SPEAKERS CONTENTS INSERTS
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79–377PS
2002
PREPARING FIRST RESPONDERS: A REVIEW
OF THE U.S. FIRE ADMINISTRATION
ASSISTANCE TO FIREFIGHTERS GRANT PROGRAM
AND POST-9/11 CHALLENGES FOR
FIREFIGHTERS AND EMERGENCY RESPONDERS
FIELD HEARING
BEFORE THE
SUBCOMMITTEE ON RESEARCH
COMMITTEE ON SCIENCE
HOUSE OF REPRESENTATIVES
ONE HUNDRED SEVENTH CONGRESS
SECOND SESSION
MAY 6, 2002
Serial No. 107–65
Printed for the use of the Committee on Science
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Available via the World Wide Web: http://www.house.gov/science
COMMITTEE ON SCIENCE
HON. SHERWOOD L. BOEHLERT, New York, Chairman
LAMAR S. SMITH, Texas
CONSTANCE A. MORELLA, Maryland
CHRISTOPHER SHAYS, Connecticut
CURT WELDON, Pennsylvania
DANA ROHRABACHER, California
JOE BARTON, Texas
KEN CALVERT, California
NICK SMITH, Michigan
ROSCOE G. BARTLETT, Maryland
VERNON J. EHLERS, Michigan
DAVE WELDON, Florida
GIL GUTKNECHT, Minnesota
CHRIS CANNON, Utah
GEORGE R. NETHERCUTT, JR., Washington
FRANK D. LUCAS, Oklahoma
GARY G. MILLER, California
JUDY BIGGERT, Illinois
WAYNE T. GILCHREST, Maryland
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W. TODD AKIN, Missouri
TIMOTHY V. JOHNSON, Illinois
MIKE PENCE, Indiana
FELIX J. GRUCCI, JR., New York
MELISSA A. HART, Pennsylvania
J. RANDY FORBES, Virginia
RALPH M. HALL, Texas
BART GORDON, Tennessee
JERRY F. COSTELLO, Illinois
JAMES A. BARCIA, Michigan
EDDIE BERNICE JOHNSON, Texas
LYNN C. WOOLSEY, California
LYNN N. RIVERS, Michigan
ZOE LOFGREN, California
SHEILA JACKSON LEE, Texas
BOB ETHERIDGE, North Carolina
NICK LAMPSON, Texas
JOHN B. LARSON, Connecticut
MARK UDALL, Colorado
DAVID WU, Oregon
ANTHONY D. WEINER, New York
BRIAN BAIRD, Washington
JOSEPH M. HOEFFEL, Pennsylvania
JOE BACA, California
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JIM MATHESON, Utah
STEVE ISRAEL, New York
DENNIS MOORE, Kansas
MICHAEL M. HONDA, California
Subcommittee on Research
NICK SMITH, Michigan, Chairman
LAMAR S. SMITH, Texas
CURT WELDON, Pennsylvania
GIL GUTKNECHT, Minnesota
FRANK D. LUCAS, Oklahoma
GARY G. MILLER, California
JUDY BIGGERT, Illinois
W. TODD AKIN, Missouri
TIMOTHY V. JOHNSON, Illinois
FELIX J. GRUCCI, JR., New York
MELISSA A. HART, Pennsylvania
SHERWOOD L. BOEHLERT, New York
EDDIE BERNICE JOHNSON, Texas
BOB ETHERIDGE, North Carolina
STEVE ISRAEL, New York
LYNN N. RIVERS, Michigan
JOHN B. LARSON, Connecticut
BRIAN BAIRD, Washington
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JOE BACA, California
DENNIS MOORE, Kansas
MICHAEL M. HONDA, California
RALPH M. HALL, Texas
SHARON HAYS Subcommittee Staff Director
DAN BYERS Professional Staff Member/Designee
JIM WILSON Democratic Professional Staff Member
DIANE JONES, GREG GARCIA, KARIN LOHMAN Professional Staff Members
NATALIE PALMER Staff Assistant
C O N T E N T S
May 6, 2002
Witness List
Hearing Charter
Opening Statements
Statement by Representative Nick Smith, Chairman, Subcommittee on Research, Committee on Science, U.S. House of Representatives
Written Statement
Statement by Representative Eddie Bernice Johnson, Ranking Minority Member, Subcommittee on Research, Committee on Science, U.S. House of Representatives
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Written Statement
Witnesses
Mr. Charles E. Cribley, Chief, Windsor Township Emergency Services, Dimondale, Michigan; Michigan State Fire Marshal Section Commander
Oral Statement
Written Statement/Biography
Mr. Larry J. Hausman, Chief, Battle Creek, Michigan Fire Department
Oral Statement
Written Statement
Biography
Mr. Edward G. Buikema, Director, Federal Emergency Management Agency Region 5; former Director of Michigan State Policy Emergency Management Division
Oral Statement
Written Statement
Biography
Discussion
Appendix 1: Additional Statement
Statement of R. David Paulison, Administrator, United States Fire Administration, Federal Emergency Management Agency
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Appendix 2: Additional Statements from Listening Session
Dr. Donald E. Thompson, Vice President for Research, and Dean, The Graduate College, Western Michigan University
Mr. Marvin G. Parnes, Associate Vice President for Research and Executive Director of Research Administration, University of Michigan
PREPARING FIRST RESPONDERS: A REVIEW OF THE U.S. FIRE ADMINISTRATION ASSISTANCE TO FIREFIGHTERS GRANTS PROGRAM AND POST-9/11 CHALLENGES FOR FIREFIGHTERS AND EMERGENCY RESPONDERS
MONDAY, MAY 6, 2002
House of Representatives,
Subcommittee on Research,
Committee on Science,
Washington, DC.
The Subcommittee met, pursuant to call, at 1:30 p.m., in the First Floor Senate Hearing Room of the Michigan National Tower at 124 West Allegan Street in Lansing, Michigan, Hon. Nick Smith [Chairman of the Subcommittee] presiding.
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Present: Representatives Smith and Johnson.
79377a.eps
HEARING CHARTER
SUBCOMMITTEE ON RESEARCH
COMMITTEE ON SCIENCE
U.S. HOUSE OF REPRESENTATIVES
Preparing First Responders: A Review of the
U.S. Fire Administration Assistance to
Firefighters Grant Program and Post-9/11
Challenges for Firefighters and
Emergency Responders
MONDAY, MAY 6, 2002
1:30 P.M.
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MICHIGAN NATIONAL TOWER
1ST FLOOR SENATE HEARING ROOM
124 W. ALLEGAN STREET
LANSING, MICHIGAN
I. Purpose
On Monday, May 6th, 2002, the House Committee on Science's Research Subcommittee will hold a hearing to review a number of issues related to the United States Fire Administration. The hearing will serve to:
Provide an overview of U.S. Fire Administration (USFA) programs and issues.
Review the Fire Investment and Response Enhancement (FIRE) Act Grants Program (also known as Assistance to Firefighters Grants).
Examine counter-terrorism-related challenges facing firefighters and first responders.
II. BACKGROUND
In the early 1970's, a report by the President's National Commission on Fire Prevention and Control entitled ''America Burning'' presented a dismal assessment of fire safety in the United States. The report found that nearly 12,000 lives were lost to fire annually, in addition to approximately 300,000 injuries and over $3 billion in economic losses.
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In response to the report, Congress created the USFA and the National Fire Academy. The USFA, housed within the Federal Emergency Management Agency (FEMA) and located in Emmitsburg, Maryland, is charged with helping to prevent and control fire-related losses. Its activities revolve around four main areas: training, public education, research, and data collection and analysis.
When the USFA was established in 1974, its goal was to reduce by half the number of fire-related fatalities in the Nation—bringing the number to approximately 6,000 or less per year within a generation. The agency met this goal, and by 1998 civilian fire deaths were at their lowest level. Additionally, using nearly any measure—number of fires, deaths, injuries, or property losses—the statistics reflect a similar trend.
Despite this significant progress, the United States still has one of the worst fire safety records in the industrialized world. The per capita death rate remains two to three times that of several European nations and at least 20 percent higher than most developed countries. Approximately 4,000 people still die each year from fire, and every 18 seconds a fire department responds to a call somewhere in the United States.
USFA Organization and Budget
USFA's 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. USFA programs include the following:
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Assistance to Firefighter Grant Program—Established in FY 2001, this program awards grants directly to fire departments to supplement basic needs. This program is described in more detail below.
Data Collection—USFA's National Fire Data Center (NFDC) administers a national system for collecting, analyzing and disseminating data and information on fire and other emergency incidents to State and local governments and the fire community. The NFDC provides a national analysis of the fire problem, identifying problem areas for which prevention and mitigation strategies are needed.
Public Education and Awareness—Through partnerships and special initiatives, USFA involves the fire service, the media, other federal agencies and safety interest groups in the development and delivery of fire safety awareness and education programs. These programs are targeted at those groups most vulnerable to the hazards of fire, including the young, elderly, and disabled.
Training—USFA's National Fire Academy offers educational opportunities for the advanced 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 is aimed at supplementing and supporting 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 funded 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.
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The President's FY 2003 budget request for the above activities (excluding the FIRE Act grants program) is $40.6 million, a 19 percent decrease from FY 2002. The decrease reflects termination of a one-year $5 million fire safety awareness campaign for high-risk populations, and the transfer of the National Fire Academy's counter-terrorism training assistance program to FEMA's newly proposed $3.5 billion First Responder grant program.
Assistance to Firefighters Grant Program
The Assistance to Firefighters (FIRE Act) Grant Program was established by Congress in the FY 2001 Defense Authorization bill (P.L. 106–398). The program is intended to provide direct financial assistance to local fire departments in order to protect ''the health and safety of the public and firefighting personnel against fire and fire-related hazards, and to provide assistance for fire prevention programs.'' $100 million was appropriated for the program in FY 2001.
USFA worked closely with the fire service community to implement the program, and all proposals were reviewed and ranked by panels of firefighters. Applications were limited to six priority categories: Fire Prevention, Firefighting Equipment, Personal Protective Equipment, Training, Wellness and Fitness, and Firefighting Vehicles. Grants were distributed among urban, suburban, and rural organizations as well as between career and volunteer fire departments. 32,000 applications requesting over $3 billion in total funding were submitted; $95 million in awards were made to 1,900 fire departments.
FY 2002–2003 FIRE Act Grants
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As part of the regular appropriations process for FY 2002, Congress appropriated $150 million for the second year of the grant program. Before adjournment last fall, an additional $210 million was added as part of the FY 2002 emergency supplemental package for homeland security. USFA will have until the end of FY 2003 to distribute the $360 million.
