America Burning Revisited PDF

America Burning
Revisited
National Workshop – Tyson’s Corner, Virginia
November 30 - December 2, 1987

This document was scanned from hard copy to portable document format (PDF)
and edited to 99.5% accuracy. Some formatting errors not detected during the
optical character recognition process may appear.
Table of Contents
Section I Foreword ........................................................................................................ 1
Section II . Introduction ................................................................................................ 3
Purpose ...................................................................................................................... 3
Workshop structure ................................................................................................... 4
Conduct ...................................................................................................................... 5
Section III . Current and Projected Future Fire Protection Environment ...... 7
Introduction ............................................................................................................... 7
General trends ........................................................................................................... 7
Fire experience .......................................................................................................... 8
Fire service environment ........................................................................................ 12
Declining demand for fire suppression services .................................................... 13
Increasing demand for emergency medical services ............................................. 16
Increasing demand for hazardous materials protection ....................................... 16
Increasing demand for disaster preparedness ....................................................... 17
Declining community resources .............................................................................. 18
Regionalization ........................................................................................................ 19
Summary of trends .................................................................................................. 19
Section IV . Executive Summary ................................................................................ 21
Task Force 1 The Nation’s Fire Problem ............................................................. 21
Task Force 2 The Fire Services: Operations ....................................................... 23
Task Force 3 . The Fire Services: Management and Administration ................ .24
Task Force 4 . Fire and the Built Environment .................................................... 26
Task Force 5 . Fire and the Rural Wildlands Environment ................................. 28
Task Force 6 . Fire Prevention ............................................................................... 29
Task Force 7 . Preparing for the 21st Century ...................................................... 30
Summary .................................................................................................................. 32
Section V . Workshop Task Force Reports .............................................................. 33
Introduction ............................................................................................................. 33
America Burning . The Past (Amabili) .................................................................. 35
America Burning . The Present (Bragdon) ............................................................ 39
America Burning . The Future (Granito) .............................................................. 43
Task Force 1 . The Nation’s Fire Problem ............................................................. 49
Introduction ................................................................................................... 49
Background .................................................................................................... 49
Critical force recommendations .................................................................... 51
Task force recommendations ........................................................................ 54
Supplementary report to Task Force 1 ......................................................... 58
America Burning Revisited i

Task Force 2 - The Fire Services: Operations ........................................................ 61
Introduction ................................................................................................... 61
Background .................................................................................................... 61
Critical issues ................................................................................................. 62
Task Force 3 - The Fire Services: Management and Administration .................. 67
Introduction ................................................................................................... 67
Background .................................................................................................... 67
Critical issues ................................................................................................. 69
Task Force 4 - Fire and the Built environment ..................................................... 75
Introduction ................................................................................................... 75
Background .................................................................................................... 75
Critical force recommendations .................................................................... 77
Other recommended solutions ...................................................................... 81
Task Force 5 - Fire and the Rural Wildlands Environment ................................. 83
Introduction ................................................................................................... 83
Background .................................................................................................... 83
Critical issues ................................................................................................. 84
Task Force 6 - Fire Prevention ............................................................................... 91
Introduction ................................................................................................... 91
Background .................................................................................................... 92
Critical issues ................................................................................................. 93
Other possible solutions ................................................................................ 97
Task Force 7 - Preparing for the 21st Century ...................................................... 99
Introduction ................................................................................................... 99
Background .................................................................................................... 99
Critical force recommendations .................................................................. 101
Task force recommendations ...................................................................... 104
Other possible solutions .............................................................................. 104
Section VI - Appendices .............................................................................................. 107
Appendix A. Project Steering Committee ......................................................... 107
Appendix B. America Burning Revisited Participants .................................... 109
Appendix C. Status Report on the 90 Recommendations
from America Burning .................................................................. 115
ii Table of Contents
Section I
Foreword
On November 30 through December 2,1987, the U.S. Fire Administration/Federal

Emergency Management Agency conducted a three-day workshop on AMERICA
BURNING REVISITED in Tyson’s Corner, Virginia. Individuals from major profes
sional businesses and governmental organizations with an interest in fire protection
were invited to attend the workshop. The participants included several individuals who
participated in the original work of the National Commission on Fire Prevention and
Control, completed in 1973, as well as current members of Congress with oversight
responsibility for the U.S. Fire Administration and the National Fire Academy.
The purpose of the workshop was to achieve a consensus, if possible, on the nature
of the current U.S. fire problem, review and comment of the progress against fire since
the original America Burning Report of 1973, and to develop recommendations for local,
State and Federal efforts to reduce further the life and property loss due to fire.
The U.S. Fire Administration planned to use the results of this workshop to review
its current programs and to set priorities for future direction and activities. Although
the reader will not find major new or dramatic problems, you will discover that there
are significant changes in the fire environment today, major changes in fire department
responsibilities, increased concern about fire fighter health and safety, and a growing
awareness that public fire education must be greatly improved and expanded, particu
larly for high-risk populations; the very young and very old.
We hope that the information in this report will generate renewed interest and
commitment to further reducing our Nation’s fire problems.
U.S. Fire Administration
America Burning Revisited 1

Section II
Introduction
n 1973, the presidentially appointed the changes in our society and environ
I National Commission on Fire Pre
vention and Control published
America Burning, its landmark report
ment since 1973, but still move toward a
more fire-safe America.
on the nation’s fire problem. The report As a result, the conference on ‘Amer
presented 90 recommendations for a fire- ica Burning Revisited” was convened in
safe America. For the past 15 years, the suburbs of Washington, D.C., from
America Burning has served as a road November 30 to December 2,1987.
map, guiding the fire service and the
federal fire programs toward the goal of
improving fire safety in the United
States. Purpose
The original America Burning re “America Burning Revisited” had a
port made 90 recommendations in 18 threefold purpose. First, conference par
chapters in the following general subject ticipants were to reach a consensus about
areas: the status of, and trends in, America’s fire
problem. Second, they were to revisit
the nation’s fire problem; America Burning by reviewing and
the fire services; evaluating the progress toward the re
fire and the built environment; port’s 90 recommendations. Finally, the
fire and the rural wildlands environ conference participants were to recom
ment;
mend guidelines for local, state and
federal efforts to reduce the life and prop
fire prevention; and
erty loss from fire.
a program for the future.
The U.S. Fire Administration (USFA)

While much of the report and its rec planned to use the results of this confer
ommendations remained valid and rele ence as the basis for establishing its
vant, it was time to take a second look at program priorities for future activities.
America Burning and re-examine the This meant that the fire protection lead
progress made toward the goals and ers participating in “America Burning
objectives stated in the report. Perhaps Revisited” were to have the opportunity
more importantly, it was time to make to map out the future course of fire safety
new recommendations that would reflect in this country.

— Workshop Structure — America Burning report. A listing of
the task group titles and topics follows:
The participants invited to “America
Burning Revisited” came from major pro � Task Force 1. The Nation’s Fire
fessional, business and governmental or Problem
ganizations with an interest in fire pro
tection. This included representatives of Topics included causes, social
the fire service, the building materials in changes, prevention issues, federal role,
dustry, fire protection engineering, burn data collection and reporting, burn treat
treatment centers, testing laboratories, ment and the role of the insurance indus
labor, academia, building code groups, try.
associations of local government officials,
the housing industry, the elderly, private � Task Force 2. The Fire Services:
industry, and local, state and federal Operations
government, including the U.S. House of Topics included all field operational
Representatives. matters, for example, current missions
and services of the fire service, alterna
tive service delivery mechanisms, inci
dent command, tactics, training, equip
ment, apparatus, and fire fighter health
and safety.
� Task Force 3. The Fire Services:

Management and Administration
Topics included all headquarters staff
responsibilities, for example, budgeting,
financing, master planning, personnel
(Fair Labor Standards Act, etc.) and pro
ductivity.
� Task Force 4. Fire and the Built
Environment
Topics included current hazards,

codes and standards, transport (aircraft,
motor vehicle, marine, etc.), commercial
and industrial fires, causes and remedies,
how people die in fire, hazards through
design, and product design.
James F. Coyle
� Task Force 6. Fire and the Rural
Wildlands Environment
The conference participants were Topics included volunteer issues,

divided into seven work groups coinciding urban/wildland interface, and forest and
with selected chapters from the original grassland fire protection.
4 Introduction
Section II
Julius W. Becton
After the conference charge by U.S.

Conduct Representative Doug Walgren (D-PA),
chairman of the House Science, Research
The conference began with a welcome
from Julius W. Becton, Jr., the director of
the Federal Emergency Management
Agency.
Participants then were given several
in-depth background presentations to
help form or strengthen their frames of
reference. “America Burning - The Past”
was discussed by Lou Amabili, director of
the Delaware State Fire School and a
former member of the National Commis
sion on Fire Prevention and Control. The
administrator of the U.S. Fire Admini
stration, Clyde A. Bragdon, Jr., talked
about “America Burning - The Present.”
Finally, Dr. John Granito presented
“America Burning -The Future.” (Sum
maries of the Amabili, Bragdon and
Granito presentations appear in the
beginning of Section V of this report.) Congressman Doug Walgren

and Technology Subcommittee, partici- In addition to the presentations men-
pants divided into task forces for session tioned above, the conference participants
one on problem identification. (Excerpts heard luncheon speeches from U.S. Rep
of Congressman Walgren’s speech appear resentative Curt Weldon (R-PA), chair-
throughout Section V of this report.) man of the Congressional Fire Services
Caucus, and Chief
Day two of the M.H. “Jim” Estepp
conference (session of the Prince
two) concentrated George’s County
on comparing the (Maryland) Fire
problems identified Department.
in session one with Remarks by U.S.
progress made over Representative
the past 15 years on Sherwood P.
the recommenda Boehlert (R-NY)
tions contained in were presented by
America Burning. his aide, David
Along with several Golston. Mr. Bill
general and report Honsell, Executive
ing sessions, the Director of the
participants, in International City
their task forces Management
(session three, part Association also
one), also began to spoke. Excerpts of
work on solutions to the Weldon and
those problems. Boehlert speeches
Day three began appear throughout
with session three, Section V of this
part two, during report.
which the task Before begin
forces finalized Jim Estepp ning the report of
their solution strategies the conference, however, it is appropriate
and prepared their final reports. Each to set the stage with the information in
task force then presented its final report Section II, “The Current and Projected
in a concluding general session. Future Fire Protection Environment.”
This report was produced by Wilkins Systems, Inc. The authors were
Colin A. Campbell and Lee Feldstein. The editor was Colin A. Campbell.
Section II, “Current and Projected Future Fire Protection Environment,”
and Appendix C, *Status Report on the 90 Recommendations from Amer
ica Burning, n were written by Harvey Ryland.
6 Introduction
Section III
C u r r e n t a n d P r o j e c t e d
F u t u r e F i r e P r o t e c t i o n E n v i r o n m e n t
Introduction available resources, fire fighter duties,

requirements of the Fair Labor Stan
his report contains a general dis
T cussion of the current and pro
jected fire protection environment
in the United States. The report includes

dards Act (FLSA), volunteer recruit
ment and retention, and liability for
personal and departmental actions.
information on: The United States Fire Administra
tion (USFA), National Fire Academy
changes in fire experience, problems, (NFA) and Center for Fire Research
issues and conditions since America (CFR) of the National Bureau of Stan
Burning (the report of the National dards (now the National Institute of
Commission on Fire Prevention and Standards and Technology [NIST])
Control was published in 1973); were established and have been
current fire losses, major problem operating for 14 years.
areas, programs and general condi The Consumer Product Safety Com
tions which directly, or indirectly, mission, U.S. Forest Service, General
affect the protection of life and prop Services Administration, Department
erty from fire; and of Housing and Urban Development,
projected future (i.e., 1990 - 2020) Department of Health and Human
conditions and situations at the local, Services, and other federal agencies
state and national levels which might have conducted programs to reduce
impact on fire protection. fire losses and improve the effective
ness of fire protection.
Building and fire codes have been
— General Trends 1973 - 1987 strengthened, especially involving
smoke detectors and automatic detec
There have been significant changes tion and suppression systems.
in the field of fire protection since 1973.
For example: There is a greater use of exotic mate
rials, including those which produce
Fires and fire losses have declined toxic gases when burned.
generally over the period 1973 - 1987.
There are some exceptions to this Fire fighter health and safety has
trend that are discussed in Section 3. been improved through physical
fitness programs, new breathing
In general, fire departments have apparatus (and its mandatory use),
experienced major changes in such and clothing and protective equip
areas as emergency response activity, ment.
Fire Experience lative basis, this decrease represents an
estimated saving of 6,900 lives over the
In 1975, there were an estimated period 1975-1985.
l
8,100 fire deaths , with 6,200 in 1985, a
reduction in annual deaths of 1,900, or Fire fighter fatalities also have been
23%. This decline in fire deaths is illus decreasing. The annual number of fire
trated in Figure 1. The decrease is even fighter deaths (including line-of-duty
greater when figured on a per capita deaths resulting from activities other
basis, as shown in Figure 2. On acumu- than fighting fires, for example, training,
station duty
and respond-
Figure 1. ing to non-fire
incidents) over
the period
1979-1985 is il
lustrated in
Figure 3.
These reduc
tions appear to
result from a
decrease in fire
fighter deaths
caused primar
ily by asphyxi
ation, probably
as a result of
increased use
of breathing
Figure 2.
apparatus. It
should be
noted that
heart attacks
are responsible
for approxi
mately 50% of
fire fighter
deaths. Ap
proximately
50%-60% of
fire fighter
fatalities are
related directly
to fire inci
dents.
1
All data used in this report were supplied by the National Fire Data Center, USFA.
8 Current and Projected Future Fire Protection Environment

Section III
The fatality rate for career fire fight deaths have fallen by 73% over the period
ers is 255 deaths per million workers, 1968-1983, as shown in Figure 4. In
second only to mining which has a rate of addition, children’s clothing fire deaths
301 deaths. The rate for volunteer fire have dropped by 90%. These decreases
fighters is 25 deaths per million workers. are felt to be a result of flammable fabric
However, the career fire fighters’ risk of standards developed and implemented by
death cannot be compared directly to that the National Institute of Standards and
of the volunteers on the basis of deaths Technology and Consumer Product Safety
per million workers. This is because most Commission. Prior to the adoption of the
volunteer fire
fighters do not Figure 3.
work as fire
fighters full
time. Therefore,
they are ex
posed to risk for
less time than
career fire fight
ers.
While fire
deaths have
been decreas
ing, fire-related
injuries have
remained rela
tively constant,
even when con Figure 4.
sidered on a per
capita basis.
The reasons for
the lack of de
crease in inju
ries are not
known
Even
greater reduc
tions in fire
deaths have
been achieved
within special
categories.
Clothing fire

Figure 5.
mandatory
children’s
sleepwear
standard, there
were approxi
mately 60 child
sleepwear
related fire
deaths per
year; now there
are approxi
mately two
such deaths
per year.
However,
even with
these suc Figure 6.
cesses, cloth
ing fires are
still a serious
problem.
When consid
ered on a risk
basis, in 1985,
there were 102
deaths per
1000 clothing
fires, with 360
injuries per
1000 clothing
fires. The next
highest death
rate is for
portable local
heater-related fires, with a rate of 37 has helped reduce cigarette-ignited uphol
deaths per 1000 portable local heater stery fires by 24% over this same period.
fires.
Fires resulting from smoking in resi
The mandatory mattress flammability dential occupancies cause more fire
standard has contributed to a 32% reduc deaths than any other single factor. This
tion in cigarette-ignited mattress fire death rate is three to four times that of
deaths over the period 1980-1984. A vol other causes. In 1985,17.4% of all fire
untary standard for upholstered furniture deaths were caused by smoking fires,

Section III
Figure 7.
presented in
Figure 5. The
number of re
ported fires
has been de
creasing even
though the
population is
increasing,
which means
that the num
ber of fires per
capita is de
clining, as il
lustrated in
Figure 6.
Figure 8. Of course,
the fire trend
varies by area
of the nation
and type of
fire. For ex
ample, the
number of
reported fires
in California
has declined
24% over the
1975-1985
period. The
residential
fire death rate
varies signifi
cantly across
with tire deaths caused by portable heat- the nation. According to the Centers for
ers second at 3.1%. Injury rates are also Disease Control, the South has the high-
high for smoking fires - about twice that est annual average number of fire deaths
2
of other causes. (2150) and the highest death rate (29 per
million population). By comparison, the
The number of fires reported to fire West has the lowest number of residential
departments has decreased by approxi- deaths (585) and corresponding rate (14
mately 20% over the period 1975-1985, as
2
This decline must be considered in light of the declining percentage of smokers in the country. According
to the American Heart Association, the percentage of smokers declined from 43% to 32% over the period
1966-1983. (Cigarette Smoking and Cardiovascular Disease, American Heart Association, 1985)
Figure 9.
deaths per million population). The juries and dollar loss have remained
average annual number of residential fire fairly constant.
deaths and per capita death rate for each
region are illustrated in Figures 7 and 8. In actual dollars, the per capita fire
loss has increased over the period 1979
Residential structure fires constitute 1985. However, in constant dollars (1985
only 25% of all fires, yet result in 74% of base), the loss rate has been relatively
deaths, 62% of injuries and 43% of loss constant, as illustrated in Figure 10.
(1985 data). The fire-related death rates
(deaths per 1000 fires - 1985 data) for the The fire experience data used in this
various types of residential occupancies section of the report are summarized in
are listed in Table I. Table II.
Fire deaths in rooming, boarding and

lodging houses are clearly a major prob — Fire Service Environment —
lem when considered on a per 1000 fire
basis. However, in absolute terms, there The fire service is going through a
are more fire deaths in one- and two- period of significant change. In fact, the
family dwellings and apartments. degree of change is so great that it might
be called “revolutionary” change instead
The percentage of fires which are con of “evolutionary.”
sidered to be of incendiary or suspicious
origin has been declining slightly, as This change is felt to be primarily a
shown in Figure 9. Because the total result of three major factors: a) declining
number of fires also has declined, this demand for fire suppression services; b)
represents a decrease in the average increasing demand for emergency medical
annual number of arson fires. The per services (EMS), hazardous materials pro
centages of arson fire-related deaths, in tection, disaster preparedness and related

Section III
Figure 10.
functions; and c) increasing competition improved building/fire codes;

for available local government resources.
improved plan check and inspection
programs conducted by fire prevention
bureaus, as well as fire companies;
Declining Demand for Fire
— Suppression Services — increased use of smoke detectors and
built-in suppression systems (which
As discussed in Section 3, the number primarily reduce the extent of fire
of fires responded to by fire departments damage, injuries and deaths, but also
is declining generally throughout the can reduce the number of calls for
nation. For example, fire incidents service when detectors alert occupants
handled by the West Covina (California) to situations which then are handled
Fire Department have decreased 24% without calling the fire department);
during the period 1977-83, while the city
grew ,by 40%. improved public education programs
for adults as well as juveniles;
Fires are not only going down in total,
but also on a per capita basis (as shown in increased awareness of fire danger
Figure 6). The exact reasons for this (for example, resulting from the MGM
dramatic decrease in the number of fires Grand Hotel fire);
have not been established quantitatively, decreased numbers of people under
However, they are felt to include a com age 25, thus reducing the number of
plex interaction of the following factors: individuals who might participate in
improved fire prevention and public juvenile firesetting; and
education programs conducted by fire improved national economy (however,
departments and fire service if the economy declines, there may be
personnel; a noticeable increase in the number of

Table I.
fires, particularly high-
priced [e.g., gas guzzler]
vehicles).
All of these factors (and
others) probably will continue
to reduce the number and
magnitude of fires occurring
in the future. In fact, the use
of built-in detection and sup
pression systems is expected
to continue to expand as new
low-cost systems become
available and as community
administrators fully realize
the power that such systems
have to control the long-term
costs of fire suppression. Not
Even though many new and existing
only will more and more construction
buildings will be protected by built-in
include built-in suppression systems, but
systems, it probably will be a long time
the trend to retrofit existing buildings is
before structures in lower socio-economic
increasing. Several communities have
areas (e.g., inner-city and rural neighbor
passed retrofitting laws for specific occu
hoods) have such protection. Right now,
pancy types (hotels, for example), and
those areas experience a disproportionate
several cities have considered retrofitting
share of fires and related deaths. For
the entire community.
example, the previously discussed high
A number of jurisdictions have fire death rate for the South occurs in a
adopted fire sprinkler standards which region which has fewer smoke detectors
require that all new construction (some in homes, higher usage of portable heat
times excluding single family dwellings) ing equipment and a larger percentage of
be fitted with a sprinkler system. Some persons below the poverty level. Thus, it
communities require sprinklers in all new will be very difficult to get such dwellings
construction exceeding a given height or equipped with automatic detection and
area. suppression systems.
Thus, it is considered probable that Fire suppression services will be

many communities will be protected by required for vehicle and wildland fires, as
automatic detection and suppression well as for such fire-related activities as
systems at some time in the future. As a evacuation/rescue, overhaul and salvage,
result, the demand for structural fire and hazardous materials incidents.
suppression will be limited to extinguish However, it is possible that the number of
ing fires in the room of origin, and inci vehicle and wildland fires also will de
dents involving explosions, arson or other crease in the future. Vehicles are being
situations where automatic systems are designed to be less susceptible to fire, and
turned off or defeated. a number of programs are being consid-

Section III
Table II.
ered and/or implemented to minimize the which is at risk. A contrary trend is that
consequences of wildland fires. For more structures are being built in the
example: urban-wildland interface areas. Develop
ment in these areas means that more
conducting prescribed burning to structures will be at risk and fire fighters
reduce fuel loading; increasingly will be faced with the di
converting fuel to less combustible lemma of choosing between protecting
types; exposed buildings or controlling the wild
fire.
creating greenbelts as fire breaks;
As a result of all of these factors, the
restricting the use of combustible overall demand for fire suppression
roofs; and services is expected to decrease in the fu
requiring brush clearance around ture. However, the demand for fire
structures. protection will continue and possibly even
increase as the effort is shifting to fire
In addition, continued development prevention and public education duties.
reduces the amount of wildland acreage Duties which are expected to increase (es-

organizing and conducting public fire
safety education classes; and
creating and maintaining a high level
of public awareness concerning fire
prevention and fire safety.
Increasing Demand for

— Emergency Medical Services —
The demand for emergency medical
services (EMS) generally has been in
creasing in communities throughout the
nation. It is not unusual for EMS inci
dents to constitute 80%, or more, of a fire
protection agency’s emergency responses.
This demand is expected to continue to
increase in the near term and then may
level off or possibly even decline in the
future. The increase is expected to be a
result of heightened awareness of the
availability of the service and the general
U.S. Representative Curt Weldon (R-PA) aging of the population. The leveling off
could occur because of generally improved
“.,.We have not done enough to sensitize the health and ‘built-in protection.” For
members of Congress, who are being inundated example, pacemakers have been used for
with requests from special interest groups, to years, systems to internally inject medi
the ongoing needs generated by your day-to-day cine are in use and internal defibrillators
problems.” soon will be available. Life-threatening
calls for service may decline with these
pecially as the number and complexity of advances, but the greying of our popula
codes increases) include: tion is likely to increase the per capita
demand for emergency medical services.
reviewing proposed developments;
reviewing construction plans (particu
larly for automatic detection and sup
Increasing Demand for Hazardous
pression systems); — Materials Protection —
monitoring and inspecting construc The role of the fire service in hazard
tion and testing systems; ous materials protection has increased
significantly over the past decade, and
conducting final inspections and this role is expected to continue into the
issuing certificates of occupancy; future. Hazardous materials incidents
conducting on-going inspections and usually result from accidents that occur
corresponding codes; in the storage, transporting or processing

Section III
of chemicals which endanger life or the

environment, or lead to fire or explosion.
Chemical spills associated with the
transportation of hazardous materials
(primarily truck or rail) have resulted in
major disasters for even small communi
ties and rural areas.
The severity of the hazardous materi
als problem from a national perspective is
indicated by a statement in the Hazard
ous Materials Planning Guide (Na
tional Response Team publication NRT
1): ‘Recent evidence shows that the haz
ardous materials incidents are considered
by many to be the most significant threat
facing local jurisdictions.”
The fire service originally became
involved in hazardous materials because
fire departments are usually first re
sponders to most types of disasters.
However, the fire department role has
become more formalized as a result of U.S. Representative Doug Walgren (D-PA)
local policies, and state and federal legis
lation. “Even with the reduction in fire deaths, we still
lose, if the loss could be dramatized, the
At the federal level, the new legisla equivalent of two fully loaded 747s colliding in
tion (“Emergency Planning and Commu mid-air every month - month after month after
nity Right-to-Know Act of 1986” - Title III month.”
of the Superfund Amendments and Reau
thorization Act) requires fire department
involvement in a formal and extensive
way. Under this legislation, fire depart Increasing Demand for Disaster
ments are assigned a major role in pre ——— Preparedness ———
paring for, and responding to, hazardous
materials incidents. Specifically, fire Fire departments are generally the first
departments are designated to be repre responders to almost every kind of disaster,
sented on “Local Emergency Planning including natural and technological haz
Committees” and to receive “Material ards, and even domestic terrorism and
Safety Data Sheets” (MSDS) containing foreign attack. In addition, many depart
information about hazardous materials in ments are using the Integrated Emergency
the community. The analysis, storage, Management System (IEMS) concept,
retrieval and use of the MSDS is a re which includes the fire service as a primary
sponsibility for which many departments component of all four phases of emergency
are not prepared, and may never have management: mitigation, preparedness,
the resources to handle. response and recovery.
Declining Community successful that it has reduced the demand
———— Resources ———— for its services. In fact, there is nothing
equivalent to a “sprinkler” for any other
There are several factors which are community service.
interacting to limit community resources
available to support the fire services. Community officials are beginning to
These factors are: realize the power that these systems have
to reduce future costs. They will be
taxing limitations (e.g., California’s taking actions to ensure that all new
Proposition 13); structures are equipped with sprinklers
spending limitations (e.g., California’s and then will move to retrofit existing
Proposition 4); buildings. In some cases, this will consti
tute a major policy shift. That is, in the
competition with other community past, administrators may not have sup
services for resources which are ported automatic detection and suppres
available; and sion ordinances because of political pres
declining federal contributions (e.g., sure. However, it is felt that this position
revenue sharing). will change to enthusiastic adoption of
such ordinances because it is an almost
Competition for remaining funds is guaranteed way to achieve significant
heavy, with social services constituting a future cost avoidance.
major rival to the fire service. Moreover,
it is predicted that the demand for social The potential for long-range cost
services will increase significantly in the avoidance is not escaping the attention of
future because of the demographic as community leaders, especially with
pects of population, including the aging of decreasing per capita revenues and
the population. increasing demands for other services.
Thus, there probably will be fewer addi
Within the next 20 - 30 years, the tional fire fighters hired by fire depart
average life span may be increased sub ments than there would be under tradi
stantially. This would result in an older, tional forms of providing fire protection;
larger population, causing a greater and, these individuals probably will be
demand for community services. As a performing a different mix of current
result, it is projected that communities duties, as well as assuming new responsi
will concentrate available resources on bilities. Fire suppression services proba
social services (e.g., housing, adult educa bly will always be required for rescue,
tion, welfare, etc.) and will mitigate the evacuation, overhaul and salvage, as well
demand for other services to the maxi as to fight those fires which are not
mum extent possible. It is felt that fire extinguished by automatic suppression
protection offers the best opportunity for systems.
demand mitigation (among all community
services) because of the success of auto These changes will have a major
matic detection and suppression systems impact on the fire services, and the antici
and fire prevention activities. It might be pation and planning for this situation
said that the fire service has been so must begin now.

Section III
Regionalization Thus, the partial and full consolida

tion of fire jurisdictions is a component of
There is a general national trend the current fire protection trend which
toward the consolidation of fire protection must be considered in planning for the
services to save money, improve effective future.
ness and efficiency, and increase levels of
service.
While quantitative information on the Summary of Trends
number of consolidations that have Fire protection is indeed in a period of
occurred could not be located, numerous significant change. Changes may occur
examples of consolidation were identified which produce major shock waves, espe
in California, Colorado and Florida. cially because of the traditional nature of
In addition to full jurisdictional con the fire service. Yet, it is felt that these
solidation, there are even more instances changes are probable and, in some cases,
of partial consolidation, meaning the inevitable. At best, attempts to stop the
jurisdictions do not merge, but one or changes only will delay what is occurring
more services are shared or contracted and might create situations where the
out to another organization. Examples of fire service loses control of planning,
partial, or functional, fire department policy development or even operations.
consolidation are: These changes do not mean the end of
communications/dispatch; the fire service or even the end of fire
suppression, They mean only that the
apparatus purchase and/or mainte type and level of effort dedicated to spe
nance; cific kinds of services will change, and to
a greater extent in some communities.
supplies purchasing and/or warehous For example, the effort devoted to fire
ing; prevention (including public education)
fire cause and/or arson investigation; will increase, while the effort needed for
suppression will decrease. Suppression
training; services will be needed to respond to the
fires that do occur, even in fully sprin
personnel recruitment; klered buildings. However, in such
structures, fire fighters seldom should
workers compensation and liability
have to fight a fire after it has reached
insurance coverage;
flashover. The fires that do reach
fire prevention plan checking and flashover probably will involve arson,
inspection services; explosion or other catastrophic failure.
Thus, strong inspection/enforcement and
public education; arson control programs always will be
needed (the determined arsonist likely
data collection and analysis; and will be able to defeat built-in systems).
general management and administra Fire suppression services also will be
tion. needed for wildland and vehicle fires.

The demand for emergency medical Fire fighters also will benefit from
services is expected to increase over at these changes by having a safer working
least the foreseeable future. In addi environment; job-related injuries and
tion, fire departments might assume ad deaths should decrease significantly in the
ditional duties which are extensions of future because it is safer to fight a fire
more traditional activities. There is a before it has reached flashover. Also,
trend developing for fire departments to currently employed fire fighters will
assume responsibility for total building benefit by retaining existing jobs and
and environmental inspections. For compensation. It is almost certainly true
example, the Environmental Protection that a growth in the number of fire fighter
Agency has determined that Radon gas positions generally will not occur. Thus, it
can be a life-threatening problem in is in the best interests of the fire protec
structures. If past trends continue, fire tion community to work together to recog
departments could be given a major role nize the changing environment and evolve
in dealing with this situation. to meet future requirements and condi
tions in the most effective and efficient
In aggregate, these changes will manner. Moreover, no matter how good
benefit the public because the protec the projections of the future are, there
tion of life and property will be in always will be new challenges facing the
creased significantly. To illustrate this fire protection community, situations that
conclusion, consider the case of the we cannot even conceive of at this time.
Disney World complex, a community For example, who could have predicted the
with an area of approximately 43 occurrence of AIDS and the corresponding
square miles, day population of 200,000, major impact on almost every element of
night population of 25,000 and an society, including the fire service?
assessed valuation of approximately two
billion dollars. This complex is fully The tradition of the American fire
equipped with automatic detection and service has been to accept these challenges
suppression systems. Over the last 15 and work on a dedicated, unselfish basis
years, the fire loss for Disney World has for their solution. This tradition will be
averaged $5,000 per year (including continued as fire fighters meet future
water damage), with no fire-related challenges using new and old techniques
injuries or deaths. and resources.
Portions of this report were adapted from the document, “Feasibility Study
of Fire Protection Cooperation in Santa Barbara County,” prepared for
the Santa Barbara County Firefighters - Local 2046, August 1987.

