Order Code RS20071
Updated October 10, 2008
United States Fire Administration:
An An
Overview
Lennard G. Kruger
Specialist in Science and Technology
Resources, Science, and Industry Division Policy
May 12, 2009
Congressional Research Service
7-5700
www.crs.gov
RS20071
CRS Report for Congress
Prepared for Members and Committees of Congress
United States Fire Administration: An Overview
Summary
The U.S. Fire Administration (USFA) — —which includes the National Fire
Academy (NFA) — is —is
currently an entity within the Federal Emergency Management
Agency (FEMA) of the
Department of Homeland Security (DHS). The objective of the
USFA is to significantly reduce
the nation’s loss of life from fire, while also achieving
a reduction in property loss and non-fatal
injury due to fire. The Administration’s
FY2009 budget proposal requested $40.9 million for
USFA, a reduction of 5.5% from
the FY2008 level. For FY2009, the Senate Appropriations
Committee approved $43.3
million for USFA, while the House Appropriations Committee
approved $44.979
million. The Consolidated Security, Disaster Assistance, and Continuing Appropriations
Appropriations Act, 2009 (P.L. 110-329) — —which contains the FY2009 Department of Homeland
Security Appropriations Act — —provided $44.979 million for USFA. Meanwhile, the
United States
Fire Administration Reauthorization Act of 2008 (H.R. 4847/S. 2606) was
signed into law on
October 8, 2008 (P.L. 110-376). This report will be updated as
events warrant.
Background
The U.S. Fire Administration (USFA) is currently an entity within the Federal
Emergency Management Agency (FEMA) of the Department of Homeland Security
(DHS). Its mission is to provide leadership, coordination, and support for the nation’s fire
prevention and control, fire training and education, and emergency medical services
activities, and to prepare first responders and health care leaders to react to all hazard and
terrorism emergencies of all kinds. One of USFA’s key objectives is to significantly
reduce the nation’s loss of life from fire, while also achieving a reduction in property loss
and non-fatal injury due to fire. Although fire loss has improved significantly over the
past 25 years, the fire problem in the United States remains serious. The United States
still has one of the highest fire death rates in the industrialized world. According to the
National Fire Protection Association, in 2006 there were 3,245 civilian fire deaths, 16,400
CRS-2
civilian fire injuries, and an estimated $11.307 billion in direct property loss.1 According
to the U.S. Fire Administration, there were 115 firefighter on-duty deaths in 2007.2
The genesis of USFA and FEMA’s fire prevention and control activities can be
found in the landmark 1973 report of the National Commission on Fire Prevention and
Control,3 entitled America Burning. The Commission recommended the creation of a
federal fire agency which would provide support to state and local governments and
private fire organizations in their efforts to reduce fire deaths, injuries, and property loss.
The Commission recommended that this new agency be placed within the Department of
Housing and Urban Development. Congress instead opted to place the agency in the
Department of Commerce, and with the passage of the Federal Fire Prevention and
Control Act of 1974 (P.L. 93-498),4 the National Fire Prevention and Control
Administration (NFPCA) was established. In 1978, Congress changed the name of
NFPCA to USFA (P.L. 95-422), and in 1979, President Carter’s Reorganization Plan No.
3 placed the USFA within the newly created FEMA. Also in 1979, the National Fire
Academy (NFA) in Emmitsburg, Maryland was opened, offering courses and training to
fire service personnel and other persons engaged in fire prevention and control.
During the early 1980s, the Reagan Administration proposed the elimination of the
USFA (while preserving the Fire Academy). Although Congress did not allow the
termination of the USFA, the agency suffered severe staff reductions and the Fire
Academy was separated from the USFA and housed organizationally with other FEMA
emergency training programs. In 1991, the NFA was subsequently reorganized back into
the USFA, where it remains today.
Currently, the USFA is located on the grounds of the National Emergency Training
Center in Emmitsburg, Maryland. USFA programs include the following:
Data Collection — USFA’s National Fire Data Center (NFDC) administers a
national system for collecting, analyzing and disseminating data and information on fire
and other emergency incidents to State and local governments and the fire community.
The NFDC provides a national analysis of the fire problem, identifying problem areas for
which prevention and mitigation strategies are needed.
Public Education and Awareness — Through partnerships and special initiatives,
USFA involves the fire service, the media, other federal agencies and safety interest
groups in the development and delivery of fire safety awareness and education programs.