The most recent authorization of the FIRE Grant program provided $900 million annually through FY 2004, and expanded the program to allow training and equipment grants to be used for response to weapons of mass destruction. At the same time, USFA made several other programmatic changes that were intended to improve upon last year's initial program. They include: a move away from paper applications through an enhanced online application process; additional technical assistance for applicants; and modification of grant application categories to be more reflective of fire service needs.
In FY 2002, fire departments could apply for eligible activities in one of four different programs:
1. Fire Operations and Firefighter Safety (eligible activities include: Training, Wellness and Fitness, Firefighting Equipment, and Personal Protective Equipment).
2. Fire Prevention (eligible activities include: Public Education, Public Awareness, Code Enforcement, and Arson Prevention).
3. Emergency Medical Services (eligible activities include: Training and Equipment).
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4. Firefighting Vehicle Program (eligible apparatus under this program include, but are not limited to, pumpers, brush trucks, tankers, rescue, ambulances, quints, aerials, foam units, and boats).
USFA received over 19,500 applications seeking $2.2 billion for the FY 2002–2003 program. Peer review panels, which include nearly 300 fire service personnel from across the Nation, are meeting now to review the applications. Upon completion of the peer review process, FEMA intends to begin awarding grants in late May or early June.
In the President's budget request for FY 2003, the FIRE Act grants program was incorporated into a $3.5 billion First Responder grant program within FEMA's Office of National Preparedness (ONP) as part of the Administration's effort to consolidate counter-terrorism programs for emergency responders. While supportive of the First Responder program, many in the fire service community have expressed concern about the transfer of the fire grant program from USFA to FEMA–ONP. Specifically, concern has arisen that the proposed change would shift the focus of the program towards specialized equipment and training when many fire departments still lack the basic tools and resources necessary to protect the health and safety of the public and their firefighting personnel.
Legislation introduced by Representative Nick Smith (R–MI), H.R. 4548, clarifies USFA's role in implementing the FIRE Act grant program. The hearing will serve to review this legislation and examine the effects of this proposed transfer on the FIRE Act grants.
First Responders and Counter-terrorism Preparedness
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FEMA Office of National Preparedness
Over 40 Federal Departments and Agencies have been involved in the overall effort to improve the Nation's preparation for, and response to, terrorist attacks. On May 8, 2001, President Bush created the Office of National Preparedness (ONP) within FEMA to coordinate federal programs dealing with the management of incidents involving weapons of mass destruction. The President directed ONP to work with State and local governments to ensure that planning, training, and equipment needs were addressed.
While the ONP did not receive funding in the regular FY 2002 appropriations process, Congress provided $10 million in the FY 2002 Emergency Supplemental appropriations package to establish the office within FEMA. Since the terrorist attacks of 2001, steps have been taken to expand ONP's mission to include coordination of federal programs dealing with any type of emergency or disaster.
On October 8, 2001, President Bush established the Office of Homeland Security (OHS) within the Executive Office of the President ''to develop and coordinate the implementation of a comprehensive national strategy to secure the United States from terrorist threats or attacks.'' The Administration has stated that ONP will serve in a support and communication role to OHS.
According to the President's budget request, $3.5 billion of the $37.7 billion homeland security budget is devoted to enhancing the capabilities of America's first responders. This funding is intended to provide state and local governments with grant funding for planning, equipment, training, and exercises. Specifically, the request includes $1.1 billion for training firefighters, law enforcement, and emergency medical technicians to improve response to chemical or biological events, $2 billion for new equipment, $245 million for exercises, and $105 million to help local governments develop comprehensive plans to prepare for and respond to terrorist attacks.
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USFA Counter-terrorism Efforts
The USFA also plays an active role in the Federal Government's counter-terrorism efforts, providing, through the National Fire Academy, a variety of courses, seminars, and grants aimed at educating first responders on how to prepare for, respond to, and recover from terrorist incidents. For example, the NFA offers counter-terrorism courses related to hazardous materials response, incident management, tactical management of weapons of mass destruction, crime scene operations, and mass decontamination/patient management. Over 150,000 students have participated in NFA's anti-terrorism educational programs over the last five years.
USFA is also planning to offer 3-day ''First Responder Terrorism Preparedness Training and Information Exchange Seminars'' in each of FEMA's ten regions. These seminars will convene nationally recognized experts to deliver presentations related to specific issues in terrorism preparedness of concern to fire, police, medical, and emergency management responders.
In May 2001, a report entitled ''The Need for Additional Capabilities for Federal Counter-terrorism Training of Emergency Response Personnel'' was submitted to Congress by the USFA. In addition to assessing USFA's current counter-terrorism activities, the report outlined four areas where capabilities should be enhanced to better support the Nation's fire and rescue services:
(1) Existing delivery mechanisms—grant programs, courses, and seminars.
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(2) Technology-based training and distance learning.
(3) Response capability through the Federal Response Plan (A signed agreement among 27 Federal departments and agencies that provides the mechanism for coordinating delivery of Federal assistance and resources to augment efforts of State and local governments overwhelmed by a major disaster.)
(4) Development of decision-support products, such as Emergency Response to Terrorism: Job Aid, which is meant to be a user-friendly field reference for first responders. The report also recommended development of ''Job Aid'' documents for Unified Command Template, Mass Patient Management, and Evidence Processing.
The hearing will serve to review USFA's counter-terrorism activities and examine how they may be improved.
III. WITNESSES
The following witnesses will address the Subcommittee:
R. David Paulison—Administrator of the U.S. Fire Administration, Emmitsburg, Maryland
Ed Buikema—Director, Federal Emergency Management Agency Region 5, and former Director of Michigan State Police Emergency Management Division
Donald Bliss—New Hampshire State Fire Marshal and Homeland Security Liaison, Vice President, National Association of State Fire Marshals
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Larry Hausman—Chief, Battle Creek, Michigan Fire Department
Chuck Cribley—Chief, Windsor Township Emergency Services, Dimondale, Michigan, and Michigan State Fire Marshal Section Commander
Mr. SMITH. Let me first say I want to welcome everybody to the hearing. I would like to especially welcome the Ranking Member, sometimes known as the Vice Chairman of this committee, Eddie Bernice Johnson from Dallas, Texas.
And we held an excellent hearing, and Representative Johnson had actually nicer weather she tells me than what we are providing her here in Michigan.
Today we meet to discuss the issues of preparedness and Federal assistance for fire and EMS personnel in this country. Our first responders come to our rescue whenever we need them, during tornadoes or hurricanes or any other natural disaster or car crashes or school shootings, and many, many other situations, certainly potential damage by fire and fires that they control.
Those of us who have needed first responders learned that they were really American heroes. After September 11th, the world now knows that first responders are willing to do whatever is necessary to accomplish their job to help people in need of help.
It just seems appropriate to mention that over 300 of our fire and emergency personnel gave their lives that day in New York, and as President Bush said in the annual fire service dinner in Washington last month, there is no substitute for the raw courage of fire fighters.
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While the events of 9/11 brought a new focus to fire and emergency service, it is all too easy for us to forget that they were not just there for us that day. They are often risking their own health, their own health and their lives, to help other people when they need help.
We lose approximately 100 fire fighters every year dying in the line of duty. With terrorism we know that there is considerable likelihood of future attacks on America. We also know that these could happen in any number of forms, from bombs to fire, to biological and chemical weapons of mass destruction, attacks on our infrastructure, and all are conceivable to demand a new level of readiness.
September 11th taught us that today's terrorist can strike any place, any time. What we know from the information that we have picked up in Afghanistan is that there are approximately 62 other countries with active terrorist cells, and these are not just remote countries in the Middle East or Asia or South Africa or South America. These are countries in Europe. They are countries of the United States where we have identified terrorist cells.
There were 19 terrorists in the attack that took place in New York, in the Pentagon and the plane that went down in Pennsylvania. The estimate is that there are approximately between 2,500 and 3,000 other individuals just like those 19 with the same dedication, with the same brainwashing that has led them to believe that their only destiny, their own salvation to spend eternity next to Allah is to cause damage in life, by giving up their life cause damages to our philosophy and our way of life.
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It is our job in Congress and in the state and local governments to insure we help with the commitment of protecting us day in and day out by providing the resources, the equipment, the training that first responders need.
As Chairman of the Research Subcommittee, which has oversight over the U.S. Fire Administration, I have been particularly interested in how we can improve USFA and the Federal role to better support our first responders that are so committed to supporting us.
I hope that this afternoon's hearing provides us with the suggestions and valuable insight we need to do just that. There are clearly a number of important challenges facing the fire services community right now, definitely more than we will have time to discuss at this hearing.
However, I expect that we will have a good discussion on at least a few of them. In particular, the popular assistance fire fighters grant program that was started several years ago that I and Kurt Weldon and Stenny Hoyer and others were able to increase the authorization this past year up to $900 million.
We ended up with about $350 million. Now the question is do we spread that over two years or do we add another appropriation this year. I would like everyone to know that I am dedicating my efforts to make sure that there is an expansion of the appropriation also for next year.
I would like to hear from witnesses on how they believe the new first responder grant program should be structured. I also want to talk about how we increase our efforts to recruit and retain more fire fighters, in particular, the kind of support that we need to give volunteers and career to make their job more effective across America.
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And I think it is important to mention especially here in Michigan that approximately 80 percent of our fire fighters/first responders are volunteers in Michigan, and if we do not keep the kind of support for career and volunteers, we are going to realize a tremendous increase in costs in our local communities across Michigan and across the United States.
Today's hearings and listening sessions here in Lansing, Michigan started out this morning at ten o'clock with input from the research universities to give guidance and ideas that will be part of the NSF, National Science Foundation, reauthorization bill.
Then I was delighted that I was invited over to the Delta Township Fire Hall to receive a national award for my efforts in terms of supporting our first responders in the United States.
We have an excellent source of witnesses today, and with that Representative Eddie Bernice Johnson, welcome to Michigan and your comments.
[The prepared statement of Mr. Smith follows:]
PREPARED STATEMENT OF CHAIRMAN NICK SMITH
The hearing will come to order. I would like to welcome everyone here today to the second of two field hearings that the House Science Committee Subcommittee on Research is holding this year. Two weeks ago we visited Dallas and held an excellent hearing in Ranking Member Eddie Bernice Johnson's District, and it is my pleasure to welcome her here to Lansing today as we review issues facing our first responders.
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Today we meet to discuss an issue that, on September 11th of last year, was highlighted for all the wrong reasons. The issue of course is better preparing our emergency service personnel to respond to terrorist situations.
Over 300 fire and emergency response personnel gave their lives that day. In doing so they saved thousands of lives. They made this sacrifice consciously and without hesitation. As President Bush said at the annual fire services dinner in Washington last month, ''There is no substitute for the raw courage of the firefighter.''