Section IV
Executive Summary
Introduction It was the responsibility of the seven

task forces to look at the original report’s
he conference participants were
T divided into seven task forces that
were to discuss and analyze selected
chapters from the original America
recommendations, study the program
activity in the intervening years, and
decide what really has been accomplished
and what remains to be done. In other
Burning report. Those task forces were: words, the participants were to answer
the question, “Where do we go from
Task Force 1. The Nation’s Fire here?”
Problem
The summaries of the seven task force
Task Force 2. The Fire Services: reports that follow in this section give
Operations brief answers to that question.
Task Force 3. The Fire Services:

Management & Administration Task Force l-
The Nation’s Fire Problem
Task Force 4. Fire and the Built

Environment The theme that ran throughout the
discussion among Task Force 1 members
Task Force 5. Fire and the Rural was “...Let’s build on our successes to
Wildlands Environment meet tomorrow’s challenges.” All agreed
that the recommendations of America
Task Force 6. Fire Prevention Burning are still valid and will continue
to be in the coming years. With America
Task Force 7. Preparing for the 21st Burning as a master plan, many success
Century ful programs have been delivered through
federal, state and local government
In addition to a number of background systems. Based on the successful track
and scene-setting presentations (summa record ,of having a federal focal point to
ries and excerpts of these speeches ap offer technical and financial assistance
pear throughout Section V of this report), “when available,” the task force felt the
the task forces participated in four indi effort to control and reduce the fire prob
vidual sessions during the three days of lem in the United States would continue
the conference. to be successful.

The problem of “fire” in the United
States today can be summarized as
follows:
the US. has one of the highest fire
death rates per capita in the industri
alized world;
each year, fires kill more Americans
than all other natural emergencies
combined, including floods, hurri
canes, tornadoes and earthquakes;
fire is the third leading cause of
accidental death in the home; and
the total annual cost to the American
public from fires approaches $30
billion;
The characteristics of the nation’s fire
problem have changed little since the
publication of America Burning. Eighty
percent of our fire deaths continue to
occur in residences. People living in rural
areas and the inner city are two to three
times more likely to die in fires in their
homes than people in mid-size cities and
suburban areas. The elderly and very
young children are at the greatest risk in
society. Fire disproportionately affects
those people without a voice. It has much
less effect on “the power structure.” And
the impact on a poor family that has a U.S. Representative Sherwood P. Boehlert (R-NY)
fire is more devastating.
“This conference...must galvanize the entire fire
As shocking as these statistics are, service community to work together with
they do represent an improvement. The Congress to preserve and expand the services of
number of people killed by fires annually the federal fire programs. The entire Congress,
has decreased. However, during the very ail 535 U.S. Representatives and Senators, must
years we have pushed down the number understand the threat fire poses to their
of deaths per year caused by fires, the communities and the sacrifices made by the fire
public, local officials and the fire service fighters of their communities.”
itself have yet to come to grips with the
fact that America’s “fire problem” may be
a misnomer because it now includes “emergency” problems dealt with on a
emergency medical services, hazardous day-to-day basis by our nation’s fire
materials response and all those other departments.
22 Executive Summary
Section IV
The status of America’s fire problem, bilities is coming from federal regula
in this broader sense, is simply not known tions, Congress needs to be more sensitive
- not its magnitude, its major character to the impact of these responsibilities on
istics nor its victims. Data is not avail state and local governments.
able.
The positive impact of smoke detectors
Task Force 1 examined the nation’s needs to be maintained and extended to
fire problem in this broader sense of the high-fire-risk population groups. Over
term and attempted to articulate the the past decade, the fire service and the
underlying causes and parameters of the USFA have initiated successful programs
total problem. In summary: to encourage the use of smoke detectors
in new and existing residential occupan
We have failed to convince elected cies. Public education programs for
officials of the seriousness of the fire maintaining smoke detectors also have
problem. Fire service organizations need been proven successful. These efforts
to find their common ground and present need to be continued.
that with one voice. We need to support
and educate the new Congressional Fire
Services Caucus. Locally, fire depart Task Force 2
ments need to establish citizens’ commit
The Fire Services: Operations
tees or involve community groups in their
work to gain support. They need to “How can fire protection be im
broaden the base of organizations having proved?” Both the National Commission
input to determine “the common ground.” on Fire Prevention and Control and the
The public and officials may better appre members of Task Force 2 replied that the
ciate the fire problem if it is explained to answer lies not, in “more funds and more
them in more brutal and vivid terms. staff,” but through improvements in the
cost-effectiveness of existing service
We need to understand and target
delivery. The objective of Task Force 2
such underlying causes as poor housing
was to review the progress toward im
conditions and public apathy.
proving the operational capability of the
We need to fill major information gaps fire service since America Burning and
in the nation’s fire problem, e.g., profiles to recommend new actions required to
of burn victims, EMS requirements, and meet current and future demands.
hazardous materials requirements. The
The fire service is in a transitional
research areas identified are clear; the
period that calls for attention to varied
only requirement is money. The USFA
and, at times, conflicting demands. The
and CFR have the legislative authority to
fire service needs to respond to the tradi
do these studies, but lack money and
tional, although diminishing, functions of
personnel.
fire suppression, while becoming more dy
We need to redefine the fire problem. namic to meet new challenges. Code
Fire service responsibilities have grown enforcement, emergency medical services
to include such other areas as hazardous and hazardous materials response are
materials and emergency medical re growing responsibilities that are being
sponse. Where proliferation of responsi placed on the shoulders of the fire service.

Personnel issues remain a significant
problem for volunteer departments. There
is a lack of credible information on volun
teer membership trends, for example,
why do volunteers join, remain active or
quit?
The task force recommended a com
prehensive research effort to analyze
these issues. The study must be con
ducted professionally in order to be
credible not only to the fire service, but
to a broad spectrum of elected and ap
pointed officials and peers in allied fields.
Credibility is essential because it will
address the dual problems of both effec
tive and efficient fire protection service
delivery, as well as the key areas of equal
employment opportunity, funding and
legislative activity.
Unless the fire service leadership
enjoys more professional credibility,
critical decisions affecting the tire service
will be made more frequently by external
actors (e.g., courts, elected officials)
without the benefit of the fire service
The task force concluded that the perspective. This problem affects both
primary fire protection issue from a fire the volunteer and the career services
service operational perspective is “the need equally.
n
to develop fire service human resources.
Consistent management expectations and
performance criteria for fire service Task Force 3
personnel are generally lacking through The Fire Services: Management and
out the profession. Neither career nor Administration
volunteer services have fully addressed

this problem, which is particularly acute Task Force 3’s area of concern lay in
at the officer level. the issues and recommendations dis
cussed in Chapters 3 through 7 of Amer
Part of the problem stems from a lack ica Burning. The objectives of the task
of nationally accepted minimum qualifi force were to review the key managerial
cations for all positions. Further, the and administrative issues facing the fire
recruitment and promotion of personnel service today and into the next century,
is often idiosyncratic because of the lack
of nationally accepted and validated The task force participants empha
selection procedures. sized that the problems facing today’s fire
Section IV
service must be faced by both career and

volunteer fire managers. The problems
must be recognized by all fire depart
ments regardless of size, location or type
(career, volunteer or combination).
A theme that ran throughout the
discussion was that the tire service fre
quently has the authority and resources
to solve many of its own problems, and
that many of these problems are primar
ily “people problems.”
Some of the issues can be handled
internally by the fire service. Continued
support and financial encouragement is
needed (a true partnership) from the U.S.
Fire Administration to facilitate these
changes.
The task force members felt that the
“America Burning Revisited” conference
must reinforce the positive accomplish
ments of the original America Burning,
otherwise the report of the conference will
not be complete. The many accomplish
ments of the past 15 years should be
acknowledged and highlighted. However,
many of the same problems discussed by
the National Commission on Fire Preven ance/loss reimbursement program for fire
tion and Control in 1973 exist today, and fighter injury or loss of life to reimburse
some of these have grown worse over the the jurisdiction. Fire departments need
years. In addition, the past 15 years have help when purchasing equipment or
presented the fire service with new prob services. A testing or evaluation program
lems that were not anticipated in the similar to the Underwriters Laboratory
original report. Therefore, the list of certification system should be developed.
problems and action strategies should be The duplication of “right-to-know” legisla
even longer than in the original report. tion among state and federal govern
ments should be avoided. AIDS and other
The task force identified five major communicable diseases are a threat to
problem areas and developed solution emergency service personnel and infor
strategies for four of them. mation should be made available about
this problem.
The top issue was fire and emergency
service health and safety. Among the The second major problem area was
actions recommended to address this the lack of adequate standards to evaluate
issue was the development of an insur the delivery of fire department services.

Effectiveness and efficiency measures for must be reinstated as a major program of
fire and emergency service agencies the USFA and NFA. Finally, any feder
should be developed. Further, the Inte ally or state-required responsibility must
grated Emergency Management System be accompanied by adequate funding.
(IEMS) concept should be the centerpiece
of fire service planning and operations.
Personnel management was another Task Force 4
problem area identified by the task force. Fire and the Built Environment
Productivity and innovation need to be
The objectives of Task Force 4 were
emphasized in all personnel management
to define the fire protection problem vis
practices. Continuing education for all
a-vis the built environment, to assess the
fire officers is a priority, as is the aggres
progress that has been made since the
sive implementation of equal employment
publication of America Burning and to
opportunity programs in both career and recommend strategies for improving
volunteer fire departments.
building fire safety. The task force
The fire service should conduct more based its deliberations on Chapters 9
concise and comprehensive planning, through 12 of America Burning. The
according to the task force. The USFA scope of its discussion was broad and
should conduct a study on alternative included the fire hazards posed by build
revenue sources, with special emphasis ing design, the materials used to con
on user fees to better distribute the cost of struct and furnish buildings, occupant
the fire service between the public and behavior and use, building code develop
private sectors. Research should be ment and enforcement, and the produc
encouraged on improved fire-safe designs tion, use, storage and transportation of
and building materials. Master planning hazardous materials.
Section IV
The task force’s discussion on fire Gaining control over the building
safety in the built environment focused on contents is another key avenue for enhanc
problems related to public behavior, ing building safety. One approach in
technology and code enforcement. The volves greater control over a building’s
public’s lack of awareness of the fire occupancy and use. More vigilant code
problem is a key obstacle to reducing the enforcement is required to accomplish
nation’s fire loss. The public needs to be this task.
made part of the solution. Currently,
there is little realization on the part of In addition, the fire service needs more
the public regarding the personnel cost information on measuring the combustion
and business consequences of fire. The and toxicity characteristics of building
task force outlined a national fire preven contents. Test methodologies need to be
tion education plan to address this prob developed to evaluate a product’s ignita
lem. The strategy makes use of all media bility, fire growth and toxicity. This in
and is based on surveys and objective formation then must be made available to
case studies of existing programs. It is all end users of the product. We also need
essential that the message be vivid and data on suppression systems and how a
brutal. Young children and teenagers room performs during fire. The Center
need particular attention. for Fire Research fire hazard analysis for
single-family homes needs to be ex
Incentives to encourage safe behavior panded. Once this information is avail
and modify, hazardous behavior need to be able, it can be used to prevent flashover
instituted. Tax incentives, insurance and design sprinkler and detection sys
credits, and legal and social deterrents tems and fire barriers.
were suggestions for modifying behavior.

The task force lamented that special for rural and wildland areas that are
ized facilities and educational programs characterized by scarce or inadequate
to train fire protection engineers are de water supplies, longer response times and
creasing. While more graduate and volunteer fire departments. Standards
doctoral programs are needed, the profes and codes specifically addressing the
sion first needs to develop uniform cur problems of the rural and wildland envi
riculum and scholarship criteria. ronment need to be adopted. A national
sprinkler standard appropriate for rural
use would be valuable.
Task Force 5
Rural departments frequently have

Fire and the Rural Wildlands
problems taking advantage of state,

Environment
regional and national training opportuni
Task Force 5 concentrated on the ties. The lack of funds and the unique
issues and recommendations discussed in scheduling constraints of volunteer de
Chapters 13 and 14 of America Burn partments impede access to necessary
ing. The group’s task was to evaluate the training. Legislation should be intro
issues facing rural and wildland fire duced to strengthen state and national
protection in light of current and future training programs and to secure the
requirements for controlling fire in these stipend program at the National Fire
environments. Academy. The scheduling of training
programs must be arranged so volunteers
The highest priority problem is public can attend. A training needs assessment
education, or more accurately, the public’s system should be developed to ensure
lack of awareness of the fire problem. The that programs concentrate on the issues
fire service needs to market itself and its and needs of the rural/volunteer fire
mission more effectively. It must use the service. Training is needed in arson
latest techniques and the media to de control, the incident command system
velop programs targeted at such key and fuel build-up forecasting.
groups as the general public, elected and/
or appointed officials, and peers in related Fire protection in rural and wildland
professions. areas often involves interagency
cooperation. Unfortunately, even with the
Local governments need to plan and models provided through FIRESCOPE
control land use to take into account the and the Integrated Emergency Manage
effect of development on water supply, ment System (IEMS), communication
access roads and other fire hazards in the among agencies both within and across
nation’s wildlands. As more of the jurisdictions remains poor. New work
wildland areas become urbanized, the needs to be done in the area of inter- and
greater is the need for fire prevention and intra-jurisdictional relationships. Action
control master planning. plans to control major fires and conflagra
tions would benefit from this improved
The fire service has too little input into coordination among key actors.
the development of building and fire
codes. Moreover, codes often are designed Fire service organizations need re
for cities and are not always appropriate sources to deliver required services. These
Section IV
necessary resources include funding, ments have significantly increased fire

community commitment, equipment and prevention activities over the past decade.
personnel. The task force felt that all of In-service company fire safety inspections
these elements needed additional sup and participation in public education
port. If fire prevention and control serv programs now are common. Fire depart
ices are going to meet the requirements ments have enlarged their role in super
set by the community, the fire service vising the fire safety of the built environ
needs the tools to accomplish the job. The ment. They are more involved in overall
task force identified some options for land use planning and reviewing plans for
acquiring the necessary tools, for ex new construction. Fire service officials
ample, a local and state group purchasing frequently are involved in the develop
plan, and government grants and low-cost ment and adoption of model fire codes
loans. and the acceptance of local amendments
to strengthen these codes, for example,
codes requiring installation of smoke
Task Force 6
detectors in existing dwellings.
Fire Prevention
Upon reviewing the progress made

The National Commission on Fire over the past decade, the task force
Prevention and Control noted that fire identified two primary problem areas that
prevention was the key to effective and need to be addressed. First, the public’s
efficient fire protection services. Fire awareness of the fire problem remains a
prevention activities will become even major obstacle. As a result, fire preven
more important in the future if fire de tion still is not perceived as a high prior
partment resources continue to decline ity. Industry, political leaders and the
because "..it is cheaper to prevent a fire fire service itself need to have a greater
than to fight it.” appreciation of fire prevention.
Much has been accomplished since To overcome this obstacle, a national

1973. Many of the nation’s fire depart education campaign should be instituted.
U.S. Representative Doug Walgren (D-PA)
"I hope that you would ask yourselves whether we need a new organization that has a structure within
which could fit all the elements of our society that are active in fire prevention...There has to be some
effective continuous process that would include fire service organizations...citizen advocacy groups.the
various non-profit organizations that have developed and served so well in the American
system...business interests that have so much to lose...educators that have such a role to play in
education...and technologists who could add, particularly in education, what new technology might
provide...1 hope you will think about how you can give congress the kind of direction we obviously need
given the nature of the Congressional process, and I hope you will think about how you can give each
other the ongoing organizational structure that would enable us to pull everybody into a common effort
that may not be quite what they are interested in or may be contrary to some of their immediate interests
on a political level..., but nonetheless can result in a greater unity of effort in the next 10 years than we
have seen in the last 10.”

The task force recommended that the collection and analysis effort similar to, if
campaign should build on such existing, not greater than, the one initiated with
successful programs as the National Fire the launching of NFIRS. The data pro
Protection Association’s “Learn Not To gram needs to coordinate its data collec
Burn” project. The fire service must join tion efforts and develop products that are
with industry leaders (e.g., the National accessible and useful to the fire service at
Advertising Council) to launch a nation both the national and local levels.
wide public relations effort. Fire service
support of the Congressional Fire Serv
ices Caucus is an effective way to educate Task Force 7
political leaders about the fire problem. “Preparing for the 21st Century”
Fire prevention needs to be institutional
ized in the fire service. Fire prevention The thrust of Task Force 7’s mission
training and active experience should be was to recommend alternate concepts,
required of all chief officers. policies and programs that would assist
the fire service in planning and preparing
“U.S. Representative Curt Weldon (R-PA)
for the future. The task force based its
review on the issues and recommendation
. ..What we can do is begin a process - begin a presented in Chapters 18-20 of America
process of bringing in members who are willing Burning.
to make a commitment, a real commitment, a
genuine commitment, to the problems and The task force identified five key
needs of the fire service and the fire problem in issues that need to be addressed as the
America.” fire service prepares for the 21st century.
The issues are ranked-in priority.
The second key problem area is the Recognizing that fire safety’s roots lie
lack of information needed to analyze the in the socio-cultural fabric of society, the
fire problem and evaluate programs. The task force considered the public’s cultural
task force commented that the current orientation to fire as the primary critical
national data system(s) is inadequate. issue for the next century. Attitudes,
The information comes from a variety of behavior and values contribute to this
sources, and quality control over data nation’s relatively poor fire safety record
collection/entry is questionable. The task as compared with other industrialized
force acknowledged the wealth of data countries. Fire is much more salient in
being compiled through the National Fire other cultures, where there may be re
Incident Reporting System (NFIRS), but, wards, as well as penalties, associated
took the U.S. Fire Administration (USFA) with fire safety behavior.
to task over the NFIRS lack of utility. A campaign needs to be launched to
“The information is too little and too change the public’s cultural orientation
late.” The fire service desperately needs toward fire. The campaign needs to be
more analysis of the fire problem. sophisticated and use state-of-the-art
The only solution to the data problem techniques in behavior modification and
is for the USFA to reinstitute a data marketing.
Section IV
Fire safety is a political issue. Laws,

regulations and funding result from
political efforts. The task force members
felt that today’s fire service was frag
mented, and it could represent itself to
Congress and other interests in a more
effective manner. A nationally organized
and coordinated capability to identify
overall problems, establish priorities and
“make things happen” does not exist.
Further, the fire service primarily talks to
itself. It needs to organize with other
allied interests.
A fire safety political action plan
needs to be organized. It should consist of
the following three elements: first, sup
port for the Congressional Fire Services
Caucus; second, a “conference board’
consisting of representatives from all fire
service groups and other allied interests
to lobby on behalf of fire safety issues;
and, third, a political action committee.
We are still only beginning to under
stand the technics office. The physics and
chemistry of combustion, toxicity and
suppression are, in many respects, still an ther, other types of information are
enigma. While we have gained a lot of needed, as are better dissemination
ground over the past 15 years, much more methods. The federal resources commit
needs to be learned about the phenome ted to this effort need to be augmented.
nology of fire and about the hazards and
risks posed by building materials and A national fire information database
furnishings. Research needs to be initi network should be established that in
ated to develop a new generation of cludes not only fire incident statistics, but
detection and suppression technology. a sharing of ideas and experiences, as
well.
The fire protection community needs to
have information about the fire problem The role and responsibilities of the fire
and how to manage it. The data collec service are being redefined as the environ
tion and analysis conducted by the fire ment and the demands of local govern
community are fragmented and incom ment change. Traditional fire department
plete. The U.S. Fire Administration has activities are being replaced or supple
made progress with NFIRS, but not all mented with such new challenges as
states and cities are participating. Fur emergency medical services and hazard-

ous material response. The budget crises very close to home. Whether the topic
faced by governments over the past decade involved fire service personnel selection
have affected the resources available to and development standards, management
the fire service, causing fire departments priorities, new and untraditional activi
to reevaluate the services they provide ties, or new technologies, the participants
and how these services are provided. evaluated how well the fire service was
Research needs to be conducted on new prepared to meet current demands, as
fire department organizations, responsi well as those anticipated in the future.
bilities and working relationships.
Common themes included the need for
more and better information on the
dynamics of fire, life safety and emer
Summary gency management issues. The fire
service needs to be more active in control
The discussion and recommendations ling its destiny. This requires organizing
from this conference underscore the fire at the local, state and federal levels to
service’s increasing professionalism. The pursue its interests and objectives. The
participants did not hesitate to examine fire service needs to take an active stance
critically how the fire service goes about in selling fire safety to the public, govern
its job. While it is important to evaluate ment officials and industry. Finally, the
the constraints and requirements that are fire service needs to ensure that it has the
imposed by an organization’s environ proper personnel, resources and organiza
ment, the task forces did not shy away tion to deliver public safety services and
from issues that many would consider manage inevitable future change.
Section V
Workshop Task Force Reports
Introduction In addition to a number of background

and scene-setting presentations (summa
T
he conference participants were ries and excerpts of these speeches ap
divided into seven task forces that pear throughout this section), the task
were to discuss and analyze selected forces participated in four individual
chapters from the original America sessions during the three days of the
Burning report. Those task forces were: conference.
Task Force 1. The Nation’s Fire It was the responsibility of the seven
Problem task forces to look at the original report’s
recommendations, study the program
Task Force 2. The Fire Services: activity in the intervening years, and
Operations decide what really has been accomplished
and what remains to be done. In other
Task Force 3. The Fire Services: words, the participants were to answer
Management and Administration the question, ‘Where do we go from
here?”
Task Force 4. Fire and the Built
Environment The seven task force reports that
follow in this section constitute the an
swers to that question.
Task Force 6. Fire and the Rural
Wildlands Environment The section begins with summaries of
the presentations by Lou Amabili, Clyde
Task Force 6. Fire Prevention A. Bragdon, Jr., and Dr. John Granito on
“America Burning - The Past, Present
Task Force 7. Preparing for the 21st and Future,” followed by the seven task
Century force reports.

Section V
America Burning
The Past
Louis J. Amabili
Director
Delaware State Fire School
T
he history of America Burning
actually began in 1966 when an ad
hoc group of fire service leaders
met in Racine, Wisconsin, to take a long,
hard look at the fire service. That meet
ing, known as Wingspread I, identified
several problems and issues, among them
the need to professionalize the fire service
and the need for government to support
fire service efforts.
That meeting, along with the deaths
of three astronauts in a flash fire, gener
Louis J. Amabili
ated enough interest in the fire problem
so that the Fire Research and Safety Act In November 1970, two months after
of 1968 was made law. The act was in the council was organized, the President
two parts. It called for a fire research appointed the members of the national
program at the National Bureau of Stan commission which was funded and began
dards (now the National Institute of work early the following year.
Standards and Technology) and created
the National Commission on Fire Preven The commission gathered in June of
tion and Control which lead to America 1971 in Washington, D.C., for its organ
Burning. izational meeting. The legislation creat
ing the commission said it would conduct
Part one was funded; part two was a two-year study of the nation’s fire
not. More than two years went by and problem and report to the President of the
fire service leaders, somewhat concerned, United States.
met in Williamsburg, Virginia, to estab
lish the Joint Council of National Fire At that meeting, we learned that it
Service Organizations. The council was was common practice for a commission to
organized in September 1970 and, for the hire someone else to do the work and
first time, the fire service had a unified produce the report. This group decided
voice. that it was going to do its own study. The

work by the commission members aver $26 million; equipment, $15 million;
aged approximately a week per month for public education, $9.6 million; fire fighter
the nearly two years we were active. The equipment, $4 million; fire data, $3.74
commission traveled the country to hold million; National Fire Academy, $4 mil
meetings and hearings to receive broad- lion; and U.S. Fire Administration, $2.5
based exposure and input. The commis million. On October 19, 1974, Congress
sion itself authored the final report, with passed the National Fire Prevention and
the assistance of a professional staff and Control Act and it was signed into law
writer. three days later by President Gerald
Ford.
The report, America Burning, was
released on May 4, 1973, and quickly The original organization of the
became a classic document. It repre NFPCA called for an administrator that
sented the expertise, concerns, comments was a level four Presidential appointee
and investments of time of 18 people who and a deputy administrator that was
cared about the American fire problem. appointed by the President at level five.
The administrator reported to the Secre
The report consisted of 90 recommen tary of Commerce.
dations. If I had to summarize them,
with the priorities established by the The NFPCA had four divisions - re
commission, that summary would be search and development, the National
“prevention, detection and suppression, in Fire Data Center, National Academy for
that order.” The report said that more Fire Prevention and Control, and Office of
emphasis must be placed on prevention. Public Education.
It did not say, as some would like to
believe, that prevention is a panacea and The objective of the public education
suppression forces can be done away office was to overcome public apathy
with. What the report said is that if toward the fire problem by teaching
prevention gets better, the need for people fire safety through public relations
suppression gets less, and that is the campaigns, publications and demonstra
balance that should be sought. tions. Part of the objective was conduct
ing research to determine the most effec
The report also called for a federal or tive methods for reaching the public.
national focus on the fire problem. The
U.S. Fire Administration, then the Na The purpose of the fire academy was
tional Fire Prevention and Control Ad to advance the professional development
ministration (NFPCA), was to be the of fire officers and others in the fire
focus for the American public, while the service.
National Fire Academy was to be the
focus for the fire service. The research office was designed to
handle research into fire technology,
The report predicted a five percent master planning, and fire codes and stan
annual reduction in fire deaths if the dards.
programs were funded to a level of $125
million a year. Under that funding, mas The data center had as its purpose a
ter planning would have received $30 more active nationwide analysis of the
million; training, $30 million; research, fire problem that would assist in setting
36 America Burning - The Past
Section V
priorities, identifying major issue areas, However, after receiving assurances

monitoring fire losses and determining and commitments from the Carter transi
solutions. tion team of a continued federal focus on
the fire problem, the joint council re
The legislation also called for the thought its position and supported the
establishment of the Center for Fire Re transfer. The joint council also made
search at the National Bureau of Stan other concessions, including the loss of
dards (now the National Institute of the deputy administrator’s position and
Standards and Technology), with pass- the inclusion of the fire programs budget
through funding going to the fire admini into the overall FEMA budget. In retro
stration so there would be a coordination spect, perhaps the joint council support
of research activities. for the move and the concessions was an
error. In any case, in 1979, the USFA
While the commission had called for and NFA became part of FEMA. Later
funding of $125 million a year, the pro that same year, the NFA campus in
gram started off with only $6 million in Emmitsburg, Maryland, was dedicated.
1975, jumped to $11 million in 1976 and
peaked at approximately $20 million. Some months later, the civil defense
staff college in Battle Creek, Michigan,
The acting administrator of the closed down, was moved to the Emmits
NFPCA was Dr. Joseph Clark. He was burg campus and renamed the Emer
replaced by the agency’s first permanent gency Management Institute. Now when
administrator, Howard Tipton, who had you travel to Emmitsburg, you see the
been executive director of the commission. U.S. Fire Administration and National
The deputy administrator was David Fire Academy buried under what is now
Lucht and the first academy superinten the National Emergency Training Center.
dent was David McCormack.
My personal concern as a former
This leadership put ‘together a five- member of the national commission is
year plan (1976-1981) that followed the that both agencies have lost identity and
intent of the commission and the legisla visibility. When you drive up Route 15 in
tion. The plan was strong enough to help Maryland, you see a big sign saying
the federal fire programs weather the National Emergency Training Center.
storms that they were going to run into in What does that mean to the average
the future. person? It has no relationship to the fire
administration, the fire academy or
Those storms started with Presiden anything else connected with fire!
tial Reorganization Plan Number 3 under
the Carter administration. The plan As the Reagan administration came
called for the integration of the federal into power, members of the joint council
fire programs into the newly formed met again with a representative of the
Federal Emergency Management Agency transition team who called the fire pro
(FEMA). The Joint Council of National grams an appendage to FEMA. We
Fire Service Organizations initially should have seen that as an omen be
opposed this switch from the commerce cause an appendage is something that
department to FEMA. sticks out like a tumor and needs to be

cut off. With the proposed budget for of smoke detectors in homes by the
1982, the Reagan administration began thousands. Today, we are talking
several unsuccessful attempts to elimi about tens of millions of smoke detec
nate funding for, and thus dismantle, tors around the country.
the U.S. Fire Administration, National
Fire Academy and Center for Fire As a result of Project FIRES, there
Research. has been a vast improvement in the
safety afforded by fire fighter protec
Those attempts were unsuccessful tive clothing.
because the joint council and the entire
fire service got involved and asked Con In my opinion, if nothing else has
gress to restore funding for the fire pro come from the fire administration,
grams. While those funds were re funding for the development of quick-
stored, a slow, but steady, erosion took acting residential sprinklers has been
place. When the attempts to zero fund a monumental achievement. Were it
the fire programs began, the budget was not for this program, residential
approximately $10 million with 40 staff sprinklers would not have been de
members. We have ended up with a veloped for many, many more years.
budget of approximately $4 million and
20 staff members. In 1975, when the federal fire pro
grams started, 8,800 people died in
To compound the problems, the fire fires. Moving at the commission’s
administration has had 11 administra goal of a five percent reduction per
tors, four of them permanent and seven year, even though annual funding
acting, while the academy has had nine was short of the recommended $125
superintendents, four permanent and million, 14,121 people should have
five acting. Every time the leadership been saved from 1975 to 1983. In
shifted, there was a slight shift in focus fact, 13,755 lives were saved which is
that certainly added to the confusion, pretty much on target.
Even with these problems, the
federal fire programs have had signifi Despite all the obstacles and road
blocks, things are going pretty well.
cant accomplishments.
America is still burning, but maybe it is
When America Burning was pub not burning quite as badly as it was 15
lished, you could count the number years ago.
38 America Burning - The Past

