabric product category first

to ignite were known for 946 cases.

1
17

The major types of ignition sources in these flammable fabric

accident cases are matches or lighters, kitchen ranges, cigarettes,

and open fires.

Flame sources constitute a very large part of the flammable fabric

problem, and they are dominant for all apparel fabric products.

Matches or lighters constitute the largest ignition source group

for garments, but they are rather closely followed by kitchen ranges.

Cigarettes play a minor role in garment cases, but constitute the

most important ignition source group in furnishings and bedding

cases, where they represent 60% of all ignition sources.

Flammable liquids or other intermediary materials are involved

in nearly a half of all cases in which garments were the first

fabric product to ignite; but only about 15% of furnishings cases,

and 5% of bedding cases involve intermediary materials.

When only sources which ignited fabric products directly, without

involvement of flammable liquids or other intermediary materials,

are considered, ranges become more important as ignition sources

for garments than matches a- lighters. In 9 out of 10 cases involving

ranges, ignition occurred through direct contact between the fabric

product and the range. Gas ranges account for 2 out of 3 cases

involving ranges.

3. TABLES

SOURCE

TABLE 1: SOURCES OF IGNITION

FABRIC PRODUCT CATEGORIES

GARMENTS FURNISHINGS

FOR MAJOR

BEDDING TOTAL

Match/Lighter 211 (28%) 15 (12%) 22 (19%) 248 (25%)

Cigarettes/

Smoking

Materials 42 (6%) 74 (61%) 69 (61%) 185 (19%)

Kitchen Range 156 (21%) 11 (9%) 2 (2%) 169 (17%)

Open Fires 129 (17%) 1 (1%) 1 (1%) 131 (13%)

All Others 203 (27%) 20 (17%) 20 (18%) 243 (25%)

TOTAL 741 (99%) 121 (100%) 114 (101%) 976 (99%)

2
18

Table 1 presents data on 976 cases selected from 1090 cases in FFACTS

on October 12, 1971, on the basis of two selection criteria: for each

of these cases both the initial source of ignition, and the first fabric

products to ignite were known.

The primary sources of ignition for fabric products are matches or

lighters, cigarettes or other smoking materials, kitchen ranges, and

open fires. For garments, the primary ignition sources are matches or

lighters, with ranges second, and open fires third. Cigarettes or

other smoking materials are but a minor ignition source for garments,

but are primary for both furnishings and bedding. Matches or lighters

are a far second in furnishings and bedding cases.

3
19

TABLE 2: SOURCES OF IGNITION AND INTERMEDIARY

MATERIALS FOR GARMENT CASES

INTERMEDIARY MATERIALS 

ORIGINATING FLAM. EXPLO- UNOBJECT NONE LIQ. GAS GREASE TRASH SIVE OTHER KNOWN TOTAL 

MATCHLIGHTER 109 57 29 2 5 3 4 2 211 (28%)

KITCHEN RANGE 137 6 1 7 3 2 156 (21%)

OPEN FIRE 46 73 3 2 1 4 129 (17%)

CIGARETTE/

CIGAR 29 9 1 1 1 1 42 ( 6%)

ENGINE 1 33 2 1 37

HOTWATER

HEATER 1 24 2 1 1 29

SPACE HEATER 13 8 1 22

HEATER, UNSPEC 3 1 1 5

WELDING TORCH 5 8 4 17

FURNACE 2 6 5 2 15 (28%)

APPLIANCE,

OTHER 5 6 1 1 1 14

ELECT. WIRING 10 3 1 14

CANDLE 6 5 1 12

WORK TOOLS,

OTHER 1 2 3

OTHER 8 22 5 35

TOTAL .376 263 44 13 11 5 18 11 741 (100%)

14
20

Table 2 presents data on the 741 garment cases shown in table 1. They

were selected from 1090 cases in FFACTS on October 12, 1971, on the basis

of two selection criteria: a garment was the first fabric product to

ignite; and the source of ignition was known.

About half of these cases involved intermediary materials in the

ignition sequence, and about 1 in 3 cases involved flammable liquids.