While the events of 9/11 brought a new focus to fire and emergency services, it is all too easy for us to forget that they were not just there for us that day, they are there for us every day. Fire and emergency services respond to over 16 million calls annually, without reservation and with little regard for their personal safety. Since September 11th, over 30 first responders have died in the line of duty.
We know that there is a considerable likelihood of future attacks in America. We also know that these could happen in any number of forms—bombs, fires, weapons of mass destruction, attacks on our infrastructure, and others—are all conceivable and demand a new level of readiness. September 11th also taught us that today's terrorists can strike at any place and at any time. I, for one, have concerns that terrorists may become frustrated with the high security presence in major cities and focus their sights on the less-closely guarded cities and infrastructure of Anytown, USA. However, wherever or whenever an emergency situation may occur, I take comfort in knowing that first responders will be there for us.
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It is our job in Congress, and in state and local governments, to ensure we honor their commitment of protecting us day-in and day-out by providing the resources and guidance that first responders need. As Chairman of the Research Subcommittee, which has oversight of the U.S. Fire Administration, I have been particularly interested in how we can improve USFA to better support the first responders that are so committed to supporting us. I hope that this afternoon's hearing provides us with the valuable insight we need to do just that.
There are clearly a number of important challenges facing the fire services community right now—definitely more than we will have time to discuss at this hearing. However, I expect that we will have a good discussion on at least a few of them, in particular the popular Assistance to Firefighters Grant Program. Congressman Curt Weldon and I were able to increase the authorization level of this program to $900 million last year, and now we want to find ways to improve it even more, as well as ensure that it is not consolidated with the President's First Responder Initiative. I would also like to hear from the witnesses on how they believe the new first responder grant program should be structured, and I also want to talk about how we increase our efforts to recruit and retain more firefighters, in particular the volunteers, which make up approximately 80 percent of firefighters in Michigan. All of these issues will help to guide the Subcommittee as we look ahead toward reauthorization of USFA next year.
Ms. JOHNSON. Thank you very much, Mr. Chairman.
I am pleased to join you here in Lansing today for the Research Subcommittee hearing on issues associated with the fire safety and emergency response. Our focus today is on the value and effectiveness of the U.S. Fire Administration's programs for assisting first responders in performing their critical public safety roles.
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I want to welcome our distinguished witnesses and to say thank you for appearing before this subcommittee.
The Federal Fire Prevention and Control Act of 1974 that created the U.S. Fire Administration was intended to address a serious problem affecting the safety of all Americans. Much progress has been made during the past quarter century in public education about fire safety improvement and the effectiveness of fire services and the wider use of home fire safety devices.
Nevertheless, the United States still has one of the highest fire death rates among advanced nations, and that is before and after September 11th.
The question then arises as to what is being done that is effective and what more ought to be done in order to make further progress improving the nation's fire safety record. Of course, the adequacy of the overall level of resources available to the Fire Administration is an important consideration.
The landmark report, ''America Burning,'' which was the genesis of the 1974 act, recommended an initial annual budget for the Fire Administration of $124 million, in 1974 dollars. The report found that these resources were needed to support training, technology development, data collection and public education activities.
But appropriations levels have never exceeded $38 million for core Fire Administration programs. The fire grants program, which we will be discussing during this hearing, is a first effort to make a substantial increase in direct assistance to fire departments. It is intended to help provide the tools fire departments need to do their job.
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Thus far $460 million have been appropriated for grants, and the second competition for awards is on the way. I hope to hear today how the program is working from some of you that are supposed to be getting the benefit.
I am interested in our witness' view on the impact of this program and on the effectiveness of the way that it has been implemented by the U.S. Fire Administration.
More generally, I ask the assistance of our witnesses in assessing how well current U.S. Fire Administration programs are working and whether the availability resources are being allocated optimally.
I also encourage our witnesses to provide recommendations regarding any aspect of the policies and operations of the Fire Administration that will result in helping the agency achieve its mission objectives.
Again, it is my pleasure to be in Lansing. I would have liked it better if it was better weather, but I know that Chairman Smith has shown me that he is too weak to change this weather. So this is what we have to put up with.
I want to thank you again for being here and I look forward to hearing from you. I want to say thank you to the Subcommittee staff and those who came to the airport and made sure that I got here and got us on the way on time.
[The prepared statement of Ms. Johnson follows:]
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PREPARED STATEMENT OF REPRESENTATIVE EDDIE BERNICE JOHNSON
I am pleased to join Chairman Smith here in Lansing, Michigan for this Research Subcommittee hearing on issues associated with fire safety and emergency response.
Our focus today is on the value and effectiveness of U.S. Fire Administration programs for assisting first responders in performing their critical public safety roles.
I want to welcome Fire Administrator Paulison and our other distinguished witnesses, and thank them for appearing before the Subcommittee.
The Federal Fire Prevention and Control Act of 1974 that created the U.S. Fire Administration was intended to address a serious problem affecting the safety of all Americans. Much progress has been made during the past quarter century in public education about fire safety, improvement in the effectiveness of fire services, and the wider use of home fire safety devices. Nevertheless, the United States still has one of the highest fire death rates among advanced nations.
The question then arises as to what is being done that is effective and what more ought to be done in order to make further progress in improving the nation's fire safety record. Of course, the adequacy of the overall level of resources available to the Fire Administration is an important consideration.
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The landmark report, America Burning, which was the genesis of the 1974 Act, recommended an initial annual budget for the Fire Administration of $124 million, in 1974 dollars. The report found that these resources were needed to support training, technology development, data collection, and public education activities. But appropriation levels have never exceeded $38 million for core Fire Administration programs.
The FIRE Grants program, which we will be discussing during this hearing, is a first effort to make a substantial increase in direct assistance to fire departments. It is intended to help provide the tools fire departments need to do their job. Thus far, $460 million has been appropriated for the grants, and the second competition for awards is underway.
I hope to hear today how the program is working from some of those it is intended to benefit. I am interested in our witnesses' views on the impact of this program and on the effectiveness of the way it has been implemented by USFA.
More generally, I ask the assistance of our witnesses in assessing how well current USFA programs are working and whether the available resources are being allocated optimally.
I also encourage our witnesses to provide recommendations regarding any aspect of the policies and operations of the Fire Administration that will result in helping the agency to achieve its mission objectives.
Again, it is my pleasure to be in Lansing today with Chairman Smith to review the important programs of the Fire Administration. I want to thank our witnesses for making themselves available for this hearing, and I also want to thank everyone here who assisted the Subcommittee in making arrangements for this hearing.
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Mr. SMITH. Well, for the record, Representative Johnson had arranged excellent weather when we were in Texas, but if you look at it that probably less brush fires today.
Let me mention that Mr. Donald Bliss, the Homeland Security Liaison and Fire Marshal for the State of New Hampshire had a death in the family, but he has submitted written testimony that will be without objection included in the hearing testimony. So ordered.
Our David Paulison is now stranded in Chicago airport on his way to Lansing, and if he can arrive before we finish, then we will allow him to testify, but if not, without objection his testimony will be included in the record.
I would like to welcome Mr. Bill Webb, who is the Executive Vice President for the Congressional Fire Service Institute, who came to be part of the ceremony in giving me the award today. So, Bill, thank you for being here.
Our first witness will be Chuck Cribley, Chief of the Windsor Township Emergency Service in Dimondale.
Second to testify will be Larry Hausman, Battle Creek, the Fire Chief in Battle Creek.
And the third individual to testify will be Edward Buikema, Director of the Federal Emergency Management Agency's Region V and former Director, I might mention, of the Michigan State Police Emergency Management Division.
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Again, prepare any comments that you would like to add to the testimony as individual comments when we pass the mic around at the end of the official testimony and questions and answers. Everybody that would like to make some comment, it will be made part of the official record of this hearing.
And with that, Chief Cribley, we will turn it over to you.
STATEMENT OF CHARLES E. CRIBLEY, CHIEF, WINDSOR CHARTER TOWNSHIP EMERGENCY SERVICES
Mr. CRIBLEY. Thank you, sir.
Good afternoon to you and to the Vice Chair and to all of the people here today. It is my honor to come and present my views on some of these important topics.
My name is Chuck Cribley. I am Chief of the Windsor Charter Township Emergency Services Department based in Dimondale, Michigan. I have been involved in paid, on call and part-time fire and EMS for over 35 years.
My full-time position is as commander of the Program Services Section of the State Fire Marshal's Office. In that capacity, I oversee the public education program and the national fire incident reporting system in Michigan.
I am here today speaking on behalf of my interest in Windsor Township, however.
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Windsor Charter Township, including the village of Dimondale, is rapidly changing from a rural to a suburban community, as are many in this state. The population is about 7,300, mostly in single family dwellings and mobile homes.
Interstate 96, Interstate 69, and a major railroad pass through the township. The General Motors manufacturing complex is just north of our northern border, the new one that they are building, and we will see a rail yard and significant truck and car traffic as a result.
The department was created by a merger of the ambulance and fire departments, providing for a more coordinated, more efficient, and more effective operation. The new name, ''emergency services,'' reflects the recognition of the emerging role of the fire service in this country.
Like all departments in the country, things have been constantly changing in our community for many years. The events of September 11th have accelerated the rate of change considerably. For a small department like ours, this is particularly true.
As an example, nearly all of the mail sent to the State of Michigan passes through and is opened in the secondary complex that we protect. Responding to anthrax alerts is something we never anticipated. Our personnel are now trained to conduct an assessment of a threat, but if a threat is validated, we must rely on mutual aid and contract services.
While mutual aid agreements, automatic aid, contractual services and probably some luck have gotten us this far, I believe that it is time that the American fire service, supported and facilitated by the United States Fire Administration, take the next step.
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The mission of the fire service has both broadened and become much more technical, and this trend is increasing at an exponential rate. The traditional structure of the fire service must change. While every small community having its own fire department has been a source of pride and identity in the past, this is no longer a good way to do business.
The role of the volunteer or paid on-call fire fighter will probably continue to be a significant part of the fire service forever. However, administration, support, training, record keeping, specialized response coordination, and interagency operations cannot be handled effectively by such personnel.
The department of the future will consist of a core of command personnel and specialists. It will cover several communities providing various levels of career personnel throughout the response area supported by paid on-call personnel, many of them specialists who respond only to certain types of calls.
Eliminating duplication of equipment, better location of resources based on risk assessments rather than political boundaries, and informed mission minded management will all help to control that cost.
The United States Fire Administration can assist the American fire service in this effort in many ways. These include, firstly, emphasis on the positive aspects of such regional coordinated efforts in workshops, training programs, and white papers.
Secondly, a requirement that grant funds will go first to departments that serve such multi-community response districts and demonstrate a strong commitment to effective, efficient operations through support by career staff commensurate with the demographics of the community. In the absence of a formal, multi-community organization, grant applications that propose formalized multi-community teams or operations may be recognized.
