[Senate Report 107-344]
[From the U.S. Government Publishing Office]



                                                       Calendar No. 765

107th Congress                                         Report
 2d Session                      SENATE                107-344
_______________________________________________________________________

               FIREFIGHTING RESEARCH AND COORDINATION ACT

                               __________

                              R E P O R T

                                 OF THE

           COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION

                                    on

                                S. 2862

[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]

                                     

               November 18, 2002.--Ordered to be printed







       SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
                      one hundred seventh congress
                             second session

              ERNEST F. HOLLINGS, South Carolina, Chairman
DANIEL K. INOUYE, Hawaii             JOHN McCAIN, Arizona
JOHN D. ROCKEFELLER IV, West         TED STEVENS, Alaska
    Virginia                         CONRAD BURNS, Montana
JOHN F. KERRY, Massachusetts         TRENT LOTT, Mississippi
JOHN B. BREAUX, Louisiana            KAY BAILEY HUTCHISON, Texas
BYRON L. DORGAN, North Dakota        OLYMPIA J. SNOWE, Maine
RON WYDEN, Oregon                    SAM BROWNBACK, Kansas
MAX CLELAND, Georgia                 GORDON SMITH, Oregon
BARBARA BOXER, California            PETER G. FITZGERALD, Illinois
JOHN EDWARDS, North Carolina         JOHN ENSIGN, Nevada
JEAN CARNAHAN, Missouri              GEORGE ALLEN, Virginia
BILL NELSON, Florida
                     Kevin D. Kayes, Staff Director
                       Moses Boyd, Chief Counsel
                      Gregg Elias, General Counsel
      Jeanne Bumpus, Republican Staff Director and General Counsel
             Ann Begeman, Republican Deputy Staff Director
             Robert W. Chamberlin, Republican Chief Counsel





                                                       Calendar No. 765

107th Congress                                                   Report
 2d Session                   SENATE                             107-344
======================================================================
 
               FIREFIGHTING RESEARCH AND COORDINATION ACT

                                _______
                                

               November 18, 2002.--Ordered to be printed

                                _______
                                

      Mr. Hollings, from the Committee on Commerce, Science, and 
                Transportation, submitted the following

                              R E P O R T

                         [To accompany S. 2862]

    The Committee on Commerce, Science, and Transportation, to 
which was referred the bill (S. 2862) to provide for the 
establishment of a scientific basis for new firefighting 
technology standards, improve coordination among Federal, 
State, and local fire officials in training for and responding 
to terrorist attacks and other national emergencies, and for 
other purposes, having considered the same, reports favorably 
thereon with an amendment in the nature of a substitute and 
recommends that the bill (as amended) do pass.

                          Purpose of the Bill

  The purpose of this legislation, as reported, is to establish 
and authorize funding for programs under the United States Fire 
Administration (USFA) to support the development of voluntary 
consensus standards for new firefighting technology, improve 
coordination between Federal, State, and local fire officials, 
and authorize the National Fire Academy to train firefighters 
in responding to acts of terrorism.

                          Background and Needs

  As was demonstrated during the terrorist attacks of September 
11, 2001, local firefighters are likely to be the first to 
respond to an incident of domestic terrorism. Nearly 75 percent 
of the 1.1 million firefighters in the United States are 
volunteers. These volunteer fire departments protect most of 
the rural areas and smaller communities in the United States, 
as well as many of the suburban areas surrounding large cities. 
Career firefighters, including municipal firefighters, cover 
mostly metropolitan cities and cities with populations greater 
than 50,000. The career fire service is estimated to include 
about 3,000 fire departments and approximately 275,000 full-
time paid firefighters. The largest career fire department has 
more than 14,000 full-time employees, although most have fewer 
than 50 employees. Some jurisdictions include fire departments 
that use both career and volunteer firefighters. The 
firefighting profession is one of the most hazardous 
professions in the country. In 2001, 446 firefighters died in 
the line of duty, including 347 on September 11.

                      THE U.S. FIRE ADMINISTRATION

  The U.S. Fire Administration (USFA) is a directorate within 
the Federal Emergency Management Agency (FEMA). 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 (EMS) activities. 
USFA's goal is the reduction of the nation's loss of life from 
fire, while also achieving a reduction in property loss and 
non-fatal injury due to fire.
  The USFA contains the following programs:
    Data Collection--USFA's National Fire Data Center 
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 fighting 
community.
    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 of fire safety awareness and education programs.
    Training--USFA's National Fire Academy offers educational 
opportunities to advance professional development of mid-level 
and senior fire/EMS officers 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 supplements and supports State and local 
fire service training.
    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. These studies are made available to the public free of 
charge through the USFA Publications Center.
    Assistance to Firefighters Grant Program--This program was 
established by Title XVII of the Floyd D. Spence Defense 
Authorization Act for Fiscal Year (FY) 2001 (the authorizing 
legislation is referred to as the Firefighter Investment and 
Response Enhancement (FIRE) Act). Congress appropriated 
$360,000,000 in FY 2002 for this program to provide competitive 
grants to local fire departments. It is expected that 5500 fire 
departments will receive awards before the end of calendar year 
2002. The grants are used for training, wellness and fitness 
programs, vehicles, firefighting equipment, personal protective 
equipment, and fire prevention.