Matches or lighters constitute the most frequent ignition source group,

with kitchen ranges and open fires second and third. However, considering only fires in which the garment was ignited directly by the original

ignition source, ranges displace matches from the first place, and open

fires drop to a far-removed third place. Only about 10% of all range

cases involved intermediary materials in the ignition sequence,but 50%

of match cases, and 65% of open fire cases involved intermediary

materials. Cigarettes or other smoking materials constitute only about

5% of all garment ignition sources.

TABLE 3: SOURCES OF IGNITION AND INTERMEDIARY

MATERIALS FOR FURNISHINGS CASES

ORIGINATING

OBJECT NONE

FLAM.

LIQ.

INTERMEDIARY MATERIAL

GREASE GAS TRASH OTHER TOTAL

CIGARETTE/

CIGAR 70 4 74 (61%)

MATCH/LIGHTER 11 1 1 1 1 15 (12%)

KITCHEN RANGE 4 7 11 ( 9%)

ELECT. WIRING 6 1 7

CANDLE 2 2 4

APPLIANCE,

OTHER 2 1 3

SPACE HEATER 2 2 (17%)

FURNACE 1 1

OPEN FIRE 1 1

OTHER 2 1 31

TOTAL 101 1 7 1 1 10 121 (99%)

5
21

Table 3 presents data on the 121 furnishings cases shown in table 1.

They were selected from 1090 cases in FFACTS on October 12, 1971, on

the basis of two selection criteria: furnishings were the first fabric

product to ignite; and the source of ignition was known.

Intermediary materials were involved in the ignition sequence for only

about 15% of these cases, with grease being the most frequently encountered one (7 out of 11 kitchen range cases involved grease as an intermediary material in the ignition sequence). Cigarettes or other smoking

materials accounted for about 60% of all furnishings cases, and for 70%

of all furnishings cases in which no intermediary materials were involved.

Matches or lighters are second, and ranges are third, with 12% and 9%,

respectively.

TABLE 4: SOURCES OF IGNITION AND INTERMEDIARY

MATERIALS FOR BEDDING CASES

ORIGINATING

OBJECT NONE

INTERMEDIARY MATERIAL

(72%)

(19%)

GAS OTHER TOTAL

CIGARETTE/CIGAR

MATCH/LIGHTER

68

19 1

1

2

69

22

APPLIANCE, OTHER 14 4 \

ELECT. WIRING 14 4

CANDLE 4 4

SPACE HEATER 2 2 ( 9%)

KITCHEN RANGE 1 1 2

OPEN FIRE 1 1

OTHER 6 61

TOTAL 109 1 4 114 (100%)

Table 4 presents data on the 114 bedding cases shown in table 1.

They were selected from 1090 cases in FFACTS on October 12, 1971, on the

basis of two selection criteria: bedding was the first fabric product

_to ignite; and the source of ignition was known.

6
22

Very few bedding cases involved intermediary materials in the ignition

sequence--less than 5% of the total. Cigarettes or lighters constitute

the dominant ignition source group, accounting for nearly 3 out of 4

bedding cases. Matches or lighters are second, accounting for nearly

1 out of 5 cases.

RANGE

TABLE 5: RANGES AS SOURCES OF IGNITION FOR

MAJOR FABRIC PRODUCT CATEGORIES

GARMENTS FURNISHINGS BEDDING TOTAL

GAS 102 4 2 108 (67%)

ELECTRIC 46 4 0 50 (30%)

OTHER, KNOWN 3 1 0 4 ( 2%)

UNSPECIFIED 5 2 0 7

TOTAL 156 11 2 169 (99%)

Table 5 presents data on the 169 kitchen range cases shown in table 1.

They were selected from 1090 cases in FFACTS on October 12, 1971, on the

basis of two selection criteria: that source of ignition was a kitchen

range; and the first fabric products to ignite were known.

Gas ranges account for 2 out of 3 range cases.

TABLE 6: GAS RANGES AS SOURCES OF IGNITION FOR MAJOR FABRIC

PRODUCT CATEGORIES, AND INTERMEDIARY MATERIALS INVOLVED

FABRIC PRODUCT

CATEGORY NONE

FLAM.

LIQ.

INTERMEDIARY MATERIAL

GREASE OTHER UNKNOWN TOTAL

GARMENTS 90 5 2 3 2 102

BEDDING 1 0 0 1 0 2

FURNISHINGS 3 0 1 0 0 14

TOTAL 94 5 3 4 2 108

(82%) (11%) (100%)

7
23

Table 6 presents data on the 108 gas range cases shown in table 5.