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Thirdly, development of a model for such a department, as well as a mechanism for evaluating an area and determining proper staffing levels.
Fourthly, ongoing supplemental funding for career personnel to provide the leadership for a regional based emergency services agencies.
And lastly, promotion of research that supports additional gains in technology.
I also have comments on the fire fighter's grant and first responder grant program. Firstly, let me say that the program is overall an excellent program, and I am referring to the Fire Act grants. I hope it continues indefinitely. It is providing much needed funding for and perhaps more importantly focused on our emergency services departments and personnel.
To date we have not received any money in my community. The point of our concern centers around equipment and funding. Our township board is very supportive of our emergency services operation and has provided significant funding. As a result, our equipment is relatively new.
Because we have been very cost conscious and put forth a reasonable level of funding, we will not score well on our application this year. On the other hand, a community that has ignored its responsibility in the emergency services area, perhaps even squandering its money, will be rewarded with more.
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There needs to be a mechanism to more fully evaluate the commitment and utilization of resources and reward exemplary efforts.
The FEMA first responder grant program is also critical in these times. The focus of this program deals primarily with terrorism and can involve a wide range of agencies, not just fire and EMS.
The assistance to fire fighters grant program is to bring the fire service up to a current standard in all of its efforts. Certainly the fire service is one of the primary responders to incidents of terrorism, but only one. And most of what the fire service responds to does not involve terrorism. Merging the programs will confuse the issues and be very difficult to manage effectively with two separate missions.
The American fire service is fraught with tradition, some good and some not so good. The world has changed, and it is continuing to change. It is time that we put aside some of our old traditions, perhaps only hanging onto the tradition of providing the best service we can and move forward into the modern day way of thinking and doing things.
I believe that the assistance to fire fighters grant program, the first responder grant program, and the continuing support of the United States Fire Administration will all be key factors in our success.
Thank you for this opportunity, Mr. Chairman.
[The prepared statement of Mr. Cribley follows:]
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PREPARED STATEMENT OF CHARLES E. CRIBLEY
Abstract
Windsor Charter Township (including the village of Dimondale), population 7,300, is rapidly changing from a rural to a suburban community. The department provides a full range of fire and EMS services. The mission of the fire service has both broadened and become much more technical, and this trend is increasing at an exponential rate. The traditional structure of the fire service must change. The department of the future will cover several communities, providing various levels of career personnel throughout the response area, supported by paid-on-call personnel, many of them specialists who respond to only certain types of calls. The Unites States Fire Administration can assist the American fire service in this effort by emphasizing this organizational structure, award grant funds first to regional agencies, and promoting the development of such agencies. The Assistance to Firefighters Grant program and the First Responder Grant program are both important, however merging them will confuse the issues and be very difficult to manage effectively with two separate missions.
Biography
Good afternoon, and thank you for the opportunity to present my views on these important subjects.
My name is Charles E. Cribley. I am chief of Windsor Charter Township Emergency Services, based in Dimondale, Michigan (Eaton County). I have been involved in paid-on-call and part-time fire and EMS for 35 years. My full-time position is commander of the Program Services Section of the State Fire Marshal's office. In addition to my experience, I have several relevant certifications; an Associate degree in Fire Science, a Bachelor degree in Law Enforcement Administration, a Master's degree in education, and I am graduate of the National Fire Academy Executive Fire Officer program. I come before you today in my capacity as Chief of Windsor Township Emergency Services.
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Overview of the Agency
Windsor Charter Township (including the village of Dimondale) is rapidly changing from a rural to a suburban community. As with any community at this stage, keeping services aligned with the need is a challenge. The population is about 7,300, mostly in single family homes and a large mobile home park. This further complicates the problem, as residential growth tends to create a high demand for services and a low tax revenue stream.
The township is also home to a large nursing home and the State of Michigan Secondary Governmental Complex. The daytime population of the governmental complex is just over 2,000 at present and will increase to almost 4,000 by fall. Interstate 96, Interstate 69, and a major railroad pass through the township. The new General Motors manufacturing complex is just north of our northern border, and we will see a rail yard and significant truck and car traffic as a result.
The department was created by a merger of the ambulance and fire departments, providing for a more coordinated, more efficient, and more effective operation. The new name reflects recognition of the emerging role of the fire service. Staffing consists of a part-time chief, 4 full-time firefighter/paramedics, 6 part-time paramedics, and 45 paid-on-call fire and/or EMS personnel. Equipment includes a medium rescue, 2 engines, a tanker, an air supply/REHAB unit, 2 brush trucks, a Basic Life Support ambulance and an Advanced Life Support ambulance. In 2001 the department responded to a total of 866 calls.
Challenges/USFA Coordination and Support
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Like all departments in the country, things have been constantly changing for many years. The events of September 11 have accelerated the rate of change considerably. For a small department like ours, this is particularly true. As an example, nearly all of the mail sent to the state of Michigan passes through, and is opened, in the Secondary Complex. Responding to anthrax scares is something we never anticipated. Our personnel are now trained to conduct an assessment of the threat, but if a threat is validated, we must rely on mutual aid and contract services.
So, in spite of the fact that for a community of our size we are relatively well-staffed, and well-prepared, dealing with terrorist attacks, biological hazards, serious hazardous materials incidents, and some types of technical rescue are problematic. Challenges will include declining paid-on-call staffing, increasing calls, a wider range of calls, much more technical issues, and perhaps most importantly, increasing expectations from the public.
While mutual aid agreements, automatic aid, contractual services, and luck, have gotten us this far, I believe that it is time that the American fire service, supported and facilitated by the United States Fire Administration, take the next step. The mission of the fire service has both broadened and become much more technical, and this trend is increasing at an exponential rate. The traditional structure of the fire service must change. While every small community having its own fire department has been a source of pride and identity in the past, this is no longer a good way to do business. The role of the volunteer, or paid-on-call, firefighter will probably continue to be a significant part of the fire service, however administration, support, training, record-keeping, specialized response coordination, and inter-agency operations, cannot be effectively handled by such personnel.
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The department of the future will consist of a core of command personnel and specialists. It will cover several communities, providing various levels of career personnel throughout the response area, supported by paid-on-call personnel, many of them specialists who respond to only certain types of calls. Technology, including innovations like foam, thermal imaging, fast response sprinkler systems, and robots, will play key roles. No question this will result in increased cost, but this will be necessary to provide effective services in many cases. There will also be some cost reduction, partly offsetting the increase. No longer will every community feel compelled to have one of everything. Losses will ultimately decrease as fires are detected and suppressed sooner. Eliminating duplication of equipment, better location of resources based on risk assessments, rather than political boundaries, and informed, mission-minded management will all help to control cost.
The Unites States Fire Administration can assist the American fire service in this effort in many ways. These include:
Emphasis on the positive aspects of such regional, coordinated, effort in workshops, training programs (including the National Fire Academy), and white papers.
A requirement that grant funds will go first to departments that serve such multi-community response districts and demonstrate a strong commitment to effective, efficient, operations through support by career staff commensurate with the demographics of the community. In the absence of a formal multi-community organization, grant applications that propose formalized multi-community teams or operations may be recognized.
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Development of a ''model'' for such a department, as well as a mechanism for evaluating an area and determining proper staffing levels.
Ongoing supplemental funding for career personnel to provide the leadership for regional-based emergency services agencies.
Promotion of research that supports additional gains in technology.
Assistance to Firefighters Grants/First Responder Grant Program
You have also requested my views of the Assistance to Firefighters Grants Program. Firstly, let me say that the program is overall an excellent program and I hope it continues indefinitely. It is providing much needed funding for, and focus on, our emergency services departments and personnel.
To date, the program has not assisted our community. In the first round of grants we took a close look at the criteria and decided not to apply. We had the same misgivings about the second round, but applied anyway. The point of our concern centers around equipment and funding. Our Township Board is very supportive of our emergency services operation and has provided significant funding. As a result, our equipment is relatively new.
Windsor Township is far from a rich community. We have very little business and industry, meaning that our primary revenue source is residential property tax. More than 75 percent of the funding for emergency services is general fund tax dollars, the balance coming from a small amount of state funds and individual gifts and grants, as well as ambulance service revenues. We are facing many challenges in the immediate future, for which we do not have the resources to deal at the level we believe appropriate. But, because we have been very cost-conscious and put forth a responsible level of funding, we will not score well. On the other hand, a community that has ignored its responsibility in the emergency services area, perhaps even squandering its money, will be rewarded with more. There needs to be a mechanism to more fully evaluate the commitment and utilization of resources, and reward exemplary efforts.
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Although emergency services is primarily a local choice, continued federal funding and support will greatly aid in its evolution to meet the ever-increasing needs of our changing society. A common funding source will help to generate commonality of purpose and function, thereby increasing efficiency and effectiveness.
The FEMA First Responder Grant program is also critical in these times. The focus of this program deals primarily with terrorism and can involve a wide range of agencies, not just fire and EMS. The Assistance to Firefighters Grant program is to bring the fire service up to a current standard in all of its efforts. Certainly the fire service is one of the primary responders to incidents of terrorism, but only one—and most of what the fire service responds to does not involve terrorism. Merging the programs will confuse the issues and be very difficult to manage effectively with two separate missions.
Closing
The American fire service is fraught with traditions—some good and some not so good. The world has changed, and is continuing to change. It is time that we put aside some of our old traditions, perhaps only hanging on to the tradition of providing the best service we can, and move forward into the modern day way of thinking and doing things.
I believe that the Assistance to Firefighters Grant program, the First Responder Grant program, and the continuing support of the United States Fire Administration, will all be key factors in our success.
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Thank you for the opportunity to participate here today.
Mr. SMITH. Chief, thank you.
Chief Hausman.
STATEMENT OF LARRY J. HAUSMAN, FIRE CHIEF, BATTLE CREEK, MICHIGAN
Mr. HAUSMAN. Thank you, Congressman Smith.
Good afternoon. It is a great honor to be here this afternoon.
I would like to start off with a brief overview of the Battle Creek Fire Department. The Battle Creek Fire Department has a budget of $8.2 million. We employ 102 full-time positions out of six fire stations. Our funding is derived from a general fund budget, which was supported by a 1-percent city income tax.
Our budget has been divided into four categories with 90 percent allocated to personnel services. We are proud during the past 20 years we have gone from one minority fire fighter to 25 percent made up of minorities in the department.
We serve a 54,000 population and 43 square miles, and the department is over 150 years old. Last year we made 5,364 responses, of which 75 percent were medical emergencies.
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We operate a four person fire prevention drill, regional hazardous materials team, regional weapons of mass destruction team, and we are supporters of two in, two out, and we are two in, two out compliant.