Section V
America Burning
The Present
Clyde A. Bragdon, Jr.
Aministrator
y role is to give you an update on
M the status of this nation’s fire

problem. As you know, approxi
mately one year ago, the 97 deaths at the
DuPont Plaza Hotel fire in San Juan,
Puerto Rico, generated headline after
headline. I do not think there is a single
issue in this country that gets more
media attention than fire, when you
consider all the local coverage as well.
In terms of fire deaths, we seem to
have reached a plateau. The statistics
are stable now and further reduction is Clyde A. Bragdon, Jr.
not happening. However, everything is
not measured in fire deaths. Unfortu
Let me talk about the circumstances
nately, they are the most dramatic of all
ushered in by the Reagan era. I am a Re
the data we can collect.
agan appointee, but I will try to be can
On the other hand, arson is not stable did. As an earlier speaker said, we were
and may even be increasing slightly. called a negative appendage on the objec
tives of the Federal Emergency Manage
Fire injuries present another interest ment Agency (FEMA). The problem arose
ing problem. I have never found two because there was no one on the transi
sources of data that are uniform. They go tion team that was either familiar with,
anywhere from 30,000 to 300,000 per or interested in, the federal fire initia
year. Perhaps that is one of the weak tives or the nation’s fire problem.
nesses that can be addressed in your task
force sessions. Should we have a more Having had that label attached to us
meaningful fire injury reporting system during those early years, we were des
for this nation? We now do not really tined to be the target of budget elimina
have significant data on the extent of tion attempts. It was the fire service and
injuries from fire. its interest groups, through their liaison

with Congress, that have maintained at The fire data program has grown
least a no-growth program. significantly over the years. It now in
volves approximately 40 states with
Where are the federal fire programs? 10,000 fire departments. That number is
These programs are designed only to growing and should peak at approxi
support those who have the basic and mately 13,000 to 14,000 fire departments
inherent responsibility for the delivery of sometime during this fiscal year. This
fire protection, namely state and local program processes more than one million
governments. The role of the federal fire fire reports annually and is an excellent
programs is to enhance the capacity of example of the partnership that has been
state and local governments to provide established by the federal, state and local
this protection. The fire programs are governments.
serving as a clearinghouse, a catalyst, a
coordinator if you will, at the federal We now have real-time fire data that
level. interfaces with the National Fire Protec
tion Association’s (NFPA) data collection
I was asked at my confirmation hear
system which can do the statistical pro
ings more than three years ago how the
jections for those who do not contribute.
fire administration could accomplish its
Why data? This is the information age
programs with the staffing it has. My
and we use data to set directions, make
answer is that the 1.2 million members of
decisions and assist with the establishing
the American fire service would be the
of priorities.
staff, so it was only necessary to have a
skeletal federal effort.
The data system is basically voluntary
Where do we go from here? We can and returns to the state and local govern
not dwell on the past. We have achieve ments data that is helpful in their deci
ment despite adversity, adversity on the sionmaking processes. The data system
political side, and yes, adversity even currently costs approximately $350,000 a
within the fire service family itself at year and it is providing significant, mean
times. We need to continue to progress in ingful real-time data that is used, among
the areas of prevention and suppression other things, to enhance and complement
that were outlined in the Federal Fire the consensus code process.
Prevention and Control Act of 1974,
namely engineering, enforcement, educa We have seen a fire fighter death rate
tion and extinguishment. in this country which is not acceptable. I
have heard many say we should reduce
In 1988, budget-cutting efforts took a civilian deaths, fire fighter deaths and
new turn when the attempt was made to fire losses to an acceptable level. I would
eliminate our fire prevention programs, like anyone in this room to stand up and
thus taking the “fire prevention” out of tell me what that acceptable level might
the fire prevention and control act. This be. There is no such thing as an accept
would have left us with only a small data able level. It is a goal and an objective,
operation and fire fighter health and probably not attainable, but certainly one
safety programs. that can be reduced significantly.
40 America Burning - The Present

Section V
We have seen a reduction in fire to have smoke detectors. The only prob
fighter deaths and injuries, a loss that- lem is that up to 40% of those are non
costs local governments substantial functional. Obviously that needs to be
amounts of money when you consider addressed and it can be done best through
worker compensation, medical expenses, the educational process.
training and replacement expenses. And
this does not even consider the personal If tire safety education efforts fail, then
costs to individuals. Much more needs to obviously we need some back-up systems,
be done in this area. namely detection and early warning. We
could spend this entire meeting talking
Each year, in cooperation with the about sprinkler systems and new technol
NFPA, we provide the “Fire Fighter ogy, technology transfer, and the new and
Death and Injury Study.” A close analy different applications we have witnessed
sis of those studies discloses that many of recently. However, we do have a demon
the deaths and injuries are not necessary. strated track record of making the trans
It should not be a badge of honor to be in fer to life safety applications with the
a profession that has one of the largest sprinkler that was designed 100 years ago
death and injury rates of any occupa for property protection.
tional group in the country. It is a dis
grace and, at the same time, a challenge The data we have collected on fire
to move forward and eliminate these deaths has given us our target audiences:
kinds of statistics. Again, that should be the very young and the elderly. I think
part of your charge. particularly of those more than 60 years of
age who are a target because of several
In another area, one that cannot be different reasons: the kind of housing
emphasized enough, fire prevention was, they live in or are committed to, their
is and will be a top priority. Fire preven economic status, their social status or the
tion can be accomplished in several ways. fact that they often are neglected. There
A serious educational effort is probably are a lot of strong, interesting, positive
the cheapest investment that we can programs at the local level addressing this
make at all levels of government and in problem, but the elderly are still a signifi
the private sector to make the public cant target audience.
more aware of the hazards of fire. And
there are a lot of exemplary programs Fire is just one of the many problems
that are doing just that. The NFPA, that must be dealt with by the local com
Tobacco Institute and other organizations munity as part of its social environment.
have been involved in these programs. However, it is unacceptable to find death
from fire being relegated to the back pages
The fire administration has programs of the community newspaper when some
like the ‘National Awareness Campaign” other kinds of tragedies are getting more
which has been quite successful in terms attention.
of the amount of media attention given to
it this past year. Our National Community Volunteer
Fire Prevention Program will launch right
Earlier speakers have alluded to the into our second National Awareness Cam
fact that 80% of our homes are estimated paign. There are a lot of resources in the

local communities. It was never the fed participated in fire administration pro
eral government’s intent to start funding grams, but those agencies still belong to
local fire programs. It was our intent to them and they are not inclined to let
give them seed money, a kick-off so to somebody take them away.
speak, so they would be able to generate
their own independence and funding. We There is a whole litany of items I
are probably up to 70 projects right now could recite here, programs that we are
in 29 states and Washington, D.C. Not involved in and have been involved in at
all of them are successful, but several the federal level. However, I would
certainly are. rather challenge you in this meeting to
give us direction. And “us” does not mean
There is much to be said just by the federal fire programs, it means the
presence and participation. That is why I fire service as a whole. This symposium
like to call it a partnership. It is not the is not intended to be a blueprint for the
$20,000 or $30,000 that we give to the federal fire programs.
communities that is important; it is the
fact that the federal government cares This meeting was not intended to be
and would like to involve itself as a self-serving. It was intended to address
partner, but would move away once the the nation’s fire problem through the year
program is able to sustain itself. That is 2000. By intent, the invites to this
a true partnership arrangement; that conference are a mix of people from
shows interest. various disciplines and organizations
which affect and influence the fire prob
If nothing else, that kind of involve lem in this country.
ment is symbolic. And I really feel that
symbolism has been the rallying point for Certainly we would not even be here if
the federal fire programs in recent years. it were not for the strong support of the
The fire service had something symbolic nation’s fire service and its interest
in Washington, a symbol around which to groups. However, we cannot be continu
rally by writing their representatives and ally talking to each other, so reach out,
senators in support of the fire programs. embrace and start talking to those other
Many in the fire service have not at groups that are in attendance at this
tended the fire academy and have not meeting. They can make a difference!
42 America Burning - The Present

Section V
America Burning
The Future
Dr. John Granito
he first America Burning group
T faced a tremendous game of catch

up. There had never been any
thing, resembling a national fire focus of
that magnitude. In fact, there had been
very little in the way of a national focus
on the fire problem in the years preced
ing those efforts in the late 1960s and
early 1970s. As a consequence, the
recommendations of the National Com
mission on Fire Prevention and Control
span a rather broad spectrum, ranging
from suggested improvements in fire
Dr. John Granito
equipment and the placarding of hazard
ous materials transport vehicles, to the
very creation of a federal agency which be surprised to learn that not much
would put its spotlight on fire protection. progress was made over the next 20
years.
Well, several of those commission
recommendations were never enacted, However, in the last 15 to 20 years, I
while others received no financing or think there has been tremendous prog
nourishment as perhaps they should ress. Some of that progress is the result
have. These observations are obvious to of the efforts of people at the national
anybody who looks at the fire scene in level. But, simply put, fire protection in
the United States. the U.S. has improved substantially.
I became a fire fighter in October For example, we know the cure for
1949 on my 18th birthday and, despite structure fires, namely, detection sys
my presence in the fire service, you will tems, automatic extinguishing systems,
America Burning Revisited 4 3

environmental monitoring systems and so head-on. That, of course, is the purpose
forth. We understand the components of of a meeting such as this - to get our
comprehensive fire prevention. In those ducks in order, so to speak, to rejuvenate
communities where comprehensive fire our efforts, to motivate ourselves and
prevention programs are being imple each other so we can meet this challenge
mented, there have been significant of the future.
improvements. In fact, the number of
suppression runs in some cities has In thinking about the future of the fire
declined considerably. service, most of us tend to envision a
scene in some future time, after the
Yet within this pleasant landscape, changes have occurred and everything
there are some terrible and terrifying new is in place. We like to project our
scenes. Smaller communities suffer selves to a point where a total package is
disproportionate fire and life losses. A all set and operating. In fact, of course,
number of metropolitan communities are the future arrives in bits and pieces, each
struggling mightily to provide even the tomorrow following each tomorrow, and
most minimal type of emergency medical the attention is most often on the journey
services to their citizens. In many rural rather than the final destination.
parts of the country, emergency medical
service is almost non-existent. What is happening in the United
States that might give us some hints
about the future? There are a number of
Many, many fire departments still
concepts which are having a major impact
allocate less than one percent of their
and which portend what tomorrow and
resources to fire prevention efforts. For
the following tomorrows will bring.
each news article that makes us heroes
(us meaning you in the fire service), at
least one other, and sometimes several, Risk management, calculated risk,
indicts us, often justifiably. trade-offs and decisions made by broad-
based community groups, not just the
professionals, are concepts that have
So, while we have come a great dis taken hold in our country. People are
tance, there remains a great challenge willing to purchase some amount of
before us. That challenge will be met protection, but they are not willing, or not
because the bywords of the fire service able, to purchase all of the protection that
always have been innovation and flexibil the professionals specify is needed in a
ity, and I think they will serve us well as given instance.
we meet the future.
Another concept is local and regional
I envision the future as a steamroller; planning, with fire protection as but one
it is coming at us and there obviously is element of an integrated emergency
not any way to stop it. We can try to run management system. There has been
away; we can stand there, perhaps turn criticism of master planning as too cum
ing our back, and be run over and bersome because it involves too many
knocked flat; or we can meet the future people, but master planning is working in
44 America Burning - The Future
Section V
many communities. There is a need to People want more bang for the buck
emphasize mitigation and recovery as a today, so agencies must consider adding
part of emergency management, as well related services to the municipal deliv
as planning and response. ery package. There should be increased
working relationships among agencies.
Someone whispered to me very re There are hazardous materials incidents
cently, just a few minutes ago in fact, today that bring to the scene representa
‘When will communities allocate the tives from more than 30 agencies, each
resources that need to be put in fire one justifiably saying, “I have a right to
prevention?” I think my response is, be here, I have responsibility in this kind
‘When we can diminish the sense of of incident, and I have some authority in
excitement that one gets from red its command and control, and you had
trucks, sirens and red lights.” Fire better listen to me.”
prevention as a way to reduce fire loss is
a concept that has taken hold through There need to be shifts in organiza
out the nation. tional structures and staffing arrange
ments. We cannot deliver new services
Fire protection leadership at and using the same structures.
from the national level, something that
we did not have 20 years ago, certainly We must use technology to improve
has made a significant difference. efficiency and effectiveness. Those con
cerned with fire protection have not been
Without any question, research, able to take full advantage of technologi
development and improved databases cal advancements. In fact, on balance,
have been of substantial assistance to there are some days on which I think
the fire protection community. In the that high technology has brought us
same vein, computerization, enhanced more hazards than advantages. That
management information systems and
the increased use of non-traditional
personnel in all aspects of fire protection
work have helped. By non-traditional “U.S. Representative Curt Weldon (R-PA)
personnel, I mean civilians performing
. ..Our ultimate goal...is to begin to form a
tasks that historically have been done by
caucus, a loose-knit organization of members of
uniformed members of the fire service. Congress who are willing to give the fire service
In some communities, this is such a more than lip service. And not just to deal with
shocker that you dare not mention it on the issues at election time, but all year around.
the first day of your visit. Not just to introduce bills that they know have
no chance of passing, just to satisfy the
These are national trends which constituents back home..., but members of
Congress who really have a genuine interest in
reflect the growing concerns ‘of our soci
looking at your needs so that the next 10 years
ety. These trends and concepts are can be more productive legislatively than the
shaping our future in the fire service, as last 10 years.”
is the need for accountability and cost
effectiveness.
should not be the case. We should be which is purchasing small fire trucks and
taking better advantage of technology. using a form of dry powder on many fires,
and seems to be having reasonable suc
But still the focus is on suppression! cess with it.
Now, in which directions are we
moving? We certainly are moving toward If this trend toward reduced suppres
automatic detection and extinguishing sion, increased EMS and increased de
systems and systems that will monitor mand for additional service as a measure
the environment, give an instant read-out of cost effectiveness continues, one could
and call for the necessary assistance. We predict that we would not have fire de
are moving toward a focus on codes, a partments, but environmental protection
focus on proper construction, rather than departments. Think of the kinds of
just code enforcement, as part of what I services we could provide. For example,
call comprehensive fire prevention. And with the growing concern for radon in our
comprehensive fire prevention must homes, is this not an area in which an
include public education. environmental protection department (I
realize it needs a better name) could
Where does this move us? When you work?
consider that almost all our marbles have
been put historically into fire suppres
sion, one is struck with an interesting There is no doubt that fire depart
ments are getting involved in EMS and
fact. Nearly everything associated with
all aspects of disaster planning and
the fire service is there because we extin
response, including natural and man-
guish most fires with a chemical, water,
transported to within approximately 30 made disasters and hazardous materials
incidents. But there are some new as
feet of the flames by portable tubing we
call hose, and advanced by humans we pects as well, for example, a change in the
vehicles we use to respond to an incident.
call fire fighters. I said it that way be
Imagine, if you will, a multi-purpose
cause I want you to think about it a bit.
Suppose that we could extinguish fires in department where crews are trained to
operate along a broad spectrum of calls
some other way that was practical and
and the apparatus are called “rapid
cost effective? Suppose we could extin
guish fires, as indeed we can, by the intervention vehicles,” and where hazard
ous materials transport vehicles are
generation of sound waves of a certain
tracked just like freight cars are tracked
frequency, magnitude and amplitude, or
in a railroad yard.
by laser, as we certainly can? Suppose we
could do this in a practical way? Think of
the impact that would have on the fire We could tell what is coming into our
suppression service, indeed I suppose, on communities, we could track the hazard
fire prevention as well. The impact would ous material and get any kind of informa
be staggering and it is coming. tion we needed instantly from the com
puter read-out. I use this as a simple
I read an article recently about the application of a technology which is
Fort Wayne (Indiana) Fire Department already with us.
46 America Burning - The Future

Section V
Environmental monitoring of struc We will play a less important role if

tures through cable television and similar the future is pushed on us by whomever
devices is being done now in a number of may be pushing at the moment. I would
communities throughout the country. like to feel that, no matter what happens,
some future will be pressed on us by com
I predict that within the next two munities and citizens that need our
decades, the names on the sides of the efforts. However, I am fearful that a less
vehicles will change again. They used to important future will be thrust upon us
say fire department, and now, in many and we will end up in a world where
instances, they say fire and rescue de suppression runs are unusual.
partment. I predict they will change to
reflect multi-purpose emergency organi Suppression departments will remain
zations designed, trained and equipped to in existence, but they will be small or
respond to a wide variety of emergencies ganizations, with few resources, doing a
not covered by the law enforcement job about which the public does not think
agency in the community. or care. I hope that is not our future. I
think that the fire service has much more
to offer and I join with others who have
The concern that I have in looking at
been saying that the participants in this
the future has to do with the issue of who
conference have a splendid opportunity to
will control the nature and shape of what
put together some recommendations
we currently call fire departments. Will
which could shape the future in a way
we have structures, shapes, responsibili
that makes sense.
ties and budgets forced on us by people
who are not professionals in the field? In closing, what we need is a win/win
Or, will we as professionals be able to situation, a situation in which our com
shape that future ourselves? I submit to munities and citizens and their property
you that we will do a better job of meeting and future are better off for our presence,
future challenges if we can shape our own a situation in which we as professionals,
futures or at least play a major role in represented by a wide variety of organiza
that task. tions, are better off as well.

Section V
Task Force 1
The Nation’s Fire Problem
Task Force Members:
Deputy Chief Steven C. Bailey, Fire Commissioner Charles A. Henry,

Seattle (WA) Fire Department, State of Pennsylvania
National Fire Information Council
Mr. Matt Kane, National League of
Dr. Richard E. Bland, Cities
Pennsylvania State University
Mr. William Randleman, Fire Chief
Mr. Peter Brigham, American Magazine
Burn Association
Mr. Fred S. Ringler, People’s
Mr. John C. Gerard, National Fire Firehouse, Inc.
Protection Association
Mr. Philip Schaenman, Tri Data
Mr. John Glenn Hart, III, U.S. Corporation
Fire Administration
MS Barbara Lundquist, Tri Data Corporation, Facilitator
I. Introduction II. Background

The objectives of Task Force 1 were to As a result of a series of hearings and
identify new issues, problems and trends related research, the National Commis
associated with the overall fire protection sion on Fire Prevention and Control
problem in the United States. Upon a prepared a narrative description of the
review of Chapter 1, “The Nation’s Fire fire problem as perceived in 1972 - 1973.
Problem,” and Chapter 2, “Living Victims Many of the recommendations made by
of the Tragedy,” the task force members the commission to alleviate these prob
were to update the state of the nation’s lems have been initiated. For example,
fire problem as defined in America the commission recommended that Con
Burning. In addition, the task force was gress establish a U.S. Fire Administra
assigned the job of developing recommen tion (USFA) to provide a national focus
dations that will guide future fire protec for the nation’s fire problem and to pro
tion analysis and planning. mote a comprehensive program with

caid, and support of medical research and
training have contributed to this prog
ress. In addition, the specialized training
required for burn treatment personnel is
being carried out on a broad scale by
professional associations, emergency
medical service programs and the burn
centers themselves.
How has the fire problem changed
since 1973? The number of fire deaths has
decreased by approximately 25% and the
number of fires reported to the fire de
partment has decreased by 20%. Never
theless, the United States, along with
Canada, still has the worst fire death
rate for all the industrialized countries
for which we have comparable data. The
U.S. fire deaths per million population
are almost twice the average fire death
rates for other industrialized countries.
Per fire, our loss (in deaths or in
dollars) is not high. However, the num
ber of fires in the U.S., even figured on a
per capita basis, is extremely high. This
suggests that our fire suppression efforts
are relatively good, and that to reduce fire
adequate funding to reduce life and deaths and dollar losses we need to
property loss from fire. The U.S. Fire concentrate on fire prevention.
Administration was indeed established in
1975, along with the National Fire Acad Over the past five years, we have
emy and the Center for Fire Research. averaged more than 6,000 dead annually,
The annual budget of the federal fire more than 100,000 injured, with two and
programs, however, has been consistently a half million fires reported to the fire
much lower than the funding levels service. Many, many more fires go unre
recommended by the commission. ported each year, causing additional
personal injuries and property loss.
The commission also was concerned
with upgrading the nation’s burn treat The total cost of fire in the United
ment facilities. While there are no spe States, including losses plus the cost of
cific programs to support this recommen protection (built-in systems, fire depart
dation, much of it has been accomplished. ment and insurance overhead), is $30
By 1983, there were approximately 125 billion a year. This does not include the
burn centers in the U.S., including one in value of labor donated by more than a
virtually every metropolitan area. Such million volunteer fire fighters or such
federal programs as Medicare and Medi indirect fire costs as medical expenses.
50 Task Force 1 - The Nation’s Fire Problem

Section V
With respect to deaths, young children national cadre of thousands of fire fight
(under 5) have a much higher risk of ers, trained at the National Fire Academy
being killed in a fire than teenagers and in technical areas, prevention and man
adults -50% to 100% higher than the agement, is moving into and up the officer
average population. The elderly (over 65) ranks in local tire departments. And the
are at highest risk - triple that of the rest absolute number of fire deaths occurring
of the population. They sense fires less each year has gone down.
easily, move less quickly and are killed
more easily by burns and smoke than But a document cannot provide lead
younger people. ership. The federal fire programs are not
comprehensive. They have no continuity
In addition to age, there is a racial and they are trivial in size as federal
and ethnic dynamic to the nation’s fire- programs go. Inadequate staffing is as
loss. Blacks have a fire death rate almost serious a problem as inadequate funding.
double the national average. American Even the National Fire Data System is
Indians have an even higher death rate fragile and may falter without more
than blacks. Differences among these support. Today, federal staffing to man
and other groups may result from differ age a data system that collects detailed
ences in family income, education levels, information on almost a million fires a
family stability, alcoholism levels, and year is down to two people.
other social practices and problems which
correlate with fire incidence and fire The need remains to analyze and
death rates. communicate what we have. Much of the
discussion of Task Force 1 concerning the
Since America Burning, the respon “problems” underlying the nation’s fire
sibilities of fire departments across this problem centered around critical informa
country have expanded significantly to tion gaps and the need for more timely
include most of the delivery of emergency and effective dissemination of the infor
medical services in our communities, and mation we have. This information is
the management of both hazardous needed both for planning effective fire
materials incidents and natural disasters. prevention programs and raising the
Some estimate that emergency medical awareness of the seriousness of the fire
responsibility alone has more than problem with the public, elected officials
doubled the demands for manpower, and even the fire service itself.
training, and management time and
attention in our fire departments.
III. Critical Issues
America Burning did lead us to de
velop a federal focus, a set of key agen The theme that ran throughout the
cies, namely, the USFA, National Fire discussion among Task Force 1 members
Academy and Center for Fire Research. about the nation’s fire problem was
A National Fire Data System has been “,.Let’s build on our successes to meet
established in which 40 states are partici tomorrow’s challenges.” There was early
pating. Interest and action on the part of consensus that the recommendations of
the fire service in the field of public fire America Burning are still valid, and
education has increased significantly. A that they will continue to be in the com-

ing years. With America Burning as a 2) The need to understand and target the
master plan, many successful programs underlying causes of fire and fire losses.
have been delivered through federal, The underlying causes discussed range
state and local governments. Based on from major national problems, such as
our successful track record of having a poverty, to cultural orientation, meaning
fire focal point to offer technical and the absence of any kind of punishment or
financial assistance “when available,” the stigma when a fire occurs.
task force members felt that the effort to One precept of this discussion was
control and reduce the fire problem in the that much of the public education effort
United States will continue to be success currently undertaken by the fire service
ful. reaches middle-class or upper middle-
The following is a discussion of the class children and adults in mid-size
key issues identified by Task Force 1. communities and suburban areas. The
These are not ranked in priority. fire departments in the best position to
undertake public education serve an
1) Lack of awareness. We have failed to audience less in need of it than other
convince elected officials of the serious communities. Another way to look at
ness of the fire problem. While the fire this, however, is that even in America’s
service has been effective in lobbying for “safer” communities, the risk of dying in a
specific fire protection-related state laws fire is as great or almost as great as it is
and local ordinances, its effectiveness at in most other countries overall. Our
the federal level has been limited. By worst areas are much, much worse than
and large, lobbying efforts have been the fire risks faced in other countries, but
ineffective when they were targeted at even our best communities are bad.
gaining support for the program budgets
and staff of the federal fire agencies. The specific underlying causes about
which more information is needed and
The U.S. Congress (as well as other which, at this time, people believe should
elected and appointed officials at the be targeted directly by public fire safety
state and local levels) needs, first and education are:
foremost, to be educated about the con
cerns of the fire service, the seriousness of poverty;
fire and other emergency management inadequate housing;
problems, and the methods available to public apathy;
address these problems. Another failure
lack of knowledge about fire;
in the area of lobbying is that the fire
service has not worked with such other lack of stigma when you have a fire;
parties as community service organiza lack of knowledge that there is a fire
tions and industry with whom they might problem;
productively form partnerships to bring alcohol and drug abuse;
greater influence to bear on public offi lack of adult supervision of children;
cials. Unless this problem is solved, and
adequate resources will never become
available. lack of qualified supervision of other
dependent populations.

Section V
3) Information needs. We need to fill in greatly. Responsibilities have been

formation gaps within our body of knowl broadened by public expectation, public
edge about the nation’s fire problem and mandate, and the interest and concern
to extend that body of knowledge to growing within the fire service itself.
include EMS and hazardous materials EMS and hazardous materials are the
requirements. Some of the specific infor two major new areas of demand. Fire
mation gaps we need to fill include: service resources in contrast have not
grown at a comparable rate. Personnel,
reason for fire problem changes; money and equipment/materials have
profiles of burn victims, their demo been diffused across these major areas.
graphics, severity, and major causes of Fire prevention, particularly public fire
fires that result in serious burn inju education, has suffered because of this.
ries; 6) The maintenance of the positive im
the total count of injuries from fire pact of smoke detectors and its extension
overall; to high-fire-risk population groups. The
installation of smoke detectors in homes
time to flashover - a field measure of has been a landmark change in the fire
this is needed; environment. Smoke detectors are be
lieved to have been the most significant
EMS - magnitude and characteristics factor in the decline of fire deaths in
of the problem; and America. However, people with the
highest fire rates have the fewest detec
hazardous materials - magnitude and
tors, and today, maintenance problems
characteristics of the problem.
are eroding detector effectiveness. The
4 ) Defining the fire problem. The role of smoke detector ranks along with only two
the fire service in America has expanded or three other devices - the centrifugal

pump, combustion engine and the radio locally, the fire service should estab
as technologies that have, in their time, lish citizens committees or involve
advanced significantly the effectiveness of community groups to garner support
fire protection delivery. for fire prevention programs.
A simple tool, lacking today, that
IV. Task Force
would help in undertaking any or all of
these actions is a brief, accurate descrip
Recommendations
tion of the nation’s fire problem. Seven to
Many ways of attacking the above eight years ago, when the federal fire
problems were discussed. The specific programs were getting considerably more
solutions that Task Force 1 recommended support from Congress and the White
as most important to undertake as soon House, this was available. It came in the
as possible are listed below. form of Highlights of Fire in the
United States, the U.S. fire death map
1) Failing to convince elected officials of and charts showing bar graphs of popula
the seriousness of the fire death, injury tion groups at risk and the fire death
and loss statistics was considered the trend line. Why are these no longer
most serious problem because it is the available?
path to resolving many other problems.
The task force felt that success in this It is believed that the majority of
area would open the door to resources public officials at all levels of government
needed for the other problems. A number rank the fire problem very low as a topic
of recommended solutions target this first of concern to them. It is disproportion
problem. Below, the most important ately low in their concern, particularly
alternate solutions are discussed first, when its seriousness is compared to such
followed by other solutions considered in other problems as crime or housing. In
the general discussion of how to solve this parallel, even officials who are concerned
overall problem: are not convinced how the fire problem
can be solved. Some do not believe public
fire service organizations need to find fire education works. Unfortunately,
their common ground and present there is little documentation of successful
that with one voice; local programs that can be used to con
vince them. A few case studies of pro
we need to support and educate the gram effectiveness in the field of fire
new Congressional Fire Services prevention would be a valuable tool in
Caucus; this area.
we must brutalize the fire problem to Within the fire service, concerned
make it more vivid to the public and organizations have pulled in different
to officials; ways instead of pulling together. Leader
the base of organizations having input ship in fire is fragmented. Some “frag
and/or membership in the Joint Coun ments” are self-serving. Officials, both
cil of National Fire Service Organiza legislative and executive branch mem
tions should be broadened; and bers, do not know to whom to listen.
Further, important groups are excluded.

Section V
The burn/medical community, community available. The research findings, as they

service groups and others are not in become available, can be used as “news” in
cluded on the joint council. A broader public education campaigns to raise the
base is needed. It is believed this would awareness and concern of targeted fire
have the effect of helping the joint council risk audiences, as well as public officials
achieve agreement on a few broad prin and others concerned with fire protection.
ciples and programs to support, and
would help it get beyond its image of 3) The solution to the problem of filling
being constituted of a number of separate mqjor information gaps in the nation’s
organizations continually at odds with fire problem is clear - money and man
each other, no one of which is large or power. To address the problem of filling
strong enough to be significant, particu major information gaps in the description
larly when compared to the interest of the nation’s fire problem, some of the
groups lobbying in other areas of national preliminary discussion focused on the fact
concern. that there is a lot of good data now avail
able. It is in use in many fire depart
At the local level, cities that have ments and in some states. But greater
established fire-related citizens commit data analysis capability needs to be
tees appear to educate their local officials developed throughout the fire service, and
more effectively. This model should be resources are not available for analyzing
promoted in cities across the country as a the data now collected and for doing
mechanism for significantly increasing special studies. From outside the fire
resources available in fire prevention. It area, we need to capture and publicize
also is known that cities having good fire available information on the burn injury
data available appear to be more effective problem and to integrate burn and fire
at educating their officials. data collection.
Nationally, fire-concerned organiza Some specific recommendations are
tions have not lobbied effectively. A that the USFA should support the prepa
particular problem has been that they ration of model data analysis reports from
have failed to follow up. Learning how to different size departments for other de
lobby should be a priority for any fire partments to copy. The National Fire
community leader seeking state or na Academy’s executive development courses
tional office in a fire service organization. should improve data analysis training.
Lobbying support should be a major Companion information on successful
aspect of fire association staff work. ways to tackle a major fire problem
should be identified and disseminated,
2) We need to understand and target the along with the statistics regarding that
underlying causes of our fire problem. To problem, for example, the fire problems of
solve this, we know what is needed first the elderly and inner-city juveniles.
money. The USFA already has the legis
lative mandate to undertake these stud Consistent support is needed to keep
ies, but lacks the money and manpower to the national fire incident reporting sys
carry out such a research program. The tem going. Analyzed data no longer is
USFA should conduct or sponsor this getting back to local fire departments.
research, if and when funds are made Feedback is essential both to encourage

alties at unreported
fires that similarly are
not reported to any
one. Information on
the seriousness of
burn injuries is one of
the most dramatic
tools for educating and
motivating elected of
ficials and the public.
We do know that
burns are the most
severe fire injuries,
that the ratio between
males and females is 2
to 1, and that the
overall severity of
burns has gone down.
According to experts
their participation and to improve the in the burn treatment field, out of the
service they provide. More USFA staffing 6,000 fire deaths each year, 2,000 die in
is needed here, as well as increased fund burn centers. But beyond this, little is
ing. known.
In the area where major gaps of infor The treatment of burn victims should
mation exist, for example, why there have be included as part of our concern for the
been changes in the trends of the major overall fire problem. The federal Health
causes of fire, funding and staffing are Care Finance Administration should
needed to oversee the research. Soft develop a payment system sensitive to the
scientific research is needed on the hu special problems of burn centers. Govern
man behavior and attitude aspects of the ment and relevant professional groups
fire problem. There is a study underway need to address the increasing nursing
by the USFA on the demographics of fire shortage problem which, in turn, is affect
fatalities. This study is expected to ing burn treatment. Further, federal
reveal some new information on high-fire support of research in burn treatment
risk population groups, but to date, no and rehabilitation programs is needed.
money has been available to examine the
causes of fire and successful approaches 4) To a certain extent, the need to “‘rede
to preventing it. fine the fire problem” was addressed in
America Burning. It does contain recom
The added problem in this area is that mendations in the areas of EMS and
little is known about burn victims. There hazardous materials incidents and other
is virtually no integration of fire and burn emergency response problems. However,
injury data. All casualties at reported the federal agencies established under
fires are not necessarily reported any the Fire Prevention and Control Act of
where. In addition, there are many casu 1974 are concerned almost exclusively

Section V
with fire. They do not

have either the clear
mandate or the re
sources to serve as a
federal focus in these
other areas, regardless
of their importance to
the fire service and the
public. Task Force 1
felt that adequate
funding, attention and
staffing at the federal
level was needed, not
additional legislation.
Everyone agreed that
EMS and hazardous
materials responsibili
ties are here to stay.
Some say fire depart
ments are being drained of fire protection monitor the actions of the federal govern
resources because they perform these ment and Congress regularly and to keep
other functions. Alternately, some say the fire service adequately informed. The
fire departments have their current USFA needs the resources to provide this
resources only because of these other information clearinghouse. It is critical
functions. both to the fire service and to the poli
cymakers in Washington.
An enhancement to the federal pro
grams, either as part of the existing
5) Smoke detectors are no longer new.
agencies or as special federal task forces
There have been many campaigns pro
on these issues, should be considered.
moting detectors over the years, and, as a
Someone needs to communicate to the result, they are used widely. We know,
fire world what is going on at the federal however, that the households having fires
level and, in turn, to represent the inter do not have detectors, and that many
ests of the fire service to Congress and detectors are maintained poorly. The use
the regulatory agencies. Congress needs of life safety systems in homes is probably
to be more sensitive to the impact of their one of the most significant changes in the
actions on state and local government. fire environment, but lack of maintenance
The passage of the Superfund legislation is believed to be cutting down on smoke
has been a classic example of an instance detector effectiveness. To achieve greater
where the USFA should have been out reduction in fire deaths, the increased use
front communicating the status and and maintenance of smoke detectors is
implications of the legislation to the fire required. Many in the fire service believe
community and representing the interests that changing the behavior of lower in
of the fire service.There is not a single come families is much harder than chang
fire association that has the resources to ing the behavior of “middle Americans.”