                       NEEDS OF THE FIRE SERVICES

  The Science, Technology, and Space Subcommittee held a 
hearing on October 11, 2001, to examine the needs of the fire 
service in responding to terrorism. According to the testimony 
at that hearing, and press reports on the events of September 
11, 2001, the fire service has identified the need for 
assistance in several areas, including equipment 
standardization, coordination, and training.
    Equipment Standardization--Today's firefighters use a 
variety of technologies including thermal imaging equipment, 
devices for locating firefighters and victims, and state-of-
the-art protective suits to fight fires, clean up chemical or 
hazardous materials spills, and contend with potential 
terrorist devices. For FY 2003, $900 million was authorized for 
the Assistance to the Fire Fighters Grant Program as part of 
the National Defense Authorization Act for FY 2002 (P.L. 107-
107), to provide Federal funding assistance for career and 
volunteer fire departments to buy necessary equipment and 
prepare for fires and other emergencies.
    It is important to point out that there are no uniform 
technical standards for new equipment for combating fires and 
other safety threats. Without such standards, local fire 
companies may purchase equipment that do not satisfy their 
needs, or even purchase faulty equipment. For example, 
Montgomery County, Maryland, spent $40,000 on ``Level B'' 
protective suits, but they cannot use them because the suits 
have ``booties'' that are not compatible with the firefighters' 
boots. Also, in Virginia, Arlington County Chief Edward P. 
Plaugher has raised concerns about the lack of equipment 
standards, as well as the lack of guidelines for training the 
workers charged with responding to future terrorist attacks. In 
a September 10, 2002, story in The Washington Post, Chief 
Plaugher stated, ``Without clear goals, we risk undermining 
ourselves while wasting precious resources.'' In addition, a 
1998 Blue Ribbon Panel review of the USFA recommended greater 
coordination between USFA and other agencies, such as National 
Institute of Standards and Technology, in order to promote 
state-of-the-art technology for fire safety.
    Coordination--Another major obstacle facing the fire 
service concerns coordination. Many issues regarding 
coordination surfaced on September 11, 2001. On July 23, 2002, 
Titan Systems Corporation issued an after-action report, on 
behalf of the fire department of Arlington County, Virginia, 
which highlighted problems between the coordination of 
Washington, D.C., and Arlington County fire departments in 
responding to the attack on the Pentagon. The report also cited 
the confusion caused by a large influx of self-dispatched 
volunteers, and increased risks faced by the ``bona fide 
responders.'' These conclusions are consistent with an article 
by the current U.S. Fire Administrator, R. David Paulison, in 
the June 1993 issue of Fire Chief magazine, where he described 
being overwhelmed by the number of uncoordinated volunteer 
efforts that poured into Florida after Hurricane Andrew. 
Additionally, many fire officials and the General Accounting 
Office have highlighted the duplicative nature of many Federal 
programs and the need for better coordination between Federal, 
State, and local officials.
    Training--The events of September 11, 2001, also 
demonstrated a need for improved training, especially in the 
areas of building collapse rescue and tactics to respond to 
terrorist-caused catastrophes. In his testimony before the 
Committee in October 2001, Kenneth Burris, the Chief Operating 
Officer of USFA, testified on the need for greater training in 
leadership and strategic skills, including incident management 
systems and integrated response. Further, the growing trend of 
wildfires invading urban areas highlights the need for urban 
firefighters to be prepared to deal with these threats.

                          Legislative History

  On October 11, 2001, the Subcommittee on Science, Technology, 
and Space conducted a hearing on the ``Needs of the Fire 
Service.'' At this hearing, witnesses included: Senator Joseph 
Biden, Jr.; Senator Christopher Dodd; Congressman William 
Pascrell, Jr.; Congressman Curt Weldon; Mr. Kenneth O. Burris, 
Jr., Chief Operating Officer, USFA; Chief John M. Buckman, 
President, International Association of Fire Chiefs; Battalion 
Chief Robert Ingram, New York City Fire Department; Chief Ed 
Plaugher, Arlington County, Virginia, Fire Department; Mr. 
Harold A. Schaitberger, General President, International 
Association of Fire Fighters; and Mr. James E. Turner, 
Executive Director of the Delaware Volunteer Fireman's 
Association, on behalf of the National Volunteer Fire Council.
  On August 1, 2002, Senator John McCain introduced S. 2862, 
the Firefighting Research and Coordination Act. The legislation 
was cosponsored by Senator Ernest Hollings, Senator Maria 
Cantwell, and Senator Joseph Biden.
  On September 19, 2002, the Committee met in open executive 
session and, by a voice vote, ordered S. 2862 to be reported 
with a substitute amendment offered by Senator McCain. The 
substitute included two major changes: (1) an authorization of 
$2.2 million to USFA for FY 2003 for activities to support the 
development of voluntary consensus standards for new 
firefighting technology; and (2) a requirement that the 
Director of FEMA revise the Federal Response Plan to 
incorporate plans for responding to terrorist attacks, 
particularly in urban areas, and to submit a report on these 
revisions to the Senate Committee on Commerce, Science, and 
Transportation and the House of Representatives Committee on 
Science.

                            Estimated Costs

  In compliance with subsection (a)(3) of paragraph 11 of rule 
XXVI of the Standing Rules of the Senate, the Committee states 
that, in its opinion, it is necessary to dispense with the 
requirements of paragraphs (1) and (2) of that subsection in 
order to expedite the business of the Senate.