These programs are targeted at those groups most vulnerable to the hazards of fire,
including the young, elderly, and disabled.
1
Karter, Michael J., National Fire Protection Association, Fire Loss in the United States During
2006, September 2007, available at [http://www.nfpa.org/assets/files/PDF/OS.fireloss.pdf].
2
U.S. Fire Administration, On-Duty Firefighter Fatalities in the United States, available at
[http://www.usfa.dhs.gov/downloads/pdf/07-fatality-summary.pdf].
3
The Commission was created by P.L. 90-259, the Fire Research and Safety Act of 1968.
4
15 U.S.C. 2201 et seq.
CRS-3
Training — USFA’s National Fire Academy (NFA) offers educational opportunities
for the advanced professional development of the mid-level and senior fire/EMS officer
and allied professionals involved in fire prevention and life safety activities. The
Academy develops and delivers educational and training programs with a national focus
that supplement and support State and local fire service training. The NFA also offers
training to support the National Incident Management System Integration Center (NIC)
and nationwide implementation of the National Incident Management System (NIMS).
Research and Technology — Through research, testing and evaluation, USFA works
with public and private entities to promote and improve fire and life safety. Research and
special studies are conducted on fire detection, suppression and notification systems as
well as issues related to firefighter and emergency responder health and safety. Research
results are published and made available to the public free of charge through the USFA
Publications Center.
Budget
In previous years, the USFA, through FEMA, received its yearly appropriation
through the House and Senate Appropriations Subcommittees on VA, HUD, and
Independent Agencies. Beginning in FY2004, the USFA received its appropriation
through the House and Senate Appropriations Subcommittees on Homeland Security.
Table 1 shows recent and proposed appropriated funding for USFA.
Appropriations. Beginning in FY2004, the USFA was funded through the
Preparedness, Mitigation, Response, and Recovery (PMRR) account within the
Emergency Preparedness and Response Directorate of the Department of Homeland
Security. On July 13, 2005, DHS Secretary Michael Chertoff announced a restructuring
of DHS, effective October 1, 2005. USFA was removed from the PMRR account and
received a separate appropriation (its own line item) under the new DHS Directorate for
Preparedness. The FY2007 Department of Homeland Security appropriations bill (P.L.
109-295) transferred the USFA back to the Federal Emergency Management Agency
within DHS.
FY2008. The Administration’s FY2008 budget request for USFA was $43.3
million. Proposed increases for the USFA included $300,000 for expansion of a distance
learning program and $1 million to develop curriculum for the Preparedness Leadership
Institute. On December 26, 2007, the President signed the Consolidated Appropriations
Act of 2008 (P.L. 110-161), which provided $43.3 million for the USFA. Additionally,
as stated in the Joint Explanatory Statement accompanying P.L. 110-161, the House and
Senate Committees on Appropriations provided $1 million for development of a webbased version of the National Fire Incident Reporting System (NFIRS), an initiative to
be led by the USFA.
FY2009. The Administration’s FY2009 budget proposal requested $40.9 million
for USFA, a reduction of 5.5% from the FY2008 level. As in past years, the budget
documents do not provide a breakdown of funding for the National Fire Academy.
According to the budget proposal, the reduction is based on several factors including “the
substantial level of funding over the past five years and a reprioritization of FEMA
resources.” The budget proposal further stated that “the reduction in funding will result
in a minimal impact” on USFA program performance. Additionally, the Administration
CRS-4
FY2009 budget transferred the USFA budget from a stand-alone FEMA line item to the
Operations, Management, and Administration (OMA) account within FEMA.
On June 19, 2008, the Senate Appropriations Committee approved the FY2009
appropriations bill for the Department of Homeland Security (S. 3181; S.Rept. 110-396).
The bill provided $43.3 million for USFA, the same level as was appropriated for
FY2008. The Committee maintained a separate line item account for USFA, and stated
its disagreement with the Administration’s request to merge USFA funding into FEMA’s
Management and Administration account. The Committee directed FEMA to submit a
maintenance and modernization plan for the USFA and Emergency Management Institute
campuses, and directed USFA to provide a briefing on the status of upgrades to the
National Fire Information Reporting System (NFIRS).