Two primary solutions to this problem influencing elected officials. Namely, the
were recommended. One is additional task force recommended establishing
federal resources to identify and publicize citizens committees or involving commu
successful local maintenance programs. nity groups to a much greater extent than
The other is a solution that also was is done today to secure the resources and
recommended with regard to attacking involvement of enough people at the local
some of the underlying causes of fire and level to implement effective programs.
Supplemental Report to Task Force 1

prepared by
Peter Brigham, MSW, and
Arnold Luterman, MD
American Bum Association
When America Burning was written out now on a broad scale by professional
in 1973, its authors were handicapped by organizations, emergency medical service
a serious shortage of data on burn injury programs and burn centers themselves at
and other aspects of the fire problem. the regional level throughout the country.
There was little understanding at the
time of the distribution and severity of By focusing the interest of the fire
burn injury in the general population. No service on the burn injury problem,
general consensus existed as to which America Burning also helped to forge
burns should be treated in general hospi local alliances between burn center
tals and which in specialized treatment hospitals and the fire service which
centers. While there was considerable continue to this day. Fire service leaders
concern about the potential financial in many cities have played important
impact of burn centers on their parent roles in fundraising for the initial devel
institutions, there was little experience to opment and ongoing operation of burn
rely on because the initial burn centers, centers. Their interest was often crucial
for the most part, were located in spe in convincing hospital administrators
cially funded research facilities. With that a decision to develop a burn center
these factors in view, America Burning would receive broad public support. In
expressed serious concern as to the Suffi the early days, fire service leaders pro
ciency of burn treatment facilities and vided credible and valuable independent
staffing in the United States. testimony on the importance of burn
centers. As burn centers became estab
America Burning also recommended lished, the focus of the burn center/fire
special training of those providing emer service alliance at both the local and
gency care for burn victims in general national level broadened to include efforts
hospitals. This training is being carried to prevent burn injury.

Section V
Burn centers currently admit approxi compiled by the National Burn Informa
mately 20,000 patients per year. The tion Exchange, the “LA 50” of hospitalized
average length of stay per patient is 15 burn patients (the size injury at which
days. More than 90% of these patients half of all patients will survive) has
survive and are discharged to resume increased in most age groups to more
their lives outside the hospital. Approxi than 60% body surface area. This is
mately one-third of surviving burn center approximately double the size injury
patients will return to the hospital at producing 50% mortality 20 years ago.
least once for additional surgery. An While there is no comparable data on
other 50,000 burn patients with less improvements in quality of life for survi
severe injuries are admitted to all other vors, there have been great advances in
hospitals. At least 10 times that number surgical and therapeutic techniques
are treated and discharged from hospital during the same period.
emergency departments.
Clearly, there has been considerable
Admissions to burn centers held progress over the past 15 years in the
steady through the mid-198Os, while burn areas where recommendations were made
admissions to other hospitals declined. in America Burning - burn center devel
This trend reflects at least two phenom opment, training and staffing for burn
ena. Physicians and administrators in treatment in burn centers and general
general hospitals have increased their hospitals, and research.
referrals of burn patients to burn centers,
and the total number of serious burn The current challenge is to sustain the
injuries has declined. At the same time, burn care system which has developed in
pre-hospital patient care and transporta the past 15-20 years, while continuing to
tion, often carried out under fire service improve the survival and quality of life
auspices, have improved, contributing to outcomes of burn victims. Major areas of
the smooth functioning of the burn care concern and related recommendations for
system in most regions. federal action are listed below.
In America Burning, recommenda 1. Burn Center Reimbursement

tions also were made for the funding of
research in burn injury and smoke inha Many burn centers are facing increas
lation. In the mid-1970s, the National ing financial problems. This has resulted
Institute of General Medical Sciences from growing numbers of indigent pa
granted funds for burn research programs tients, and changing payment methods
at seven burn center hospitals; other which tend to discriminate against burn
public grants supported research at other centers. This problem can be expected to
burn centers. worsen, as burn center survival rates
continue to improve, and as additional
The dissemination of research find payer sources adopt the new reimburse
ings and the increased clinical experience ment methods.
resulting from the concentration of severe
burn patients in burn centers has re Recommendation The federal Health
sulted in improved survival rates and Care Finance Administration should
improved functioning of survivors follow review the entire financial situation
ing these injuries. According to statistics facing hospitals with burn centers.
2. Burn Center Staffing 3. Burn Research Funding
The nation is facing a dramatically Major problems remain in burn treat
increasing shortage of nurses. This has ment. These require a strengthened
an especially serious impact on burn federal commitment to burn research.
centers, with their high staff-to-patient Improved survival from burn injury has
ratios and the requirement for a high produced a growing number of patients
level of nursing skill. The total number of with residual disabilities. A concerted
hospital-oriented nurses must be in research effort must be initiated to im
creased substantially. prove our ability to rehabilitate this
group of patients.
Recommendation: The Congress and the
Department of Health and Human Serv Recommendation: The National Institutes
ices must work with the appropriate of Health should increase significantly
professional groups in addressing this their sponsorship of research in burn
problem. treatment and rehabilitation.

Section V
Task Force 2
The Fire Services: Operations
Task Force Members:
Mr. Tom Brennan, Fire Engineering Chief Edward J. Phipps, San

Magazine Francisco (CA) Fire Department
Chief Warren E. Isman, Fairfax Mr. Wayne Sandford, Connecticut
County (VA) Fire and Rescue De- Commission on Fire Prevention
partment, International Association and Control, National Association
of Fire Chiefs of State Directors of Fire Training
and Education
Chief Roger McGary, Takoma Park
(MO) Fire Department, International
Society of Fire Service Instructors
Mr. William M. Neville, Jr., National Fire

Academy, Facilitator
I. Introduction The objectives of Task Force 2 were to

assess the operational requirements and
ow can fire protection be improved?” possibilities for current and future fire
H The easiest answer to this question

is to increase fire department budg
ets to buy more equipment and hire more
service activities and responsibilities.
This assessment occurred within the
context of the issues and recommenda
staff. This alternative was rejected tions discussed in Chapters 3-7 of Amer
immediately by the National Commission ica Burning.
on Fire Prevention and Control not only
because significantly higher budgets were
unlikely, but also because increased II. Background
funding does not necessarily produce
increased effectiveness. A more practical While basic fire service operations
alternative lay in reviewing fire service essentially have remained unchanged for
priorities and modes of operation in order more than 50 years, change within the
to increase service delivery effectiveness last decade has been significant and wide
and efficiency. ranging. This metamorphosis undoubt-

edly will continue to unfold well into the use of fire protection master planning,
next century. For example, many fire service delivery and personnel productiv
departments have revised operational ity improvements, advanced and special
priorities to meet demands for emergency ized education and training, emergency
medical services, hazardous materials medical services, improvements in fire
incidents and non-fire suppression re fighter protective equipment, equipment
sponses. Other factors, such as reduced standardization, and the establishment of
funding, the Equal Employment Opportu the National Fire Academy.
nity Act, Age Discrimination in Employ
ment Act, Fair Labor Standards Act and These topics may or may not remain
Superfund reauthorization, have changed critical issues. However, the contempo
the way fire departments recruit, train rary critical issues might include current
and manage personnel. and projected missions and functions of
the fire service, alternative processes and
In 1973, personnel assigned to sup techniques for fire protection, shift sched
pression companies generally would ules under the Fair Labor Standards Act,
spend the majority of their active time fire fighter health and safety, physical
training and responding to fire alarms. fitness, company staffing, in-service
Now, structural fires have decreased, and activities, training, the Incident Com
80% of the alarms may be for emergency mand System, inspection/enforcement,
medical incidents. The remainder of a public education, community relations,
fire fighter’s time is devoted to public reflex time criteria for station location
education, code enforcement inspections, and staffing levels, apparatus size and
community relations and training/physi design, burnout, alcohol and drug abuse,
cal fitness activities. and communications and dispatching.
The labor pool for both volunteer and
career departments has changed as well. III. Critical Issues
On the positive side, many in the fire
service have developed a more profes The task force members felt that the
sional stance. Increased demands for future goals and values of the nation’s fire
greater technical and managerial skills service must meet a two-fold test. They
and more career opportunities have been still must be responsive to the traditional,
contributing factors. For volunteer although diminishing, functions of fire
departments, this change poses signifi suppression, while simultaneously be
cant challenges because the increase in coming more dynamic to meet the chal
training, education and responsibilities lenges of a rapidly advancing technologi-
has impeded the recruitment and reten
tion of personnel. In addition, inade
quately prepared staff can result in legal U.S. Representative Sherwood P. Boehlert (R-NY)
liability and greater public safety risk.
“What America Burning concluded in 1973
Chapters 3-7 of America Burning remains a valid agenda today, yet the products of
included recommendations to place a our past successes are threatened and we are still
higher priority on fire prevention activi building the coalitions needed to achieve new
ties, the recruitment of women, increas triumphs.”
ing multi-jurisdictional cooperation, the
62 Task Force 2 - The Fire Services: Operation
Section V
cal world. The reordering of priorities and The task force felt that resistance to
redirection cannot come from external change also occurs when society thrusts
sources. The fire service needs to make its change and new responsibilities on the
own decisions and be in control of its own fire service. Further, society often re
fate. quires that the fire service perform these
additional tasks and functions without
The following describes the five critical the accompanying resources and training.
issues identified by the task force. These
are organized in priority of importance. 3) The lack of modern technology and
methods. The fire service needs national
1) Human resource development. There standards to replace the Insurance Serv
is a real need for the fire service to develop ices Organization Grading Schedule.
its own human resources in order to New standards and methodologies are
provide imaginative leadership and deci needed to guide staffing requirements,
sionmaking capability with a local, na the deployment of equipment and appara
tional and international perspective. The tus, and the location of stations. Of
fire service leadership must be given the course, new and innovative technologies
tools to develop these resources, have been developed within the past
decade, including expanded automatic
The task force identified four key
and mutual aid agreements, the Inte
components of this issue:
grated Emergency Management System,
a. upgrading officer selection and train civilians in fire suppression and training
ing which must start at the level of the positions, and master planning. How
company officer; ever, additional work is required to
integrate these systems into the fire
b. recruiting, training and retaining service and increase their credibility.
volunteer fire fighters;
A continuing problem experienced in
c. recruiting minorities and women; and, the fire service is the lack of information
for choosing and evaluating equipment
d. training allied professionals. and apparatus. A “consumers guide”
2 ) What is the mission of the fire service? would be very helpful.
The task force felt that the fire service’s
The inability to plan on a comprehen
goals and objectives are too narrow to
sive basis is limiting effectiveness and
meet society’s changing needs. This
efficiency. Some tools, for example,
problem is compounded by the public’s
master planning and the FIRESCOPE
perception of the fire service’s mission,
products, are available, but more need to
which is often inaccurate. The confusion
be developed.
then frequently results in resistance to
change at all levels. Many fire service 4) "Instant” implementation of affirma
officers instinctively reject new equip tive action adversely affects Standards
ment, procedures and duties. The ongoing and the overall quality ofpersonnel.
debate over company fire safety inspec Because all personnel have the same
tions, greater priority for fire prevention, responsibility, they all should be trained
and expanded emergency medical services to the same standard, and double stan
are examples of this tension. dards must be eliminated. This problem

is part of a much larger and fundamental it.” The task force raised the possibility
issue, namely, the lack of standardized that it may be impossible to train volun
minimum personnel requirements teers for all the functions expected of the
throughout the fire service. career fire fighter. The impact of federal
Occupational Safety and Health Admini
Often, the lack of national standards stration training requirements for haz
forces the local departments to develop ardous materials responders is an ex
their own. This places the departments ample of the dilemma. A double standard
in a difficult and hazardous position. between volunteer and career personnel
Unless these requirements are validated poses legal liability and public safety
by national experience, departments may risks.
use biased and inaccurate requirements
which will affect the quality of the per 5) Federal, state and local government
sonnel and leave the departments open to intervention. The task force members felt
discrimination complaints. that governments on all levels were
passing along a lot of responsibilities to
Such national professional qualifica the fire service without adequate funding
tion standards as the National Fire or training. In addition, demands for
Protection Association 1000 series do “instant compliance” with these imposed
provide a benchmark, but any standard responsibilities lower morale and stan
will need to be validated and used nation dards,
ally throughout the fire service. Whether
the personnel are career or volunteer fire In addition to the critical issues above,
fighters is not a valid consideration for the task force reviewed the following
defining this issue. “‘A fire behaves the problem areas (these are not ranked in
same way no matter who has to deal with priority):

Section V
lack of alternate funding sources;

lack of standardization in communica
failure of managers, mayors, public
tions and dispatching systems - prob
and media to appreciate the positive
lem for mutual or automatic aid;
impact of emergency services or
failure of tie service management to
understand procedures;
become involved in national or re
lack of fire protection training for
gional fire service issues; and
construction engineers and architects;
lack of professionalism at all levels of
failure of the fire service to become
the fire service.
involved with other municipal manag
ers;
lack of time to schedule required

IV. Task Force
training;
Recommendations
lack of standard pre-training for

The task force members chose to
minorities and women;
develop solution strategies for the highest
lack of resources to deal with chemical
priority issue - development of human
abuse;
resources.
obsolete standard operating proce
The task force recommended a com

dures (SOPS) or lack of emergency
prehensive program of research con

sops;
ducted by the U.S. Fire Administration to

inconsistent and unreliable fire loss
develop minimum standards for all fire
data;
service personnel. These standards then
lack of information on new technology
would be implemented by the National
failures and successes;
Fire Academy through training and

certification programs. Specific program research results with the state and local
areas include: agencies responsible for training and certi
fying public safety personnel. Engineering
1. developing a job analysis of fire service and architectural organizations should be
positions (volunteer and career) on a involved in this process as well.
broad nationwide basis;
The task force developed a three-phase
2. determining the applicability of exist
implementation strategy for this national
ing fire service position (volunteer and
employment research and development
career) professional qualifications
program.
(NFPA 1000);
3. determining appropriate selection Phase 1 - Short Term: The fire service
procedures for fire service positions should participate actively in extra-jurisdic
(volunteer and career); tional issues (e.g, surveys, committees) and
national fire service organizations.
4. examining volunteer membership
trends; Phase 2 - Medium Term: The fire service
5. researching the validity of pre-employ should budget to attend national standards
meetings and training sessions (e.g., NFA,
ment training for women and minori
NFPA, ASTM), should adopt the national
ties;
recruitment and employment development
6. researching the credibility of the fire program, and should support performance-
service with allied professionals, and based selection processes (both volunteer
elected and appointed oficials; and and career).
7. researching the impact of mandatory Phase 3 - Long Term: The fire service
and voluntary certification programs should adopt validated training programs
on volunteer and career personnel. for minorities and women, should have a
Once this research is conducted, the comprehensive officer development pro
National Fire Academy should develop a gram, and should formalize the evaluation
program to promote and coordinate the of state, metro, and county training pro
grams.

Section V
Task Force 3
The Fire Services:
Management and Administration
Task Force Members:
Chief Paul Boecker, Lisle-Woodridge Chief Jerry Knight, St. Peters

(IL) Fire Department, International burg (FL) Fire Department
Fire Service Training Association
Mr. Joseph O’Hagan, U.S.
Commissioner Joseph Bruno, New Army and Federal Fire Service
York City (NY) Fire Department Task Force
Mr. William H. Hansell, Jr., Inter- Chief John B. Stewart, Jr.,
national City Management Associa- Hartford (CT) Fire Department
tion
Mr. Clarence Williams, Inter-
Mr. Tom Herz, International Asso- national Association of Black
ciation of Fire Fighters Professional Fire Fighters
Mr. Garry L. Briese, International

Association of Fire Chiefs, Facilitator

Task Force 3’s area of concern lay in Fire chiefs and other fire service
the issues and recommendations dis management and administrative person
cussed in Chapters 3 through 7 of Amer nel have faced a wide range of major
ica Burning. The objectives of the task changes over the 15 years since the
force were to review the key managerial publication of America Burning. These
and administrative issues in the current changes have included expanded depart
and future fire protection environment, mental responsibilities, reduced operating
identify the requirements and constraints budgets, increased personal and depart
associated with these issues, and develop mental legal liability, revised personnel
alternate strategies for meeting the management practices resulting from the
requirements. Fair Labor Standards and Equal Employ-

the only nationally recognized document
which specifies resource requirements as
a function of community size and haz
ards.
The fire protection master planning
process was intended to provide a basis
for determining departmental require
ments. Even this approach, however, used
selected components of the IS0 Grading
Schedule because there are no other
quantitative standards for making such
determinations as the required number
and location of stations and companies,
and corresponding staffing levels.
Many of the other concerns raised by
the National Commission on Fire Preven
tion and Control have been addressed.
For example, significant efforts have been
made to bring women and disadvantaged
minorities into the fire services. To
attenuate existing bias, affirmative action
programs have been instituted, and
actions have been initiated to reexamine
and revise recruitment assessment guides
and promotion examinations. The status
and priority of fire prevention has under
ment Opportunity Acts, heightened
gone a major change. Many fire service
employee health and safety concerns, and
leaders see code enforcement, public
increased competition for fewer resources.
education and arson control as core
In many cases, chief fire officers elements in combatting the fire problem.
depended on the Insurance Services More significantly, fire prevention posi
Office (ISO) Grading Schedule as the tions are being viewed as key rungs on
basis for fire protection planning and the the career ladder in many departments.
rationale for justifying personnel, equip The National Fire Academy is established
ment and facilities. However, the influ and provides educational and training
ence and value of this insurance-based
planning guide have been declining as
local government questioned its applica U.S. Representative Sherwood P. Boehlert (R-IVY)
bility and the cost-effectiveness of its
requirements. In addition, the IS0 has “There is little question that the work of defending
the existing fire programs will have to continue,
stated that the Grading Schedule was
and we hope that this conference, by focusing
prepared for insurance industry use, and
attention on the seriousness of the issue, will make
not as a fire department planning man the coming battles a little bit easier.”
ual. Thus, fire chiefs generally have lost
68 Task Force 3 - The Fire Services: Management and Administration

Section V
opportunities where none existed previ

ously. Finally, the federal fire programs
have conducted research to increase the
effectiveness of fire fighter protective
equipment.

The task force participants empha
sized that the problems facing today’s tire
service must be faced by both career and
volunteer fire managers. The problems
must be recognized by large and small,
urban and rural, and career and volun
teer fire departments.
A theme that ran throughout the
many hours of discussion was that the
fire service frequently has the authority
and resources to solve many of its own
problems. This theme is repeated at all
levels of the fire service.
The problems that face today’s fire
service manager are primarily “people
problems.”
Many of the issues can be handled years. In addition, the past 15 years have
internally by the fire service. Continued presented the fire service with many new
support and financial encouragement are problems that were not anticipated in the
needed (a true partnership) from the U.S. original report. Therefore, the list of
Fire Administration to facilitate these problems and action strategies should be
changes. even longer than that in the original
report.
The task force members felt that the
“America Burning Revisited” conference The future of the fire service is being
must reinforce the positive accomplish decided from outside by such groups as
ments of the original America Burning, public managers, insurance companies
otherwise the report of this conference and the federal government. It is clearly
will not be complete. The many accom not in the best interests of the fire service
plishments of the past 15 years should be to allow this to happen, and the fire
acknowledged and highlighted. However, service should work with these outside
many of the same problems discussed by special interest groups to gain more
the commission in 1973 exist today, and influence over the external forces that
some of these have grown worse over the define its mission and environment.

cers, and their continuing education will
be one of the primary challenges facing
the fire service in the 1980s and 1990s.
Existing fire chiefs, managers and admin
istrators must continue with their man
agement education as well.
Labor and management, career and
volunteer fire fighters, fire and non-fire
organizations must quickly begin to work
together in order to regain control of the
future.
This conference must serve as a call to
those concerned with the future of fire
and emergency services to renew and
redouble their efforts. The conference
must serve to refocus the attention of the
fire service community on the absolute
necessity of working together and recog
nizing that we can set our own future
course.
The task force identified five key
problem areas. Ranked in priority, they
are:
fire and emergency service health and
safety;
no adequate method for the evaluation
This outside world views fire differ of fire and emergency service organi
ently from those in the fire service. While zations and operations;
fire may not be seen as a major problem
by non-fire service citizens, government personnel management;
managers and politicians, fire depart planning; and
ments frequently are viewed as a prob
lem. The fire service is not “selling” its the need for a shift of emphasis from
programs and activities, nor is the fire suppression to prevention.
service taking “credit” for what has been
accomplished. Further, these outside The task force members identified
groups are demanding change faster than numerous other issues that impede the
the majority of fire service agencies can cost-effective delivery of fire protection
make, or are willing to make, the services. These auxiliary concerns were
changes. either included within the scope of the top
five issues or were not considered a high
We must recognize that the future of priority. The following issues are not
the fire service is with its younger offi ranked in priority.

Section V
1. Compensation programs for employ 11. There is inadequate use of civilian

ees have no relationship to efforts to staff in the fire service.
prevent emergency incidents or losses.
12. All fire fighter safety and health
2. The fire service needs more accurate issues should be given a higher
information on the fire problem; all priority.
jurisdictions (100% of all fire depart
ments) should be participating in the 13. Fire departments must deal effec
fire incident reporting system and in tively with hazardous materials
management information systems. (right-to-know legislation).
3. The public should not regard fire as 14. Continuing education for chief fire
socially acceptable. executives should not be ignored.
4. A local, regional and /or national 15. The fire service must discuss career/
equipment deployment model should volunteer personnel issues.
be developed. 16. There is a lack of certification stan
5. National effectiveness measures and dards.
standards are needed to help give fire 17. Support for master planning has
managers benchmarks to evaluate been discontinued.
performance.
18. There is a lack of innovative revenue
6. Arson prevention and detection meas sources to relieve taxes or allow for
ures should be upgraded. expansion of services.
7. There is a need for fire chiefs to lead, 19. There is a lack of fire-safe design and
or at least participate in, an inte materials in the working and living
grated emergency management sys environments.
tem in their areas.
20. The fire service is ineffective politi
8. There is a need for improved training cally at the local, state and federal
at all levels, including chief fire ex levels.
ecutive.
21. Federal/state mandated actions that
9. There is a need to improve fire-police add responsibility without additional
relationships. finding should not be tolerated by
10. The firehouse should be used as a the fire service.
community base or resource. 22. Programs must be initiated to pre
vent /reduce fire deaths and injuries
in poorer communities.
U.S. Representative Doug Walgren (D-PA)
23. Fire and building officials do not
"...The thing that stands out when you look at communicate about, nor lobby for,
America Burning is that we clearly have failed fire and life safety issues.
to implement it..."

24. Unions must be brought on board 36. Information about innovations must
with changing management philoso be shared in order to increase the
phies. effectiveness of fire protection service
delivery,
25. Collective bargaining agreements
limit the potential of management 37. There are too many fire fighter inju
and employees for increasing produc ries and deaths, and not enough
tivity and initiating innovation. research into fire fighter safety and
health.
26. AIDS and communicable disease
issues must be addressed 38. A shift of emphasis from suppression
to fire prevention and education must
27. There is inadequate recruitment and be accomplished without increased
promotion of women, blacks and resources.
other minorities (equal employment
opportunity).
28. Hazardous material right-to-know V. Task Force Recommendations
issues must be addressed. The recommendations of the task
29. Fire departments must be staffed force are organized around the five most
and equipped (including apparatus) important issues for the management and
adequately. administration of the fire service today
and in the future. Both the problem
30. Fire chiefs must change with the areas and the solution strategies identi
times. fied to address these problems are listed
by priority.
31. No
adequate measuring standards or
instruments exist for fire department 1) Fire and emergency service health
evaluation. and safety.
32. The roles of fire chief as department a Programs should be implemented to
manager and head fire fighter should provide for insurance loss reimburse
be examined. ments to governments or fire depart
ments for fire fighter injuries or
33. Ways
should be studied to organize deaths on the fireground.
local government so it can make
better policies and deliver services de b. N
ational Fire Protection Association
signed to prevent and meet emergency Standard 1500 should be recognized
situations. as a guideline by all fire departments.
34. Greater
emphasis should be placed c. A program should be developed to test
on fire prevention to allow for rapid and rate fire equipment and appara
implementation at local level. tus. The task force members felt that
a system similar to the Underwriters
35. The
fire service must deal with sub Laboratory rating program would be a
stance abuse, abuse prevention and good model for this type of program.
employee assistance program (EAP)
issues.

Section V
d. More sophisticated and in-depth data 2) No adequate method exists for the
on health and safety issues should be evaluation of fire and emergency service
collected and disseminated. organizations and operations.
e. The U.S. Fire Administration should a. Establish a national evaluation method

take a leadership role in hazardous to measure the effectiveness and effi
materials issues at the federal level. ciency of fire and emergency service
agencies and systems. The develop
f. Duplication of right-to-know legisla ment of this methodology should in
tion should be avoided in state and volve a broad spectrum of fire and
federal legislation. emergency service, governmental
management and non-governmental
g. Physical fitness standards should be resources.
developed, adapted, validated and en
forced for all fire and emergency serv b. Chief fire officers should recognize,
ice personnel. lead and implement the Integrated
Emergency Management System
h. AIDS is a major concern to emergency
(IEMS) concepts into fire and emer
medical service personnel. This
gency service planning and operations
illness is a communicable disease and
at the local level.
should be treated as a public health
issue, not a civil rights issue. 3) Personnel management.
Federal legislation is needed to edu a. Encourage the development of labor-
cate emergency service personnel con management committees to focus at
cerning their exposure to AIDS and tention on productivity and innovation
other communicable diseases. (given the constraints of labor agree
ments or legislation).
i. Research programs on fire and emer
gency service health and safety issues b. Encourage aggressive implementation
should be re-initiated. These research of equal employment opportunity
programs should include, but not be programs, involving recruitment, reten
limited to, physiological aspects, psy tion and promotion of minority groups
chological aspects, toxicity concerns in the fire and emergency services for
and protective equipment. both career and volunteer departments.
j. Employee assistance programs (EAPs) c. Develop and distribute specific pro
should be designed and made avail grams and publications to assist volun
able for fire and emergency personnel teer fire departments in recruiting and
and their families. retaining volunteer fire fighters.
k. Any programs imposed on the fire d. Management education should be
service by federal or state govern targeted at all position levels within
ments should be accompanied by ade the fire service. Educational opportuni
quate funding to pay for the program, ties should be made available at the
or the mechanism to provide such local, state and national levels, as well
funding. as at the National Fire Academy.

e. There should be an identification of d. Local communities must involve the
the skills and knowledge necessary for fire service in all building and fire
the position of fire chief (volunteer or code development, including its adop
career, large or small, urban or rural). tion and enforcement.
Continuing education requirements
and the certification of chief fire e. Any mandated actions by the federal
officers should be considered. or state governments must be accom
panied by adequate funding or fund-
f. Management courses taught at the ing mechanisms (fiscal impact).
National Fire Academy should be
evaluated and updated every two f. Research should be done on the iden
years by a team of active fire chiefs tification of alternative revenue
and public managers (for example, sources for fire and emergency serv
members of the International City ices, with a special emphasis placed
Management Association). on user fees to better distribute costs
between the public and private
4) Planning. sectors.
a. Master planning must be reinstated g. Research should be encouraged to
as a major program of the U.S. Fire identify fire-safe designs in materi-
Administration and National Fire als.
Academy.
h . Fire departments must participate in
b. Fire departments must use the con- community-based programs and
cepts of master planning in the devel should use fire stations as the focus
opment of long-range goals and objec of the program.
tives.
5) Shift the emphasis of the fire depart-
c. The U.S. Fire Administration should ment from suppression to prevention.
initiate the evaluation of alternative
delivery systems for fire and emer No solution strategies were identified for
gency services. this final issue because of a lack of time.