                      Regulatory Impact Statement

  In accordance with paragraph 11(b) of rule XXVI of the 
Standing Rules of the Senate, the Committee provides the 
following evaluation of the regulatory impact of the 
legislation, as reported:

                       NUMBER OF PERSONS COVERED

  Section 2(a) of this legislation would direct the U.S. Fire 
Administrator (the Administrator) to support the development of 
new voluntary consensus standards for new firefighting 
technologies through national voluntary consensus standards 
organizations. Recipients of grants through the FIRE Act, as 
defined by section 33 of the Federal Fire Prevention and 
Control Act of 1974 (15 U.S.C. 2229), would be required by 
regulation to purchase equipment for which applicable voluntary 
consensus standards have been established.

                            ECONOMIC IMPACT

  This legislation would not have an adverse economic impact on 
the Nation. The bill would promote the development of more 
effective equipment and the establishment of better 
coordination and training to respond to fires, terrorist 
attacks, and other national emergencies.

                                PRIVACY

  S. 2862 would not have a negative impact on the personal 
privacy of individuals.

                               PAPERWORK

  The legislation would not increase paperwork requirements for 
private individuals or businesses. The bill would require two 
reports from the Federal government. The first report would be 
from the Administrator to the Senate Committee on Commerce, 
Science, and Transportation and the House of Representatives 
Committee on Science, within 90 days after the enactment of 
this legislation, on the need for a strategy concerning the 
deployment of volunteers and emergency response personnel, 
including a national credentialing system, in the event of a 
national emergency. The second report would be from the 
Director of FEMA to the Senate Committee on Commerce, Science, 
and Transportation and the House of Representatives Committee 
on Science, within 180 days after the date of enactment, on 
revisions that the Director has made to the Federal Response 
Plan for responding to terrorist attacks, particularly in urban 
areas, including fire detection and suppression, and related 
emergency services.

                      Section-by-section Analysis

SECTION 1. SHORT TITLE.

  The section would cite the Act as the ``Firefighting Research 
and Coordination Act.''

SEC. 2. NEW FIREFIGHTING TECHNOLOGY.

  Subsection (a) would establish a new section 8(e) of the 
Federal Fire Prevention and Control Act of 1974 (15 U.S.C. 
2207). This new subsection would direct the Administrator, in 
consultation with the National Institute of Standards and 
Technology, the Inter-Agency Board for Equipment 
Standardization and Inter-Operability, national voluntary 
consensus standards development organizations, and other 
interested parties, to develop new, and utilize existing, 
measurement techniques and testing methodologies for evaluating 
the performance of new firefighting technology, including:
           personal protection equipment;
           devices for advance warning of extreme 
        hazard;
           equipment for enhanced vision;
           devices to locate victims, firefighters, and 
        other rescue personnel in above-ground and below-ground 
        structures;
           equipment and methods to provide information 
        for incident command, including the monitoring and 
        reporting of individual personnel welfare;
           equipment and methods for training, 
        especially for virtual reality training; and
           robotics and other remote-controlled 
        devices.
  Under new section 8(e), the Administrator would also be 
required to evaluate the compatibility of new equipment and 
technology with existing firefighter technology, and support 
the development of new voluntary consensus standards through 
national voluntary consensus standards organizations for new 
firefighting technologies.
  For equipment for which applicable voluntary consensus 
standards have been established, the Administrator would be 
directed to require, by regulation, that equipment purchased 
through the Assistance to Firefighters Grant Program 
established by section 33 of the Federal Fire Prevention and 
Control Act of 1974 (15 U.S.C. 2229) meet or exceed applicable 
voluntary consensus standards. For the purposes of this 
subsection, the Administrator would have the discretion to 
determine the applicability of voluntary consensus standards to 
an application under this program. The Committee recognizes 
that the establishment of voluntary consensus standards can be 
a time-consuming process and that developments in new 
firefighting technology may supersede these standards. In order 
to enable fire departments to have access to state-of-the-art 
equipment, the Committee recommends that the Administrator 
exercise some flexibility in the rare case when a newly 
developed firefighting technology may make an existing 
voluntary consensus standard irrelevant.
  Subsection (b) would amend section 17 of the Federal Fire 
Prevention and Control Act of 1974 (15 U.S.C. 2216) by 
authorizing appropriations of $2.2 million for FY 2003 to carry 
out this section.

SEC. 3. COORDINATION OF RESPONSE TO NATIONAL EMERGENCY.

  Subsection (a) would create a new section 10(b) of the 
Federal Fire Prevention and Control Act of 1974 (15 U.S.C. 
2209). New subsection (b) would require the Administrator, 
after consultation with the Director of FEMA, to provide 
technical assistance and training to State and local fire 
service officials to establish nationwide and State mutual aid 
systems for dealing with national emergencies. These mutual aid 
systems would include threat assessment and equipment 
deployment strategies, and include means of collecting asset 
and resource information to provide accurate and timely data 
for regional deployment. These mutual aid systems also would 
have to be consistent with FEMA's Federal Response Plan. The 
Administrator, in consultation with the Director of FEMA, would 
be required to develop and make available to State and local 
fire service officials model mutual aid plans for both 
intrastate and interstate assistance.
  Subsection (b) would require the Administrator to report to 
the Senate Committee on Commerce, Science, and Transportation 
and the House of Representatives Committee on Science, within 
90 days after the date of enactment of this Act, on the need 
for a strategy concerning the deployment of volunteers and 
emergency response personnel (as defined in section 6 of the 
Firefighters' Safety Study Act (15 U.S.C. 2223e)), including a 
national credentialing system, in the event of a national 
emergency.
  Subsection (c) would require the Director of FEMA to revise 
the Federal Response Plan within 180 days after the date of 
enactment of this Act to incorporate plans for responding to 
terrorist attacks, particularly in urban areas, including fire 
detection and suppression and related emergency services. The 
Director of FEMA would also be required to transmit a report to 
the Senate Committee on Commerce, Science, and Transportation 
and the House of Representatives Committee on Science on these 
revisions.