Today the department has many challenges and strengths. As I would like to focus on the strengths, the purpose of the testimony is to describe our challenges in terms of preparedness for our response capabilities.
I have identified nine areas in which we are challenged. They include apparatus, equipment, training, fire prevention, arson, national standards, recruitment, funding, arson and civil litigation. Our biggest challenges are fire prevention and recruitment, meeting national standards, funding, and training.
Of these challenges that affect our preparedness and response capabilities are meeting national standards, funding, and training. I will elaborate on these.
First, meeting national standards is a welcomed challenge. I am a strong believer in the national standards described in 1974 in Congress, ''America Burning,'' which created the United States Fire Administration.
These welcomed and necessary standards are expanding annually and are unfunded. Compliance is an administrative function of local fire departments that is getting more complicated daily because of required paper work, documents, and compliance.
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I see national standards for the fire department operation as falling into two distinct categories: mandated and enforced. Mandated standards are not funded and there are great inconsistencies, and the consequences are noncompliance for voluntary standards.
While national standards moving the fire service in the right direction, they are frustrating and fragmenting the fire departments that make up the fire service. My recommendation is a drastic increase in national funding for basic fire department operations.
This is best accomplished through expanding assistance to the fire fighters grant program. This will help my department be more prepared and responsive to the future needs.
As we continue to see reductions in city funding, calls for service increase, mandated standards, however, it is my opinion that improved funding in the assistance grant program will benefit all departments.
Second, training is a significant area of concern in our department and throughout the country meeting national standards for fire fighters. However, ongoing training has to be effective as fire fighters move into the next century. There are a quagmire of regulations that is neither systemized in my department or nationally. Until this is accomplished, response capabilities of training fire fighters is suspect.
Most departments are fighting less fires each year. As a result of less fires, we must have more training. Urban departments especially are struggling to adapt to the situation with no increase in funding at this time.
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Training problems are aggravated and necessarily adding to training of computers, hazardous materials, weapons of mass destruction, confined space and all of the specialized areas that the fire service is now responsible for.
Finally, training to be effective as a fire officer is a significant training deficiency relative to preparedness and response. Last year we designated our regional response team for involving weapons of mass destruction. We received a grant of approximately $90,000 to purchase specialized equipment.
I take no pleasure in reporting to you today that the equipment is still not in service due to lack of training. We need to have weapons of mass destruction teams train together on a regular basis. We need additional funding to pay for the training and the overtime and other areas of training to go along with these special programs.
Third, funding. Our most significant challenge is the direct impact on fire fighting operations. Unlike more fire departments, apparatus in our department has been a prime area of responsibility for replacement. This is because of a strong local economy. It is simply at this time becoming an area of concern with local funding being at an all time low.
I have been asked to testify how the department interacts with USFA, members of the fire service community. Our primary interaction with USFA is through the national reporting system, attending training classes, and offers to develop USFA.
The fire officer courses in the National Fire Academy help the service delivery. The national fire incident reporting system helps us gather the necessary data. We are a very old, unionized department and, therefore, heavily influenced by International Association of Fire Fighters. We are member of the National Fire Protection Association and the National Fire Code.
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I do believe there are ways the USFA could improve its coordination and support efforts to state and local organizations. First of all, it is my opinion that the National Fire Academy should not be delivering classes on campus that can be delivered through straight training councils.
Secondly, difficulty in high demand classes should be corrected by more offerings.
Third, the executive fire officer program is an asset to the fire service. However, limiting admission to the program to those already possessing college degrees has a high negativity and stifling effect upon the fire service short term.
If the content of this program is worthwhile, I believe it is worthwhile for all people to attend.
Finally and most importantly, fire officer classes must be expanded to encompass knowledge, skills and abilities affecting to serve the fire officer regardless of the type of department they are from.
I have been asked to discuss my views of the fire service grants program. This program made it possible for our department to purchase enough smoke detectors to install in all estimated 17,000 dwellings in our city. We use the smoke detectors with nonremovable lithium batteries with a 10-year warranty in each dwelling, and we will install the detectors and provide critical information regarding proper response, residential sounding of an alarm at night.
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I am not aware of any single fire safety program that is more significant to the community that has ever been initiated with the Battle Creek Fire Department. I have several statistics to share with you.
Since I became Chief in July 1997, the city of 54,000 citizens has experienced seven separate fatalities claiming 11 lives. In my opinion, that seven of 11 lost during the last five years would not have been lost had this program been in place in the past five years.
Eliminating the needless loss of lives is a major accomplishment. I believe every Member of Congress has the right to claim they are saving lives in Battle Creek through the assistance grants program.
However, as an old fire fighter, I must tell you that a major secondary benefit to the smoke detector program is to the fire fighters themselves.
I have no criticism regarding the grants program. I believe USFA has done an exemplary job in trying to provide the best possible customer service to the fire departments. I do have two changes I recommend to improve the program.
The first challenge is to add a zero to this year's funding level.
Mr. SMITH. Just move the decimal point over one point.
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Mr. HAUSMAN. Move the decimal point. That is right.
Second, I recommend that the matching amount should not fluctuate between ten and 30 percent.
It is absolutely critical that the assistance program be expanded in my opinion. I strongly urge Congress to help American fire fighter service improve the operation preparedness as a high priority and improve anti-terrorism activity within the fire service.
In closing, I would like to summarize three important recommendations. First and foremost, increase the funding to the assistance program, adding a zero.
Second, most recommendations of the assistance program is the Homeland Defense Program be separated.
And third, eliminate the fluctuating matching grant having all departments asserting a 10-percent match.
I wish to thank the honorable Members of Congress who invited me here to testify today. It as been my pleasure.
Thank you very much.
[The prepared statement of Mr. Hausman follows:]
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PREPARED STATEMENT OF LARRY J. HAUSMAN
It is more than an honor and privilege to provide testimony to the honorable Senators that have invited me here today. I am one of the very few Fire Chiefs who has lost an immediate family member during firefighting operations. Twenty-five of my twenty-nine years in the fire service has been continually influenced by the loss of my younger brother David A. Hausman, who died fighting a house fire in 1977. As you can imagine, this event has had a profound influence upon me both personally and professionally. The influence can best be described in terms of wanting to use my career to make a difference. It is my hope today, that my testimony will achieve my career goal of contributing to the improvement of the American fire service.
A brief overview of the Battle Creek Fire Department will indicate that today our budget is about 8.2 million dollars, that we have 102 full-time positions allocated, and we operate out of six fire stations. Our funding is derived from the city general fund, which is supported by a one percent city income tax. Our department budget is divided into four categories with ninety percent allocated to personnel services. We are proud that during the past 20 years we have gone from having one minority male firefighter and no women in the firefighting division to having 25 percent of the division made up of women and minorities. Our city has a population of about 54,000, has about 43 square miles, and is over 150 years old. Last year we made 5,364 responses, of which about 75 percent were medical emergencies.
We are a progressive department. We operate a four-person fire prevention bureau, a regional hazardous material response team, a regional weapons of mass destruction response team, a county-wide fire prevention week program, and an area-wide juvenile firesetting intervention program. We are supporters of the 2-in 2-out rule and were one of the first departments in the state to switch from three- to four-person staffing on fire engines. Our apparatus, communication, and firefighting equipment have been upgraded to meet national standards.
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Today our department has many challenges and strengths. As much as I would like to focus on our strengths, one of the purposes of this testimony is to identify and describe our challenges in terms of preparedness and response capabilities. I have identified nine areas where we are challenged that include apparatus, equipment, training, fire prevention, arson, national standards, recruitment, funding, arson, and civil litigation. Our biggest challenges are fire prevention, recruitment, meeting national standards, funding, and training. Of these, the challenges that affect our preparedness and response capabilities are meeting national standards, funding, and training. I will elaborate on these three challenges.
First, meeting national standards, is a welcome challenge. I am a strong believer in the call for national standards described in the 1974 report to congress called ''America Burning'' that created the United States Fire Administration. These welcome and necessary standards are expanding annually and are unfunded. Compliance is an administrative function of local fire departments, that is getting more complicated daily because of the required paper work that documents compliance. I see the national standards for fire department operations falling into two distinct categories; mandated standards enforced through government agencies and voluntary standards only enforced through civil litigation. The mandated standards are not funded and there is great inconsistency in the consequences of non-compliance for voluntary standards. While national standards are moving the fire service in the right direction, they are frustrating and fragmenting the fire departments that comprise the fire service. My recommendation is for drastic increases in the national funding of basic fire department operations. This is best accomplished through expanding the funding of the Assistance-to-Firefighters Grant Program. This will help my department be more prepared and responsive in the future, as we continue to see reductions in our city funding, while calls for service increase and new costly mandated standards are created. However, it is my opinion that improved funding of the Assistance-to-Firefighters Grant Program will benefit most departments more than our department. This is simply because of the Battle Creek Fire Department has been adequately funded during the past twenty years and we are progressive at improving customer service, emergency preparedness, and operational responsiveness.
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Second, training is our most significant current challenge and has a direct impact on our firefighting operations in terms of preparedness and response capabilities. The fire service, through mandated national standards, has now systematized the training to become a firefighter. However, the on-going training to be effective as a firefighter is a quagmire of regulations that is neither systematized in my department or nationally. Until this is accomplished, the response capabilities of trained firefighters is and should be suspect. Most departments are fighting less fires each year. As fires become less frequent, training must increase. Urban departments, especially mine, are struggling to adapt to this situation, with no increase in funding or systematized guidance. Training problems are aggravated by the necessity of adding new training in the areas of computers, hazardous materials response, weapons of mass destruction response, confined space response, and specialized rescues such as water, high rise buildings, and aircrafts. Finally, training to be effective as a fire officer is our most significant training deficiency at this time, relative to our preparedness and response capabilities. Last year we were designated a regional response team for incidents involving weapons of mass destruction. We received a grant of about $90,000 to purchase specialized equipment. I take no pleasure in reporting to you today that the equipment is still to be put into service because of a lack of training. We need to have the weapons of mass destruction team train together on a regular basis. However, this training is unfunded and I do not have funds in my budget to accomplish this training. We are not letting this stop us because we will seek a grant through the Homeland Security First Responder Grant Program and if that fails we will seek a local grant. But what about the delay, or what about if we can't get funding, or better yet, what about less fortunate departments? The point is that the diversity of required training must be systematized and funded. A costly, but effective remedy, is the nationalizing of fire service training (both content and funding). But a better alternative, is strengthening and expanding the Assistance-to-Firefighters Grant Program.