On June 24, 2008, the House Appropriations Committee approved its version of the
FY2009 appropriations for the Department of Homeland Security, and reported its bill on
September 18, 2008 (H.R. 6947; H.Rept. 110-862). The Committee provided $44.979
million for USFA, an increase of $1.679 million over the FY2008 level. The Committee
also maintained a separate line item account for USFA, and did not agree with the
Administration’s request to merge USFA funding into FEMA’s Management and
Administration account. The Committee included $1.179 million to continue
implementation of NFIRS upgrades and stated that NFIRS should continue to be managed
and operated by USFA. The Committee also included $500,000 for buildings
maintenance on the USFA campus.
The Consolidated Security, Disaster Assistance, and Continuing Appropriations Act,
2009 (P.L. 110-329) — which contains the FY2009 Department of Homeland Security
Appropriations Act — provided $44.979 million for USFA. The DHS explanatory
statement directed FEMA to submit a facilities master plan as detailed in the Senate
report, and to allocate $500,000 to maintenance needs on the USFA campus and $1.179
million to implementation of the National Fire Incident Report System.
Table 1. Appropriations, U.S. Fire Administration
($ millions)
FY2008
(P.L. 110161)
U.S. Fire Administration
43.300
FY2009
(Admin.
request)
40.913
FY2009
(H.Rept.
110-862)
44.979
FY2009
(S.Rept.
110-396)
43.000
FY2009
(P.L. 110329)
44.979
Authorizations. The U.S. Fire Administration Reauthorization Act of 2003 (P.L.
108-169) was signed into law on December 6, 2003. The act reauthorized the USFA
through FY2008 at the following levels: $63 million for FY2005, $64.85 million for
FY2006, $66.796 million for FY2007, and $68.8 million for FY2008. P.L. 108-169 also
reestablished the presidentially appointed position of the U.S. Fire Administrator, which
had been statutorily abolished by the Homeland Security Act of 2002. Additionally, the
legislation directed the USFA to develop new firefighting technologies and standards in
coordination with private sector standards groups and federal, state, and local agencies.
P.L. 108-169 required that equipment purchased with fire grant money meet or exceed
voluntary consensus standards when feasible.
CRS-5
The United States Fire Administration Reauthorization Act of 2008 (H.R. 4847/S.
2606) was signed into law on October 8, 2008 (P.L. 110-376). P.L. 110-376 authorizes
the USFA at $70 million for FY2009, $72.1 million for FY2010, $74.263 million for
FY2011, and $76.491 million for FY2012. Provisions include: authorizing National Fire
Academy training program modifications and reports; directing the National Fire
Academy to provide training on incidents occurring in the wildfire-urban interface, multijurisdictional fires, hazardous materials incidents, and advanced emergency medical
services; authorizing USFA to enter into contracts with one or more nationally recognized
third-party organizations to deliver training; a report on the feasibility of providing
incident command training for fires at ports and in marine environments; national fire
incident reporting system upgrades; sponsoring and disseminating research on fire
prevention and control at the wildland-urban interface; encouraging adoption of national
voluntary consensus standards for firefighter health and safety; establishing a state and
local fire service position at the National Operations Center within DHS; providing
coordination regarding fire prevention and control and emergency medical services; and
expressing congressional support for USFA recommendations for adoption and education
regarding sprinklers in commercial and residential buildings.
Assistance to Firefighters Program (FIRE Act Grants)5
The Assistance to Firefighters Grant (AFG) Program, also known as the FIRE Act
grant program, was established by Title XVII of the FY2001 National Defense
Authorization Act (P.L. 106-398). The program provides federal grants directly to local
fire departments and unaffiliated Emergency Medical Services (EMS) organizations to
help address a variety of equipment, training, and other firefighter-related and EMS needs.
A related program is the Staffing for Adequate Fire and Emergency Response Firefighters
(SAFER) program, which provides grants for hiring, recruiting, and retaining firefighters.6
Since its inception, the fire grant program has been administered by FEMA/USFA
(FY2001-FY2003), the Office for Domestic Preparedness (FY2004), the Office of State
and Local Government Coordination Preparedness (FY2005), and the Office of Grants
and Training in the DHS Directorate for Preparedness (FY2006). Congressional
appropriations reports have consistently instructed DHS to maintain USFA involvement
in the grant administration process for fire and SAFER grants. The FY2007 DHS
appropriations bill (P.L. 109-295) transferred USFA to FEMA and the fire and SAFER
grants to the Grants Program Directorate in FEMA.