Section V
Task Force 4
Fire and the Built Environment
Task Force Members:
Mr. George B. Barney, Portland Ce- MS Janet Kimmerly, Firehouse

ment Association Magazine
Mr. Paul Fitzgerald, Factory Mutual Mr. Richard P. Kuchnicki, Coun-
Corporation cil of American Building Offi
cials
Mr. Earl Flanagan, U.S. Department
of Housing and Urban Development Mr. Peter G. Sparber, The To
bacco Institute
Mr. Rolf Jensen, P.E., Society of Fire
Protection Engineers
Mr. Henry Roux, Armstrong World

Industries, Inc., Facilitator
I. Introduction high-rises), construction and furnishing

materials, and uses (e.g., the processing
The objectives of Task Force 4 were to of hazardous materials) have created new
define the fire protection environment hazards and have dramatically increased
vis-a-vis the built environment, assess safety risks. Futhermore, it is expected
the progress that has been made since the that this process of eliminating and
publication of America Burning and creating fire safety hazards will continue
recommend strategies for improving in the future. For example, future de
building fire safety. mands for affordable housing may result
in increased densities and pressure for
the use of lower-cost materials that may
II. Background compromise fire safety. Trade-offs of
current fire code requirements in return
The fire protection aspects of the built for installation of automatic detection and
environment have changed dramatically suppression systems may become a
during this century. Building and fire common approach to providing fire pro
codes have eliminated many hazards, for tection in the built environment.
example, inadequate exits, and have
required such new fire safety features as Significant changes in the building
smoke detectors and sprinklers. How and fire codes often have occurred as a
ever, new building designs (e.g., atriums, result of major fires. The MGM Grand

for materials, building fire safety design,
realistic material test standards and
procedures, the systems approach to fire
safety, fire safety effectiveness state
ments, consumer product design, fire
safety education for architects and engi
neers, community code adoption and
enforcement, use of smoke detectors,
hazardous materials, and motor vehicle,
aircraft, marine and railroad fire safety.
A lot of progress has been made since
1973. The Center for Fire Research has
been a leader in researching the basic
processes of ignition and combustion. It
has provided technical assistance to the
Consumer Product Safety Commission’s
efforts to establish mandatory and volun
tary flammability standards in such
products as mattresses, upholstered
furniture, heating equipment and ciga
rettes. CFR has developed methods for
predicting the growth and spread of fire
and has conducted a broad program of
research into suppression and detection
technologies.
The fire community has gained some
control of many fire variables. Fire
Hotel fire in 1980 resulted in revisions in departments conduct surveys of commer
Nevada, and influenced other states and cial and institutional buildings, inspect
communities to review safety require ing for fire hazards and compliance with
ments for hotels and motels. Of course, it fire codes. Cigarette ignitions of bedding
would be preferable that a comprehen and upholstered furniture used to be a
sive, long-range program for achieving major cause of fires and accompanying
fire safety in the built environment be deaths and injuries. The mattress flam
established and implemented prior to mability standard promulgated by the
disasters that result in death and injury. Consumer Product Safety Commission,
and the voluntary Upholstered Furniture
Chapters 8-12 of America Burning Action Council (UFAC) flammability
included the following topics: residential program has significantly improved this
fire safety, commercial and industrial fire hazard area.
protection, major fires, building materials
and furnishings, toxic products, inade Additional fire standards developed by
quate building codes, flammable fabrics, the Center for Fire Research and Ameri
occupancy fire loading, fireworks, com can Society for Testing and Materials
bustion dynamics, combustion standards (ASTM), as well as additional mattress
76 Task Force 4 - Fire and the Built Environment
Section V
and upholstered furniture regulations

required by such jurisdictions as Boston
and California, have resulted in even
safer products. Other building product
tests, for example, the pill test for drapes
and carpets and the National Institute of
Building Sciences’ combustion toxicity
test effort, will result in additional life
safety.
Code compliance has always been a
problem. But the code enforcement
process has changed substantially within
the past 15 years. The majority of states
have adopted model building and fire
codes as minimum building requirements.
Many local jurisdictions supplement
these state requirements by adopting
their own codes. Fire departments have
expanded their fire prevention programs,
and state and local governments have
established training requirements for
personnel involved in inspection and
enforcement activities.
IV. Critical Issues

The task force’s discussion on fire around the country show that people are
safety in the built environment focused on barely aware that there is a fire problem,
problems related to public behavior, much less aware of its scope and serious
technology and code enforcement. The ness.
range of topics that were raised under
scores the complexity of this issue. The 2) Lack of control of the building
five key concerns are organized in content. There is a need for combustion
priority. and toxicity data on products used to
construct and furnish buildings. The
1) Lack of public awareness of the fire problem of not being able to control the
problem. The public does not recognize or contents of a building is aggravated
realize the consequences of a fire. A 1976 further when its occupancy or use
U.S. Fire Administration study of public changes, and the contents then may
attitudes with regard to residential fire represent an even greater danger.
safety determined that the fire safety
issue was not a prominent one. New 3) Fire hazard methodology. The task
information obtained by the USFA con force noted that there are really no ade
firms this conclusion. Focus groups held quate methods for conducting a fire
hazard analysis, The engineering tools Illinois Institute of Technology’s fire
needed to undertake this task are not science program was discontinued in
presently available. Some research has 1984, as was Harvard’s doctoral program.
been conducted in this area by the Center A masters degree is offered at Worcester
for Fire Research, and the Hazard I Polytechnic Institute and only a bachelors
methodology provides a critical starting degree at the University of Maryland.
point. The Hazard I analysis protocol is Further, while there are a number of cer
applicable to single-family dwellings and tificate and associate degree programs
permits the calculation or modeling of fire offered by the model code organizations,
growth by tracking the development and community colleges, associations and the
distribution of heat, smoke and toxic National Fire Academy, their programs
gases. The objective of the model is to be lack the required comprehensiveness and
able to predict the probability of occu uniformity.
pants being able to escape from the
dwelling during a fire. Much of this problem stems from a
lack of leadership within the fire commu
4) Fire safety education. The task force nity, as well as the awareness concerns
lamented the poor training or lack of expressed in Issue 1 of this task force.
training of the many actors involved in Many in the code and design professions
the construction and code enforcement are unaware of the need to design fire-
system. This lapse ran the gamut from safe buildings. There is a reluctance even
fire fighters to more senior code enforce on the part of some fire officials to accept
ment officials to architects and engineers. the recommendations of the Society of
Fire fighters need to have more knowl Fire Protection Engineers.
edge about building construction, not only
to conduct code enforcement inspection, The model code arena is another area
but to combat fires (e.g., to anticipate where design input from fire safety
potential roof collapse on the fireground). officials and engineers is limited.
It is most unfortunate that fire safety is Often it has been members of the fire
not given a higher priority in architec protection community that have taken a
tural and engineering curricula. back seat to initiatives that were of prime
There is not a cohesive education for concern to them. For example, the
fire protection engineers, starting from a American Society of Civil Engineers is
bachelor’s degree now in the process
up to a doctorate. of adopting a na
The standards and “U.S. Representative Curt Weldon (R-PA) tional fire protec
certification criteria tion design stan
needed to coordi The purpose of this (caucus) is not to dictate to dard for the per-
nate this effort are you what should be done, but rather to listen to formance of struc
the needs of the fire service, take information tures. The process
just not available.
from gatherings such as this, from meetings that was started without
Further, there are are held at the National Fire Academy or
too few academic input from the
around the country, and then to provide the SFPE. While the
programs, and none legislative supportpolitically to help you turn
for the advanced SFPE is involved
those recommendations into actions.”
student. The now and is partici

Section V
pating in the deliberations of other model the cost and quality of sprinkler and
code organizations, the example is illus detection systems and their installa
trative of the need for the fire community tion;
to take a leadership role in areas with
which it is concerned. the lack of national uniformity in
building/fire codes;
5) The problem of existing buildings.
The majority of structures that will be the lack of information on the storage
used for residential, commercial and of hazardous materials;
industrial occupancies in the year 2000 the lack of a national insurance pro
are already built. Many of these proper
gram;
ties have hazards and risks that have not
been addressed by current building codes. the disunity and combativeness
What’s to be done? Buildings can be among the members of the building
retrofitted with sprinkler and detection community (i.e., owners, manufactur
systems and other fire protection meas ers, fire service, building officials);
ures. With some notable exceptions (e.g.,
hotels/motels in Florida and Nevada, and the lack of fire department involve
high-rises in New York), few state and ment in new construction; and
local building codes require existing
subjective fire test methods.
buildings to meet current code require
ments, unless the building is being reno
vated substantially. Some building
owners and managers, in particular the IV. Task Force Recommendations
Marriott Corporation, are voluntarily The task force prepared solution
retrofitting their buildings with sprinkler strategies for the first two critical issues.
systems. However, they are the excep The issues are ranked in priority, as are
tion, not the rule. the recommended solutions.
Other issues discussed by the task 1) Lack of awareness. Regarding the
force, but not considered a priority, in public’s lack of awareness to the fire
cluded: problem, the task force recommended the
the lack of casualty fire loss data; following solutions.
the traditionally low priority of fire a. Develop an awareness plan that

prevention within most fire depart would start with a survey of the
ments; dynamics of the public’s current
attitude. This survey would update
the cost of improved, safer building the 1976 USFA study which examined
materials and furnishings; public attitudes with regard to resi
dential fire safety. The survey then
competitive safety issues (e.g., radon) would be supplemented with objective
and competitive building features; case studies examining both the
the cost of overprotection - redundant tangible and intangible consequences
of fire. Specific incidents are impor
systems;
tant because the task force wanted to

“brutalize” the fire experience in order fire problem. Adults need to learn
to make it appear more vivid and real what steps they can take to minimize
istic. The final stage of the plan the ignition and growth of fire. Sug
would be to developan implementation gested approaches include the use of
strategy outlining target audiences the electronic and print media (e.g.,
and methods for communicating the movies, novels), and an effort similar
message to them. to the “Neighborhood Watch” pro
grams that have been developed
b. The task force felt that the most effec successfully by many police depart
tive overall strategy for cultivating a ments to combat home burglaries and
sensitivity to fire hazards was to start other neighborhood crimes.
communicating this message at an
early age. Fire education needs to d. Incentives that encourage fire safety
begin with kindergarten and be rein could have a beneficial effect. Tax,
forced continually in succeeding years. insurance, legal and social incentives,
People need to understand that there as well as deterrents, would go a long
are consequences to their behavior. way toward modifying both personal
Positive, fire-safe behavior is re and business behavior.
warded, while negative or careless
behavior ends in the tragedy and loss 2) Lack of control over the building
resulting from fire. contents. The task force approached this
problem in an unusual manner. Instead
c. Adults need to be educated about fire of controlling the fire hazards and risks
safety as well. The task force recom associated with construction materials
mended a public relations program and furnishings, we need to control the
aimed at encouraging the public to be fire performance of the room or dwelling.
a part of the overall solution to the If information is available on the room’s

Section V
rate of heat release and total heat content voluntarily label their products as
and how it will perform during a fire, it is being environmentally safe. The
possible to calculate whether the room manufacturers are modestly enthusi
would go to flashover. With this informa astic about the program and have
tion, limits could be established so that found it an effective marketing tool.
the room would not go to flashover and
the fire would burn itself out. This infor
mation also would be useful for designing Attachment 1
a sprinkler system, an approach being Other Recommended Solutions
taken by Factory Mutual for non-residen
tial occupancies. For residential occupan The task force identified a number of
cies, this information could be used to alternative solution strategies for the first
design the response pattern and location two priority issues discussed in the body
of detection systems, as well as fire bar of its report. These alternatives are listed
rier requirements. Instead of using by issue. The task force members did not
general fire rating requirements derived assign a priority to these suggested
from some consensus fire scenario, a solutions.
builder could install fire walls or parti
tions that are tailored to the specific 1. Lack of awareness
hazards and risks of the building’s con a. Require product manufacturers to
tents relative to its use. However, in install fire safety instructions.
order to implement this approach, two
types of information are required. b. Require an Underwriters Labora
tory label on all building contents.
a. First, research is needed to develop
tests and standards in the areas ofig C. Conduct a national survey of the
nitability, fire growth (i.e., rates of perception of the residential fire
mass loss and heat release), combus problem.
tion toxicity and suppressibility. d. Provide a fire safety instruction
sheet to all hotel guests.
b. Second, ‘we need information on the
fire characteristics of building con e. Have meeting planners check for
tents. All products used in buildings fire safety.
should have a label describing their
f. Have fire departments launch a
heat release performance, total heat
fire safety program in the schools.
content and gas generation character
istics. The publication and labelling g. Promote Fire Prevention Week.
of these should be a “requirement.”
There are some initiatives underway h. Promote Building Safety Week
both in this country and abroad that with the National Conference of
provide some basic information on the States on Building Codes and
pros and cons of fire hazard labelling. Standards (NCSBCS) and Council
For example, West Germany has of American Building Officials
started a voluntary “right-to-know” (CABO).
project called the Blue Eagle Program. i. Continue “Learn Not To Burn” in
Under this program, manufacturers schools and on television.

j. Require fire drills in public build cies and voluntary for residential
ings, schools, offices and nursing occupancies.
homes.
c. Begin additional flammability
1. Bequest government subsidies of research on building contents for
fire safety equipment and public non-residential occupancies.
service advertisements.
d. Require product manufacturers to
k. Use building wardens for fire develop and implement a fire
safety education and inspection. safety awareness program.
m. Involve the American Bed Cross e. Base insurance rates on the haz
and similar organizations in fire ards and risks posed by occupancy
safety endeavors. and building contents.
n. Require builders to include fire f. Mandate code inspections when
safety instructions in new homes. any change of building occupancy
occurs - non-residential.
o. Brutalize fire consequences to
make fire more vivid to the public. g. Require all product manufacturers
to publish fire growth characteris
p. Use the media to promote fire tics of products stored, shipped
safety - movies, radio, public
and used.
service announcements, newspa
per articles, soap operas, etc. h. Establish a heat release limit for
rooms to prevent flashover.
q. Coordinate existing fire safety
programs. i. Develop heat release criteria for
designing sprinklers.
r. Initiate a public relations cam
paign. j. Develop heat release or mass loss
information to design detector
s. Create tax and insurance incen
systems and barriers.
tives and disincentives for fire
behavior. k. Develop combustion/toxicity tests.
t. Increase the public visibility of l. Require all building owners to
local fire departments. publish and label fire growth char
acteristics for all rooms.
u. Offer free home inspections by
local fire departments. m. Develop an occupancy certification
system.
2. Lack of control over building contents
n. Hold building owners legally liable
a. Institute an upholstered furniture
to record occupant/occupancy
flammability study, examining
changes.
both fire experience and possible
new regulatory requirements. o. Improve cost-effective fire protec
tion control systems for building
b. Increase fire department inspec contents; develop maximum stan
tions of building contents - manda
dard for fuel loading.
tory for non-residential occupan

Section V
Task Force 5
Fire and the Rural Wildlands Environment
Task Force Members:
Chief Louis J. Amabili, Delaware Chief Richard Lamb, Wayne

State Fire School Township (IN) Volunteer Fire De
partment, National Volunteer Fire
Mr. Colin A. Campbell, Alexandria, Council
Virginia
Mr. James B. Roberts, Maryland
Chief Mary D. Chambers, Bernallillo Department of Natural Resources
County (NM) Fire District
Mr. Kenneth H. Stewart, National

Mr. Olin Greene, Oregon State Fire Criminal Justice Association
Marshal
Mr. Gerard Hoetmer, International City

Management Association, Facilitator
I. Introduction ited resources, long response times,

inadequate (or nonexistent) water sup
Task Force 6 concentrated on the plies, declining volunteer participation,
issues and recommendations discussed in lack of adequate training and a dramatic
Chapters 13 and 14 of America Burn increase in hazardous materials inci
ing. The group’s task was to evaluate the dents. The major problem may be the
issues facing rural and wildland fire provision of a sufficient number of ade
protection in light of current and future quately trained personnel who can re
requirements for controlling fire in these spond on a timely basis. Many volunteer
environments. In addition, the task force fire departments have reported difficul
members were to identify alternate ties in recruiting and retaining sufficient
solution strategies for meeting those numbers of personnel.
requirements.
These personnel problems result from
a variety of reasons, including people
II. Background working outside of the community, re
duced opportunity for fire fighting (with
The majority of the nation’s fire out a corresponding interest in emergency
departments protect small communities medical services), and a general apathy
and rural areas. These departments face concerning voluntarism. Employers may
a multitude of problems, including lim be reluctant to permit personnel to leave
included the reduction and modification
of fuel, prescribed burning, adoption of
special codes for involved structures and
public education.
Arson in rural and wildland areas is
of continued concern. The lack of exper
tise and resources to detect incendiary
fires, conduct an investigation and pursue
prosecution may encourage arson in these
areas.

Chapters 13 and 14 of America
Burning included the following topics:
rural residential fire safety, long response
times, volunteer fire fighter training,
regionalization, water supplies, small
community and rural master planning,
transportation fires, rural arson, private
brigades, forest fire prevention, incendi
ary forest fires, urban-wildland interface,
fuel management, weather modification,
model state forest/grassland fire protec
tion laws and their enforcement, public
education, fire hazard and weather fore
work to respond to an alarm, especially casting, and wildland fire suppression
when these alarms are for emergency techniques (including air attack).
medical incidents rather than fires which
are more visible and dramatic. The task force identified the following
seven problem areas which are organized
Fire protection for wildlands has been by priority.
complicated by the construction of homes
and other occupancies in the urbanized 1) Public education. The highest prior
communities bordering the wildlands. ity problem identified by the task force
Life safety is now a much larger issue for was public education or, more accurately,
the wildland environment. There have the public’s lack of awareness about the
been several significant developments in fire problem. The public does not seem to
wildland fire protection since 1973. For understand the fire hazards associated
example, the FIRESCOPE Program, with rural areas and wildlands. Unfortu
which produced the Incident Command nately, this lack of awareness affects key
System, was conducted originally to political support of, and funding for, fire
improve suppression of wildland fires. protection services. A public relations/
Fire prevention for wildland areas has information campaign needs to be waged
84 Task Force 6 - Fire and the Rural Wildlands Environment

Section V
to turn this problem around. However,

the lack of leadership and expertise will
impede this effort. Basic information is
unavailable. For example, there is little
behavioral information available that
examines the public’s attitude toward the
fire problem and suggests possible ways
to overcome it.
2) Insufficient land use planning. The
task force felt that inadequate land use
planning is a critical flaw in rural devel
opment and an impediment to a compre
hensive fire protection strategy. Land
use and fire prevention and control mas
ter planning go hand in hand. Zoning is
an important tool for controlling the fire
problem. For example, growth or devel
opment patterns in many areas can be
regulated by the availability of adequate
water supplies for fighting fires. Land
use planning can regulate access for
apparatus and the density of subdivi
sions, all of which are important fire
prevention and control variables.
The urbanization of rural and
wildland areas is producing a number of
new fire problems. As more people build inappropriate. In other words, codes
residences in remote, poorly regulated designed for cities or suburban areas can
areas, there has been an accompanying have less relevancy for rural or forested
increase in building/fire code violations, areas. For instance, the task force dis
improper use and storage of hazardous cussed the issues of combustible building
materials, and inadequate access roads materials, particularly roofing, and fuel
for emergency apparatus. Recognizing load clearing which have a much greater
this new problem, a collaborative effort impact on the fire problem in more re
among the U.S. Forest Service, U.S. Fire mote areas. A task force member cited a
Administration and National Fire Protec wildland fire during which houses were
tion Association was undertaken to saved, in neighborhoods that were devas
identify the problems and search for tated, because those houses were built on
solutions. a more secure location and combustible
fuel around the houses had been removed.
3) Code development. The fire service
has too little input into the development If the fire service is going to respond
of building and fire codes. For the rural to this issue, its national leaders and local
and wildland areas, codes are often executives are going to have to be more

active and aggressive. The fire service support. If fire prevention and control
typically has taken a backseat approach services are going to meet the require
on codes and fire prevention. More train ments set by the community, the fire
ing in code development and enforcement service needs the tools to accomplish the
for chief fire officers is needed. job.
4) Training. During the past 15 years, 6) Insurance. Insurance plays a signifi
much progress has been made in the area cant role in fire safety. It can provide
of fire service training. The National Fire incentives, as well as disincentives, for
Academy is among the many organiza fire safety behavior. Unfortunately,
tions that have had a major impact on the many insurance companies misunder
management and technical capabilities of stand the dynamics of risk associated
fire service leaders. Nevertheless, more with fire. Underwriting practices stress
needs to be done. For many rural depart loss potential and not good practice or fire
ments, state and county agency training safety behavior. Sprinklers are an ex
programs are not readily or easily avail ample of this approach. While sprinklers
able. The problem, however, goes beyond reduce the risk of large fire loss and
access because even when these training premium credits are given for them,
sessions are available, volunteers have overall insurance savings can be negated
difficulty attending them because of work by increased costs for potential loss from
commitments or penalties levied by water damage.
employers.
7) Technology. The answer to the fire
Rural arson is becoming a more problem lies in behavior and technology,
substantial problem. Training resources Built-in protection that lowers fire risks
and efforts need to be marshaled to and hazards can be realized through the
respond to this problem. development and use of less combustible
and/or toxic building materials and the
5) Fire protection resources. Fire protec use of automatic fire protection systems.
tion in rural and wildland areas often
involves interagency cooperation, Unfor The requirements and constraints of
tunately, even with the models provided the rural and wildland environment are
through FIRESCOPE and IEMS, commu different from more urban areas, and this
nication among agencies both within and difference needs to be reflected in build
across jurisdictions remains poor. New ing and fire codes.
work needs to be done in the area of inter-
and intra-jurisdiction relationships.
Action plans to control major fires and
conflagrations would benefit greatly from “U.S. Representative Curt Weldon (R-PA)
this better coordination among key actors.
. . Legislators..,have got to be held accountable
Fire service organizations need re for their votes, and their leadership or lack of it,
sources to deliver required services. that they take on your national priorities here in
Washington.”
These necessary resources include fund
ing, community commitment, equipment
and personnel. The task force felt that all
of these elements needed additional
Section V
IV. Task Forces

b. Seek low-cost loans for water conser
Recommendations
vation and supply systems through
the Rural Development Act.
The task force identified solution
strategies for all of the seven problem c. Educate local officials to the dangers
areas. The strategies are ranked in and hazards in the wildland environ
priority by both the importance of the ment. Officials need to know about the
problem area and the solutions. dynamics of fire, the cost of fire pro
tection and fire loss data.
1) Public education
d. Develop model state laws and codes
a. The fire service must market itself relating to fire protection in the forest,
and its mission, The fire service needs e.g., burning permits, zoning and
to make better use of the electronic building regulations, fire safety de
and print media for these efforts. The vices on motorized equipment, con
initial step of the public relations plan struction of fire breaks, access and
is to conduct a needs assessment to escape routes, and emergency meas
determine the necessary details and ures for the closing of the woods.
scope of the education effort. Re
search needs to be conducted to iden 3) Code development
tify target audiences, their attitudes
a. Codes and standards appropriate for
toward fire safety and appropriate
rural areas must be developed,
methods for communicating with
adopted and enforced.
them.
b. Publicize code enforcement successes.
b. Educate the political officials to their The public needs to know that good
responsibilities and roles in rural fire
fire safety practices work. For ex
protection and control.
ample, citizens need to know that the
c. The national fire information ex use of non-combustible roofing mate
change network needs to be reinstated rial can save their house.
so that information on successful
c. Local executives need training in code
approaches can be shared. development and enforcement.
d. The fire service needs to communicate
4) Training
with other groups in the jurisdiction
to promote fire safety. The fire service a. State and county agencies should
no longer can afford to talk to itself. make training easily available to rural
Coalitions need to be established with fire departments.
key interests in the jurisdiction, e.g.,
other public officials, builders, archi b. Legislation should be introduced at
tects, educators and business leaders. the state or national level to allow vol
unteers to attend training sessions or
2) Lund use planning to respond to an emergency incident
without penalty from employers.
a. Urge greater use of fire prevention
and control master planning tech c. Continue to distribute the National
niques by political jurisdictions. Fire Academy training programs.
d. Develop a training needs assessment
system in order to ensure that pro
grams concentrate on the issues and
needs of the fire service.
e. The scheduling of training programs
must be tailored to the unique time
constraints of volunteers.
d. The stipend program at the National
Fire Academy needs to be secure.
Most volunteer and rural fire depart
ments do not have the resources to
participate without financial assis
tance.
e. Strengthen state training programs
with funds and expertise.
f. Unify the different incident command
systems being used around the coun
try; communications techniques and
procedures should be compatible.
g. Develop a national system for fore

casting fuel build-up.
5) Fire protection resources
a. Institute programs to coordinate local
and state group purchasing of equip service needs to communicate with
ment and supplies in order to reduce other rural departments in the na
unit costs through greater economies tional wildfire coordination group.
of scale. Training in community development
techniques should be made available
b. Provide added funding in Title IV of to fire departments.
the Rural Development Act for the
training and equipping of local fire The fire service must involve the com
protection forces. munity in identifying the fire problem,
as well as the services and resources
C. Rural and wildland fire departments required to address it. National, state
need to reach out to other groups in and local training organizations
the community, state and nation to should expand theirprograms to teach
obtain their involvement and increase these skills.
access to resources. The fire service
needs to educate and inform elected d. Provide reasonable and justifiable
officials of their responsibilities and funding. Existing funding vehicles es
roles in fire protection. The fire tablished through the Farmers Home

Section V
dating building and fire inspection

services have increased the efficiency
and effectiveness of many fire pro
grams. Continued work in this area is
essential.
g. Establish a national fire weather

service.
h. Encourage use of the National Volun
teer Fire Council’s recruitment and
retention programs.
i. Data is essential for managing fire
protection programs. All fire depart
ments should be contributing their
fire loss data to the National Fire
Incident Reporting System. The U.S.
Fire Administration should develop
incentives to encourage fire depart
ments to contribute.
6) Insurance
a. Urge the National Association of
Insurance Commissioners to seek leg
islation in each state to require on-site
inspection of any dwelling prior to any
purchase and subsequent renewal of
Administration and the Rural Devel insurance.
opment Act should provide no- or low- b. Establish a coalition of insurance and
interest loans. fire service interests to develop practi
e. Rural master planning needs to be cal incentives and penalties to modify
encouraged. Fire departments need to fire safety behavior. For example,
there could be a premium credit or in
use this tool for organizing and deliv
crease based on whether inhabited
ering fire protection services effec
areas are clear of fuel load.
tively and efficiently. Master plan
ning methodologies need to be devel c. Develop a train-the-trainer fire safety
oped for the wildland environment. course for the insurance industry and
require it for licensing.
f. New ideas should be encouraged,
developed and disseminated through 7) Technology
out the fire service. Such innovative
ideas as using retirees for fire preven a. Increased funding should be made
tion programs, employing civilians in available for technological research.
fire command positions, and consoli Information is needed on the fire per-

formance characteristics of a room, c. Develop a residential sprinkler stan
fire suppression equipment, and the dard appropriate for rural use; the
combustion/toxicity characteristics of standard should take into account such
building materials and furnishings. characteristics as longer response
times and less water supply.
b. Establish national standards for the
combustibility of construction mate d. Institute a comprehensive technology
rials (e.g., roofing shingles). These transfer program that would compile
standards could be implemented and disseminate information on new
through the model building codes or techniques, studies and programs. It is
NFPA 101, The Life Safety Code. essential that this information be dis
tributed widely to local fire officials.
90 Tack Force 6 - Fire and the Rural Wildlands Environment

Section V
Task Force 6
Fire Prevention
Task Force Members:
MS Travis Cain, Office of Juvenile Chief Richard Moreno, Tucson (AZ)

Justice and Delinquency Preven Fire Department
tion, U.S. Department of Justice
Mr. Patrick Murphy, U.S. Confer
Deputy Chief Joseph M. DeMeo, ence of Mayors
New York City (NY) Fire Depart
ment Chief Bert T. Parker, Washington
County (OR) Fire District No. 1
Chief Charles H., Kime, Phoenix
(AZ) Fire Department Dr. Anne Phillips, MD, National
Smoke, Fire and Burn Institute
Dr. Arnold Luterman, MD, Univer
sity of South Alabama Burn Center Mr. James V. Ryan, American Asso
ciation of Retired Persons
Mr. Edward H. McCormack, Inter
national Society of Fire Service In Mr. Robert B. Smith, Fire Marshals
structors Association of North America
Mr. Robert Burns, Fire Loss Manage

ment Systems, Facilitator
I. Introduction excluded from the fast track of fire service

career paths.
Chapters 15 - 17 of America
Burning included discussions on a wide The commission recognized that chang
range of fire prevention activities: fire ing the realities and perceptions underlying
safety education, fire safety for the fire prevention was a key element in any
home, and fire safety for the young, old plan to combat the fire problem because fire
and handicapped. The National Com is dealt with more effectively and efficiently
mission on Fire Prevention and Control if prevented or controlled early. The com
noted that fire prevention was assigned mission recommended a series of actions to
too frequently a much lower priority increase the impact of fire prevention. The
than other fire department activities, mission of Task Force 6 was to review these
particularly suppression. Further, fire recommendations in light of the progress
service personnel avoided fire prevention made over the past 15 years and recom
assignments because many perceived, mend new strategies to address current and
often correctly, that these positions are anticipated fire protection requirements.
II. Background that are independent of actions taken
after ignition occurs (e.g., education, code
Fire prevention was given major enforcement).
emphasis in America Burning. The
commission recognized that there were Much has been accomplished since
limits to the capabilities of suppression to 1973. Many (if not most) of the nation’s
control fire loss. In fact, the commission fire departments have significantly
noted that communities which rely too increased fire prevention activities over
heavily on suppression forces for their fire the past decade. In-service company fire
protection may be assuming extraordinar safety inspections and participation in
ily higher risks. Moreover, the commis public education programs are now com
sion reflected that this approach was also mon. Fire departments have enlarged
inefficient; it was unlikely that increasing their role in supervising the fire safety of
the resources for fire suppression (i.e., ap the built environment. They are more
paratus, personnel) would result in pro involved in overall land use planning and
portionate reductions in fire losses. reviewing plans for proposed develop
ments. Fire departments frequently are
Fire protection consists largely of two involved in the development and adoption
types of activities, namely, suppression of model fire codes and the acceptance of
and prevention. Suppression essentially local amendments to strengthen these
is a reaction to events. Resources are codes (e.g., codes requiring installation of
mobilized and deployed following an smoke detectors in existing dwellings).
incident - the ignition of fire. Prevention
is more active. It involves the effort to While conclusive data is not yet
decrease the chances of fire and, failing available, many experts feel that the
this, to control its destruction by methods increased emphasis on fire prevention has
92 Task Force 6 - Fire Prevention

Section V
contributed to the declining number of area is part of the problem. There is a

reported fires and fire deaths. Fire need to evaluate the effectiveness of these
prevention activities may become even programs. Are they communicating the
more important in the future if fire de correct message? Are they targeted at the
partment resources continue to decline, right audience? There are really no
following the maxim, “...it is cheaper to systematic answers to these questions.
prevent a fire than to fight it.” Also, Moreover, while the proliferation of
community volunteers may become key organizations and media promoting fire
members of a fire prevention program, safety is a blessing, they rarely are coor
especially because the training and dinated at the national, regional or, even,
physical fitness requirements differ from local levels. This disorganization pro
those required in fire suppression, duces a mixed, confused message to the
public and wastes scarce resources.
III. Critical Issues There has been a shift in the building

and furnishings industries toward fire
While Task Force 6 identified more safety. Pressure from the fire service, the
than 20 problem areas that need to be federal government and model code
addressed to increase the effectiveness of changes have produced significant gains
the nation’s fire prevention efforts, it in the last 15 years. Mattress and uphol
concentrated on the two most important stered furniture resistance to cigarette
issues. These are rank ordered by ignition has improved greatly. Work is
priority. being conducted on cigarette fire safety.
The fire service needs to continue these
1) Lack of knowledge and recognition of efforts. More incentives (and disincen
the fire problem and the value of fire tives) need to be developed to reduce fire
prevention. While much yet needs to be hazards.
done, a number of programs have been
developed within the last 15 years that 2) Luck of support for a standardized
effectively address this area of concern. reporting system to document needs/
Some of these public education programs problems and program results. The task
provide an excellent base for continued force recognized that many of the prob
work, including NFPA’s "Learn Not To lems just noted revolve around the inabil
Burn” program, the National Smoke, Fire ity to identify systematically problem
and Burn Institute’s “Smoke Drills,” Exit areas and evaluate alternatives for ad
Drills in the Home (EDITH), and the dressing them. The problem comes down
Smokey Bear fire safety program. to the lack of data. The task force re
flected that much of its work would have
One measure of success is the degree been easier if it had more information for
of concern about the fire problem on the analyzing problems and selecting solu
part of many private and public organiza tions to resolve them.
tions and the amount of effort directed at
education programs. The task force noted that the national
fire data system is inadequate. Data is
Ironically, the sheer number of pro not collected in a uniform manner, nor is
grams and organizations working in this there a national focal point to coordinate

and direct its collection. There is data 3. Lack of fire safety education in
coming from burn agencies, hospitals, public and private schools, and a
medical facilities and the fire service. minimum standard for each grade
But how good is this information? How level.
valid is it? Training and quality control
programs set up originally by the U.S. 4. No public understanding of the haz
Fire Administration have not been sup ards of fire and its cost to society.
ported. Task force members raised ques 5. Lack of funds for studying the impact
tions about the quality of the data en of fire (i.e., a cost/benefit analysis of
tered into the system. prevention activities).
While a system for collecting data has 6. Disproportionate impact of budget
been established and is operated by the reductions on non-suppression forces
USFA, the information needed by the fire (fire prevention).
service is not available. Of course, there
is much more information today than 7. No recognition by the fire service and
there was 15 years ago, but this just the public of the scope of the fire
underscores the problem. The effort has problem or the value of fire preven
not been a complete one. There is infor tion.
mation that can rank order the origins of
fire, geographical fire problems, and the 8. Lack of support for the development
dynamics of age, race and ethnicity in of new technology for automatic
much more detail than what could have sprinkler systems which are accept
been done 15 years ago. However, there able to homeowners.
are a lot of holes in the information. We 9. Inadequate data at both the national
do not know what causes the numbers to and local levels to document the
fluctuate. We know the context of the extent and impact of fire problem; in
problems, but not the problem itself. formation is needed to define the
Further analysis is needed desperately. problem.
The severe reduction of data analysts in
the USFA has seriously hampered this 10. Lack of federal incentives to develop
effort. The information currently avail and implement fire safety programs
able is weak, and basic decisions on fire (e.g., fire-safe cigarettes, interior
protection cannot be made. finishes).
The following lists, in priority, the 11. No national criteria for fire preven
other problem areas considered by Task tion activities, namely, investigation,
Force 6. education, inspection and enforce
ment.
1. Lack of funds and personnel to estab
lish community relations services 12. Reluctance by private and public
which allow fire service personnel to sector organizations to accept fire
conduct prevention activities (proac protection/prevention methods (e.g.,
tive versus reactive fire protection). code and standard adoption and en
forcement, and product combustibil
2. More effective use of available time
ity/toxicity).
by fire fighters for fire prevention.