SEC. 4. TRAINING.

  Subsection (a) would amend section 8(d)(1) of the Federal 
Fire Prevention and Control Act of 1974 (15 U.S.C. 2206(d)(1) 
to authorize the Superintendent of the National Fire Academy to 
conduct training in the following areas:
          (i) strategies for building collapse rescue;
          (ii) the use of technology in response to fires, 
        including terrorist incidents and other national 
        emergencies;
          (iii) response, tactics, and strategies for dealing 
        with terrorist-caused national catastrophes;
          (iv) use of and familiarity with FEMA's Federal 
        Response Plan;
          (v) leadership and strategic skills, including 
        integrated management systems operations and integrated 
        response;
          (vi) applying new technology and developing 
        strategies and tactics for fighting forest fires;
          (vii) integrating terrorism response agencies into 
        the national terrorism incident response system; and
          (viii) response tactics and strategies for fighting 
        fires at United States ports, including fires on the 
        water and aboard vessels.
  Subsection (b) would authorize the Superintendent of the 
National Fire Academy to consult with other Federal, State, and 
local government officials in developing curricula for classes 
at the Academy.
  Subsection (c) would require the Administrator to coordinate 
the training provided under section 8(d)(1) of the Federal Fire 
Prevention and Control Act of 1974 (15 U.S.C. 2206(d)(1)) with 
the Attorney General, the Secretary of Health and Human 
Services, and the heads of other Federal agencies, to ensure 
that such training does not duplicate existing courses 
available to fire service personnel and to establish a 
mechanism for eliminating duplicative training programs.

                        Changes in Existing Law

  In compliance with paragraph 12 of rule XXVI of the Standing 
Rules of the Senate, changes in existing law made by the bill, 
as reported, are shown as follows (existing law proposed to be 
omitted is enclosed in black brackets, new material is printed 
in italic, existing law in which no change is proposed is shown 
in roman):

            FEDERAL FIRE PREVENTION AND CONTROL ACT OF 1974

SEC. 8. NATIONAL ACADEMY FOR FIRE PREVENTION AND CONTROL.

                            [15 U.S.C. 2206]