Issues
Debate over the USFA budget focuses on whether the USFA is receiving sufficient
funding to accomplish its mission and to enable the USFA to assume an enhanced role
within DHS. Other legislation introduced into the 110th Congress would expand USFA’s
5
For more information on the fire grant program, see CRS Report RL32341, Assistance to
Firefighters Program: Distribution of Fire Grant Funding, by Lennard G. Kruger.
6
For more details on the SAFER grant program, see CRS Report RL33375, Staffing for Adequate
Fire and Emergency Response: The SAFER Grant Program, by Lennard G. Kruger.
CRS-6
role. H.R. 1351, the Firefighters Special Operation Task Force Act, would authorize
USFA to award grants to firefighter task forces for equipment, training, and personnel.
H.R. 4846, the First Line of Defense Infrastructure Improvement Act, would establish a
new grant program within USFA that would primarily fund repairs and renovations to fire
stations located near critical infrastructure. H.R. 6112, the Healthy Firefighters Act,
would authorize USFA to contract with medical research universities to conduct longterm health monitoring of firefighters who have responded to emergencies in disaster
areas and to consult with the Secretary of Health and Human Services to provide for the
treatment of those firefighters.
Meanwhile, an ongoing issue is the viability and status of the USFA and National
Fire Academy within the Department of Homeland Security. While initially supportive
of the reorganization of FEMA into DHS, many in the fire service community have
cautioned that USFA and NFA programs — which address the day-to-day challenges
faced by fire departments — should not be overshadowed in an organization which
focuses on homeland security and counterterrorism. Since the establishment of DHS in
March 2003, fire service groups have opposed a number of actions DHS has taken with
respect to the USFA and NFA. These include the abolishment of the presidentially
appointed position of U.S. Fire Administrator (subsequently reestablished by enactment
of the USFA Reauthorization Act of 2003); proposed cancellations of some NFA courses
in 2003 due to an across-the-board FEMA budget cut (those NFA courses were
subsequently restored after fire service protests); and the transfer of the fire grants
program from the USFA to the Office for Domestic Preparedness. On July 13, 2005,
DHS Secretary Michael Chertoff announced a restructuring of DHS, effective October 1,
2005. Under this restructuring, USFA was removed from FEMA and located under the
new DHS Directorate for Preparedness. However, in the 109th Congress, Title VI of the
Conference Agreement on the DHS appropriations bill (P.L. 109-295; H.Rept. 109-699),
the Post Katrina Emergency Management Reform Act of 2006, transferred most of the
existing Preparedness Directorate (including the USFA) back to an enhanced FEMA.
Additionally, P.L. 109-295 directed that the Administrator of the USFA remain an
assistant secretary-level position.
The Administration’s FY2010 budget proposal requested $45.588 million for USFA, an increase
of 1.3% from the FY2009 level.
In the 111th Congress, debate over the USFA budget focuses on whether the USFA is receiving
sufficient funding to accomplish its mission, given that appropriations for USFA have consistently
been well below the agency’s authorized level. An ongoing issue is the viability and status of the
USFA and National Fire Academy within the Department of Homeland Security.
This report will be updated as events warrant.
Congressional Research Service
United States Fire Administration: An Overview
Contents
Background ................................................................................................................................1
Budget ........................................................................................................................................2
Appropriations ......................................................................................................................3
FY2009...........................................................................................................................3
FY2010...........................................................................................................................4
Authorizations ......................................................................................................................4
Assistance to Firefighters Program (FIRE Act Grants).................................................................4
Issues in the 111th Congress.........................................................................................................5
Tables
Table 1. Appropriations, U.S. Fire Administration .......................................................................2
Contacts
Author Contact Information ........................................................................................................6
Congressional Research Service
United States Fire Administration: An Overview
Background
The U.S. Fire Administration (USFA) is currently an entity within the Federal Emergency
Management Agency (FEMA) of the Department of Homeland Security (DHS). Its mission is to
provide leadership, coordination, and support for the nation’s fire prevention and control, fire
training and education, and emergency medical services activities, and to prepare first responders
and health care leaders to react to all hazard and terrorism emergencies of all kinds. One of
USFA’s key objectives is to significantly reduce the nation’s loss of life from fire, while also
achieving a reduction in property loss and non-fatal injury due to fire. Although fire loss has
improved significantly over the past 25 years, the fire problem in the United States remains
serious. The United States still has one of the highest fire death rates in the industrialized world.