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Third, funding is our most significant future challenge and has a direct impact on our firefighting operations in terms of preparedness and response capabilities. Unlike most fire departments we have the apparatus and equipment to be effectively prepared for and to respond to community emergencies. This is not because of a strong local economy. It is simply because during my five year tenure as Battle Creek Fire Chief, these are the areas that I have consistently prioritized. It is true, that I was only able to prioritize the areas because of an expanding local economy and strong support of the city manager. Although our department has pride in our apparatus and equipment, I am deeply saddened that most American fire departments have not been able to obtain the necessary apparatus and equipment to be ''effectively'' prepared for and to ''effectively'' respond to community emergencies. But the future is bleak for the Battle Creek Fire Department. Two of the past three years we have suffered through revenue cuts, while expenses increased and we are not able to reduce services. The recent year our budget was not reduced, we received a two percent increase in funding while wages increased three percent and health care benefits increased twenty-five percent. We have been very creative in budgeting to maintain service levels with increased expenses and decreased revenues. We cannot continue in this vain, yet the local economy will not return to it's robust expansion in the near future. Initially, what this means for us is clear. We have used the Fire Act Grants Program during it's first two years to improve fire safety of dwellings throughout the community with a smoke detector program that is both unique and exemplary. Yet, with our funding difficulties of the near future, we will be forced to focus on fire suppression dollars in the future rather than fire prevention dollars. This is completely unfair, since our department has attempted to implement the vision of the ''America Burning'' report that calls for fire suppression and fire prevention to be equally important activities.
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I have been asked to testify how our department interacts with USFA and other members of the fire service community. Our primary interaction with USFA is through participation in the National Fire Incident Reporting System, attending National Fire Academy classes, and using the fire officers courses developed through USFA and delivered through our state training council. The fire officer courses and the National Fire Academy classes have helped our service delivery. The National Fire Incident Reporting System helps us gather necessary data efficiently. We are a very old unionized department and therefore are heavily influenced by the International Association of Fire Fighters. We are members of the National Fire Protection Association and use their National Fire Code and training programs for fire prevention inspections. I am a member of the International Association of Fire Chiefs and I use their training programs, their research capabilities, and I support their ability to advocate for change. Our department also supports and uses the training programs of the International Association of Arson Investigators. The commonality between these national fire service organizations is training, advocacy, networking, reporting data, and research.
I do believe there are ways the USFA could improve its coordination and support efforts to state and local fire organizations. First, it is my opinion that the National Fire Academy should not be delivering classes on campus that can be delivered by state training councils. I believe this was the original intent of the National Fire Academy to ''birth'' classes that are later delivered at the state level. Second, the difficulty at getting into high demand classes should be corrected through more offerings. This could easily be accomplished simply by evaluating National Fire Academy classes by the number of applicants denied admission. Third, the Executive Fire Officer Program is an asset to the fire service. However, limiting admission to this program to those already possessing a college degree has a very negative and stifling affect on the fire service in the short term. If the content of this program is worthwhile, as I believe it is, then the content must be made available to all fire chiefs. Finally, but most importantly, the fire officer classes must be expanded to actually encompass the necessary knowledge, skills, and abilities to effectively serve as a fire officer regardless of what type of department the officer comes from. This will allow a genuine fire officer certification program to be supported by the fire service. An effective fire officer training program is a major need of our department and the fire service.
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I have been asked to discuss my views of the Assistance-to-Firefighters Grant Program. This program has made it possible for our department to purchase enough new smoke detectors to install in all of the estimated 17,000 dwellings in our city. We will use smoke detectors with non-removable lithium batteries that have ten year warranties on the battery life. In each dwelling we will install the detectors and provide critical information regarding the proper response to a residential smoke detector sounding its alarm during the night. I am not aware of a single fire safety improvement that is more significant for our community, that has ever been initiated by the Battle Creek Fire Department. I have staggering statistics to share with you. Since I became chief in July 1997, our city of 54,000 citizens has experienced seven separate fatal fires claiming eleven lives, and that is an improvement over the ten year span. It is my opinion that seven of the eleven lives lost during the past five years would not have been lost if this program would have been in place during the past five years. Eliminating the needless loss of these lives is a major accomplishment, and I believe every member of congress has the right to claim that they are saving lives in Battle Creek because of the Assistance-to-Firefighters Grant Program. However, as an old firefighter, I must tell you that there is a major secondary benefit to our smoke detector program. And that is smoke detectors let fires be discovered when they are small, thus reducing property loss, reducing insurance claims, and reducing risks to firefighters. In summary, the Assistance-to-Firefighters Grant Program has made it possible to save lives that would not otherwise be saved and is making our community safer than we could make it without the program. In my opinion the Assistance-to-Firefighters Grant Program is the single best thing congress could do to improve the American fire service.
I have no criticisms regarding the grant process. I believe that the USFA has been exemplary in trying to provide the best possible customer service to fire departments. I do have two changes I recommend to improve the program. The first change is to add one zero to this years funding level. This is a recognition of the great needs and importance of the American fire service. Second, I recommend that the matching amount should not fluctuate between ten and thirty percent. I believe that the fire departments with the greatest needs are urban and rural. It is my experience that most urban departments would struggle more to get the thirty percent match than rural departments would getting ten percent. As important as last years grant is to our city, the truth is that we would have to forfeit the grant if the matching funds had to come from our general operating fund. We solved this dilemma by soliciting our thirty percent match from local foundations and corporations. But what about the departments that don't have this luxury? If the improvements that the grant makes is worthwhile, why are the citizens and firefighters of cities with populations above 50,000 being punished?
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The Assistance-to-Firefighters Grant Program is the single best improvement that has been made to the American fire service since the publishing of ''America Burning'' in 1974. Both the vision creating this program and the outcomes of this program allow improvements to be made to departments that would not otherwise be made. This program improves the operational readiness of local fire departments by allowing necessary but unfunded improvements to occur. The program is also simultaneously strengthening the American fire service through allowing more departments to meet national standards. It is absolutely critical that the Assistance-to-Firefighters Grant Program be expanded, in my opinion. This will allow departments to meet national standards, as well as be ''effectively'' prepared for and to ''effectively'' respond to community emergencies. As important as it is to be prepared for and capable of responding to acts of terrorism, we must remember that before nine eleven occurred this program was created out of the great needs of the fire service and those needs continue to exist after nine eleven. I like the old saying that ''you can't go the second mile until you go the first.'' If we compare this old saying to the American fire service today, the Assistance-to-Firefighters Grant Program is the first mile of improving the fire service and being prepared for terrorism is the second mile. If all we do is the first mile, we have moved ahead. However, we cannot go the second mile until we get the first mile done. I strongly implore congress to help the American fire service improve their basic operational preparedness and responsiveness as a higher priority than improving anti-terrorism activity within the fire service. In a moment I will focus my testimony on the threat of and preparedness for terrorist activity in Battle Creek, which will show that our department and the American fire service are very much in need of the funding assistance made possible through the 3.5 billion dollar Homeland Security First Responder Grant Program. But before I focus on our local threat of and preparedness for terrorist activity, I must make clear that I am convinced that the Homeland Security and Assistance-to-Firefighters Grant Programs must be maintained separate, as reflected in H.R. 4548, which I support.
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I am at a loss of words to describe the effect nine eleven has had upon our department. Like most Americans, the effect has been profound at the personal and emotional level. In terms of responsiveness, nine eleven was the causative factor for the development of our regional weapons of mass destruction response team. We have refocused our efforts on hazardous material response and have switched from all department personnel being response ready to having an elite team of twenty-four persons. We have worked closely with the Emergency Services Division to assess targets and the need for pre-planning responses at the target sites. This spring we will have a city wide drill involving an act of violence-terrorism at a local school.
In addition to the vulnerabilities of food, water, public gathering spots, and utilities that all cities have, we have other significant potential sites for acts of terrorism. These additional sites include a major Defense Logistics Agency site, the second largest foundation in the country, an Air National Guard base, and a regional rail yard. Our greatest need at this time, regarding a weapons of mass destruction incident, is to initiate an on going training program for our newly formed team, as I mentioned previously.
In closing, I would like to summarize my three most important recommendations. First and foremost, increase the funding of the Assistance-to-Firefighters Grant Program by adding a zero to this years allocated funds. The second most important recommendation is to keep the Assistance-to-Firefighters Grant Program and Homeland Security First Responder Grant Program separate by supporting H.R. 4548. Thirdly, eliminate the fluctuating matching grant by having all departments assessed a ten percent match.
I hope that the USFA can receive congressional support to fund an initiative to create a national fire officer training and certification program that recognizes the knowledge, skills and abilities to function as a fire officer today. Next, I hope the USFA will standardize required on-going training for firefighters.
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Recommended improvements at the National Fire Academy include sending more courses to be delivered by states off campus, increasing the frequency that high demand classes are offered, and expanding the Executive Fire Officer Program to allow current Fire Chiefs without college degrees to enroll.
I wish to thank the honorable members of congress that invited me to testify. The issues I addressed are near and dear to my heart. I can be consulted at any time for dialogue or clarification of my recommendations. Again I say thank you for this privilege.
BIOGRAPHY OF LARRY J. HAUSMAN
Larry J. Hausman is 54 years old and a native of Battle Creek. He became a firefighter in 1973. He was promoted to Lieutenant in the Battle Creek Fire Department in 1983 and became Fire Chief in 1997. He served as the president of the local firefighters union for twelve years prior to his appointment as Fire Chief. He has received six commendations and was honored as firefighter of the year in 1992.
He has been happily married for 35 years and raised two college educated children. His son is a Battle Creek firefighter following in his footsteps. His younger brother died fighting a house fire in 1977. His passion has been pursuing excellence in all his activities.
Since becoming Fire Chief he has had numerous significant accomplishments including: Developing a Fire Department Improvement Plan to address the issues of communication, conflict resolution, cultural diversity, training, and organizational structure. He created the first department management team that functions as a multi-level department steering committee. He has completely upgraded the entire apparatus fleet and personal protective equipment to meet national standards. He was one of the first Fire Chiefs to switch from three person to four person crews on engine companies to support the two in two out rule. He initiated a driver's training program that includes having ''All Safe'' computer technology installed on all apparatus. The hazardous materials response team has been reorganized and a weapons of mass destruction response team has been developed. Coalitions have been developed under his leadership to deliver a county-wide fire prevention week program, senior citizen fire safety program, and a juvenile firesetting program. The department received the Pace Setter Award in Fire Prevention, the Michigan Arson Prevention Achievement Award, and the Others Award from the Salvation Army. A self inspection program for small businesses and a fire safety education program using a $30,000 fire safety trailer donated by the Kiwanis have been developed under his leadership.
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Mr. SMITH. Chief, thank you very much.
Director Buikema.
STATEMENT OF EDWARD G. BUIKEMA, REGIONAL DIRECTOR, REGION FIVE, FEDERAL EMERGENCY MANAGEMENT AGENCY
Mr. BUIKEMA. Thank you and good afternoon, Mr. Chairman and Representative Johnson.