  (a) Establishment.--The Director shall establish, at the 
earliest practicable date, a National Academy for Fire 
Prevention and Control. The purpose of the Academy shall be to 
advance the professional development of fire service personnel 
and of other persons engaged in fire prevention and control 
activities.
  (b) Superintendent.--The Academy shall be headed by a 
Superintendent, who shall be appointed by the Director. In 
exercising the powers and authority contained in this section 
the Superintendent shall be subject to the direction of the 
Administrator.
  (c) Powers of Superintendent.--The Superintendent is 
authorized to--
          (1) develop and revise curricula, standards for 
        admission and performance, and criteria for the 
        awarding of degrees and certifications;
          (2) appoint such teaching staff and other personnel 
        as he determines to be necessary or appropriate;
          (3) conduct courses and programs of training and 
        education, as defined in subsection (d) of this 
        section;
          (4) appoint faculty members and consultants without 
        regard to the provisions of title 5, United States 
        Code, governing appointments in the competitive 
        service, and, with respect to temporary and 
        intermittent services, to make appointments to the same 
        extent as is authorized by section 3109 of title 5, 
        United States Code;
          (5) establish fees and other charges for attendance 
        at, and subscription to, courses and programs offered 
        by the Academy. Such fees may be modified or waived as 
        determined by the Superintendent;
          (6) conduct short courses, seminars, workshops, 
        conferences, and similar education and training 
        activities in all parts and localities of the United 
        States;
          (7) enter into such contracts and take such other 
        actions as may be necessary in carrying out the 
        purposes of the Academy; and
          (8) consult with officials of the fire services and 
        other interested persons in the exercise of the 
        foregoing powers.
  (d) Program of the Academy.--The Superintendent is authorized 
to--
          (1) train fire service personnel in such skills and 
        knowledge as may be useful to advance their ability to 
        prevent and control fires, including, but not limited 
        to--
                  (A) techniques of fire prevention, fire 
                inspection, firefighting, and fire and arson 
                investigation;
                  (B) tactics and command of firefighting for 
                present and future fire chiefs and commanders;
                  (C) administration and management of fire 
                services;
                  (D) tactical training in the specialized 
                field of aircraft fire control and crash 
                rescue;
                  (E) tactical training in the specialized 
                field of fire control and rescue aboard 
                waterborne vessels; [and]
                  (F) strategies for building collapse rescue;
                  (G) the use of technology in response to 
                fires, including terrorist incidents and other 
                national emergencies;
                  (H) response, tactics, and strategies for 
                dealing with terrorist-caused national 
                catastrophes;
                  (I) use of and familiarity with the Federal 
                Emergency Management Agency's Federal Response 
                Plan;
                  (J) leadership and strategic skills, 
                including integrated management systems 
                operations and integrated response;
                  (K) applying new technology and developing 
                strategies and tactics for fighting forest 
                fires;
                  (L) integrating terrorism response agencies 
                into the national terrorism incident response 
                system;
                  (M) response tactics and strategies for 
                fighting fires at United States ports, 
                including fires on the water and aboard 
                vessels; and
                  [(F)] (N) the training of present and future 
                instructors in the aforementioned subjects;
          (2) develop model curricula, training programs, and 
        other educational materials suitable for use at other 
        educational institutions, and to make such materials 
        available without charge;
          (3) develop and administer a program of 
        correspondence courses to advance the knowledge and 
        skills of fire service personnel;
          (4) develop and distribute to appropriate officials 
        model questions suitable for use in conducting entrance 
        and promotional examinations for fire service 
        personnel; and
          (5) encourage the inclusion of fire prevention and 
        detection technology and practices in the education and 
        professional practice of architects, builders, city 
        planners, and others engaged in design and planning 
        affected by fire safety problems.
  (e) Technical Assistance.--The Administrator is authorized, 
to the extent that he determines it necessary to meet the needs 
of the Nation, to encourage new programs and to strengthen 
existing programs of education and training by local fire 
services, units, and departments, State and local governments, 
and private institutions, by providing technical assistance and 
advice to--
          (1) vocational training programs in techniques of 
        fire prevention, fire inspection, firefighting, and 
        fire and arson investigation;
          (2) fire training courses and programs at junior 
        colleges; and
          (3) four-year degree programs in fire engineering at 
        colleges and universities.
  (f) Assistance to State and Local Fire Service Training 
Programs.--The Administrator is authorized to provide 
assistance to State and local fire service training programs 
through grants, contracts, or otherwise. Such assistance shall 
not exceed 4 per centum of the amount authorized to be 
appropriated in each fiscal year pursuant to section 17 of this 
Act.
  (g) Site Selection.--The Academy shall be located on such 
site as the Director selects, subject to the following 
provisions:
          (1) The Director is authorized to appoint a Site 
        Selection Board consisting of the Academy 
        Superintendent and two other members to survey the most 
        suitable sites for the location of the Academy and to 
        make recommendations to the Director.
          (2) The Site Selection Board in making its 
        recommendations and the Director in making his final 
        selection, shall give consideration to the training and 
        facility needs of the Academy, environmental effects, 
        and the possibility of using a surplus Government 
        facility, and such other factors as are deemed 
        important and relevant. The Director shall make a final 
        site selection not later than 2 years after the date of 
        enactment of this Act.
  (h) Construction Costs.--Of the sums authorized to be 
appropriated for the purpose of implementing the programs of 
the Administration, not more than $9,000,000 shall be available 
for the construction of facilities of the Academy on the site 
selected under subsection (g) of this section. Such sums for 
such construction shall remain available until expended.
  (i) Educational and Professional Assistance.--The 
Administrator is authorized to--
          (1) provide stipends to students attending Academy 
        courses and programs, in amounts up to 75 per centum of 
        the expense of attendance, as established by the 
        Superintendent;
          (2) provide stipends to students attending courses 
        and non-degree training programs approved by the 
        Superintendent at universities, colleges, and junior 
        colleges, in amounts up to 50 per centum of the cost of 
        tuition;
          (3) make or enter into contracts to make payments to 
        institutions of higher education for loans, not to 
        exceed $2,500 per academic year for any individual who 
        is enrolled on a full-time basis in an undergraduate or 
        graduate program of fire research or engineering which 
        is certified by the Superintendent. Loans under this 
        paragraph shall be made on such terms and subject to 
        such conditions as the Superintendent and each 
        institution involved may jointly determine; and
          (4) establish and maintain a placement and promotion 
        opportunities center in cooperation with the fire 
        services, for firefighters who wish to learn and take 
        advantage of different or better career opportunities. 
        Such center shall not limit such assistance to students 
        and graduates of the Academy, but shall undertake to 
        assist all fire service personnel.
  (j) Board of Visitors.--Upon establishment of the Academy, 
the Director shall establish a procedure for the selection of 
professionals in the field of fire safety, fire prevention, 
fire control, research and development in fire protection, 
treatment and rehabilitation of fire victims, or local 
government services management to serve as members of a Board 
of Visitors for the Academy. Pursuant to such procedure, the 
Director shall select eight such persons to serve as members of 
such Board of Visitors to serve such terms as the Director may 
prescribe. The function of such Board shall be to review 
annually the program of the Academy and to make comments and 
recommendations to the Director regarding the operation of the 
Academy and any improvements therein which such Board deems 
appropriate. Each member of such Board shall be reimbursed for 
any expenses actually incurred by him in the performance of his 
duties as a member of such Board.
  (k) Accreditation.--The Superintendent is authorized to 
establish a Committee on Fire Training and Education which 
shall inquire into and make recommendations regarding the 
desirability of establishing a mechanism for accreditation of 
fire training and education programs and courses, and the role 
which the Academy should play if such a mechanism is 
recommended. The Committee shall consist of the Superintendent 
as Chairman and eighteen other members appointed by the 
Administrator from among individuals and organizations 
possessing special knowledge and experience in the field of 
fire training and education or related fields. The Committee 
shall submit to the Administrator within two years after its 
appointment a full and complete report of its findings and 
recommendations. Upon the submission of such report, the 
Committee shall cease to exist. Each appointed member of the 
Committee shall be reimbursed for expenses actually incurred in 
the performance of his duties as a member.
  (l) Admission.--The Superintendent is authorized to admit to 
the courses and programs of the Academy individuals who are 
members of the firefighting, rescue, and civil defense forces 
of the Nation and such other individuals, including candidates 
for membership in these forces, as he determines can benefit 
from attendance. Students shall be admitted from any State, 
with due regard to adequate representation in the student body 
of all geographic regions of the Nation. In selecting students, 
the Superintendent may seek nominations and advice from the 
fire services and other organizations which wish to send 
students to the Academy.