They were selected from 1090 cases in FFACTS on October 12, 1971, on

the basis of four selection criteria: for each of these cases the

initial source of ignition was known; that source of ignition was a

kitchen range; that range was a gas range; and the first fabric products to ignite were known.

Only 1 in 10 gas range cases involved intermediary materials in the

ignition sequence. Nearly all the gas range cases are garment cases--

102 out of a total of 108.

TABLE 7: ELECTRIC RANGES AS SOURCES OF IGNITION FOR MAJOR

FABRIC PRODUCT CATEGORIES, AND INTERMEDIARY MATERIALS INVOLVED

FABRIC PRODUCT

CATEGORY NONE

INTERMEDIARY MATERIAL

GREASE GAS TOTAL

GARMENTS 42 3 1 46

BEDDING 0 0 0 0

FURNISHINGS 0 3 0 3

TOTAL 42 6 1 49

(86%) (14%) (100%)

Table 7 presents data on the 49 electric range cases shown in

table 5. They were selected from 1090 cases in FFACTS on September 12,

1971, on the basis of four selection criteria: for each of these

cases the initial source of ignition was known; that source was a

kitchen range; that range was an electric range; and the first fabric

products to ignite were known.

Only 1 in 7 of the electric range cases involve an intermediary

material in the ignition sequence. Nearly all electric range cases

are garment cases--46 out of a total of 49.

4. THE FLAMMABLE FABRICS ACCIDENT CASE AND TESTING SYSTEM

Section 14a of the Flammable Fabrics Act, as revised and amended

December 14, 1967, states that the Secretary of Health, Education, and

Welfare in cooperation with the Secretary of Commerce shall conduct a

continuing study and investigation of deaths, injuries and economic

losses resulting from accidental burning of fabric products. In the

spirit of this legislative mandate, the two Agencies are cooperating
24

to obtain the needed information. Fire accident cases involving fabric

products are investigated by Food and Drug Administration investigators

using questionnaires developed in cooperation with the Office of

Flammable Fabrics. Reports on these cases, together with remains of

the fabric products involved, are sent to the Office of Flammable

Fabrics for analysis and testing.

The Office of Flammable Fabrics processes the reports and fabric

remains received from Food and Drug Administration through its

Flammable Fabric Accident Case and Testing System (FFACTS). The

procedures under this system include reviewing and screening of case

reports, laboratory testing and characterization of the fabric product

involved in the accident, data encoding, formatting, editing, and

entry into a computer master file. As many as 200 data elements can

be coded for each fire accident case. The encoded data are derived

from the report on the accident case, and they include information on

the time and location of the accident, personal and socio-economic

facts about the victim, extent of injury and losses, the sequence of

events leading to the accident, and the nature of involvement of the

fabric product. Data derived from laboratory tests performed on the

remains of the fabric products involved in the accident, such as data

on fabric construction and fiber content, and the results of flammability tests, are also encoded.

Data in the computer master file are queried and subjected to statistical analyses to provide quantitative information on the relative

frequencies of the involvement of different fabric products, as well as

qualitative information on trends and significant interrelationships.

Such information is further analyzed and interpreted to develop candidate priorities for national mandatory standards for the flammability

of fabric products; to provide the basis for the development of

realistic tests which can discriminate between highly hazardous

products and those of lower potential hazard; and to provide other

insights into the many aspects of the flammable fabric problem. The

overall objective of the system is to identify and provide assistance

in ranking the various ways of reducing the burden of deaths, injuries,

and economic losses sustained by the American people from accidental

burning of fabric products.

9
25

You also indicated that you have a report that is coming out on

the corridor burn program, could we have a copy of that and when

will that data be available?

Dr. KUSHNER. May I ask Dr. Walters?

Dr. WALTERS. Yes; this project is being sponsored jointly by the

National Bureau of Standards and by the Department of Health,

Education, and Welfare. We don't have a final report ready on that

yet; we are doing the research now that we hope will lead to a conclusion

in the report that will come early in 1973.

Mr. HANNA. Do you have any indication of what reaction can

be anticipated from the suppliers of some of these things that are

involved in fire research such as flammable fabrics, carpet materials,

products to protect firemen, have you had any interface with the

supplier themselves as you go along with these tests?