Section V
13. Need to regulate fire behavior of IV. Task Force
interior furnishings in elderly, child Recommendations
care and health care facilities.

The task force developed comprehen
14. Better sharing of information on fire sive solution strategies for the two critical
prevention programs, techniques issues. These are discussed below in
and training. priority order. While the task force
15. Lack of public appreciation of the identified a host of additional solution
value of maintenance inspections; strategies, it did not have time to develop
public is unwilling to be more re them fully. These candidate solutions are
sponsible for fire safety. listed in Attachment 1.
16. Limits placed by labor contracts on 1) Lack of knowledge of the fire problem
fire department prerogatives to and the value of fire prevention. The task
assign personnel to fire prevention force directed this charge against many
activities. actors in the fire protection community,
including the fire service, the general
17. Lack of public fire safety education public, educators and elected officials.
acceptance by fire service, educators The task force identified more than 25
and public. programs to address this problem. The
five highest in priority are listed below.
18. Lack of fire safety education stan
dard for teacher accreditation. a. Initiate a mass media program to
19. Range of personnel (both civilian educate and influence the public. In-
and uniform) needed for fire preven conjunction with the National Adver
tion programs. tising Council, the fire service would
present, on a nationwide basis, the
20. Federal government does not see fire problems of fire and its tragic effects
problem as a national priority. on life.
21. Lack of more comprehensive and b. Join and support the Congressional
expanded home fire safety pro Fire Services Caucus to educate and
grams. lobby national legislators.
C. Require that fire prevention education
standards become a part of career
U.S. Representative Curt Weldon (R-PA) paths for fire service personnel. Fifty
percent of training time should be de
“The fire service is the heart and soul of voted to fire prevention. Service re
America...the fire service forms the backbone quirements should be at least two
of our country, and it has since our country
years active time for entry-level chief
was founded more than 200 years ago.”
officers and three years active time for
department chiefs.
d. Develop vivid and practical informa
tion for special groups, including the

hotel/motel industry, handicapped, eld
erly and others at high risk.
e. Promote the adoption and application

of residential sprinklers nationally.
2) Lack of support for a standardized
reporting system to document needs/
problems and program results. The task
force identified only eight recommended
solutions to this problem. They follow in
priority order.
a. Re-evaluate and reorganize the cur
rent national data system; a national
task force under the aegis of the US.
Fire Administration should be formed
to review the operations of the Na
tional Fire Incident Reporting System.
Specifically, the task force should be
charged with reviewing the number
and type of organizations which should
contribute data, methods for dissemi
nating information and reports, data
collection methods, purposes and uses
of data, hardware and software re
quirements, and scope of data base
(whether EMS and hazardous materi
als data should be included).
e. The USFA should publicize the data
b. The task force should identify total reporting system and all of its prod-
funding requirements and possible ucts, which should be distributed to
funding sources. Funding sources the fire community in a timely man-
might include federal, state and local ner. Further, the USFA should edu
government organizations, industry cate the fire protection community in
grants, federal incentives and private the use of the data for decisionmaking
(for profit) endeavors. at the local level.
c. The task force should not have an f. Suggested reporting agencies for the
open-ended agenda, and it should keep standardized data system include the
to its assigned schedule. fire service, hospitals, doctors, medical
d. Upon the release of the task force’s examiners and industry. The objec
report, the fire service should support tive is to develop a reporting system
and continue to expand the established that has a broad constituency which
standardized national reporting sys- not only will contribute to the system,
tem. but will be able to benefit from it.

Section V
g. Suggested reporting agencies should 7. Develop information and materials

be represented on the task force. to be posted in public areas; seek the
assistance of the private sector to
h. The data system should be an organic help pay for development and
one; the organization should provide placement costs.
training to the reporting agencies, a
data feedback system and a vehicle for 8. Recruit non-traditional agencies for
readily sharing information. assistance, e.g., youth development,
parks and planning.
9. Develop a Speakers bureau to take
Attachment 1 the fire problem to special interest
Other Possible Solutions groups.
1. Collect objective data on the value of 15. Encourage new technology for
any prevention program. automatic fire protection systems;
maintain continuous contact
2. Continue and enhance such current
between these industries and the fire
fire safety programs as “EDITH,,
service.
“Learn Not To Burn,” ‘Smoke Drills”
and so forth. 16. Solicitpublic official endorsements
3. Upgrade the national data system and support.
with in-depth investigation and 17. Develop publications for teachers on
analysis; dissemination of, and fire safety in the school and home.
access to, this information should be
augmented as well. 18. Adopt code requirements mandating
maintenance of fire protection
4. Educate the fire service to the need systems.
for changing its role (proactive
versus reactive). 19. Encourage fire prevention successes,
especially for fire service personnel
5. Increase visibility in public places,
(e.g., increased recognition,
other than during emergencies and
financial incentives).
inspections.
20. Urge all media to remind citizens to
6. Change fire service attitude to
clean, test and repair smoke
reward fire prevention
detectors at the beginning and end of
accomplishments; suppression efforts
daylight savings time.
should be regarded as failures.

Section V
Task Force 7
Preparing for the 21st Century
Task Force Members:
Chief Michael Conley, Interna- Mr. Martin Mintz, National Asso

tional Fire Service Training Asso- ciation of Home Builders
ciation, Stillwater (OK)
Chief Vic Porter, Berkeley (CA)
Chief M.H. “Jim” Estepp, Prince Fire Department
George’s County (MD) Fire Dept.
Dr. Jack Snell, Center For Fire Re-
Dr. John Granite, St. James City search, National Institute for Stan
(FL) dards and Technology
Mr. David A. Lucht, Worcester
Polytechnic Institute
Mr. Harvey Ryland, Tampa (FL),

Facilitator

This section presents the results of There have been significant changes
Task Force 7, “Preparing for the 21st in the concept and scope of fire protection
Century.” The task force’s objectives since America Burning was published
were: (1) to review the issues and recom in 1973, and it is almost certain that even
mendations presented in Chapters 18,19 greater changes will occur as we enter the
and 20 of America Burning; (2) to 21st century.
forecast the characteristics of the fire
protection environment in the 21st cen Some of the key changes that have
tury and the requirements and con occurred since 1973 include reduced
straints associated with that environ resources for fire departments, resulting
ment; and (3) to prepare a general de in closed companies or lower staffing
scription of fire protection in the 21st levels; greatly expanded use of smoke
century and recommend alternate con detectors and automatic detection and
cepts, policies, programs, techniques and suppression systems; significant in
activities for use by fire departments and creases in fire service involvement in
other fire safety organizations in plan emergency medical services, hazardous
ning and preparing for the future. materials incidents and emergency man-
agement activities; revised personnel several years in which there was a possi
policies and schedules as a result of the bility that the United States Fire Admini
Fair Labor Standards Act (FLSA); in stration budget would be zero. Conse
creased drug abuse in the fire service; quently, many of the fire programs envi
and the creation of a federal fire effort sioned by the commission were curtailed
implemented through the United States because of inadequate funding.
Fire Administration, National Fire Acad
emy, and Center for Fire Research of the The commission recognized that, as
National Institute of Standards and important as federal research is for
Technology. combatting the nation’s fire problems, the
responsibility is not solely the govern
A “new" issue discussed in the task ment’s. It recommended that the building
force was the increasing relationship materials and furnishings industry
between environmental protection, or the sponsor research directed toward improv
control of hazardous waste, and fire ing fire safety in the built environment.
protection. In 1973, few fire officials even While we have learned a lot in the past
considered that harming the environment decade, much more information is needed
could be a spillover effect from fighting a to understand and control the fire haz
fire. But it is a real possibility and under ards and risks posed by construction
scores the complexities of modern life. materials and building contents. Such
For example, there have been incidents associations as the Chemical Manufactur
where contaminated water runoff result ers Association, The Society of the Plas
ing from suppressing a chemical plant tics Industry, Carpet and Rug Institute,
fire polluted local groundwater. Environ International Association of Sleep Prod
mental control agencies have expressed ucts, American Furniture Manufacturers
concern that the traditional fire fighting Association, and Concrete and Masonry
tactic of venting a building to release heat Institute have initiated studies to under
and smoke also may release hazardous stand the combustion and toxicity haz
gases. In addition, halon gases used in ards associated with their products.
automatic suppression systems may be
harmful to the ozone layer. Forecasting future trends, the com
mission attempted to plan for fire protec
America Burning proposed the de tion needs and demands in the 21st
velopment of the federal fire effort and century. Examples of projected aspects of
recommended the creation of the United life included increased average life span,
States Fire Administration, National Fire possibly to 120 years; extensive use of
Academy and Center for Fire Research, high-density housing; expanded adult and
with a proposed annual budget of continuing education programs as people
$124,840,000 (1973 dollars). The commis work until 100 years of age; automatic
sion stated that the projected costs “can medical systems built into the body; use
serve as an indication of minimum oper of exotic information and communications
ating program needs and as a starting equipment; and a continued reduction in
point for discussion.” However, the the fire suppression activities of fire
maximum budget ever received by the departments. Such changes will have a
U.S. Fire Administration was approxi major impact on fire protection in gen
mately $24 million, and there have been eral, and on the fire service in particular.
100 Task Force 7 - Preparing for the 21st Century

Section V
Of course, even within a span of 15 losses. Examples of views and attitudes

years, many of the commission’s individ that people have which contribute to our
ual conclusions and recommendations for relatively poor fire safety record (espe
the 21st century are no longer applicable cially compared with other industrialized
or now may have a different priority. As nations) include:
the environment changes, so do the
challenges and demands placed on the “it can’t happen to me”
fire service. Updating America Burning “odds are that it won’t happen to me”
will require a constantly revised picture
the insurance company will take care
of the future. We will need new informa
of me"
tion to identify upcoming fire protection
conditions, requirements, constraints and “it is not a disgrace to have a fire”
priorities. This planning is critical if the “I can set fires for revenge”
fire service is going to meet tomorrow’s
demands. “people come out better after a fire”
“I will help those unfortunate people
who had a fire”
“they’re just children playing, they
Chapters 18-20 of America Burning didn’t know any better”
included the following topics: public and The consensus of the task force was
private involvement; basic and applied that a high level of fire safety will not be
fire research; special research in human achieved until these views and attitudes
behavior, fire dynamics, and smoke and are changed.
toxic gases; development of automatic
detection and suppression systems; 2) Political action infrastructure, An
dissemination of results of research and organized and coordinated capability that
development projects; private research can, at the national level, identify overall
activities; improvement of burn treat problems, establish priorities and “make
ment; establishment of the U.S. Fire things happen” (i.e., pass legislation,
Administration and National Fire Acad obtain budget increases) does not exist for
emy; and operation of a national fire data fire protection. Unlike many other social
system. and economic issues that have coordi
nated national representation, lobbying
Task force members identified many and public relations programs, fire safety
issues which they. felt were most impor appears to be a poor stepchild and only
tant in preparing for the 21st century. receives extensive public attention follow
After consolidating these and ranking ing a major incident.
them in priority, the task force identified
the following key issues (in priority The national representation for fire
order). safety issues is fragmented, at best. The
Joint Council of National Fire Service
1) Cultural orientation. The single most Organizations, the only national group
critical factor to be considered is that concerned with fire safety, is composed
public attitudes, behavior and values primarily of fire service organizations.
contribute significantly to our high fire For fire safety to become a higher public

ing of buildings has
increased the
hazard and makes
it critically impor
tant to know how a
material will react
in fire. Frequently,
a new material is
used without an
understanding of
how its properties
react when heated
or burned, until a
tragedy occurs.
Then, an after-the
fact research effort
is initiated. If this
understanding isa
priority, a more comprehensive and chieved in advance, these properties
broader coalition of interests must be could be predicted, and unsafe materials
formed that includes the active participa could be kept out of the built environ
tion of all actors in the fire protection ment.
community. Associations and nationally
recognized leaders of such professions as The general technology is available
city and county managers, code and to support the development of advanced
building officials, and architects/engi automatic smoke detection and fire
neers must be a part of the fire safety suppression systems. However, budget
solution. restrictions at the National Institute of
Standards and Technology’s Center for
3) Development of new and improved fire Fire Research have limited the agency’s
protection technology. Basic knowledge is ability to pursue aggressively the devel
needed in the physics and chemistry of opment of these systems. The center’s
combustion, especially concerning the involvement is essential because, appar
generation of products of combustion and ently, the market does not provide suffi
the process of extinguishment. Research cient incentives to encourage private
needs to be done on the next generation of industry to take on this task.
affordable, smart smoke detection and
4) Fire protection information. Continu
fire suppression systems.
ous and complete data collection and
Most fire deaths are from smoke analysis to identify fire protection prob
inhalation, not heat or burns. Therefore, lems and solutions have been, and still
it is necessary to understand the compo are, top priorities. Unfortunately, the
nents of smoke (i.e., products of combus data collection and analysis efforts being
tion), including how they are generated, conducted within the fire community are
disseminated, and lead to injury and in disarray and not achieving the in
death. The increasing use of synthetic tended objectives. For example, while the
materials in the construction and furnish U.S. Fire Administration has made
Section V
significant progress with the National estimates that the annual number of fires
Fire Incident Reporting System (NFIRS), has decreased from slightly more than 1
not all cities and states are participating million in 1977 to 800,000 in 1986. Plus,
in that network. Further, although this when the other America Burning rec
fire incident data is important, the fire ommendations are implemented, this tra
service needs other types of information. ditional role of the fire department will be
Case studies of successful management reduced and redefined further, although
techniques and new technologies that never eliminated.
may have fire protection applications
The loss of federal General Revenue
would be useful for fire managers.
Sharing funds and other local govern
There is not sufficient analysis of the ment budget restrictions have reduced
information that is collected currently. the resources of many departments, and
The U.S. Fire Administration’s budget this has affected company numbers and
restrictions have impeded the analysis staffing levels.
and reporting of the NFIRS and other
Thus, the dual forces of limited re
data collected by the National Fire Data
sources and evolving demands for serv
Center. In recent years, personnel and
ices are expected to have a major impact
contracting funds devoted to analyzing
on the fire service. Few task force mem
NFIRS data have been cut severely.
bers felt that enough departments are
A comprehensive data collection and prepared for these challenges, or are even
analysis capability would help the fire in the process of preparing for them.
service. The information could be used to
develop better fire spread models, predict There are three key areas of fire
service operations in need of examination.
the occurrence and location of fires, and
establish improved tactical procedures. a. What are the roles and responsibili
Also, this capability would support the ties of the fire department of the
infrastructure requirements discussed future? During the past 20 years, the
above. For example, better data might fire service has assumed a major role
help in the adoption of improved fire in providing emergency medical
safety legislation. services (EMS), to the extent that
such incidents now constitute a major
5) Redefine the traditional public safety
service delivery system. The roles and ity of some departments’ runs. Fire
department responsibility for hazard
responsibilities of the fire service must be
ous materials protection also has been
redefined to meet the changing local
increasing, and with the role specified
government environment and the needs
in the 1986 Emergency Preparedness
of the future.
and Community Right-To-Know Act,
A fundamental change is occurring in otherwise known as Title III of the
the nature and scope of what long has Superfund Amendments and Reau
been considered the fire service’s main thorization Act (SARA), this involve
responsibility, fighting fires. Within the ment will continue and possibly
past decade, there has been a downward expand further. Many fire depart
trend in the number of structural fires ments have increased their responsi
being handled by fire departments. The bility for building and environmental
National Fire Protection Association code enforcement, even in a few cases,
to the extent of providing overall build 2) Build and maintain a national fire
ing department services. safety constituency through the Congres
sional Fire Services Caucus, a fire safety
b. What are the most effective and efficient political action committee (PAC), and a
methods for accomplishing these roles n
"conference board, composed of strong
and responsibilities? It may be, for leadership from each public interest group
example, that a combination inspection/ and fire association, that will lobby on
EMS/rescue/fire suppression unit that Specific issues.
uses smaller apparatus will replace some
of the standard engine companies in a 3) Fund and begin the development of a
community. Consolidated building and new generation of affordable, automatic
fire departments have proved to be an smoke detection and fire suppression
effective choice for many municipalities. systems, and initiate actions within the
model code groups and legislatures
c. Is even the name “fire department”
becoming obsolete? A few departments around the county to install these systems
in all dwelling units.
already are changing their names to
reflect their expanding missions. For 4) Develop and implement a widely acces
example, such names as the “Fire and sible fire safety data base network, which
Life Safety Department” and the “De will include the models and data needed
partment of Fire and Emergency Man for fire risk and hazard prediction and
agement” are becoming more common. fire safety program productivity measure
ment. Hardware and software needed to
access this data base should be provided to
V. Task Force Recommendations local fire departments.
Upon reflecting on the impact of their 5) Fund and conduct a comprehensive
deliberations, the members of the task force project to develop recommended future fire
decided to issue only a limited number of department roles and priorities and a new
recommendations. While all of the alterna departmental name, with leadership
tive solutions had merit and should be provided by the Joint Council of National
pursued, it was felt that the task force Fire Service Organizations in collabora
report would have greater impact if it were tion with elected and appointed local
concise and targeted. Consequently, the government officials and recognized
task force’s report consists of the five most national interest groups.
important actions that need to be taken to
improve fire protection in the future.
These recommended actions, in priority Attachment 1
order, are: Other Possible Solutions
1) Mount an on-going national campaign The task force identified a number of

to change cultural orientation to one of fire alternative solution strategies for each of
safety consciousness, involving complete the critical issues just discussed. These
saturation of fire safety concepts to all age alternatives are listed within each issue.
groups, using proven behavioral modifica The task force members did not assign a
tion, marketing and simulation techniques. priority to these suggested solutions.

Section V
1) Cultural orientations sponsors for fire safety campaigns.

(Note: The negative aspects of fire may
a. Fire safety public education programs preclude some companies from partici
should be mandated in schools for pating in such programs.)
grades K through 12
i. Prominent national persons should be
b. Harsher legal penalties should be used in promotional materials and
established for people whose careless campaigns. Dick Van Dyke was very
ness results in a fire. effective in the “Learn Not To Burn”
c. Negative cultural characteristics, s p o t s .Football players could demon
which lead to unsafe fire practices, strate “stop, drop and roll” for informa
should be identified, and positive, safer tion targeted to younger children.
behavior should be encouraged and j. Neighborhood fire brigades should be
reinforced. developed to increase citizen awareness
d. A Mothers Against Drunk Driving and education and provide first aid
(MADD) type program should be devel services.
oped for citizen awareness and sensi k. A massive public education training
tivity toward negligent fires and those program for fire service personnel, with
who cause them. This program should support materials, should be developed
provide for positive intervention at and offered nationwide.
every opportunity to change behavior,
especially for “latch-key” children, l. Media coverage should be obtained for
fire department accomplishments,
e. A symbol or theme for fire safety (e.g., activities and such fire service events as
Sparky) should be established which the fire fighter Olympics.
has national recognition and visibility
similar to that achieved by “Spuds m. Research should be conducted to deter
McKenzie.” mine what it takes to motivate members
of each group in our society to improve
f. Fire safety programs are often ama its fire safety practices; special attention
teurish and less than effective. Ex should be given to identifying positive
perts skilled in advertising, promotion, techniques.
and public relations need to be in
volved. n. Quality fire protection television spot
announcements should be developed to
g. Government and other institutions can be shown on local stations and cable
encourage fire safety by offering finan systems.
cial incentives (i.e., tax rebates or re
ductions) to those who do not have o. Model public education programs should
fires, practice fire safety behavior or be developed for specific ethnic and
install automatic fire protection sys economic target groups.
tems. p. Traffic tickets should be issued for fire
h. The private sector needs to be an active protection code violations in structures
other than single-family dwellings; fire
participant in fire safety, which is good
fighters should have the authority to
for business and society. The fire serv write tickets. Mandatory public service
ice needs to identify and use corporate should be required to work off violations.
q. Provide graduate education (e.g., engi c. Institutionalize technology transfer
neering and architecture) for fire safety through federal legislation requiring
professionals in all applicable fire that fire service spinoffs be explored
protection disciplines. following major technological inno
vations in the behavioral, manage
2) Political action infrastructure rial or engineering sciences.
a. Everyone should ask their federal d. Continue and expand research into
representatives and senators to join the the combustion, toxicity and fire
Congressional Fire Services Caucus. suppression phenomena.
b. Establish a consolidated and compre e. Develop inexpensive automatic
hensive political action committee smoke detection and fire suppres
(PAC) to pursue fire safety programs. sion systems that can: (1) recognize
c. Establish a fire protection “conference different types of fires; (2) direct
board” to lobby for specific issues. The suppressants toward the fire loca
“conference board” would be composed tion; and (3) turn off when the fire is
of strong leaders from each public out.
interest group and fire protection pro 4) Fire protection information
fessional association.
a. Establish a national laboratory net
d. Establish a mechanism to educate work for fire cause analysis and in
local, state and national policymakers vestigation. Ensure that the infor
on fire protection requirements and mation is readily accessible to local
issues. fire departments.
e. Encourage the public to lobby for b. Establish a national fire information
improved fire protection at local, state database network that, ideally,
and national levels. would be a combination of NFIRS,
f. Provide incentives for fire protection UFIRS, and non-incident informa
organizations to work together, and tion and ideas.
disincentives for not working together. 5) Redefine the traditional public
g. The resources and influence of all local safety service delivery system
and national organizations (e.g., Ameri a. Establish certification and licensing
can Association of Retired Persons) requirements for fire protection pro
should be used to improve fire protec fessionals.
tion.
b. Consolidate building and fire inspec
3) Development of new and improved fire tion services under fire departments.
protection technology
c. Increase local fire department au
a. Conduct needed fire research which is thority and responsibility to estab
complete and thorough enough so the lish and accomplish goals.
results can be put to end-item use.
d. Establish a significant national fire
b. Establish an effective mechanism for leadership training institute, e.g.,
evaluating new fire protection engi expand the Harvard program to
neering methods and disseminate permit greater participation.
results to potential users.

Section VI
Appendix A. Project Steering Committee
Dr. Jack Snell Howard Tipton

Center for Fire Research City Manager
National Institute of Standards and P.O. Box 551
Technology
Daytona Beach, FL 32015(904) 252-6461
Gaithersburg, MD 20899
(301) 921-3143
Gerard Hoetmer
International City Management Association
Garry Briese
777 North Capitol Street, N.E.
International Association of Fire Chiefs

Washington, D.C. 20002
1329 18th Street, N.W.

(202) 962-4600
(202) 833-3420
Deputy Chief Ray Alfred
District of Columbia Fire Department
Joseph O’Hagan 1923 Vermont Avenue, N.W.
U.S. Army Corps of Engineers

Washington, DC. 20001
Building 203, USAEA CA

(202) 462-1762
Fort Myer
Arlington, VA 22211-5050
Philip Schaenman
(202) 696-38 13
Tri Data Corporation
1500 Wilson Boulevard
AI Whitehead
Arlington, VA 22209
International Association of Firefighters

(703) 841-2975
1750 New York Avenue, N.W.

Rich Adams
(202) 737-8484
Editorial Director
WUSA-TV
Tom Owens
4001 Brandywine Street, N.W.
Volunteer Coordinator
Fairfax County Fire and Rescue Department

(202) 364-3905
4031 University Drive
Fairfax, VA 22032
Edward M. Wall
(703) 691-2126
Deputy Administrator
Harry Hickey
Emmitsburg, MD 21727
Johns Hopkins University

(301) 447-6771
Applied Physics Laboratory
Johns Hopkins Road - Building 46

James F. Coyle
Laurel, MD 20707
Assistant Administrator
(301) 792-5154
(301) 447-6771
Alternates
Howard Markman
P.O. Box 177
Northfield, NJ 08225
(609) 645-7744
Colin A. Campbell
Colin A. Campbell & Associates
15-B East Windsor AvenueAlexandria, VA 22301
(703) 684-13 18
Hal Bruno
Political Director
ABC News
1717 DeSales Street, N.W.
(202) 887-7777
108 Appendix A
Section VI
Appendix B.
America Burning Revisited Participants
Task Force Professor Richard E. Bland 1

435 East Irvin Avenue
Louis J. Amabili 5 State College, PA 16801
Director (814) 237-7262
Delaware State Fire School
RD 2, Box 166 Chief Paul Boecker 3
Dover, DE 19901 Chairman, Executive Board
(302) 736-4773 International Fire Service Training
Association
Deputy Chief Steven C. Bailey 1 Lisle-Woodridge Fire District
President 1005 School Street
National Fire Information Council Lisle, IL 60532
Seattle Fire Department (312) 964-2233
301 Second Avenue South
Seattle, WA 98104 Clyde A. Bragdon, Jr.
(206) 386-1470 Administrator
George B. Barney 4 16825 South Seton Avenue
Divisional Director Emmitsburg, MD 21727
Engineering Services Division (301) 447-1080
Portland Cement Association
5420 Old Orchard Road Tom Brennan 2
Skokie, IL 60077-4321 Editor
(312) 966-6200 Fire Engineering Magazine
250 Fifth Avenue
Julius W. Becton, Jr. New York, NY 10001
Director (212) 481-5771
Federal Emergency Management Agency
Federal Center Plaza Garry L. Briese 3
500 C Street, S.W. Executive Director
Washington, D.C. 20472 International Association of Fire Chiefs
(202) 646-3923 1329 18th Street, N.W.
Bob Blair (202) 833-3420
Chief, Intergovernmental Affairs
Federal Emergency Management Agency Peter Brigham 1
Federal Center Plaza President
500 C Street, S.W. Burn Foundation
Washington, D.C. 20472 1311 Chancellor Street
(202) 646-4600 Philadelphia, PA 19107
(215) 735-4060

Commissioner Joseph Bruno 3 James F. Coyle
Fire Department of the City of New York Assistant Administrator
250 Livingston Street U.S. Fire Administration
Room 408 16825 South Seton Avenue
Brooklyn, NY 11201 Emmitsburg, MD 21727
(718) 403-1200 (301) 447-1181
Robert B. Burns 6 Deputy Chief Joseph M. DeMeo 6

President Bureau of Fire Prevention
Fire Loss Management Systems Fire Department of the City of New York
1667 Springer Road 250 Livingston Street
Mountain View, CA 94040 Brooklyn, NY 11201
(415) 964-2377 (718) 403-1367
Chief Robert Butler 7 Chief M.H. “Jim” Estepp 7

Fire Department of the City of New York Prince George’s County Department of Public
250 Livingston Street Safety .
Brooklyn, NY 11201 County Administration Building, Room 5032
(718) 403-1434 14741 Governor Oden Bowie Drive
Upper Marlboro, MD 20772
MS Travis Cain 6 (301) 952-5335
Program Manager
Office of Juvenile Justice and Delinquency Paul Fitzgerald 4
Prevention Vice President
U.S. Department of Justice Factory Mutual Corporation
Washington, D.C. 20531 1151 Boston-Providence Turnpike
(202) 724-5914 P.O. Box 9102
Norwood, MA 02062
Colin A. Campbell 5 (617) 762-4300, Ext. 2800
President
Colin A. Campbell & Associates Earl Flanagan 4
15-B East Windsor Avenue Codes Advisor
Alexandria, VA 22301 U.S. Department of Housing and Urban
(703) 684-1318 Development
4517th Street, S.W.
Chief Mary D. Chambers 5 Washington, D.C. 20410
Bernallillo County Fire District 10 (202) 755-6590
11683 South Highway 14
Tijeras, NM 87059 John C. Gerard 1
(505) 281-5187 Washington Representative
National Fire Protection Association
Chief Michael Conley 7 1110 North Glebe Road, Suite 560
International Fire Service Training Washington, DC. 22201
Association (703) 524-7170
Oklahoma State University
Stillwater, OK 74078-0114
(405) 744-5727
110 Appendix B
Section VI
David Goldston Gerard Hoetmer 5

Technical Consultant Staff Associate
Science, Research and Technology International City Management Association
Subcommittee 777 North Capitol Street, N.E.
U.S. House of Representatives Washington, D.C. 20002
2319 Rayburn House Office Building (202) 962-4600
(202) 225-8844 Chief Warren E. Isman 2
President
Dr. John Granito 7 International Association of Fire Chiefs
2961 Bowsprit Lane Fairfax County Fire and Rescue Department
St. James City, FL 33956 4031 University Drive
(813) 283-2438 Fairfax, VA 22030
(703) 691-2546
Olin Greene 5
State Fire Marshal Rolf Jensen, P.E. 4
3000 Market Street Plaza President
Suite 534 Society of Fire Protection Engineers
Salem, OR 97310-0198 60 Batterymarch Street
(503)378-FIRE Boston, MA 02110
(312) 948-0700
William H. Hansell, Jr. 3
Executive Director Matt Kane 1
International City Management Association Staff Associate
777 North Capitol Street, N.E. National League of Cities
Washington, D.C. 20002 1301 Pennsylvania Avenue, N.W.
(202) 962-4600 Washington, DC. 20001
(202) 626-3000
John Glenn Hart, III 1
Assistant Administrator Assistant Chief Charles H. Rime 6
U.S. Fire Administration Fire ‘Marshal
16825 South Seton Avenue Phoenix Fire Department
Emmitsburg, MD 21727 520 West Van Buren Street
(301) 447-1105 Phoenix, AZ 85003
(602) 262-6002
Charles A. Henry
Fire Commissioner MS Janet Kimmerly 4
Commonwealth of Pennsylvania Editor
Box 3321 Firehouse Magazine
Harrisburg, PA 17105-3321 210 Crossways Park Drive
(717) 783-5120 Woodbury, NY 11797
(516) 496-8000
Tom Hem 3
International Association of Fire Fighters Chief Jerry Knight 3
1750 New York Avenue, N.W. St. Petersburg Fire Department
Washington, D.C. 20006 1429 Arlington Avenue, North
(202) 737-8484 St. Petersburg, FL 33705
(813) 893-7694