SEC. 8. FIRE TECHNOLOGY.

                            [15 U.S.C. 2207]

  (a) Development.--The Administrator shall conduct a 
continuing program of development, testing, and evaluation of 
equipment for use by the Nation's fire, rescue, and civil 
defense services, with the aim of making available improved 
suppression, protective, auxiliary, and warning devices 
incorporating the latest technology. Attention shall be given 
to the standardization, compatibility, and interchangeability 
of such equipment. Such development, testing, and evaluation 
activities shall include, but need not be limited to--
          (1) safer, less cumbersome articles of protective 
        clothing, including helmets, boots, and coats;
          (2) breathing apparatus with the necessary duration 
        of service, reliability, low weight, and ease of 
        operation for practical use;
          (3) safe and reliable auxiliary equipment for use in 
        fire prevention, detection, and control, such as fire 
        location detectors, visual and audio communications 
        equipment, and mobile equipment;
          (4) special clothing and equipment needed for forest 
        fires, brush fires, oil and gasoline fires, aircraft 
        fires and crash rescue, fires occurring aboard 
        waterborne vessels, and in other special firefighting 
        situations;
          (5) fire detectors and related equipment for 
        residential use with high sensitivity and reliability, 
        and which are sufficiently inexpensive to purchase, 
        install, and maintain to insure wide acceptance and 
        use;
          (6) in-place fire prevention systems of low cost and 
        of increased reliability and effectiveness;
          (7) methods of testing fire alarms and fire 
        protection devices and systems on a non-interference 
        basis;
          (8) the development of purchase specifications, 
        standards, and acceptance and validation test 
        procedures for all such equipment and devices; and
          (9) operation tests, demonstration projects, and fire 
        investigations in support of the activities set forth 
        in this section.
  (b) Limitation on Manufacture and Sale of Equipment.--The 
Administration shall not engage in the manufacture or sale of 
any equipment or device developed pursuant to this section, 
except to the extent that it deems it necessary to adequately 
develop, test, or evaluate such equipment or device.
  (c) Management Studies.--
          (1) The Administrator is authorized to conduct, 
        directly or through contracts or grants, studies of the 
        operations and management aspects of fire services, 
        utilizing quantitative techniques, such as operations 
        research, management economics, cost effectiveness 
        studies, and such other techniques and methods as may 
        be applicable and useful. Such studies shall include, 
        but need not be limited to, the allocation of 
        resources, the optimum location of fire stations, the 
        optimum geographical area for an integrated fire 
        service, the manner of responding to alarms, the 
        operation of citywide and regional fire dispatch 
        centers, firefighting under conditions of civil 
        disturbance, and the effectiveness, frequency, and 
        methods of building inspections.
          (2) The Administrator is authorized to conduct, 
        directly or through contracts or grants, research 
        concerning and productivity and efficiency of fire 
        service personnel, the job categories and skills 
        required by fire services under varying conditions, the 
        reduction of injuries to fire service personnel, the 
        most effective fire prevention programs and activities, 
        and techniques for accurately measuring and analyzing 
        the foregoing.
          (3) The Administrator is authorized to conduct, 
        directly or through contracts, grants, or other forms 
        of assistance, development, testing, and demonstration 
        projects to the extent deemed necessary to introduce 
        and to encourage the acceptance of new technology, 
        standards, operating methods, command techniques, and 
        management systems for utilization by the fire 
        services.
          (4) The Administrator is authorized to assist the 
        Nation's fire services, directly or through contracts, 
        grants, or other forms of assistance, to measure and 
        evaluate, on a cost-benefit basis, the effectiveness of 
        the programs and activities of each fire service and 
        the predictable consequences on the applicable local 
        fire services of coordination or combination, in whole 
        or in part, in a regional, metropolitan, or statewide 
        fire service.
  (d) Rural Assistance.--The Administrator is authorized to 
assist the Nation's fire services, directly or through 
contracts, grants, or other forms of assistance, to sponsor and 
encourage research into approaches, techniques, systems, and 
equipment to improve fire prevention and control in the rural 
and remote areas of the Nation.
  (e) Development of New Technology.--
          (1) In general.--In addition to, or as part of, the 
        program conducted under subsection (a), the 
        Administrator, in consultation with the National 
        Institute of Standards and Technology, the Inter-Agency 
        Board for Equipment Standardization and Inter-
        Operability, national voluntary consensus standards 
        development organizations, and other interested 
        parties, shall--
                  (A) develop new, and utilize existing, 
                measurement techniques and testing 
                methodologies for evaluating new firefighting 
                technologies, including--
                          (i) personal protection equipment;
                          (ii) devices for advance warning of 
                        extreme hazard;
                          (iii) equipment for enhanced vision;
                          (iv) devices to locate victims, 
                        firefighters, and other rescue 
                        personnel in above-ground and below-
                        ground structures;
                          (v) equipment and methods to provide 
                        information for incident command, 
                        including the monitoring and reporting 
                        of individual personnel welfare;
                          (vi) equipment and methods for 
                        training, especially for virtual 
                        reality training; and
                          (vii) robotics and other remote-
                        controlled devices;
                  (B) evaluate the compatibility of new 
                equipment and technology with existing 
                firefighting technology; and
                  (C) support the development of new voluntary 
                consensus standards through national voluntary 
                consensus standards organizations for new 
                firefighting technologies based on techniques 
                and methodologies described in subparagraph 
                (A).
          (2) New equipment must meet standards.--For equipment 
        for which applicable voluntary consensus standards have 
        been established, the Administrator shall, by 
        regulation, require that equipment or systems purchased 
        through the assistance program established by section 
        33 meet or exceed applicable voluntary consensus 
        standards.
  [(e)] (f) Coordination.--In establishing and conducting 
programs under this section, the Administrator shall take full 
advantage of applicable technological developments made by 
other departments and agencies of the Federal Government, by 
State and local governments, and by business, industry, and 
nonprofit associations.