I am Ed Buikema, Director of the Federal Emergency Management Agency Region V. I am pleased to be with you here today in my home state to talk about the challenges facing emergency managers and first responders to be better prepared to respond to acts of terrorism.
FEMA Region V includes the States of Illinois, Indiana, Michigan, Minnesota, Ohio, and Wisconsin, representing a population of approximately 51 million people, with the majority residing in urban areas. We have significant disaster activity within the region, having administered 44 presidential disaster declarations within the last five years, with many events impacting multiple states.
While we are vulnerable to a broad range of natural and technological hazards, our greatest threats are a result of severe weather, specifically tornadoes and floods and the potential for terrorist attack.
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All of the states in Region V have implemented proactive and aggressive actions in response to the terrorism threats that have emerged since September 11th. Many states have committed substantial amount of staff and their own financial resources toward preparing for weapons of mass destruction events.
All states have designated Homeland Security Directors. Groundwork has been laid or accelerated to develop interstate and intra state mutual aid agreements. Border crossing issues are being addressed. Specialized response teams are being formed. Legislation is being enacted. Training is being conducted, and equipment is being purchased.
Within FEMA our responsibilities have been greatly expanded in light of the new challenges and circumstances sine September 11. Within FEMA we have recently realigned to establish the Office of National Preparedness at the headquarters and regional level. The creation of this office is intended to address a long recognized problem, the critical need that exists in this country for a central coordination point for the wide range of Federal programs dealing with terrorism preparedness.
The mission and overriding objective of the Office of National Preparedness at FEMA is to help this country be prepared to respond to acts of terrorism. Our effort has three main focuses: the first responder initiative, providing a central coordination point for Federal preparedness programs, and Citizen Corps.
FEMA is the lead agency for the President's first responder initiative. This effort focuses on providing the support that local responders, fire fighters, police officers, and emergency medical teams need to do their jobs and work together effectively.
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The President's proposed FY 2003 budget seeks $3.5 billion for this initiative, and our work is moving forward on developing a grants process that will give the first responder community critically needed funds to purchase equipment, train personnel, and prepare for terrorist incidents.
The funds are to be used in four areas that are key to enhancing first responder capabilities: planning, equipment, training, and exercising.
We are developing a streamlined and accountable procedure that will speed the flow of resources to first responders and assure that the funds are used effectively and appropriately.
We are currently conducting listening sessions throughout the country with first responders and emergency managers at every level to solicit their ideas on the design of the grant program in process.
In addition, we are working to resolve other issues critical to the success of this initiative. National standards for compatible interoperable equipment for first responders, a national mutual aid system, personal protective equipment for first responders that is designed for long term response operations and incidents involving weapons of mass destruction, national standards for training and exercises for incidents involving weapons of mass destruction, and other means of causing death and destruction.
In addition to the right equipment, planning capabilities, and training, first responders have been telling us that they need a single point of contact in the Federal Government. In our view it is absolutely essential that the responsibility for pulling together and coordinating the myriad of Federal programs designed to help local and state responders and emergency managers to respond to terrorism be situated in a single agency.
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FEMA is the natural place for this responsibility to rest. We have been coordinating America's response to disasters for more than 20 years. This work involves not only response activities, but preparedness, recovery, and mitigation efforts also.
Our success is based on our ability to organize and lead local state and Federal agencies, volunteer organizations, private sector groups, and first responders. Under the Federal response plan, FEMA coordinates a disaster response system that involves up to 26 Federal agencies. In the past 10 years alone, we, along with our local, state, federal, and volunteer agency partners, have handled the response to the Northridge earthquake, Hurricane Floyd, the bombing of the Murrah Building in Oklahoma City, and September 11th. We are the lead Federal agency for managing the consequences of terrorist events.
The President's budget seeks to consolidate our nation's terrorism preparedness efforts under one agency, the Federal Emergency Management Agency. The centralization of preparedness programs in FEMA will truly enhance the efforts of our nation to address the needs of homeland defense.
An important component of the preparedness effort is the ability to harness the goodwill and enthusiasm of the country's citizen. The Citizens Corps program is part of the President's new Freedom Corps initiative. This initiative brings together local government, law enforcement, educational institutions, the private sector, faith based groups, and volunteers into a cohesive community resource.
Citizen Corps is coordinated nationally by FEMA, which also provides training standards, general information and materials. We also will identify additional volunteer programs and initiatives that support the goals of the corps.
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In addition to our first responder and the Citizens Corps programs, FEMA has also implemented a number of other important related initiatives. These include a training course review. We are working on a complete accounting of all FEMA and Federal emergency and terrorism preparedness training programs and activities to submit to Congress.
As I mentioned before, mutual aid in conjunction with a first responder initiative. We are working to facilitate mutual aid arrangements within and among states so that the nationwide, local, state, tribal, federal, and volunteer response network can operate smoothly together in all possible circumstances.
A national exercise program. This national exercise program involves the establishment of annual objectives, a multi-year strategic exercise program, an integrated exercise schedule, and national corrective actions and, finally, assessments of FEMA regional office capabilities.
In conclusion, I'd like to say that the equipment, training, and people who will secure our homeland against terrorist attack will be the same resources we tap when faced by major national or technological disasters. Investment in these resources will enhance our nation's ability to respond to any emergency.
Thank you for the opportunity to testify today.
[The prepared statement of Mr. Buikema follows:]
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PREPARED STATEMENT OF EDWARD G. BUIKEMA
Introduction
Good afternoon, Mr. Chairman and Members of the Committee. I am Ed Buikema, Director of the Federal Emergency Management Agency Region V. I am pleased to be with you here today in my home state to talk about the challenges facing emergency managers and first responders to be better prepared to respond to acts of terrorism. Having served as the State Emergency Management Director with the Michigan State Police prior to my appointment with FEMA, I can offer you firsthand experience and a unique perspective of the monumental tasks ahead of us in the emergency management community.
FEMA Region V includes the states of Illinois, Indiana, Michigan, Minnesota, Ohio, and Wisconsin representing a population of approximately 51 million people, with the majority residing in urban areas. We have significant disaster activity within the Region having administered 44 Presidential Disaster Declarations within the last five years with many events impacting multiple states. While we are vulnerable to a broad range of natural and technological hazards, our greatest threats are a result of severe weather, specifically tornadoes and floods, and the potential for terrorist attack.
In 2000, three of our states ranked in the top twenty states with the highest damages from flooding. Illinois ranked 8th in the Nation at an estimated cost of 219M. Minnesota ranked 15th at 145M and Indiana ranked 18th at 113M. The three remaining states, Ohio, Wisconsin and Michigan ranked in the top forty. All six states ranked nationally in the top twenty for damages resulting from tornadoes in the same period. Minnesota was the 2nd highest in the Nation. Illinois and Indiana finished in the top ten.
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The Region V states comprise one of the Nation's major transportation corridors. Thirty-six percent (36%) of the total tons of hazardous materials shipped in the United States either originate or terminate in a Region V state. The Region is also home to 16 nuclear power plants, the Newport Army Chemical Depot, and is impacted by the New Madrid and Wabash earthquake faults. Just last week, FEMA teams completed Preliminary Damage Assessments (PDAs) in response to Presidential Disaster Declaration requests for flooding in five Michigan counties and for tornado damage in one Illinois county.
The Region takes an active role in preparing for a response to a terrorism event. FEMA's responsibility is to coordinate federal, regional, and state terrorism-related planning, training, and exercise activities. This includes supporting the Nunn-Lugar-Domenici program in which 36 Region V communities participate. We are also working with states to build response capability and keep them informed of federal initiatives as well as participating in state sponsored conferences, training, exercises, task forces, and workshops. We are hosting planning meetings on a regular basis and conducting tabletop exercises with key stakeholders at the state and federal level.
All of the states in Region V have implemented proactive and aggressive actions in response to the terrorism threats that have emerged since September 11. Many states have committed substantial amounts of staff and their own financial resources towards preparing for weapons of mass destruction events. All states have designated homeland security directors. Groundwork has been laid or accelerated to develop interstate and intrastate mutual aid agreements. Border crossing issues are being addressed. Specialized response teams are being formed. Legislation is being enacted. Training is being conducted. And, equipment is being purchased. State government has spent millions of dollars directly responding to homeland security needs and the anthrax crisis. While much has been done, we have only begun to scratch the surface of what needs to be done. We have identified many shortfalls in our Nation's ability to respond to weapons of mass destruction events. These shortfalls must be addressed. Homeland security initiatives must be sustainable and will require an ongoing commitment of Federal, state, and local resources.
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Eight months ago, several thousand people lost their lives in the terrorist attacks at the World Trade Center, the Pentagon, and when United Airlines Flight 93 crashed into a field in rural Pennsylvania. Four hundred and fifty of them were first responders who rushed to the World Trade Center in New York City—firefighters, police officers, and port authority officers. These events have transformed what was an ongoing dialogue about terrorism preparedness and first responder support into action. Since September 11, our responsibilities are greatly expanded in light of the new challenges and circumstances.
FEMA has recently realigned to establish the Office of National Preparedness at the Headquarters and Regional level. The creation of this office is intended to address a long-recognized problem—the critical need that exists in this country for a central coordination point for the wide range of federal programs dealing with terrorism preparedness.
The mission and overriding objective of the Office of National Preparedness at FEMA is to help this country be prepared to respond to acts of terrorism. Our effort has three main focuses—The First Responder Initiative; providing a central coordination point for federal preparedness programs; and, Citizen Corps.
First Responder Initiative
For many years now, emergency responders and state and local governments have been telling us that they need our help so they can be better prepared to respond to acts of terrorism. They need standardized, practical, compatible equipment that works in all possible circumstances. They need our assistance in developing response plans that take into account the new challenges this country is facing. They need to practice and refine those response plans with all possible partners at the local, state and federal level. These needs articulated by our first responders and emergency managers were brought even more into focus by our experiences in the aftermath of the September 11 attacks. The First Responder Initiative is designed to help meet these needs.
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FEMA is the lead agency for the President's First Responder Initiative. This effort focuses on providing the support that local responders—firefighters, police officers, and emergency medical teams—need to do their jobs and work together effectively. One of the most important things we learned from our experience responding to September 11 is the value of a strong, effective local response capability. Local first responders are the first ones there when there is a fire, accident, chemical spill, earthquake or flood. They are first on the scene when terrorists strike.
The President's proposed FY 2003 budget seeks $3.5 billion for this initiative and our work is moving forward on developing a grants process that will give the first responder community critically needed funds to purchase equipment, train personnel and prepare for terrorist incidents. The funds are to be used in four areas that are key to enhancing first responder capabilities:
Planning: Funds to support the development of comprehensive response plans for terrorist incidents.