According to the National Fire Protection Association, in 2007 there were 3,430 civilian fire
deaths, 17,675 civilian fire injuries, and an estimated $14.6 billion in direct property loss.1
According to the U.S. Fire Administration, there were 114 firefighter on-duty deaths in 2008.2
The genesis of USFA and FEMA’s fire prevention and control activities can be found in the
landmark 1973 report of the National Commission on Fire Prevention and Control, 3 entitled
America Burning. The Commission recommended the creation of a federal fire agency which
would provide support to state and local governments and private fire organizations in their
efforts to reduce fire deaths, injuries, and property loss. The Commission recommended that this
new agency be placed within the Department of Housing and Urban Development. Congress
instead opted to place the agency in the Department of Commerce, and with the passage of the
Federal Fire Prevention and Control Act of 1974 (P.L. 93-498),4 the National Fire Prevention and
Control Administration (NFPCA) was established. In 1978, Congress changed the name of
NFPCA to USFA (P.L. 95-422), and in 1979, President Carter’s Reorganization Plan No. 3 placed
the USFA within the newly created FEMA. Also in 1979, the National Fire Academy (NFA) in
Emmitsburg, Maryland was opened, offering courses and training to fire service personnel and
other persons engaged in fire prevention and control.
During the early 1980s, the Reagan Administration proposed the elimination of the USFA (while
preserving the Fire Academy). Although Congress did not allow the termination of the USFA, the
agency suffered severe staff reductions and the Fire Academy was separated from the USFA and
housed organizationally with other FEMA emergency training programs. In 1991, the NFA was
subsequently reorganized back into the USFA, where it remains today.
Currently, the USFA is located on the grounds of the National Emergency Training Center in
Emmitsburg, Maryland. USFA programs include the following:
Data Collection—USFA’s National Fire Data Center (NFDC) administers a national system for
collecting, analyzing and disseminating data and information on fire and other emergency
1
Karter, Michael J., National Fire Protection Association, Fire Loss in the United States During 2007, August 2008,
available at http://www.nfpa.org/assets/files/PDF/OS.fireloss.pdf.
2
U.S. Fire Administration, On-Duty Firefighter Fatalities in the United States, available at http://www.usfa.dhs.gov/
downloads/pdf/08-fatality-summary.pdf
3
The Commission was created by P.L. 90-259, the Fire Research and Safety Act of 1968.
4
15 U.S.C. 2201 et seq.
Congressional Research Service
1
United States Fire Administration: An Overview
incidents to State and local governments and the fire community. The NFDC provides a national
analysis of the fire problem, identifying problem areas for which prevention and mitigation
strategies are needed.
Public Education and Awareness—Through partnerships and special initiatives, USFA involves
the fire service, the media, other federal agencies and safety interest groups in the development
and delivery of fire safety awareness and education programs. These programs are targeted at
those groups most vulnerable to the hazards of fire, including the young, elderly, and disabled.
Training—USFA’s National Fire Academy (NFA) offers educational opportunities for the
advanced professional development of the mid-level and senior fire/EMS officer and allied
professionals involved in fire prevention and life safety activities. The Academy develops and
delivers educational and training programs with a national focus that supplement and support
State and local fire service training. The NFA also offers training to support the National Incident
Management System Integration Center (NIC) and nationwide implementation of the National
Incident Management System (NIMS).
Research and Technology—Through research, testing and evaluation, USFA works with public
and private entities to promote and improve fire and life safety. Research and special studies are
conducted on fire detection, suppression and notification systems as well as issues related to
firefighter and emergency responder health and safety. Research results are published and made
available to the public free of charge through the USFA Publications Center.
Budget
In previous years, the USFA, through FEMA, received its yearly appropriation through the House
and Senate Appropriations Subcommittees on VA, HUD, and Independent Agencies. Beginning in
FY2004, the USFA received its appropriation through the House and Senate Appropriations
Subcommittees on Homeland Security. Table 1 shows recent and proposed appropriated funding
for USFA.
Table 1. Appropriations, U.S. Fire Administration
(millions of dollars)
FY2008
(P.L. 110-161)
U.S. Fire
Administration
Congressional Research Service
43.300
FY2009
Admin.
request
40.913
FY2009
(P.L. 110-329)
44.979
FY2010 Admin.