SEC. 10. MASTER PLANS.

                            [15 U.S.C. 2209]

  (a) Encouragement by Administrator.-- The establishment of 
master plans for fire prevention and control are the 
responsibility of the States and the political subdivisions 
thereof. The Administrator is authorized to encourage and 
assist such States and political subdivisions in such planning 
activities, consistent with his powers and duties under this 
Act.
  (b) Mutual Aid Systems.--
          (1) In general.--The Administrator, after 
        consultation with the Director of the Federal Emergency 
        Management Agency, shall provide technical assistance 
        and training to State and local fire service officials 
        to establish nationwide and State mutual aid systems 
        for dealing with national emergencies that--
                  (A) include threat assessment and equipment 
                deployment strategies;
                  (B) include means of collecting asset and 
                resource information to provide accurate and 
                timely data for regional deployment; and
                  (C) are consistent with the Federal Emergency 
                Management Agency's Federal Response Plan.
          (2) Model mutual aid plans.--The Administrator, in 
        consultation with the Director of the Federal Emergency 
        Management Agency, shall develop and make available to 
        State and local fire service officials model mutual aid 
        plans for both intrastate and interstate assistance.
  [(b)] (c) Master plan defined.--For the purposes of this 
section, a ``master plan'' is one which will result in the 
planning and implementation in the area involved of a general 
program of action for fire prevention and control. Such master 
plan is reasonably expected to include (1) a survey of the 
resources and personnel of existing fire services and an 
analysis of the effectiveness of the fire and building codes in 
such area; (2) an analysis of short and long term fire 
prevention and control needs in such area; (3) a plan to meet 
the fire prevention and control needs in such area; and (4) an 
estimate of cost and realistic plans for financing the 
implementation of the plan and operation on a continuing basis 
and a summary of problems that are anticipated in implementing 
such master plan.

SEC. 17. AUTHORIZATION OF APPROPRIATIONS.

                            [15 U.S.C. 2216]

