United States Fire Administration:
An Overview
Lennard G. Kruger
Specialist in Science and Technology Policy
January 3, 2012
Congressional Research Service
7-5700
www.crs.gov
RS20071
CRS Report for Congress
Pr
epared 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 was signed into law on
October 8, 2008 (P.L. 110-376).
The Department of Defense and Continuing Appropriations Act, 2011 (P.L. 112-10) funded USFA
at $45.588 million, the same as the FY2010 level. The FY2012 budget proposal requested
$42.538 million for USFA, about 7% under the FY2011 level. The budget proposal reflected an
overall $1.72 million program reduction. P.L. 112-74, the Consolidated Appropriations Act,
FY2012, provided $44.038 million for USFA in FY2012.
As is the case with many federal programs, concerns in the 112th Congress over the federal budget
deficit could impact budget levels for the USFA. Debate over the USFA budget has focused on
whether the USFA is receiving an appropriate level of 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
FY2010................................................................................................................................ 3
FY2011................................................................................................................................ 3
FY2012................................................................................................................................ 4
Authorizations ........................................................................................................................... 4
Assistance to Firefighters Program (FIRE Act Grants) ................................................................... 5
Issues in the 112th 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 2010 there were 3,120 civilian
fire deaths, 17,720 civilian fire injuries, and an estimated $11.6 billion in property damage.1
According to the NFPA, there were 72 on-duty firefighter deaths in 2010.2
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, MD, 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, MD. 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
1 Karter, Michael J., National Fire Protection Association, Fire Loss in the United States During 2010, September
2011, available at http://www.nfpa.org/assets/files/PDF/OS.fireloss.pdf.
2 National Fire Protection Association, Firefighter Fatalities in the United States – 2010, June 2011, 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
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)
FY2011
FY2012
FY2012
FY2010
Admin.
FY2011
Admin.
(P.L. 112-
(P.L. 111-83)
Request
(P.L. 112-10)
Request
74)
U.S. Fire
45.588 45.930 45.588 42.538
44.038
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, then-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.
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 are
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 Security FY2010 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 are 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 Department of Defense and Continuing Appropriations Act, 2011 (P.L. 112-10) funded USFA
at the FY2010 level of $45.588 million.
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United States Fire Administration: An Overview
FY2012
The FY2012 budget proposal requested $42.538 million for USFA, about 7% under the FY2011
level. The budget proposal reflects an overall $1.72 million program reduction. Specific decreases
include reducing National Fire Academy class deliveries with the result that, according to the
budget justification, 13,500 fewer students will be trained. Another decrease would eliminate TV
studio/broadcast capabilities that deliver critical information and training to all first responders on
the campus site and across the nation. According to the budget justification, such a reduction
would affect USFA’s capability to transmit critical information and just-in-time training during
national and regional disasters, and would require USFA to rely upon private sources to be
accessed (if available) in order to reach first-wave responders. Other program reductions include
eliminating USFA citizen and fire and life prevention research efforts, reducing response efforts,
and eliminating wireless capabilities provided to 25,000 resident students and special group
participants in the National Emergency Training Center (NETC) dormitories.
The Department of Homeland Security Appropriations Bill, 2012 (H.R. 2017) was reported by the
House Appropriations Committee on May 26, 2011. The House bill would provide $42.538
million for USFA, the same as the Administration request. The House Appropriations bill report
(H.Rept. 112-91) requested that future budget justifications identify funding levels for the
National Fire Academy, the National Fire Incident Reporting System, and any other initiatives.
The Department of Homeland Security Appropriations, 2012, bill (H.R. 2017) was passed by the
House on June 2, 2011.
On September 7, 2011, the Senate Appropriations Committee approved $45.038 million for USFA
in FY2012 (S.Rept. 112-74), which is a 6% increase over the House-passed level and the
Administration request.
P.L. 112-74, the Consolidated Appropriations Act, FY2012, provided $44.038 million for USFA
in FY2012.
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
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United States Fire Administration: An Overview
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 Floyd D. Spence 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 Act (P.L. 109-295) transferred
USFA to FEMA and the fire and SAFER grants to the Grants Program Directorate in FEMA.
Issues in the 112th Congress
As is the case with many federal programs, concerns in the 112th Congress over the federal budget
deficit could impact budget levels for the USFA. Debate over the USFA budget has focused on
whether the USFA is receiving an appropriate level of 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 included the abolishment of the presidentially
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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United States Fire Administration: An Overview
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
Congressional Research Service
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