Request
45.588
2
United States Fire Administration: An Overview
Appropriations
Beginning in FY2004, the USFA was funded through the Preparedness, Mitigation, Response,
and Recovery (PMRR) account within the Emergency Preparedness and Response Directorate of
the Department of Homeland Security. On July 13, 2005, DHS Secretary Michael Chertoff
announced a restructuring of DHS, effective October 1, 2005. USFA was removed from the
PMRR account and received a separate appropriation (its own line item) under the new DHS
Directorate for Preparedness. The FY2007 Department of Homeland Security appropriations bill
(P.L. 109-295) transferred the USFA back to the Federal Emergency Management Agency within
DHS.
FY2009
The Administration’s FY2009 budget proposal requested $40.9 million for USFA, a reduction of
5.5% from the FY2008 level. According to the budget proposal, the reduction is based on several
factors including “the substantial level of funding over the past five years and a reprioritization of
FEMA resources.” The budget proposal further stated that “the reduction in funding will result in
a minimal impact” on USFA program performance. Additionally, the Administration FY2009
budget transferred the USFA budget from a stand-alone FEMA line item to the Operations,
Management, and Administration (OMA) account within FEMA.
On June 19, 2008, the Senate Appropriations Committee approved the FY2009 appropriations bill
for the Department of Homeland Security (S. 3181; S.Rept. 110-396). The bill provided $43.3
million for USFA, the same level as was appropriated for FY2008. The Committee maintained a
separate line item account for USFA, and stated its disagreement with the Administration’s
request to merge USFA funding into FEMA’s Management and Administration account. The
Committee directed FEMA to submit a maintenance and modernization plan for the USFA and
Emergency Management Institute campuses, and directed USFA to provide a briefing on the
status of upgrades to the National Fire Information Reporting System (NFIRS).
On June 24, 2008, the House Appropriations Committee approved its version of the FY2009
appropriations for the Department of Homeland Security, and reported its bill on September 18,
2008 (H.R. 6947; H.Rept. 110-862). The Committee provided $44.979 million for USFA, an
increase of $1.679 million over the FY2008 level. The Committee also maintained a separate line
item account for USFA, and did not agree with the Administration’s request to merge USFA
funding into FEMA’s Management and Administration account. The Committee included $1.179
million to continue implementation of NFIRS upgrades and stated that NFIRS should continue to
be managed and operated by USFA. The Committee also included $500,000 for buildings
maintenance on the USFA campus.
The Consolidated Security, Disaster Assistance, and Continuing Appropriations Act, 2009 (P.L.
110-329)—which contains the FY2009 Department of Homeland Security Appropriations Act—
provided $44.979 million for USFA. The DHS explanatory statement directed FEMA to submit a
facilities master plan as detailed in the Senate report, and to allocate $500,000 to maintenance
needs on the USFA campus and $1.179 million to implementation of the National Fire Incident
Report System.
Congressional Research Service
3
United States Fire Administration: An Overview
FY2010
The Administration’s FY2010 budget proposal requested $45.588 million for USFA, an increase
of 1.3% from the FY2009 level. The increase would be used for pay inflation and an increased
contribution to the DHS Working Capital Fund. As in past years, the budget documents do not
provide a breakdown of funding for the National Fire Academy.
Authorizations
The U.S. Fire Administration Reauthorization Act of 2003 (P.L. 108-169) was signed into law on
December 6, 2003. The act reauthorized the USFA through FY2008 at the following levels: $63
million for FY2005, $64.85 million for FY2006, $66.796 million for FY2007, and $68.8 million
for FY2008. P.L. 108-169 also reestablished the presidentially appointed position of the U.S. Fire
Administrator, which had been statutorily abolished by the Homeland Security Act of 2002.
Additionally, the legislation directed the USFA to develop new firefighting technologies and
standards in coordination with private sector standards groups and federal, state, and local
agencies. P.L. 108-169 required that equipment purchased with fire grant money meet or exceed
voluntary consensus standards when feasible.
The United States Fire Administration Reauthorization Act of 2008 was signed into law on
October 8, 2008 (P.L. 110-376). P.L. 110-376 authorizes the USFA at $70 million for FY2009,
$72.1 million for FY2010, $74.263 million for FY2011, and $76.491 million for FY2012.