Dr. WALTERS. We have a great deal of interaction with the carpet

and rug manufacturers, and with the fire services in this program.

I think their principal concern is that whatever standards are

promulgated in this area should call for tests that are closely related

to the real problem. We face a difficulty here because in the corridor

heat is reflected from the walls and ceilings, creating a very difficult

problem in establishing a standard that would call for a test, say, on

just a carpet, but would allow prediction of how that carpet would

behave in a real corridor, with wall and ceiling interactions. I think

we have good interactions with all of these concerned groups and

we are all anxious to see the program brought to a successful conclusion.

Mr. HANNA. I am glad to hear you report that because I think when

you can involve these people at the test points then they are more

apt to be a cooperative unit rather than to take the results of your

tests and become adversaries to show why you are wrong.

Dr. WALTERS. That is right. Might I add that we actually have

working on this problem two research associates, placed at the Bureau

of Standards by concerned groups. One is from the Underwriters

Laboratories. The other is from the Tennessee Eastman Corp.,

a manufacturer of materials that are used in carpet construction.

Mr. HANNA. Is the Bureau working with the President's Commission

on Fire Prevention and Control?

Dr. KUSHNER. Yes; we are, Mr. Chairman.

MI'. HANNA. What is the work relationship, in what way do you

interface?

Dr. KUSHNER. There are two ways in which we are working with the

Commission. Dr. Karl Willenbrock, the Director of our Institute for

Applied Technology serves on the Commission as the personal representative of the Secretary of Commerce who is a member of the Commission by statutes.

In addition through Dr. Willenbrock and in much correspondence

we have had with and about the Commission, the Bureau has pledged

its cooperation to the fullest possible extent with the Commission.

Mr. HANNA. Well, I suspect if you don't cooperate you are going to

hear from Chairman Miller. I understand you are a member of the

Commission, Mr. Chairman.

Mr. MILLER. I might say that the committee is meeting right now

over in the Senate caucus room and I had the privilege of speaking to

them yesterday but some other things have tied me up this mornin.g

so I was not able to be present.
•

26

I think the Commission is doing a very good job, but the Commission, like many other such groups, is composed of people who have

been engaged in one way or the other in the matter of fire prevention

and control, and they are pretty sold in their position as to how these

things should be done.

You have to have some new approaches, that is what I told them

yesterday, we have to get away from some of the old things and of

course the Bureau of Standards is the mother of this organization.,

they are going to depend upon you a great deal. We are going to depend. upon you. It is a long time since we got into the matter of fire

control on the basis of just the empiric matter of throwing water on

fires.

Dr. KUSHNER. We are very anxious for the Commission to complete

its study and issue a report because we believe that report will have a

very important bearing on the future direction of the program which

we are proposing to undertake.

Mr. MILLER. There is a younger man that is not in this hearing

room. He is a chemist by training and has a degree in chemistry but

for years has been out at the Lawrence Radiation Laboratory and has

been in charge of their fire control studies and he approaches this matter the way that you would approach it. He is not hardfast that you

jump on a truck and blow the siren and get out there in a hurry, you

do other things, and of course when you come to controlling fires in

this field, I don't know that there is any great amount of knowledge,

but it is one that will be with us, the matter of use of nuclear energy

and nuclear science will be widespread throughout the country in the

future.

This is something that one has to take a good look at and I am

glad that he is over there this morning talking to them.

Mr. HANNA. Thank you Mr. Chairman, I turn the gavel back

over to Mr. Davis. I have a couple of more questions that I wanted

to ask that would relate to the testimony that was just heard.

Mr. DAVIS. Go ahead.

Mr. HANNA. In talking about the amendment that would give the

Bureau continuing authorization, I gathered from the several sections

of your testimony that first of all you do feel that you need the continuing authorization so that you can efficiently utilize the amount

of money you are asking for this year, that there is a good likelihood

that you couldn't, given the setup time and the interactions between

yourselves and those that you want to work with you on the program,

actually be able to obligate that money in a sensible way if you had

to do it within the fiscal year?

Dr. KUSHNER. Yes, sir.