  (a) There are authorized to be appropriated to carry out the 
foregoing provisions of this Act, except as otherwise 
specifically provided, with respect to the payment of claims, 
under section 11 of this Act, an amount not to exceed 
$25,210,000 for the fiscal year ending September 30, 1980, 
which amount includes--
          (1) $4,781,000 for programs which are recommended in 
        the report submitted to the Congress by the 
        Administrator pursuant to section 24(b)(1);
          (2) $9,430,000 for the National Academy for Fire 
        Prevention and Control;
          (3) $307,000 for adjustments required by law in 
        salaries, pay, retirement, and employee benefits;
          (4) $500,000 for additional rural firefighting 
        technical assistance and information activities;
          (5) $500,000 for the study required by section 26 of 
        this Act; and
          (6) $110,000 for the study required by section 27 of 
        this Act.
  (b) There are authorized to be appropriated for the 
additional administrative expenses of the Federal Emergency 
Management Agency, which are related to this Act and which 
result from Reorganization Plan Numbered 3 of 1978 (submitted 
June 19, 1978) and related Executive orders, an amount not to 
exceed $600,000 for the fiscal year ending September 30, 1980.
  (c) There are authorized to be appropriated to carry out this 
Act, except as otherwise specifically provided with respect to 
the payment of claims under section 11 of this Act, an amount 
not to exceed $23,814,000 for the fiscal year ending September 
30, 1981, which amount includes--
          (1) not less than $1,100,000 for the first year of a 
        three-year concentrated demonstration program of fire 
        prevention and control in two States with high fire 
        death rates;
          (2) not less than $2,575,000 for rural fire 
        prevention and control; and
          (3) not less than $4,255,000 for research and 
        development for the activities under section 18 of this 
        Act at the Fire Research Center of the National Bureau 
        of Standards, of which not less than $250,000 shall be 
        available for adjustments required by law in salaries, 
        pay, retirement, and employee benefits.
The funds authorized in paragraph (3) shall be in addition to 
funds authorized in any other law for research and development 
at the Fire Research Center.
  (d) Except as otherwise specifically provided with respect to 
the payment of claims under section 11 of this Act, to carry 
out the purposes of this Act, there are authorized to be 
appropriated-
          (1) $20,815,000 for the fiscal year ending September 
        30, 1982, and $23,312,800 for the fiscal year ending 
        September 30, 1983, which amount shall include--
                  (A) such sums as may be necessary for the 
                support of research and development at the Fire 
                Research Center of the National Bureau of 
                Standards under section 18 of this Act, which 
                sums shall be in addition to those funds 
                authorized to be appropriated under the 
                National Bureau of Standards Authorization Act 
                for fiscal years 1981 and 1982; and
                  (B) $654,000 for the fiscal year ending 
                September 30, 1982, and $732,480 for the fiscal 
                year ending September 30, 1983, for executive 
                direction by the Federal Emergency Management 
                Agency of program activities for which 
                appropriations are authorized by this 
                subsection; and
          (2) such further sums as may be necessary in each of 
        the fiscal years ending September 30, 1982, and 
        September 30, 1983, for adjustments required by law in 
        salaries, pay, retirement, and employee benefits 
        incurred in the conduct of activities for which funds 
        are authorized by paragraph (1) of this subsection.
The funds authorized under section 18 shall be in addition to 
funds authorized in any other law for research and development 
at the Fire Research Center of the National Bureau of 
Standards.
  (e) Except as otherwise specifically provided with respect to 
the payment of claims under section 11 of this Act, to carry 
out the purposes of this Act, there are authorized to be 
appropriated--
          (1) $15,720,000 for the fiscal year ending September 
        30, 1984, and $20,983,000 for the fiscal year ending 
        September 30, 1985; and
          (2) such further sums as may be necessary in each of 
        the fiscal years ending September 30, 1984, and 
        September 30, 1985, for adjustments required by law in 
        salaries, pay, retirement, and employee benefits 
        incurred in the conduct of activities for which funds 
        are authorized by paragraph (1) of this subsection.
The funds authorized under this subsection shall be in addition 
to funds authorized in any other law for research and 
development at the Fire Research Center of the National Bureau 
of Standards.
  (f) Except as otherwise specifically provided with respect to 
the payment of claims under section 11 of this Act, to carry 
out the purposes of this Act, there are authorized to be 
appropriated $22,037,000 for the fiscal year ending September 
30, 1986 and $18,300,000 for the fiscal year ending September 
30, 1987.
  (g)(1) Except as otherwise specifically provided with respect 
to the payment of claims under section 11 of this Act, there 
are authorized to be appropriated to carry out the purposes of 
this Act--
          (A) $17,039,000 for the fiscal year ending September 
        30, 1989;
          (B) $17,737,000 for the fiscal year ending September 
        30, 1990;
          (C) $18,464,000 for the fiscal year ending September 
        30, 1991;
          (D) $25,550,000 for the fiscal year ending September 
        30, 1992;
          (E) $26,521,000 for the fiscal year ending September 
        30, 1993;
          (F) $27,529,000 for the fiscal year ending September 
        30, 1994;
          (G) $29,664,000 for the fiscal year ending September 
        30, 1998;
          (H) $30,554,000 for the fiscal year ending September 
        30, 1999;
          (I) $44,753,000 for fiscal year 2001, of which 
        $3,000,000 is for research activities, and $250,000 may 
        be used for contracts or grants to non-Federal entities 
        for data analysis, including general fire profiles and 
        special fire analyses and report projects, and of which 
        $6,000,000 is for anti-terrorism training, including 
        associated curriculum development, for fire and 
        emergency services personnel;
          (J) $47,800,000 for fiscal year 2002, of which 
        $3,250,000 is for research activities, and $250,000 may 
        be used for contracts or grants to non-Federal entities 
        for data analysis, including general fire profiles and 
        special fire analyses and report projects, and of which 
        $7,000,000 is for anti-terrorism training, including 
        associated curriculum development, for fire and 
        emergency services personnel; and
          (K) $50,000,000 for fiscal year 2003, of which 
        $3,500,000 is for research activities, and $250,000 may 
        be used for contracts or grants to non-Federal entities 
        for data analysis, including general fire profiles and 
        special fire analyses and report projects, and of which 
        $8,000,000 is for anti-terrorism training, including 
        associated curriculum development, for fire and 
        emergency services personnel.
  (2) Of the amounts referred to in paragraph (1), not more 
than $4,150,000 is authorized to be appropriated for each 
fiscal year for National Emergency Training Center site 
administration.
  (h) In addition to any other amounts that are authorized to 
be appropriated to carry out this Act, there are authorized to 
be appropriated to carry out this Act--
          (1) $500,000 for fiscal year 1995 for basic research 
        on the development of an advanced course on arson 
        prevention;
          (2) $2,000,000 for fiscal year 1996 for the expansion 
        of arson investigator training programs at the Academy 
        under section 24 and at the Federal Law Enforcement 
        Training Center, or through regional delivery sites;
          (3) $4,000,000 for each of fiscal years 1995 and 1996 
        for carrying out section 25, except for salaries and 
        expenses for carrying out section 25; and
          (4) $250,000 for each of the fiscal years 1995 and 
        1996 for salaries and expenses for carrying out section 
        25.
  (i) Development of New Technology.--There are authorized to 
be appropriated to the Administrator to carry out section 8(e) 
$2,200,000 for fiscal year 2003.

                                 
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