United States Fire Administration:
An Overview

Lennard G. Kruger
Specialist in Science and Technology Policy
October 8, 2010
Congressional Research Service
7-5700
www.crs.gov
RS20071
CRS Report for Congress
P
repared 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
currently housed 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 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. 111-83, the FY2010 Department of Homeland Security appropriations bill, provided $45.588
million for USFA, the same level as the Administration’s proposal. The Administration’s FY2011
budget proposal requested $45.930 million for USFA, an increase of 0.7% from the FY2010
level. The House Appropriations Subcommittee and the Senate Appropriations Committee both
matched the Administration request for the USFA.
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.

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United States Fire Administration: An Overview

Contents
Background ................................................................................................................................ 1
Budget ........................................................................................................................................ 2
Appropriations ...................................................................................................................... 3
FY2009........................................................................................................................... 3
FY2010........................................................................................................................... 4
FY2011........................................................................................................................... 4
Authorizations ...................................................................................................................... 4
Assistance to Firefighters Program (FIRE Act Grants)................................................................. 5
Issues in the 111th Congress......................................................................................................... 5

Tables
Table 1. Appropriations, U.S. Fire Administration ....................................................................... 2

Contacts
Author Contact Information ........................................................................................................ 6

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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 (NFPA), in 2008 there were 3,320 civilian
fire deaths, 16,705 civilian fire injuries, and an estimated $15.5 billion in direct property loss.1
According to the NFPA, there were 82 on-duty firefighter deaths in 2009.2
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 2008, August 2009, available
at http://www.nfpa.org/assets/files/PDF/OS.fireloss.pdf.
2 National Fire Protection Association, Firefighter Fatalities in the United States – 2009, June 2010, available at
http://www.nfpa.org/assets/files//PDF/osfff.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.
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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)
FY2010
FY2011

Admin.
FY2010
FY2011 Admin.
FY2011 House
Senate Rept.
Request
(P.L. 111-83)
Request
Subcommittee
111-222
U.S. Fire
45.588 45.588 45.930 45.930 45.930
Administration



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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 Bush 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.
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FY2010
The Obama 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.
Both the House and Senate Appropriations Committees approved $45.588 million for USFA, the
same level as the Administration’s proposal. The House Appropriations Committee (H.R. 2892;
H.Rept. 111-157) designated $9.304 million for the National Fire Academy and $1.419 million to
continue implementation of the National Fire Information Reporting System (NFIRS). The Senate
Appropriations Committee (S. 1298; S.Rept. 111-31) directed USFA to work with the Department
of Agriculture and the Department of the Interior to ensure that compatible data on wildfires is
available, and directed USFA to brief the Committee on the status of the NFIRS upgrade.
The House passed H.R. 2892, the Department of Homeland FY2010 Security appropriations bill,
on June 24, 2009. The Senate passed H.R. 2892 on July 9, 2009. The Conference Report for the
Department of Homeland Security Appropriations Act, 2010 (H.Rept. 111-298) provided $45.588
million for USFA, identical to the levels in both the House- and Senate-passed H.R. 2892. The
Conferees directed USFA to work with the Department of Agriculture and the Department of the
Interior to ensure that compatible data on wildfires is available, and directed USFA to provide a
briefing within 30 days on the status of the NFIRS upgrade, including future milestones for
measuring progress. The Conference Report was passed by the House on October 15, by the
Senate on October 20, and signed into law, P.L. 111-83, on October 28, 2009.
FY2011
The Administration’s FY2011 budget proposal requested $45.930 million for USFA, an increase
of 0.7% from the FY2010 level. The increase of $342,000 would be used for pay inflation. On
July 14, 2010, the House Subcommittee on Homeland Security Appropriations approved $45.930
million, the same level proposed by the Administration. On July 19, 2010, the Senate
Appropriations Committee also approved $45.930 for the USFA (S. 3607; S.Rept. 111-222).
The Continuing Appropriations Act, 2011 (P.L. 111-242), signed into law on September 30, 2010,
maintains the USFA at the FY2010 levels through December 3, 2010.
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,
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$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
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 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

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.
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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.


Author Contact Information

Lennard G. Kruger

Specialist in Science and Technology Policy
lkruger@crs.loc.gov, 7-7070


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