Mr. HANNA. The second reason I gathered from your testimony

is that it would give you a flexibility in adjusting the funds to the

way the program would itself flow which is difficult to see at a startup

time, is that correct?

Dr. KUSHNER. That is correct, Mr. Hanna. In research and development activities in particular, it is very difficult to predict a

schedule by which the work is likely to proceed. From the standpoint

of most effective utilization of the funds the Congress sees fit .to appropriate to us, it is desirable that we have the authority to utilize

them over a period of time which may exceed 1 fiscal year.

Mr. HANNA. I take it from what you have said that a third reason

is the fact that you are going to be utilizing the kind of manpower
4

27

that it is awfully difficult to put together if you have a very uncertain

predictability as to their being able to see a continual relationship

for some period of time. Isn't that really quite a factor in this?

Dr. KUSHNER. Yes it certainly is and particularly because many

of the people who we would bring to these programs come from

the academic community. These people are generally available toward

the end of the fiscal year, and it is at this time that the uncertainties

with respect to the funding available for the coming year are most

evident.

Mr. HANNA. There is one problem that has been pointed out by

our staff, and that is that we do not in this committee as I understand it, Mr. Chairman, authorize appropriations for all of the NBS

programs?

Mr. DAVIS. No indeed.

Mr. HANNA. And would this 

Mr. DAVIS. I might say to that of course NBS being under the

Secretary of Commerce puts in a different light than most of the other

committee work which is over at NASA an independent agency and

NSF which is independent so it does put the NBS in a different

category than the rest of our committee work puts in.

Mr. HANNA. Has that problem been thoroughly explored in relation

to this amendment of the organic act?

Are we likely to run into some problems of giving a blanket authorization for multiple year appropriations in our bill, whereas it would

apply then to areas of NBS over which we have no jurisdiction?

Dr. KUSHNER. Mr. Hanna, if I can interject here.

Mr. DAVIS. Go ahead.

Dr. KUSHNER. As I understand it, the final decision as to whether

an appropriation is to be limited to one, two or any number of fiscal

years is a decision that is made when the appropriation is enacted.

What we are seeking here is only the authorization for multiyear

appropriations to be made when the Appropriations Committee sees

fit to so recommend.

Mr. HANNA. I am just wondering if we aren't still in the problem

of authorizing something over which we have no jurisdiction.

Mr. DAVIS. No not that. No, the jurisdiction or the committee

jurisdiction of NBS was definitely placed solidly under our committee, we are not in that position at all.

Mr. HANNA. All right.

Mr. DAVIS. And in connection with a continuing authorization, it

reminds me of an old saying that we had in law school that a.spring

can flow no higher than its source, we can take back the authorization

any year we wanted to.

Mr. BOONE. Mr. Davis, if I may, I think the question really has

more to do with the appropriation since for example Interstate and

Foreign Commerce authorizes appropriations for certain programs of

the Bureau.

Mr. DAVIS. That is right, it does.

Mr. BOONE. So if we were to act here saying for all NBS programs,

we might be as Mr. Hanna says, overstepping our jurisdiction.

Now it could be appropriate for the committee to take their action

on fire research and technical data but I wonder if that would apply

to the Flammable Fabrics Act.
28

I am sure that you hope it might, but would we really be in order

to do that and I wonder if the legal counsel has thought about that

aspect of it or made a study and 

Dr. KUSHNER. May I turn to Mr. Walleigh for some assistance on

this matter?

Mr. WALLEIGH. I don't know that I can speak to this point. I had

understood that this committee had the general oversight responsibility for the National Bureau of Standards.

Mr. DAVIS. That is true.

Mr. WALLEIGH. It is our understanding that the oversight committee would have authority to authorize multiyear appropriations

for the functions which it oversees.

Mr. DAVIS. I really don't foresee much of a problem there. It

wouldn't hurt to discuss it, of course, but I really just don't see much

of a problem.

As I take it the fear that occurred to you that there might be a

redundancy of authority between the Interstate and Foreign Commerce?

Mr. HANNA. Yes.

Mr. DAVIS. Well, the authority that you questioned before about

would always come before this committee if it was an authorization

for appropriations and the Appropriations Committee might have to

distinguish between the two, but I just don't believe we will have any

problem.

Dr. KUSHNER. This authority would be applicable to appropriations made to NBS for activities authorized under its organic act.