Richard P. Kuchnicki 4 Chief Roger McGary 2
President President
Council of American Building Officials International Society of Fire Service
5203 Leesburg Pike Instructors
Falls Church, VA 22041 Takoma Park Fire Department
(703) 931-4533 7201 Carroll Avenue
Takoma Park, MD 21215
Chief Richard Lamb 5 (301) 270-4242
National Volunteer Fire Council
Wayne Township Fire Department John McNichol
6456 West Ohio Street Legislative Assistant
Indianapolis, IN 46224 U.S. Representative Curt Weldon
(317) 247-8501 1233 Longworth House Office Building
Washington, DC. 20515
Professor David A. Lucht 7 (202) 225-5222
Director
Center for Firesafety Studies John Marshall
Worcester Polytechnic Institute Fire Program Specia1ist U.S. Fire
Worcester, MA 01609 Administration
(617) 793-5593 16825 South Seton Avenue
MS Barbara Lundquist 1 (301) 447-1122
Tri Data Corporation
1500 Wilson Boulevard Martin Mintz 7
Arlington, VA 22209 Senior Technical Advisor
(703) 841-2875 National Association of Home Builders
15th and M Streets, N.W.
Arnold Luterman, M.D 6 Washington, D.C. 20005
Director, Burn Center (202) 822-0200
Ripps-Meisler Professor of Surgery
University of South Alabama Chief Richard Moreno 6
2451 Fillingim Street Tucson Fire Department
Mobile, AL 36617 P.O. Box 272210
(205) 47 l-7049 Tucson, AZ 85726-7210
(602)791-4511
Hugh McClees
Aspen Systems Corporation Patrick Murphy 6
1600 Research Boulevard U.S. Conference of Mayors
Rockville, MD 20850 1620 I Street, N.W.
(301) 251-5159 Washington, DC. 20006
(202) 293-7330
Edward H. McCormack 6
Executive Director William M. Neville, Jr. 2
International Society of Fire Service Superintendent
Instructors National Fire Academy
20 Main Street 16825 South Seton Avenue
Ashland, MA 01721 Emmitsburg, MD 21727
(617) 881-5800 (301) 447-1123
112 Appendix B
Section VI
Joseph C’Hagan 3 James B. Roberts 5

Federal Fire Service Task Force State Forester
Fire Prevention Specialist Maryland Department of Natural Resources
Building 203 USAEA CA Forest, Park and Wildlife Service
Fort Myer Tawes State Office Building
Arlington, VA 22211-5050 Annapolis, MD 21401
(703) 696-3813 (301) 974-3776
Chief Bert T. Parker 6 Henry Roux 4

Fire Marshal Armstrong World Industries, Inc.
Washington County Fire District No. 1 Research and Development
20665 S W Blanton Street P.O. Box 3511
Aloha, OR 97007 Lancaster, PA 17604
(503) 649-8577 (717) 396-5224
Anne Phillips, M.D 6 James V. Ryan 6

National Smoke, Fire and Burn Institute American Association of Retired Persons
990 Sargent Road 10817 Old Coach Road
Brookline, MA 02146 (617) 742-1609 Potomac, MD 20854
(202) 872-4700
Chief Edward J. Phipps 2
San Francisco Fire Department Harvey Ryland
260 Golden Gate Avenue 2630 East Holmes Road
San Francisco, CA 94102 Memphis, TN 38118
(415) 861-8000, Ext. 281 (800) 824-58 17
Chief Vie Porter 7 Wayne Sandford 2

Assistant City Manager Chairman
Office of Public Safety National Association of State Directors of Fire
2121 McKinley Street Training and Education
Berkley, CA 94703 Commission on Fire Prevention and Control
(415) 644-6666 294 Colony Street
Meriden, CT 06450
William Randleman 3,1 (203) 238-6587
Editor
Fire Chief Magazine Philip Schaenman 1
307 North Michigan Avenue Tri Data Corporation
Chicago, IL 60601 1500 Wilson Boulevard
(312) 726-7277 Arlington, VA 22209
(703) 841-2875
Fred S. Ringler 1
People’s Firehouse, Inc. Chuck Smeby 7
113 Berry Street Office of the Fire Chief
Brooklyn, NY 11211 Prince George’s County Fire Department
(718) 388-4696 9201 Basil Court
Fourth Floor East
Landover, MD 20785
(301) 952-4730

J. Thomas Smith U.S. Representative Doug Walgren
Fire Fighter Health and Safety Specialist Chairman
U.S. Fire Administration Science, Research and Technology
Federal Center Plaza Subcommittee
500 C Street, S.W. 2319 Rayburn House Office Building
Washington, DC. 20472 Washington, D.C. 20515
(202) 646-2449 (202) 225-8844
Robert B. “Skip” Smith 6 Edward M. Wall

Fire Marshals Association of North America Deputy Administrator
Suite 1210 U.S. Fire Administration
1110 Vermont Avenue, N.W. 16825 South Seton Avenue
Washington, D.C. 20005 Emmitsburg, MD 21727
(202) 667-7441 (301) 447-1080
Dr. Jack Snell 7 U.S. Representative Curt Weldon

Director Chairman
Center for Fire Research Congressional Fire Services Caucus
U.S. Department of Commerce 1233 Longworth House Office Building
National Institute of Standards and Washington, D.C. 20515
Technology (202) 225-5222
Gaithersburg, MD 20899
(301) 975-6850 Clarence Williams 3
President
Peter G. Sparber 4 International Association of Black
Vice President - Public Affairs Professional Fire Fighters
The Tobacco Institute P.O. Box 22005
706 Upham Place Seattle, WA 98122
Vienna, VA 22180 (206) 329-9870
(202) 457-9313
Chief John B. Stewart, J r. 3

Hartford Fire Department
275 Pearl Street
Hartford, CT 06103
(203) 722-8200
Kenneth H. Stewart 5
Associate Director for Public Safety Programs
National Criminal Justice Association
444 North Capitol Street, N.W.
Suite 608
(202) 347-4900
114 Appendix B
Section VI
Appendix C.
Status Report on the 90 Recommendations from
America Burning
Section I
This report contains 90 recommenda
Introduction
tions concerning the improvement of fire
protection in the U.S. These recommen
One of the major events of the United dations cover the following general areas:
States fire service occurred in June 1973
- the publication of America Burning. burn prevention and treatment;
This document is the report of the Na fire fighter health and safety;
tional Commission on Fire Prevention

and Control, a presidential commission building and fire codes and standards;
appointed by President Richard M. Nixon.

Richard E. Bland (associate professor, automatic detection and suppression;
Pennsylvania State University) was

fire protection master planning;
commission chairman, and W. Howard

McClennen (president of the Interna fire department organization and
tional Association of Fire Fighters) was operation;
vice chairman. Commission members

included members of Congress, the Secre rural and wildland fire protection;
taries of the Departments of Commerce

and Housing and Urban development, public education;
and representatives of public and private fire prevention inspection and enforce
organizations concerned with fire protec ment;
tion, including the fire service, insurance

industry, news media, academia and the incentives for improved fire safety;
building industry.
transportation fire safety; and
The commission conducted research

into the U.S. fire problem, held a series of establishment of federal organizations
hearings throughout the country and for fire protection research, data
deliberated the solutions to these prob collection and analysis, planning and
lems. training.
The result of this two-year effort was In the 15 years since America
the commission’s report, America Burn Burning was published; many of the rec
ing. ommendations have been accomplished,

and other recommendations have been ac Section III. Summary of Accomplish
complished partially. Some recommenda ments - contains a general discussion of
tions have been attempted without suc (1) recommendations which have been
cess, and others apparently have not been substantially accomplished; (2) recom
attempted at all. mendations that have not been accom
plished to any practical degree; and (3)
The most visible accomplishment was recommendations for which significant
the creation of the U.S. Fire administra progress has been made, but continued
tion, National Fire Academy and Center effort is still required.
for Fire Research at the National Insti
tute of Standards and Technology. How
ever, some fire protection leaders have
stated that this is only a partial success
Section II
because the funding for these organiza Recommendations and
tions has never come close to the amounts Accomplishments
recommended by the commission.

Significant successes also have been 2.1 Chapter 1 The Nation’s Fire
achieved in such areas as installation of Problem
smoke detectors, improvement of fire and
Recommendation
building codes, and fire protection master
planning. Some success has been 1 The commission recommends that
achieved for other recommendations, e.g., Congress establish a U.S. Fire Admini
expanding public education programs and stration to provide a national focus for the
increasing fire department involvement nation’s fire problem and to promote a
in fire prevention. Other recommenda comprehensive program with adequate
tions were not included in the legislation funding to reduce life and property loss
resulting from America Burning (P.L. 93 from fire.
498) and, therefore, have not been imple
mented. For example, recommendations Accomplishments
pertaining to fire department grants for The United States Fire Administra
training and equipment were not in tion (USFA) was established in 1975 as
cluded in the legislation. Thus, such the National Fire Prevention and Control
recommendations have not been accom Administration. Also established were
plished at all. the National Fire Academy (NFA), origi
nally a unit of the fire administration,
The remainder of this report consists and the Center for Fire Research (CFR), a
of the following sections: unit of the National Institute of Stan
Section II. Recommendation and dards and Technology. The commission
Accomplishments - lists each of the 90 recommended an average annual budget .
recommendations contained in America for the first five years of $125 million.
Burning along with a discussion of the However, the largest annual budget ever
extent to which each has been accom received was less than $24 million, in
plished. cluding funding for the CFR.
116 Appendix C
Section VI
Recommendation support of medical research and training

2.. The commission recommends that a have contributed to this progress.
national fire data system be established
to provide a continuing review and analy Recommendation
sis of the entire fire problem. 4.. The commission recommends that
Congress, in providing for new burn
Accomplishments treatment facilities, make adequate
The National Fire Data Center provision for the training and continuing
(NFDC) was established in 1975 as a support of the specialists to staff these
major component of the USFA. The facilities. Provision also should be made
National Fire Incident Reporting System for the special training of those who
(NFIRS) was implemented as the founda provide emergency care for burn victims
tion of the NFDC, and now has 37 states in general hospitals.
and 20 metropolitan areas reporting data.
Currently, the NFDC is conducting Accomplishments
general data analysis, as well as special Not included in legislation (P.L. 93
studies of fire fighter and residential fire 498), thus, there are no corresponding
facilities, and major and unusual fires. In programs. However, through other
addition, the NFDC is conducting a resources, this training is being carried
project to improve fire department long- out now on a broad scale by professional
range planning and tactical decisionmak organizations and emergency medical
ing capabilities through automated service programs, and by burn centers
management information systems. throughout the nation.
2.2 Chapter 2 Living Victims of the Recommendation

Tragedy 5.. The commission recommends that
the National Institutes of Health greatly
Recommendation augment their sponsorship of research on
3.. The commission recommends that burns and burn treatment.
Congress enact legislation to make pos
sible the attainment of 25 burn units and Accomplishments
centers and 90 burn programs within the In the mid-1970s, the National Insti
next 10 years. tute of General Medical Sciences granted
funds for burn research programs at
Accomplishments seven burn center hospitals and other
Not included in legislation (P.L. 93 public and private grants supported
498), thus, there are no corresponding research at other burn centers.
programs. However, by 1983, there were
approximately 125 burn centers in the Recommendation
United States, including one in virtually 6.. The commission recommends that
every metropolitan area with a sufficient the National Institutes of Health admini
population base, a significant achieve ster and support a systematic program of
ment. Such federal actions as the enact research concerning smoke inhalation
ment of Medicare and Medicaid, and injuries.

Accomplishments Accomplishments
Not included in legislation (P.L. 93 The number of women in the fire
498), thus, there are no corresponding service has increased significantly over-
programs. Also, see recommendation the last 14 years. The first career woman
number 35. fire fighter was hired by the Arlington
County (Virginia) Fire Department in
1974 and is now a captain with that
2.3 Chapter 3 Are There Other department. The USFA promoted the
Ways? inclusion of women in the fire service and
provided information to assist fire depart
Recommendation
ments in recruiting and retaining women
7.. The commission recommends that for fire fighting duties. This USFA pro
local governments make fire prevention gram included the conduct of a conference
at least equal to suppression in the plan on women in the fire service (1981), and
ning of fire department priorities. preparation of the reports, Role of Women
in the Fire Service, and Issues for Women
Accomplishments in the Fire Service. The USFA is cur
In general, fire prevention efforts rently developing protective clothing and
have increased dramatically, including equipment sizing information for use by
expanded bureau and in-service company manufacturers in supplying items espe
inspections and enforcement, improved cially designed for female fire fighters.
public education programs, and increased
involvement in land use planning and Recommendation
building/fire code development. The 9.. The commission recommends that
USFA, NFPA and other fire protection laws which hamper cooperative arrange
organizations have conducted numerous ments among local fire jurisdictions be
projects to promote and support the changed to remove the restrictions.
expansion of fire prevention activities by
local departments. While these projects Accomplishments
have helped to increase the amount of
local government resources devoted to fire There are no known statistics on the
prevention, the goal of making “fire number of mutual (including automatic)
prevention at least equal to suppression” aid agreements that have been imple
is yet to be reached, except in a few mented over the past 14 years, or revision
departments. For example, the Visalia of associated laws. However, the use of
(California) Fire Department currently such agreements has been promoted by
devotes approximately 60% of its annual the USFA (through its Integrated Emer
budget to prevention. gency Management System [IEMS]
project, for example), and by conducting a
Recommendation fire service seminar on mutual aid. It is
felt that the number and extent of use of
8.. The commission recommends that mutual aid agreements have increased.
communities train and use women for fire The budget limitations experienced by
service duties. local governments probably have contrib
uted to this increase.
118 Appendix C
Section VI
Recommendation Recommendation
10.. The commission recommends that 12.. The commission recommends that
every local fire jurisdiction prepare a the proposed U.S. Fire Administration act
master plan designed to meet the commu as a coordinator of studies of fire protec
nity’s present and future needs in fire tion methods and assist local jurisdictions
protection, to serve as a basis for program in adapting findings to their fire protec
budgeting, and to identify and implement tion planning.
the optimum cost-benefit solutions in fire
protection. Accomplishments
The USFA has served as a clearing
Accomplishments house for fire protection studies, ideas
Numerous fire departments have and information, and has disseminated
prepared fire protection master plans as a such information through the Learning
result of the commission’s recommenda Resource Center and such publications as
tion and a comprehensive program con the arson and public education resource
ducted by the USFA. This program exchange bulletins.
included the development of the master
planning process (for both single and
multi-jurisdictional planning), prepara 2.4 Chapter 4 Planning for Fire
tion of a set of manuals for use by depart Protection
ments in preparing plans, a national
Recommendation
conference on master planning, a report
to Congress on master planning, training 13.. The commission recommends that
courses and a planning support team. the proposed U.S. Fire Administration
The number of departments that have provide grants to local fire jurisdictions
prepared a master plan is unknown, but for developing master plans for fire
it is known that many plans have been protection. Further, the proposed U.S.
prepared and some departments have Fire Administration should provide
updated their plans several times. technical advice and qualified personnel
to local fire jurisdictions to help them
Recommendation develop master plans.
11.. The Commission recommends that
Accomplishments
federal grants for equipment and training
be available only to those fire jurisdic The legislation (PL 93-498) did not
tions that operate from a federally ap provide for grants to fire departments for
proved master plan for fire protection. master planning. The USFA provided on-
site master planning technical assistance
Accomplishments during the period 1978-1982. This sup
port was discontinued when the USFA
The legislation (PL 93-498) did not was reorganized in 1983.
provide for grants for training and equip
ment.

2.5 Chapter 5 Fire Service issues. The USFA assumed responsibility
Personnel for some of the fire projects initiated by
NSF and NIST, for example, the pumping
Recommendation apparatus specifications and fire protection
14.. The commission recommends that master planning projects. Projects con
the proposed U.S. Fire Administration ducted by the USFA in these ‘areas re
sponsor research in the following areas: sulted in the preparation of the following
productivity measures of fire depart documents (as examples): Model Perform
ments, job analyses, fire injuries and fire ance Criteria for Structural Fire Fighters’
prevention efforts. Helmets, Development of a Job-Related
Physical Performance Examination for Fire
Accomplishments Fighters - A Summary Report, Survey of
Numerous projects were conducted Fire Fighter Injuries (in cooperation with
within these areas, especially fire fighter IAFF), and National Fire Service System./
safety and fire prevention. The major Task Analysis Phase I: Development of the
productivity projects included a fire de Analysis Process. The USFA currently is
partment working relationships study sponsoring a fire fighter mortality study
and the analysis of alternative company being conducted by the University of
staffing levels. The apparatus staffing Washington.
study was not completed because of
USFA budget limitations. Currently, the Recommendation
USFA is conducting a study of alternative 16.. The commission recommends that
methods of providing fire protection, with the nation’s fire departments recognize
results being prepared for dissemination advanced and specialized education, and
to state and local governments. hire or promote persons with experience at
levels commensurate with their skills.
Recommendation
15.. The commission urges the federal Accomplishments
research agencies, for example, the Na Many fire departments have recognized
tional Science Foundation and the Na that specialized education and advanced
tional Institute of Standards and Technol degrees can be of benefit to the depart
ogy, to sponsor research appropriate to ment, and have included such criteria in
their respective missions within the areas recruiting or promoting for specific posi
of productivity of fire departments, causes tions.
of fire fighter injuries, effectiveness of fire
prevention efforts and the skills required Recommendation
to perform various fire department func 17.. The commission recommends a
tions. program of federal financial assistance to
local fire services to upgrade their training.
Accomplishments
The primary effort in these areas was Accomplishments
accomplished by the USFA (see #14 The NFA currently provides financial
above) because the missions of these assistance to local fire services through
agencies evolved into more technical both resident and field training programs.
120 Appendix C
Section VI
This assistance includes student stipends grams over the past 14 years. The USFA
for resident classes, “train the trainer” has conducted a number of activities to
(provides for training of state and local promote the establishment of fire service
training personnel in the delivery of EMS programs, for example, the “Na
courses prepared for hand-off to state or tional Workshop for Fire Service EMS
local training organizations), direct Needs - the Rockville Report.” In addi
supplementary delivery (supplements tion, the EMS standards established by
state and local training efforts), Academy DOT for personnel, vehicles and equip
Planning and Assistance Program (pro ment have had a major impact on improv
vides technical and training assistance to ing EMS programs at the local level.
state and local fire service organizations), However, there are communities which
and Open Learning for the Fire Service still do not have adequate EMS programs.
(provides fire service personnel with the
opportunity to earn baccalaureate degrees
in fire administration or fire technology).
2.6 Chapter 6 A National Fire
Recommendation Academy
18.. In the administering of federal
funds for training or other assistance to Recommendation
local fire departments, the commission 20.. The commission recommends the
recommends that eligibility be limited to establishment of a National Fire Acad
those departments that have adopted an emy to provide specialized training in
effective, affirmative action program areas important to the fire services and to
related to the employment and promotion assist state and local jurisdictions in their
of members of minority groups. training programs. Accomplishments
Accomplishments The National Fire Academy has been

operational since 1975 and has operated
This recommendation has been accom the fire training facility at Emmitsburg
plished through the Federal Procurement since January 1980. The academy has
Regulations because these regulations numerous programs to provide special
have equal opportunity requirements ized training (hazardous materials, for
applicable to grantees. example) and has provided assistance to
local training activities, including course
Recommendation development and “train the trainer”
19.. The commission recommends that courses.
fire departments, lacking emergency
ambulance, paramedical and rescue Recommendation
services, consider providing them, espe 21.. The commission recommends that
cially if they are located in communities the proposed National Fire Academy
where these services are not provided assume the role of developing, gathering
adequately by other agencies. and disseminating, to state and local
arson investigators, information on arson
Accomplishments incidents and on advanced methods of
Numerous fire departments have arson investigations.
implemented and expanded EMS pro
The NFA conducts arson investigation The NFA pays up to 75% of the cost of
and related training. The USFA main attending courses at the academy. Gener
tains an arson research and information ally, the only cost to the attendee is a
dissemination effort, with the fire data nominal payment for mealsand for local
center collecting and analyzing informa transportation at the departure location.
tion on arson incidents. Currently, the This financial subsidy even includes
USFA is developing a community-based airfare for attendees. However, continued
organization anti-arson program, a juve subsidy is dependent on the availability of
nile firesetter program and an Arson corresponding funds in the NFA budget.
Information Management System, and is
disseminating the results of a study of the
needs of the rural arson investigator. The
2.7 Chapter 7 Equipping the Fire
previously published Arson Resource
Fighter
Directory is being updated, and the Arson
Resource Center, located at the Learning Recommendation
Resource Center, is now computerized for
rapid access and updating. The CFR 24.. The commission urges the National
compiled the information, edited and Science Foundation, in its Experimental
published a Fire Investigation Handbook Research and Development Incentives
that is in widespread use among arson Program, and the National Institute of
investigators. Standards and Technology, in its Experi
mental Technology Incentives Program,
to give high priorityto the needs of the
Recommendation
fire services.
22.. The commission recommends that
the National Fire Academy be organized Accomplishments
as a division of the proposed U.S. Fire
Administration which would assume The National Science Foundation
responsibility for deciding details of the stopped its applied fire research activities
academy’s structure and administration. upon establishment of the USFA and
CFR. The NIST Experimental Technol
ogy Incentives Program did conduct a
Accomplishments
major project on methods for fire retard
During the period 1975-1981, the NFA ing polyester/cotton apparel fabrics before
was a component of the USFA. In 1981, the ETIP program was stopped. The CFR
the NFA was separated administratively program has included several projects in
from the USFA. response to the needs of the fire services,
for example, fire fighter turnout coats,
Recommendation helmets, lightweight air tanks and meth
23.. The commission recommends that odology for locating fire stations.
the full cost of operating the proposed
National Fire Academy and subsidizing Recommendation
the attendance of fire service members be 25.. The commission recommends that
borne by the federal government. the proposed U.S. Fire Administration
review current practices in terminology,
122 Appendix C
Section VI
symbols and equipment descriptions, and Recommendation

seek to introduce standardization where 27.. The commission recommends that
it is lacking. the proposed U.S. Fire Administration
undertake a continuing study of fire
Accomplishments service equipment needs, monitor re
The USFA, NFA and CFR have pro search and development in progress,
moted several areas of standardization, encourage needed research and develop
including the National Fire Incident ment, disseminate results and provide
Reporting System, fire fighter protective grants to fire departments for equipment
clothing and equipment, the Incident procurement to stimulate innovation in
Command System, terminology and equipment design.
through training courses at the NFA.
Accomplishments
Recommendation To date, the USFA’s equipment re
26.. The commission urges rapid im search and development activities have
plementation of a program to improve been focused on fire fighter protective
breathing apparatus systems and expan equipment, smoke detectors and report
sion of the program’s scope where appro ing systems, automatic detection and
priate. suppression systems, and specifying
pumping apparatus. All of these activi
Accomplishments ties have resulted in the improvement of
Tremendous progress has been made equipment design and operation, as well
in the design of safer, more effective as the dissemination of corresponding
breathing apparatus. In the early 1970s information. The USFA and NASA have
the NIST conducted a research and developed and are testing a “hands-free”
development project on the design of communications device which is fully
higher pressure, lighter weight air tanks. compatible with self-contained breathing
The USFA’s Project FIRES, conducted in apparatus. The USFA legislation did not
cooperation with the National Aeronau provide for grants for equipment procure
tics and Space Administration (NASA), ment. A new portable monitor that will
produced a new generation of breathing quickly detect and identify hazardous
apparatus which is now widely available chemical vapors is being field tested by
and used. The NFPA, under a USFA fire departments under USFA sponsor
grant, prepared the Manual for Selection, ship. The USFA is cooperating with the
Use, Care and Maintenance of Fire U.S. Coast Guard in the lab testing of
Fighter Self-Contained Breathing Appa chemical protective clothing, and with the
ratus. In addition, a USFA project with Coast Guard and the Department of
the Bureau of Mines addressed the design Energy in evaluating a hazardous chemi
and testing of a (closed circuit) “Low cal protective ensemble.
Profile Rescue Breathing Apparatus.” A
prototype long-duration (two-hour), Recommendation
positive-pressure oxygen-breathing 28.. The commission urges the Joint
apparatus has been developed and is Council of National Fire Service Organi
being field tested zations to sponsor a study to identify

shortcomings of fire fighting equipment lates from the flame, e.g., soot and carbon
and the kinds of research, development or monoxide. The work in polymer degrada
technology transfer that can overcome the tion is leading to the ability to design and
deficiencies, produce more fire-safe materials. Meas
urement methods are being developed
Accomplishments that will provide the scientifically based
Members of the joint council have data needed as input to the predictive
contributed to numerous USFA and NFA models.
activities, especially as members of proj
ect advisory committees and the NFA Recommendation
Board of Visitors. However, the specified 30.. The commission recommends that
study was not conducted. The USFA did the new Consumer Product Safety Com
conduct a project to establish fire protec mission (CPSC) give a high priority to the
tion research and development priorities. combustion hazards of materials in their
end use.
2.8 Chapter 8 No Recommendations Accomplishments

The CPSC, with technical backup
from the CFR, has addressed the fire
hazard of many consumer products by
2.9 Chapter 9 The Hazards Created establishing mandatory standards, pro
Through Materials moting voluntary standards, urging
Recommendation product recalls and providing consumer
information. Included products are
29.. The commission recommends that children’s sleepwear, general apparel,
research in the basic processes of ignition mattresses, upholstered furniture, blan
and combustion be strongly increased to kets, fire-safe cigarettes, cigarette light
provide a foundation for developing ers, matches, fireworks and heating
improved test methods. equipment.
Accomplishments Recommendation
The CFR conducts, both in-house and 31.. The commission recommends that
through a research grants program, the present fuel load study sponsored by
fundamental and applied research in the the General Services Administration and
physics and chemistry of fire leading to conducted by the National Institute of
improved methods for measuring fire Standards and Technology be expanded
properties and fire performance of materi to update the technical study of occu
als and products. The work ranges from pancy fire loads.
flame chemistry and polymer degradation
to the development of measurement and
Accomplishments
predictive methods. The fundamental
research is used to underpin the more The CPR conducted the fuel loads
applied work. The research in flame study for the GSA. The development by
chemistry is leading to the ability to CFR of methods to predict the growth and
predict the evolution of gases and particu spread of fire from measured fuel charac
124 Appendix C
Section VI
teristics indicates the need for new sur ignition. During the period 1980 - 1984,
veys to provide information for fire haz cigarette-ignited upholstery fires de
ards and risk calculations. creased by approximately 24%.
flammability standards for fabrics be all states adopt the Model State Fire
given high priority by the Consumer works Law of the National Fire Protec
Product Safety Commission. tion Association, thus prohibiting all
fireworks except those for public displays.
Accomplishments
The NIST and CPSC have imple Accomplishments
mented four flammable fabric standards, The NFPA, USFA and other organiza
two which are mandatory and two which tions have promoted the adoption of this
are voluntary in cooperation with manu law, and many states have adopted this
facturers and trade associations. The or similar laws.
children’s sleepwear standard is manda
tory. Prior to its adoption, there were Recommendation
approximately 60 child sleepwear-related 34.. The commission recommends that
fire deaths per year; now this number is the Department of Commerce be funded
approximately two deaths per year. A to provide grants for studies of the dy
voluntary nightwear standard is being namics of combustion and the means of
prepared in cooperation with industry. its control.
This standard will provide for point of
sale comparative information on the Accomplishments
flammability of various fibers. At the
present time, approximately 75% of The National Science Foundation
apparel fire deaths are persons over 66 RANN program on fire research was
years of age. This consumer information transferred to the CFR (a part of the
program should help to reduce that National Institute of Standards and
number. The Mattress Flammability Technology which is an agency of the
Standard is mandatory and, as a result, Department of Commerce) in the mid
almost every mattress being produced 1970s. CFR added funds from its base
today will resist ignition by cigarette. appropriation to increase the grants
The value of this standard is demon program to $2 million per year and annu
strated by the fact that, during the period ally funds more than 20 grants, mostly at
1980 - 1984, there was an approximately universities. The CFR grants program is
32% reduction in cigarette-ignited mat an integral part of the CFR program and
tress fire deaths. In 1977, industry is a way to bring the best scientific exper
accepted a voluntary standard for uphol tise in many disciplinary fields to focus on
stered furniture. Before this standard, the fire problem. (See recommendation
approximately 10-15% of upholstered number 29 for a further description of the
furniture would resist cigarette ignition; CFR program.)
now approximately 68% will resist such

Recommendation Accomplishments
35.. The commission recommends that The CFR prepares both short- and
the National Institute of Standards and long-term research plans based on an
Technology and the National Institutes of assessment of current and future needs of
Health cooperatively devise and imple fire research results. In addition, CFR
ment a set of research objectives designed has established the National Fire Re
to provide combustion standards for search Strategy Conference to prepare
materials to protect human life. and continually update a fire research
strategy for the nation. A major CFR
Accomplishments thrust has been the translation of re
CFR has conducted a broad program search results into a systematic body of
of research into such fire problem areas engineering knowledge to provide guide
as ignition, flame spread, products of lines, formulae, models, etc., to establish
combustion, extinguishment, detection a soundly based fire protection engineer
and heat release. This program has led to ing profession. Progress includes a set of
the establishment or modification of engineering formulae known as FIRE
many standards, mostly through the FORM, a prototype fire hazard assess
consensus standards-setting process, for ment method called Hazard I, and several
example, the CPSC children’s sleepwear, engineering models of varying sophistica
mattress and insulation standards; the tion that calculate fire growth and smoke
flooring radiant panel test for floor cover spread.
ings adopted by ASTM, NFPA and ISO;
testing and installation standards for Recommendation
smoke detectors adopted by NFPA, UL 37.. The commission recommends that
and others; and the flame spread test for the National Institute of Standards and
wall lining materials adopted by the Technology, in cooperation with the
International Maritime Organization. National Fire Protection Association and
However, standards have not specifically other appropriate organizations, support
been developed in cooperation with the research to develop guidelines for a
National Institutes of Health. systems approach to fire safety in all
types of buildings.
2.10 Chapter 10 Hazards Through
Design Accomplishments
The systems approach to building fire
Recommendation safety continues as a major project in the
36.. The commission urges the National CFR. An important series of develop
Institute of Standards and Technology to ments were the Fire Safety Evaluation
assess current progress in fire research Systems for various occupancies adopted
and define the areas in need of additional in consensus standards and/or in various
investigation. Further, the institute regulations. A more scientifically based
should recommend a program for trans system is currently in development.
lating research results into a systematic
body of engineering principles and, ulti Recommendation
mately, into guidelines useful to code 38.. The commission recommends that,
writers and building designers. in all construction involving federal
126 Appendix C
Section VI
money, awarding of those funds be contin sene and wood heaters to identify ways to
gent upon the approval of a fire safety improve design and maintenance. The
systems analysis and a fire safety effec CPSC has issued a regulation requiring
tiveness statement. labels on wood stoves which provides
critical consumer information on installa
Accomplishments tion, use and maintenance. (Approxi
A “Study of Fire Safety Effectiveness mately 20% of residential fires are caused
Statements” was conducted by the USFA by wood heating equipment.)
as part of this effort, with the conclusion
that liability issues would preclude the Recommendation
practical application of this concept. The 40.. The commission recommends to
General Services Administration now schools giving degrees in architecture and
uses the fire safety systems analysis engineering that they include in their
concept in designing new federal build curricula at least one course in fire safety.
ings. Further, we urge the American Institute
of Architects, professional engineering
Recommendation societies and state registration boards to
39.. The commission urges the Con implement this recommendation.
sumer Product Safety Commission to give
high priority to matches, cigarettes, Accomplishments
heating appliances and other consumer The CFR has been instrumental in
products that are significant sources of establishing courses in fire science and
burn injuries, particularly products for fire safety engineering at several small
which industry standards fail to give colleges and universities. The referenced
adequate protection. organizations have not implemented the
recommendation, however.
Accomplishments
The CPSC, with technical support Recommendation
from the CFR, has addressed fire safety 41.. The commission urges the Society of
issues associated with matches, ciga Fire Protection Engineers to draft model
rettes, cigarette lighters and heating courses for architects and engineers in
equipment, resulting in the adoption and the field of fire protection engineering.
use of mandatory requirements for
matchbooks; the completion of a study of Accomplishments
the technical and commercial feasibility The accomplishment in this area was
of producing a cigarette that would not achieved through a USFA grant to the
ignite material; the initiation of a ciga Society of Fire Protection Engineers to
rette lighter project which includes a prepare a methodology for fire-safe build
study of how lighters start fires (approxi ing design. The results of this project
mately 200 people die each year from were documented in the report, Document
fires caused by lighters) and the consid the Final Fire Safety Methodology. Ref
eration of lighter designs which are more erenced model courses have yet to be
difficult for use by children (i.e., “child developed.
proof’); and a study of electric, gas, kero