Provisions include authorizing National Fire Academy training program modifications and
reports; directing the National Fire Academy to provide training on incidents occurring in the
wildfire-urban interface, multi-jurisdictional fires, hazardous materials incidents, and advanced
emergency medical services; authorizing USFA to enter into contracts with one or more
nationally recognized third-party organizations to deliver training; a report on the feasibility of
providing incident command training for fires at ports and in marine environments; national fire
incident reporting system upgrades; sponsoring and disseminating research on fire prevention and
control at the wildland-urban interface; encouraging adoption of national voluntary consensus
standards for firefighter health and safety; establishing a state and local fire service position at the
National Operations Center within DHS; providing coordination regarding fire prevention and
control and emergency medical services; and expressing congressional support for USFA
recommendations for adoption and education regarding sprinklers in commercial and residential
buildings.
Assistance to Firefighters Program (FIRE Act
Grants)5
The Assistance to Firefighters Grant (AFG) Program, also known as the FIRE Act grant program,
was established by Title XVII of the FY2001 National Defense Authorization Act (P.L. 106-398).
The program provides federal grants directly to local fire departments and unaffiliated Emergency
Medical Services (EMS) organizations to help address a variety of equipment, training, and other
5
For more information on the fire grant program, see CRS Report RL32341, Assistance to Firefighters Program:
Distribution of Fire Grant Funding, by Lennard G. Kruger.
Congressional Research Service
4
United States Fire Administration: An Overview
firefighter-related and EMS needs. A related program is the Staffing for Adequate Fire and
Emergency Response Firefighters (SAFER) program, which provides grants for hiring, recruiting,
and retaining firefighters.6
Since its inception, the fire grant program has been administered by FEMA/USFA (FY2001FY2003), the Office for Domestic Preparedness (FY2004), the Office of State and Local
Government Coordination Preparedness (FY2005), and the Office of Grants and Training in the
DHS Directorate for Preparedness (FY2006). Congressional appropriations reports have
consistently instructed DHS to maintain USFA involvement in the grant administration process
for fire and SAFER grants. The FY2007 DHS appropriations bill (P.L. 109-295) transferred
USFA to FEMA and the fire and SAFER grants to the Grants Program Directorate in FEMA.
Issues in the 111th Congress
Debate over the USFA budget focuses on whether the USFA is receiving sufficient funding to
accomplish its mission, given that appropriations for USFA have consistently been well below the
agency’s authorized level. An ongoing issue is the viability and status of the USFA and National
Fire Academy within the Department of Homeland Security. While supportive of the
reorganization of FEMA into DHS, many in the fire service community have cautioned that
USFA and NFA programs—which address the day-to-day challenges faced by fire departments—
should not be overshadowed in an organization which focuses on homeland security and
counterterrorism. Since the establishment of DHS in March 2003, fire service groups have
opposed a number of actions DHS has taken with respect to the USFA and NFA. These include
the abolishment of the presidentially appointed position of U.S. Fire Administrator (subsequently
reestablished by enactment of the USFA Reauthorization Act of 2003); proposed cancellations of
some NFA courses in 2003 due to an across-the-board FEMA budget cut (those NFA courses were
subsequently restored after fire service protests); and the transfer of the fire grants program from
the USFA to the Office for Domestic Preparedness.
On July 13, 2005, former DHS Secretary Michael Chertoff announced a restructuring of DHS,
effective October 1, 2005. Under this restructuring, USFA was removed from FEMA and located
under the new DHS Directorate for Preparedness. However, in the 109th Congress, Title VI of the
Conference Agreement on the DHS appropriations bill (P.L. 109-295; H.Rept. 109-699), the Post
Katrina Emergency Management Reform Act of 2006, transferred most of the existing
Preparedness Directorate (including the USFA) back to an enhanced FEMA. Additionally, P.L.
109-295 directed that the Administrator of the USFA remain an assistant secretary-level position.
Most recently, fire service advocates have a opposed a proposal to remove FEMA (including
USFA) from DHS, thereby making FEMA an independent agency. 7
6
For more details on the SAFER grant program, see CRS Report RL33375, Staffing for Adequate Fire and Emergency
Response: The SAFER Grant Program, by Lennard G. Kruger.
7
Letter from International Association of Fire Chiefs, International Association of Fire Fighters, and Congressional
Fire Service Institute to President-Elect Barack Obama, December 22, 2008, available at http://www.iaff.org/09News/
PDFs/ObamaLetter.pdf.
Congressional Research Service
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United States Fire Administration: An Overview
Author Contact Information
Lennard G. Kruger
Specialist in Science and Technology Policy
lkruger@crs.loc.gov, 7-7070
Congressional Research Service
6