It would not apply to those activities that are authorized under other

specific pieces of legislation such as the Flammable Fabrics Act.

Mr. BOONE. I think that clarifies it. If that is true then there is no

problem.

Dr. KUSHNER. We are requesting an amendment to the NBS

Organic Act so that appropriations to carry out the provisions of that

act may remain available beyond one fiscal year.

Mr. BOONE. I am of the opinion that the Fire Research and Safety

Act is also an amendment to the basic act, so it is now part of the

basic act. I don't know about the Flammable Fabrics Act.

Mr. HANNA. Well, I think we have flushed out that problem sufficiently that I think we can probably move ahead with not too much

temerity.

You say on page 12 relating to this other amendment to allow the

Bureau's personnel to do part-time teaching and training. Have you

got any idea about how many of your staff would be involved in

this kind of activity and how much total time might require for it?

Dr. KUSHNER. We don't envision that at any given time any more

than a very small percentage of our staff would be engaged in this.

An indication of the magnitude of the activity is that at present

the group of NBS employees that participate in the Joint Institute

for Laboratory Astrophysics is approximately 20 technical people,

but only a very small percentage of their time, something ill the order

of 10 percent, is devoted to teaching. Most of their time is devoted

to theoretical or experimental research.

Mr. HANNA. By clarifying the Bureau's authority to allocate staff

for this kind of thing, would you anticipate that this would substantially increase either the number of persons or percentage of their time?
29

Dr. KUSHNER. I think not, Mr. Hanna. We have as a result of

administrative decisions participated in these arrangements in the

past. We feel that it would certainly be helpful to us to have our authority to do this clarified, but we do not have a flood of potential arrangements that we would like to enter into immediately upon getting

this clarification.

Mr. HANNA. Well, I think that is kind of helpful to get that in the

record so that it is appreciated that what you want to do is to clarify

what you are doing rather than to get an authorization to open up

widely to do a lot more.

Dr. KUSHNER. Thank you.

Mr. HANNA. The other question I had is relative to this activity with

foreign entities, I noticed on page 15 that you made it clear that any

assistance that was given to commercial organizations of other

nations they would pay for it just as the corporate entities in the

United States do.

What about work done for agencies of other governments, would

that be proposed to be at no cost or would it be proposed to fall under

the same thing as you have for commercial organizations?

Dr. KUSHNER. In many instances our work with the governmental

institutions of other nations would be on a reimbursable basis. In

other instances, however, we might agree to a cooperative exchange

arrangement in which we would perform some services for them and

they would perform some services for us. In such cases we would expect

to be fully repaid in kind.

Mr. HANNA. Well, I think that is important that you have that

also on the record so that it is not indicated that you are going to use

U.S. taxpayers money to do work for taxpayers of France or England

for which they carry no burden.

Dr. KUSHNER. NO Sir.

Mr. HANNA. So I was anxious that you clarify that and get it on the

record so we can make that clear.

I think that is all the questions I have, Mr. Chairman.

Mr. DAVIS. There is one area that has been of particular interest

to me for some time and it is a little beyond the flammability in

material research and that is the effect produced by the design of a

building with respect to fire hazards.

I know that time and time again you read about a fire which revealed that a building was nothing much more or less than a chimney

that just invited a strong updraft and I know that our building codes

throughout the country are just a collection of all manner of varied

concept of what a building ought to be like.

Do you have in your plans any studies that would go to the matter

of building design?

Dr. KUSHNER. Yes, we do, Mr. Chairman. As you know the fire

program at the National Bureau of Standards is an integrated program—one that involves a concern not only with flammable fabrics

and the fire services, but also involves our work that is related to

building codes and standards through our Building Research Division.

We have very active programs that are concerned with providing

safer design criteria for the architects and designers to incorporate in

their specific building designs. We are very much aware of the total

systems problems in dealing with fires in buildings and other structures

and we are, I think, taking effective steps to see that the results of
30

our work are appropriately transferred to the working professionals

in the field.

Mr.. DAVIS. In doing research on fires in buildings, isn't it almost

essential or isn't it essential that you create a fire in a building to see

what happens when a fire gets in a building?