Recommendation tively the local building and fire preven
42.. The commission recommends that tion codes. Representatives from the fire
the proposed National Fire Academy department should participate in review
develop short courses to educate practic ing the fire safety aspects of plans for new
ing designers in the basis of fire safety building construction and alterations to
design. old buildings.
The NFA has developed and offers Building/fire code enforcement has
resident, hand-off and Open Learning improved significantly as fire depart
courses in fire-safe building design. ments have expanded their fire preven
tion programs (see Recommendation #7).
Local and state governments (Florida, for
2.11 Chapter 11 Codes and Standards example) have established training
requirements for company and fire pre
Recommendation vention bureau personnel who will be
43.. The commission recommends that involved in inspection/enforcement activi
all local governmental units in the United ties. Relationships between fire and
States have in force an adequate building building departments have been en
code and fire prevention code or adopt hanced in many communities, and, in
whichever they lack. some cases, the fire department has an
inspector assigned to the building depart
Accomplishments The USFA and NFA
ment. Furthermore, fire departments
have promoted the adoption of building/ have become more involved in land use
fire codes and the strengthening of exist
planning and review of proposed develop
ing codes. While quantitative data is not
ments. The master planning program
available, it is known that many commu
has helped in all of these areas because it
nities have adopted new codes or im
stresses proactive fire protection activi
proved existing codes. For example,
ties. The USFA and NFA have promoted
many communities have adopted auto
the improvement of inspection/enforce
matic detection and suppression system, ment capabilities through national con
smoke detector, fireworks and/or non
ferences, manuals and training courses.
combustible roof ordinances. The NFA
The USFA recently has developed a new
offers resident and field courses that code implementation training program
address code development. There are still and has sponsored several related re
many communities that do not have
ports, including Management and En
adequate codes, and some do not have forcement of Fire Codes, Administrative
codes of any kind.
Aspects of Code Enforcement, and a four-
volume set prepared by the American Bar
Recommendation Association, Alternatives for Effective
44.. The commission recommends that Code Enforcement and Compliance Pro
local governments provide the competent grams at the Local Level. The four vol
personnel, training programs for inspec umes are for judges, prosecutors, local
tors and coordination among the various officials and code officials. To promote
departments involved to enforce effec effective code enforcement, the USFA
128 Appendix C
Section VI
sponsored numerous meetings for city matic Detection and Remote Alarm
managers, fire chiefs and state governors. Systems, as well as numerous other
The NFA offers several courses which reports which support the improvement of
cover inspection and plan review, includ model codes in these areas. There are
ing “Fire Prevention Specialists I and II,” still many communities which do not
and “Plans Review for Inspectors.” have adequate codes for detection and
suppression systems, especially for high-
Recommendation risk occupancies.
45.. The commission recommends that,
as the model code of the International 2.12 Chapter 12 Transportation Fire
Conference of Building Officials has Hazards
already done, all model codes specify at
least a single-station, early-warning Recommendation
detector oriented to protect sleeping areas 46.. The commission recommends that
in every dwelling unit. Further, the the National Transportation Safety Board
model codes should specify automatic fire expand its efforts in issuance of reports
extinguishing systems and early-warning on transportation accidents so that the
detectors for high-rise buildings in which information can be used to improve
many people congregate. transportation fire safety.
Significant advancement has been The NTSB currently performs this
made in getting requirements for smoke function, for example, smoke detectors
detectors and automatic detection and are required now in the cabins of all
suppression systems in codes. Currently, commercial passenger aircraft.
every major national model code requires
smoke detectors in all new construction of Recommendation
dwelling units. In addition, some commu
nities have amended these codes to re 47.. The commission recommends that
quire the retroactive installation of detec the Department of Transportation work
tors in all dwelling units. The USFA and with interested parties to develop a
NFA have been extremely active in pro marking system, to be adopted nation
moting the inclusion of requirements for wide, for the purpose of identifying trans
detection and suppression systems in portation hazards.
various codes. (The USFA provided
significant input into the revision of the Accomplishments
NFPA sprinkler standard [#13] and the The DOT placard system has been
development of the standard for residen developed and implemented.
tial sprinklers [#13D]). The USFA and
CFR have conducted research into the Recommendation
effectiveness of such systems, held a 48.. The commission recommends that
number of conferences and workshops on the proposed National Fire Academy
these subjects, and prepared the National disseminate to every fire jurisdiction
Directory of Automatic Suppression appropriate educational materials on the
Systems and National Directory of Auto
problems of transporting hazardous Accomplishments
materials. Regulations for the transportation,
storage and transfer of hazardous materi
Accomplishments als, which would affect international
The NF’A offers on-campus courses in commerce, have been implemented, but
“Chemistry of Hazardous Materials” and by the DOT and EPA rather than the
“Hazardous Materials Tactical Considera treasury department.
tions,” and has developed hand-off haz
ardous materials training packages for Recommendation
use by state and local fire departments. 61.. The commission recommends that
However, there are still many fire service the Department of Transportation set
personnel (especially volunteers) who mandatory standards that will provide
need, but have not received, such train fire safety in private automobiles.
ing. The NPA hazardous materials
training program is expected to be ex Accomplishments
panded over the next three years as a The DOT established a burn rate test
result of the Superfund reauthorization requirement for interior materials in
legislation. automobiles. Most of the fire safety
standards for automobiles arevoluntary.
Recommendation
49.. The commission recommends the Recommendation
extension of the CHEMTREC system to 62.. The commission recommends that
provide ready access by all fire depart airport authorities review their fire
ments and to include hazard control fighting capabilities and, where neces
tactics.
sary, formulate appropriate capital im
provement budgets to meet current
Accomplishments recommended aircraft rescue and fire
The CHEMTREC system has been fighting practices.
expanded to provide increased informa
tion and assistance to fire departments. Accomplishments
There is now a need to provide hazardous
The intent of this recommendation
materials information using terminology
has been accomplished by the DOT.
that can be understood easily by fire
service personnel (i.e., plain english).
Recommendation
Recommendation 53.. The commission recommends that
the Department of Transportation under
take a detailed review of the Coast
the Department of the Treasury establish
Guard’s responsibilities, authority and
adequate fire regulations, suitably en
standards relating to marine fire safety.
forced, for the transportation, storage and
transfer of hazardous materials in inter
national commerce. Accomplishments
This is an on-going Coast Guard
effort.
130 Appendix C
Section VI
Recommendation tance to community fire protection facili

54.. The commission recommends that ties projects be contingent upon an ap
the railroads begin a concerted effort to proved master plan for fire protection for
reduce rail-caused fires along the nation’s local jurisdictions. Accomplishments
rail system.
This recommendation has not been
implemented by the Department of Agri
Accomplishments culture. However, the USFA has devel
Progress has been made in this area oped and promoted a master planning
through the use of hot-box detectors and process designed especially for small
spark arresters. towns and rural areas, the Basic Guide
for Fire Prevention and Control Master
Recommendation Planning.
the Urban Mass Transportation Admini
stration require explicit fire safety plans
2.14 Chapter 14 Forest and
as a condition for all grants for rapid
Grassland Fire Protection
transit systems.
Recommendation
Accomplishments 58.. The commission recommends that
Grants for rapid transit systems now the proposed U.S. Fire Administration
include fire safety plan requirements. join with the U.S. Forest Service in ex
ploring means to make fire safety educa
tion for forest and grassland protection
2.13 Chapter 13 Rural Fire more effective.
Protection
Accomplishments
Recommendation The USFA has been working with the
56.. The commission recommends that U.S. Forest Service since 1975, and an
rural dwellers and others living at a active program is underway. Further
distance from fire departments install more, the USFA is a member of the
early-warning detectors and alarms to National Wildfire Coordinating Group.
protect sleeping areas.
Recommendation
Accomplishments 59.. The commission recommends that
The USFA and other fire organiza the Council of State Governments should
tions have conducted extensive public develop model state laws relating to fire
education programs to encourage the use protection in forests and grasslands.
of detection and warning systems in rural
areas. Accomplishments
This recommendation has not been
Recommendation initiated.
U.S. Department of Agriculture assis

Recommendation 2.15 Chapter 15 Fire Safety
60.. The commission urges interested Education
citizens and conservation groups to
examine fire laws in their respective Recommendation
states and to press for strict compliance. 63.. The commission recommends that
the Department of Health, Education and
Accomplishments Welfare (now the Department of Health
and Human Services) include in accredi
Individuals and organizations have
been performing this function (lobbying tation standards fire safety education in
for fire-safe roofing laws, for example). the schools throughout the school year.
Only schools presenting an effective fire
However, these efforts have not been
coordinated at the national level. safety education program should be
eligible for any federal financial assis
tance.
Recommendation
61.. The commission recommends that Accomplishments
the U.S. Forest Service develop the meth
odology to make possible nationwide Some states and local school districts
forecasting of fuel build-up as a guide to have adopted requirements for fire safety
priorities in wildland management. education. However, it is not known if
the Department of Education has estab
lished accreditation standards.
Accomplishments
The USFS has an active fuel manage Recommendation
ment program in progress which includes
pre-deployment of resources as a function 64.. The commission recommends that
of fuel loading, weather and other factors. the proposed U.S. Fire Administration
sponsor fire safety education courses for
educators to provide a teaching cadre for
Recommendation
fire safety education.
62.. The commission supports the devel
opment of a National Fire Weather Serv Accomplishments
ice in the National Oceanic and Atmos
pheric Administration and urges its accel The USFA has actively promoted fire
eration. safety education through conferences and
preparation of manuals and materials.
For example, the USFA prepared the
Accomplishments
Public Fire Education Planning Manual,
This recommendation has been accom and the report, Young Children as New
plished; the National Fire Weather Serv Targets for Public Fire Education. The
ice is operational. NFA conducts training courses to help in
working with educators and the school
system, for example, “Introduction to Fire
Safety Education” and "Advanced Fire
Safety Education.”
132 Appendix C
Section VI
Recommendation fire prevention, education and protection

66.. The commission recommends to the programs.
states the inclusion of fire safety educa
tion in programs for future teachers and Recommendation
the requirement of fire safety knowledge 67.. The commission recommends that
as a prerequisite for teaching certifica the proposed U.S. Fire Administration, in
tion. conjunction with the National Advertising
Council and National Fire Protection
Accomplishments Association, sponsor an all-media cam
The degree to which states have paign of public service advertising de
implemented this recommendation is signed to promote public awareness of fire
unknown, which probably means that safety.
little has been accomplished.
Recommendation The USFA has conducted a number of

66.. The commission recommends that national campaigns (e.g., the national
the proposed U.S. Fire Administration smoke detector installation and mainte
develop ‘a program, with adequate fund nance campaign). In fiscal year 1985, a
ing, to assist, augment, and evaluate renewed public education and awareness
existing public and private fire safety effort was initiated as a result of addi
education efforts. tional Congressional support, An all-
media campaign conducted in conjunction
Accomplishments with the National Advertising Council
Since 1975, the USFA has conducted a has not been accomplished. However,
program to support local public education such a program still is being pursued.
activities. The extent of this program has
varied according to the extent of funding Recommendation
available each fiscal year. This program 68.. The commission recommends that
has included the general promotion of the proposed U.S. Fire Administration
public education efforts by local agencies develop packets of educational materials
through meetings (e.g., the “Public Fire appropriate to each occupational category
Education Planning Conference”); prepa that has special needs or opportunities in
ration of support materials (e.g., Media promoting fire safety.
Ideas Workbook); and provision of limited
financial support through the “Public Accomplishments
Education Assistance Program” (PEAP) Although packets have not been
which was offered during the period 1979 developed for specific occupations, materi
1981 and had to be discontinued as a als for pre-school children and teachers
result of funding reductions. The USFA were developed in cooperation with the
is sponsoring the Community Volunteer Children’s Television Workshop (i.e.,
Fire Prevention Program to promote the “Sesame Street”). The award winning
cooperation of local fire departments and Sesame Street Fire Safety Program is
citizen groups in conducting community being expanded to include older children.

2.16 Chapter 16 Fire Safety for the installing approved early-warning fire
Home detectors and alarms in their homes.
69.. The commission supports the Op As a result of vigorous programs
eration EDITH (Exit Drills In The Home) involving the USFA, other federal agen
plan and recommends its acceptance and cies, national fire service organizations,
implementation both individually and and state and local fire protection agen
communitywide. cies, smoke detectors are now in an
estimated 80% of dwelling units nation
Accomplishments wide. There is now a need for programs
The NFPA has made a significant to ensure that these detectors are tested
effort in accomplishing this recommenda and maintained properly.
tion. The EDITH program is accepted
and used widely by local fire service and Recommendation
community groups. 72.. The commission recommends that
the insurance industry develop incentives
Recommendation for policyholders to install approved
70.. The commission recommends that early-warning fire detectors in their
annual home inspections be undertaken residences.
by every fire department in the nation.
Further, federal financial assistance to Accomplishments
fire jurisdictions should be contingent Many residential fire insurance poli
upon their implementation of effective cies now offer discounts for use of smoke
home fire inspection programs. detectors and residential sprinkler sys
tems.
Accomplishments
Home fire inspection programs of Recommendation
various types are conducted by most fire 73.. The commission urges Congress to
departments. The USFA has encouraged consider amending the Internal Revenue
the initiation of such programs through Code to permit reasonable deductions
research (e.g., Project RIDFIRE and the from income tax for the cost of installing
Municipal Fire Insurance Analysis): approved detection and alarm systems in
conferences (e.g., “Dynamics of Fire homes.
Prevention”); and preparation of materi
als (e.g., the Edmonds [Washington] Accomplishments
Home Survey materials). Because of the The USFA actively pursued this
constitutional issue of eminent domain, a
recommendation. However, the IRS did
more direct federal role is not considered not feel that the income tax could be used
appropriate. as a fire safety incentive. Furthermore, a
sponsor was not identified for the neces
Recommendation sary legislation. However, in a related
71.. The commission urges Americans to area, California adopted a constitutional
protect themselves and their families by amendment excluding the value of newly
134 Appendix C
Section VI
installed automatic detection and sup for Use in Residential Occupancies, and
pression systems in establishing property Sprinkler Performance in Residential
value for taxing purposes. Fire Tests). In addition, the USFA was a
sponsor of “Operation San Francisco”
Recommendation which was a series of tests of retrofitted
74.. The commission recommends that sprinkler systems (including a residential
the proposed U.S. Fire Administration occupancy) using advanced designs and
monitor the progress of research and materials. The USFA also has been
development on early-warning detection active in sponsoring a number of meet
systems in both industry and government ings to disseminate the results of these
and provide additional support for re efforts and encourage the implementation
search and development where needed. of such systems. For example, the USFA
currently is sponsoring a nationwide
Accomplishments series of sprinkler workshops in coopera
tion with the International Association of
The USFA and CFR have been in Fire Chiefs.
volved extensively in smoke detector
research and development. Examples of
corresponding publications include New Recommendation
Concepts of Fire Detection, Analysis of 76.. The commission recommends that
Fire Detector Test Methods/Performance, the National Fire Protection Association
and Detector Sensitivity and Siting and American National Standards Insti
Requirements for Dwellings. The CFR is tute jointly review the Standard for
studying the detector false alarm problem Mobile Homes and seek to strengthen it,
in hospitals. particularly in such areas as interior
finish materials and fire detection.
Recommendation
75.. The commission recommends that Accomplishments
the proposed U.S. Fire Administration The CFR, after considerable research,
support the development of the necessary recommended guidelines for fire safety to
technology for improved automatic extin HUD, directed primarily at interior
guishing systems that would f5nd ready finish, for the agency’s minimum property
acceptance by Americans in all kinds of standards for mobile homes. These
dwelling units. guidelines were adopted and imple
mented.
Accomplishments
As a result of USFA activities, signifi Recommendation
cant progress has been made in the 77.. The commission recommends that
development and installation of residen all political jurisdictions require compli
tial sprinkler systems. These activities ance with the NFPA/ANSI standard for
have included support of system design mobile homes, together with additional
(e.g., Development of Low-Cost Residen requirements for early-warning fire
tial Sprinkler Protection: A Technical detectors and improved fire resistance of
Report, Study to Establish the Existing materials.
Automatic Fire Suppression Technology

Accomplishments required in all facilities for the care and
As a result of NFPA activities, mobile housing of the elderly.
home standards now require the installa
tion of smoke detectors in new mobile Accomplishments
homes, as well as exiting requirements All national codes and state statutes
and interior flame spread restrictions. now require such protection for congre
gate care facilities.
Recommendation
78.. The commission recommends that Recommendation
state and local jurisdictions adopt the 81.. The commission recommends to
NFPA Standard on Mobile Home Parks federal agencies and the states that they
as a minimum mode of protection for the establish mechanisms for annual review
residents of these parks. and rapid upgrading of their fire safety
requirements for facilities for the aged
Accomplishments and infirm to a level no less stringent
Many jurisdictions have adopted the than the current NFPA Life Safety Code.
NFPA standard.
Accomplishments
The code development process pro
2.17 Chapter 17 Fire Safety for the vides for the accomplishment of this
Young, Old and Infirm recommendation.
79.. The commission strongly endorses 82.. The commission recommends that
the provisions of the Life Safety Code the special needs of the physically handi
which require specific construction fea capped and elderly in institutions, special
tures, exit facilities and fire detection housing and public buildings be incorpo
systems in child day care centers, and rated into all fire safety standards and
recommends that they be adopted and codes.
enforced immediately by all the states as
a minimum requirement for the licensing Accomplishments
of such facilities. This recommendation must be accom
plished by standard-setting and code
Accomplishments organizations. The USFA has analyzed
Many states and communities have these problems (e.g., Fire and Life Safety
adopted NFPA’s Life Safety Code. for the Handicapped) and has encouraged
improvement of standards and codes and
Recommendation adoption by state and local governments.
80.. The commission recommends that The NFPA has addressed the special
early-warning detectors and total auto needs of congregate care facilities in the
matic sprinkler protection or other suit Life Safety Code (101). If federal funds
able automatic extinguishing systems be are involved, such facilities must meet
the codes and standards.
136 Appendix C
Section VI
83.. The commission recommends that This recommendation would be imple
the states provide for periodic inspection mented through local zoning regulations
of facilities for the aged and infirm, either and codes. Many communities now
by the state fire marshal’s office or by require central station monitoring of
local fire departments, and also require automatic detection and suppression
approval of plans for new facilities and systems in these occupancies.
inspection by a designated authority
during and after construction.
3.18 Chapter 18 Research for
Accomplishments Tomorrow’s Fire Problem
Many states and local jurisdictions
now have such requirements. The USFA Recommendation
has encouraged the adoption of these 86.. The commission recommends that
requirements. the federal government retain and
strengthen its programs of fire research
Recommendation for which no non-governmental alterna
84.. The commission recommends that tives exist.
the National Institute of Standards and
Technology develop standards for the Accomplishments
flammability of fabric materials com Fire research programs have been
monly used in nursing homes, with a view conducted by the USFA and CFR, but not
to providing the highest level of fire to the extent envisioned in America
resistance compatible with the state-of Burning because of budget limitations.
the-art and reasonable costs. For example, the commission recom
mended an annual research budget
Accomplishments (USFA and CFR) of $33,250,000 (1973
The CPSC, with technical support dollars). The largest budget ever given to
from CFR, has established several stan the USFA for all programs was approxi
dards under the Flammable Fabrics Act mately $24 million.
that are also applicable to the needs of
nursing homes. In addition, CFR devel Recommendation
oped the Fire Safety Evaluation System 87.. The commission recommends that
for health care facilities that aids in the the federal budget for research connected
objective fire safety evaluation of such with fire be increased by $26 million.
facilities by both the fire service and
owner/operators. Accomplishments
See recommendation 86.
Recommendation
85.. The commission recommends that Recommendation
political subdivisions regulate the loca
tion of nursing homes and housing for the
associations of material and product
elderly and require that fire alarm sys
manufacturers encourage their member
tems be tied directly and automatically to
the local fire department.
companies to sponsor research directed posed budget were not included in subse
toward improving the fire safety of the quent U.S. Forest Service funding.
built environment. Therefore, this recommendation is not
applicable.
Accomplishments
Associations and manufacturers have
increased fire research activities, for Section III
example, the Chemical Manufacturers Summary of Accomplishments
Association, The Society of the Plastics
Industry, Carpet and Rug Institute, The recommendations which have
Tobacco Institute, and Concrete and been fully or substantially accomplished
Masonry Institute. These associations generally have been associated with the
also have sponsored research at such agencies created as a result of America
private laboratories as the Southwest Burning or those with a public safety
Research Institute, Factory Mutual and mission such as the Consumer Product
Underwriters Laboratories. Safety Commission.
Conversely, those recommendations
not accomplished were generally the
2.19 Chapter 19 Federal Involvement responsibility of agencies not primarily
concerned with fire safety, for example,
Recommendation the U.S. Department of Agriculture,
89.. The commission recommends that Department of Education and the Council
the proposed U.S. Fire Administration be of State Governments.
located in the Department of Housing and
Urban Development.
3.1 Recommendations Generally
Accomplishments Accomplished
Originally, the USFA was in the
The recommendations that are fully or
Department of Commerce and was moved
practically accomplished are listed below:
to the Federal Emergency Management
Agency in 1979. 1 The commission recommends that
Congress establish a U.S. Fire Admini
Recommendation stration to provide a national focus for the
90.. The commission recommends that nation’s fire problem and to promote a
federal assistance in support of state and comprehensive program with adequate
local fire service programs be limited to funding to reduce life and property loss
those jurisdictions complying with the from fire. (Note; The USFA was estab
National Fire Data System reporting lished, but never funded at the recom
requirements. mended levels.)
18.. In the administering of federal
Accomplishments funds for training or other assistance to
The federal assistance funding catego local fire departments, the commission
ries included in the commission’s pro recommends that eligibility be limited to
138 Appendix C
Section VI
those departments that have adopted an provide ready access by all fire depart
effective affirmative action program ments and to include hazard control
related to the employment and promotion tactics.
of members of minority groups.
20.. The commission recommends the the Department of the Treasury establish
establishment of a National Fire Acad adequate fire regulations, suitably en
emy to provide specialized training in forced, for the transportation, storage and
areas important to the fire services and to transfer of hazardous materials in inter
assist state and local jurisdictions in their national commerce.
training programs. (Note: The NFA was
established, but never funded at the 52.. The commission recommends that
recommended levels.) airport authorities review their fire
fighting capabilities and, where neces
42.. The commission recommends that sary, formulate appropriate capital im
the proposed National Fire Academy provement budgets to meet current
develop short courses to educate practic recommended aircraft rescue and fire
ing designers in the basis of fire safety fighting practices.
design.
45.. The commission recommends that, the Urban Mass Transportation Admini
as the model code of the International stration require explicit fire safety plans
Conference of Building Officials has as a condition for all grants for rapid
already done, all model codes specify at transit systems.
least a single-station early-warning
detector oriented to protect sleeping areas 62.. The commission supports the devel
in every dwelling unit. Further, the opment of a National Fire Weather Serv
model codes should specify automatic fire ice in the National Oceanic and Atmos
extinguishing systems and early-warning pheric Administration and urges its accel
detectors for high-rise buildings in which eration.
many people congregate. 77.. The commission recommends that
46.. The commission recommends that all political jurisdictions requirecompli
the National Transportation Safety Board ante with the NFPA/ANSI standard for
expand its efforts in issuance of reports mobile homes, together with additional
on transportation accidents so that the requirements for early-warning fire
information can be used to improve detectors and improved fire resistance of
transportation fire safety. materials.
the Department of Transportation work early-warning detectors and total auto
with interested parties to develop a matic sprinkler protection or other suit
marking system, to be adopted nation able automatic extinguishing systems be
wide, for the purpose of identifying trans required in all facilities for the care and
portation hazards. housing of the elderly.
49.. The commission recommends the 81.. The commission recommends to

extension of the CHEMTREC system to federal agencies and the states that they
establish mechanisms for annual review 57.. The commission recommends that
and rapid upgrading of their fire safety U.S. Department of Agriculture assis
requirements for facilities for the aged tance to community fire protection facili
and infirm to a level no less stringent ties projects be contingent upon an ap
than the current NFPA Life Safety Code. proved master plan for fire protection for
local jurisdictions.
3.2 Recommendations Not the Council of State Governments under
Accomplished take to develop model state laws relating
The recommendations without any to fire protection in forests and grass
significant accomplishments are listed lands.
below: 73.. The commission urges Congress to
6.. The commission recommends that consider amending the Internal Revenue
the National Institutes of Health admini Code to permit reasonable deductions
ster and support a systematic program of from income tax for the cost of installing
research concerning smoke inhalation approved detection and alarm systems in
injuries. homes.
federal grants for equipment and training the federal budget for research connected
be available only to those fire jurisdic with fire be increased by $26 million.
tions that operate from a federally ap 89.. The commission recommends that
proved master plan for fire protection. the proposed US. Fire Administration be
28.. The commission urges the Joint located in the Department of Housing and
Council of National Fire Service Organi Urban Development.
zations to sponsor a study to identify 90.. The commission recommends that
shortcomings of fire fighting equipment federal assistance in support of state and
and the kinds of research, development or local fire service programs be limited to
technology transfer that can overcome the those jurisdictions complying with the
deficiencies. National Fire Data System reporting
40.. The commission recommends to requirements.
schools giving degrees in architecture and
engineering that they include in their
curricula at least one course in fire safety. 3.3 Recommendations Partially
Further, we urge the American Institute Accomplished
of Architects, professional engineering
societies and state registration boards to All of the remaining recommendations
implement this recommendation. fall into this category. Each recommen
dation has been accomplished to some
41.. The commission urges the Society of degree, but additional effort is required.
Fire Protection Engineers to draft model In some cases, the recommendation may
courses for architects and engineers in never be accomplished fully because it is
the field of fire protection engineering. on-going and general in nature.
140 Appendix C
Section VI
In many cases, recommendations fighter deaths also have been reduced

could not be completed because of a lack significantly.
of resources, especially considering that
the USFA, NFA and CFR were never Even greater reductions in fire deaths
funded at anywhere near the levels have been achieved within special
recommended by the commission. categories. Clothing fire deaths have
fallen by 73% over the period 1968
1983. In addition, children’s clothing
3.4 Conclusions fire deaths have dropped by 90%.
The accomplishments discussed in The number of fires reported to fire
this report are truly significant. In fact, departments has decreased by ap
79 of the 90 recommendations have been proximately 20% over the period 1975
accomplished to some degree, and the 1985. The number of reported fires
consequences of these accomplishments has been decreasing even though the
have had a major impact on the protec population is increasing which means
tion of life and property. For example: that the number of fires is declining
even on a per capita basis.
The annual number of fire deaths
has decreased by 23% from 1975 to These achievements demonstrate
1985 (an average annual reduction of what has been accomplished since Amer
1900 deaths). On a cumulative ica Burning was published, and the
basis, this reduction means that an potential for what could be accomplished
estimated 6,900 lives have been if the remaining recommendations were
saved between 1975 and 1985. Fire substantially completed.
* U.S. GOVERNMENT PRINTING OFFICE: 1990 - 7 2 4 - 1 5 6 / 2 0 4 3 0

America Burning Revisited PDF

Uploaded by

Document Information

Original Description:

Original Title

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

America Burning Revisited PDF

Uploaded by

Copyright:

Available Formats

America Burning

November 30 - December 2, 1987

Section I Foreword ........................................................................................................ 1

Section II . Introduction ................................................................................................ 3

Workshop structure ................................................................................................... 4

General trends ........................................................................................................... 7

Fire experience .......................................................................................................... 8

Fire service environment ........................................................................................ 12

Declining demand for fire suppression services .................................................... 13

Increasing demand for emergency medical services ............................................. 16

Increasing demand for hazardous materials protection ....................................... 16

Increasing demand for disaster preparedness ....................................................... 17

Declining community resources .............................................................................. 18

Summary of trends .................................................................................................. 19

Section IV . Executive Summary ................................................................................ 21

Task Force 1 The Nation’s Fire Problem ............................................................. 21

Task Force 2 The Fire Services: Operations ....................................................... 23

Task Force 4 . Fire and the Built Environment .................................................... 26

Task Force 5 . Fire and the Rural Wildlands Environment ................................. 28

Task Force 6 . Fire Prevention ............................................................................... 29

Task Force 7 . Preparing for the 21st Century ...................................................... 30

Section V . Workshop Task Force Reports .............................................................. 33

America Burning . The Past (Amabili) .................................................................. 35

America Burning . The Present (Bragdon) ............................................................ 39

America Burning . The Future (Granito) .............................................................. 43

Task Force 1 . The Nation’s Fire Problem ............................................................. 49

Critical force recommendations .................................................................... 51

Task force recommendations ........................................................................ 54

Supplementary report to Task Force 1 ......................................................... 58

America Burning Revisited i

Critical issues ................................................................................................. 62

Task force recommendations ........................................................................ 65

Task Force 3 - The Fire Services: Management and Administration .................. 67

Critical issues ................................................................................................. 69

Task force recommendations ........................................................................ 72

Task Force 4 - Fire and the Built environment ..................................................... 75

Critical force recommendations .................................................................... 77

Task force recommendations ........................................................................ 79

Other recommended solutions ...................................................................... 81

Task Force 5 - Fire and the Rural Wildlands Environment ................................. 83

Critical issues ................................................................................................. 84

Task force recommendations ........................................................................ 87

Task Force 6 - Fire Prevention ............................................................................... 91

Critical issues ................................................................................................. 93

Task force recommendations ........................................................................ 95

Other possible solutions ................................................................................ 97

Task Force 7 - Preparing for the 21st Century ...................................................... 99

Critical force recommendations .................................................................. 101

Task force recommendations ...................................................................... 104

Other possible solutions .............................................................................. 104

Section VI - Appendices .............................................................................................. 107

Appendix A. Project Steering Committee ......................................................... 107

Appendix B. America Burning Revisited Participants .................................... 109

Appendix C. Status Report on the 90 Recommendations

from America Burning .................................................................. 115

On November 30 through December 2,1987, the U.S. Fire Administration/Federal

U.S. Fire Administration

America Burning Revisited 1

The U.S. Fire Administration (USFA)

America Burning Revisited 3

� Task Force 3. The Fire Services:

� Task Force 4. Fire and the Built

T cussion of the current and pro

Regionalization Thus, the partial and full consolida

T faced a tremendous game of catch

Environmental monitoring of struc We will play a less important role if