Dr. KUSHNER. Yes, sir; in the long run there is really no substitute

for a fairly large scale test. On the other hand, there is a lot that could

be learned with considerably less expenditure if we can successfully

learn how to model fires so that we can perform the experiments on

scaled down models in a laboratory. Even then no program would be

complete without plans for some large scale burns.

Mr. DAVIS. I agree with that a hundred percent. It just occurs to

me for example that you would never learn much about what it would

take to set a big log on fire by using a toothpick as a model, it just

wouldn't give you the same answer.

Dr. KUSHNER. Very well said, Mr. Chairman.

Mr. DAVIS. We don't have a minority member here this morning

and I hesitate to take any committee action in the absence of one.

By the way, the reason I was late this morning; the committee and

the consultant chairman had to go before the House Administration

Committee in much the manner of which the people come before this

committee, we were seeking funds to operate our committee this

morning. So we were having problems over there we didn't have a

minority member over there and I know we don't have one here.

I have no further questions about this bill. Mr. Boone, do you have

anything that you would like to go into?

Mr. BOONE. We do need the 5-year funding projection if you will

allow me to work with them.

Mr. DAVIS. Fine. And I assume there is nothing you would like to

add.

(The 5-year funding information is as follows:)

STANDARD REFERENCE DATA PROGRAM-5-YEAR PROJECTION 1

[In thousands of dollars]

Fiscal year1973 1974 1975 1976 1977

Data evaluation:

In house 1, 200 1,200 1,200 1,200 1,200

Contracts 1,000 1,000 1,000 1,000 1,000

Total 2, 200 2,200 2,200 2,200 2,200

Data systems and design: In house 116 116 116 116 116

Information services: In house 100 100 100 100 100

Management:

In house 338 338 338 338 338

Contracts 41 41 41 41 41

Total 379 379 379 379 379

Summary:

In house 1,754 1,754 1,754 1,754 1,754

Contracts and grants 1,041 1,041 1,041 1,041 1,041

Total 2,795 2,795 2,795 2,795 ' 2,795

1 These estimates represent simple projections of cost expressed in constant dollars at prices existing at the time the

estimates are prepared. They are not intended to predict future economic conditions, and do not reflect possible changes

in the scope or quality of the proposal which might result from experience gained in actual practice. Further, the resources

which might appropriately be applied in later years will require a reexamination of the relative priorities of this and other

Government programs, in the light of economic and other circumstances then prevailing. Thus, the estimates do not represent a commitment as to amounts to be included in future budgets.
31

FIRE RESEARCH AND SAFETY PROGRAM-5-YEAR PROJECTION I

[In thousand of dollars]

Fiscal year1973 1974 1975 1976 1977

Fire prevention:

In house 

Contract 

224

1,100

224

1, 100

224

1,100

224

1, 100

224

1,100

Total 1,324 1,324 1,324 1,324 1,324

Automatic control and building safety

equipment:

In house 108 108 108 108 108

Contract 500 500 500 500 500

Total 608 608 608 608 608

Fire services:

In house 363 363 363 363 363

Contract 1,400 1,400 1,400 1,400 1,400

Total 1,763 1,763 1,763 1,763 1,763

Research:

In house 316 316 316 316 316

Contract 252 252 252 252 252

Total 568 568 568 568 568

Information and data:

In house_ 117 117 117 117 117

Contract 548 548 548 548 548

Total 665 665 665 665 665

Summary:

In house 1, 128 1,128 1,128 1,128 1,128

Contract 3,800 3,800 3,800 3,800 3,800

Total 4,928 4,928 4,928 4,928 4, 928

I These estimates represent simple projections of cost expressed in constant dollars at prices existing at the time the

estimates are prepared. They are not intended to predict future economic conditions, and do not reflect possible changes

in the scope or quality of the proposal which might result from experience gained in actual practice. Further, the resources

which might appropriately be applied in later years will require a reexamination of the relative priorities of this and other

Government programs, in th a light of economic and other circumstances than prevailing. Thus, the estimates do not represent a commitment as to amounts to be included in future budgets.

Dr. KUSHNER. Thank you, I have had adequate opportunity.

Mr. DAVIS. Thank you and we will recess the committee at this

time until the further recall of the Chair.

(Whereupon, at 11 a.m., the committee was adjourned.)
II)1 )11! 1 IIJIJIJAL i