Equipment: Funds to purchase equipment needed to respond effectively, including better, more inter-operable communications systems.
Training: Training for responding to terrorist incidents and in contaminated environments.
Exercises: Coordinated, regular exercise programs to improve response capabilities, practice mutual aid, and evaluate improvements and deficiencies in response operations.
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We are developing a streamlined and accountable procedure that will speed the flow of resources to first responders, and ensure that the funds are used effectively and appropriately. We are currently conducting ''listening sessions'' throughout the country with first responders and emergency managers at every level to solicit their ideas on the design of the grant program and process. In addition, we are working to resolve other issues critical to the success of this initiative:
National standards for compatible, inter-operable equipment for first responders and other emergency workers.
A national mutual aid system that allows the entire response network to work together smoothly and efficiently.
Personal protective equipment for first responders that is designed for long-term response operations and incidents involving weapons of mass destruction.
National standards for training and exercises for incidents involving weapons of mass destruction and other means of causing death and destruction.
Central Coordination—National Strategy
In addition to the right equipment, planning capabilities and training, first responders have been telling us that they need a single point of contact in the federal government. They need a single entity to take the lead in coordinating programs, developing standards, and providing resources and training to help them respond to terrorist events. This approach builds on a collaboratively developed national strategy and not just a federal one.
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We've heard this from other sources too, the Gilmore Commission, for example, has pointed out that the Federal Government's terrorism preparedness programs are ''fragmented, uncoordinated'' and ''unaccountable.'' It also has stressed the need for a single authority for state and local terrorism preparedness support. Other independent studies and commissions also have recognized the problems created by the current uncoordinated approach. In our view, it is absolutely essential that the responsibility for pulling together and coordinating the myriad of federal programs designed to help local and state responders and emergency managers to respond to terrorism be situated in a single agency.
FEMA is the natural place for this responsibility to rest. We have been coordinating America's response to disasters for more than 20 years. This work involves not only response activities, but preparedness, recovery and mitigation efforts also. Our success is based on our ability to organize and lead local, state and federal agencies; volunteer organizations; private sector groups and first responders.
Under the Federal Response Plan, FEMA coordinates a disaster response system that involves up to 26 federal agencies. In the past ten years alone, we, along with our local, state, federal and volunteer agency partners, have handled the response to the Northridge Earthquake, Hurricane Floyd, the bombing of the Murrah Building in Oklahoma City and September 11. We are the lead federal agency for managing the consequences of terrorist events.
FEMA Region V has strong ties to emergency management organizations at the state and local level, especially the fire service, search and rescue, emergency medical communities as well as state and local emergency management agencies. We routinely plan, train, exercise and work with all these partners to prepare, respond and recover from disasters of all kinds.
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The President's budget seeks to consolidate our nation's terrorism preparedness efforts under one federal agency—the Federal Emergency Management Agency. The centralization of terrorism preparedness programs in FEMA will truly enhance the efforts of our nation to address the needs of homeland defense.
Citizen Corps
An important component of the preparedness effort is the ability to harness the good will and enthusiasm of the country's citizens. The Citizens Corps program is part of the President's new Freedom Corps initiative. It builds on existing crime prevention, natural disaster preparedness and public health response networks. It initially will consist of participants in Community Emergency Response Teams (FEMA), Volunteers in Police Service, an expanded Neighborhood Watch Program, Operation TIPS (DO]) and the Medical Reserve Corps, (HHS).
The initiative brings together local government, law enforcement, educational institutions, the private sector, faith-based groups and volunteers into a cohesive community resource. Citizen Corps is coordinated nationally by FEMA, which also provides training standards, general information and materials. We also will identify additional volunteer programs and initiatives that support the goals of the Corps.
Broader Challenges
In addition to our First Responder and the Citizens Corps programs, we are implementing a number of other important, related initiatives. These include:
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Training Course Review: We are working on a complete accounting of all FEMA and federal emergency and terrorism preparedness training programs and activities to submit to Congress. The National Domestic Preparedness Office's Compendium of Federal Terrorism Training will be used as a baseline for the FEMA Report to Congress on Terrorism and Emergency Preparedness and Training. To supplement the data, we are meeting with a key players in a representative group of 10 cities to determine the effectiveness of the courses, identify unmet training needs, and examine the applicability of private sector training models.
Mutual Aid: In conjunction with the First Responder Initiative, we are working to facilitate mutual aid arrangements within and among States so the nationwide local, State, Tribal, Federal and volunteer response network can operate smoothly together in all possible circumstances. This idea is to leverage existing and new assets to the maximum extent possible; this involves resource typing for emergency teams, accreditation of individuals using standardized certifications and qualifications, and equipment and communications inter-operability.
National Exercise Program: This National Exercise Program involves the establishment of annual objectives, a multi-year strategic exercise program, an integrated exercise schedule and national corrective actions.
Assessments of FEMA Regional Office Capabilities: We are reviewing the capabilities of our Regional Offices to respond to a terrorist attack.
Conclusion
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The equipment, training, and people who will secure our homeland against terrorist attack will be the same resources we tap when faced by major natural or technological disasters. Investment in these resources will enhance our nation's ability to respond to any emergency.
Thank you for the opportunity to testify here today on the efforts of the emergency management community to be better prepared to respond to acts of terrorism and to build a better, stronger, and safer America. I will be happy to answer any questions you may have.
BIOGRAPHY FOR EDWARD G. BUIKEMA
Edward G. Buikema was appointed Regional Director of FEMA's Region V in September 2001. As Regional Director, he coordinates FEMA mitigation, preparedness, and disaster response and recovery activities in six states: Illinois, Indiana, Michigan, Minnesota, Ohio and Wisconsin.
Prior to his FEMA position, Mr. Buikema was director of the Emergency Management Division of the Michigan State Police. In this position, Mr. Buikema was responsible for the administration of the state's emergency management system and served as the state coordinating officer and governor's authorized representative for nine presidential disaster declarations. He also served as chair of the Michigan Emergency Planning and Community Right-to-Know Commission, the Michigan Hazard Mitigation Coordinating Council, Michigan's Anti-Terrorism Task Force, and the Emergency Management Accreditation Program (EMAP) interim commission. Mr. Buikema was an officer with the Michigan State Police for more than 26 years and has been active in a number of national and state associations and organizations.
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A native of Grand Rapids, Michigan, Mr. Buikema holds a bachelor of art's degree in political science from Calvin College in Grand Rapids. He is also a graduate of the FBI National Academy in Quantico, Virginia.
Discussion
Mr. SMITH. Thank you very much.
I would like also to mention that we visited Delta Township and Chief Victor Helbert showed us their implementation of a grant that was accepted in the fire grant program to go into schools and help youth better understand the kind of precautions that they should be taking in case of a natural disaster or fire.
So fire prevention has come a long ways, but in terms of where we might go with the new technology probably is unlimited. So, again, looking forward to ideas on how we might proceed.
Mr. Buikema, let me start with you as you have just finished. The three and a half billion dollars that is being suggested for preparedness for terrorist attacks, how do you visualize FEMA as the lead agency moving ahead with this?
And we are right in the midst of our appropriations process now. Is FEMA structured or coming up with recommendations on how to implement their program? What is the status of that?
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Mr. BUIKEMA. Mr. Chairman, FEMA is right in the middle of collecting input on the first responder program. In fact, they have published a notice in the Federal Register and are seeking comments from a variety of segments in the society as to how to administer this particular program.
Having said that, as I mentioned in my testimony, Director Allbaugh has created the Office of National Preparedness within FEMA to administer the first responder grant initiative and has developed some preliminary plans at this place.
Much of this is till work in progress. There has been input from a variety of sources, as I mentioned. FEMA has a long record already of providing grant funds to states, and Director Allbaugh is in the process, again, of positioning the agency so that if preparations come to the fore, as proposed by the administration, that FEMA will be able to implement the program quickly and rapidly.
Mr. SMITH. Well, please take back at least my request that FEMA provide this committee with your recommendations where whatever status or progress there might be as far as development in terms of your recommendations of how we are going to move forward with this three and a half billion because we are right in the process.
And let me just expand. FEMA's activity in dealing with fire departments has been largely through the U.S. Fire Administration. What do you envision as the role of outside agencies, certainly including the USFA, in terms of coordination of that particular program?
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Mr. BUIKEMA. Well, I think it is important that there be a central point as I mentioned in my testimony, and right now, for example, at the regional office in FEMA in Chicago, we meet on a regular basis with our Federal partners in what we call a regional interagency steering committee, and we coordinate closely various programs and initiatives.
At the Federal level, the Office of National Preparedness, which the director if Bruce Baughman, has representatives from several Federal agencies that have been assigned to work with the Office of National Preparedness on a daily basis so that, in fact, there is close communication and cooperation with other granting organizations, such as the Department of Justice and Health and Human Services, so that there is a coordination of this effort and the left and right hand understand what each other are doing.
I think that is a benefit of the Office of National Preparedness.
Mr. SMITH. But you are including USFA as part of that coordination?
Mr. BUIKEMA. Yes, sir.
Mr. SMITH. Chief Cribley, you mentioned the separation. Well, in terms of the grants, let's call it maintenance of effort. So that a municipality does not shortchange the fire department 1 year so that the fire department can say, ''Boy, do we really need a grant this year.''
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So there needs to be something, it would seem to me, in terms of maintenance of effort or at least that a fire department that is not discriminated against simply because they have been giving a high priority to the fire fighting effort as opposed to road building or some other expenditure in the township.
Do you want to expand on that?
Mr. CRIBLEY. Well, I believe that it is important when we look at these two different grant programs that we remember what the original purpose of the Fire Act grant was, and that is to try to bring all of our fire departments up to an appropriate level by today's standards to deal with what they deal with every day.
And while they deal in some percentage with preparedness for weapons of mass destruction terrorism incidents, that is not what they do most of the time. They have much else that they do.
And I think there are actually two separate things. And I am concerned that we will lose the focus on the day-to-day operations of fire and emergency services if we confuse the issues of terrorism and the day-to-day operation.
Most of what fire departments do has nothing to do with terrorism, although when terrorism happens, we are certainly on the front lines of it.
Mr. SMITH. Yes, and just for the record, H.R. 4548 is legislation that makes it very clear that the fire grant program is going to continue as a separate and distinct entity.
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But specifically on maintenance of effort, right now need is one of the criteria that we have directed the USFA to consider in terms of granting awards, but I think I would like your reaction or anybody's reaction in terms of the maintenance of effort.
It seems like if some township or municipality has given a priority to fire fighting as far as a priority in their budget, that they should not be discriminated against.
Mr. CRIBLEY. That is exactly why we did not apply the first year and why we do not believe that we will get any money this year. Our township is, as I said, a township of 7,300 people who are largely residential. There are four full-time employees in the entire township government, all four of them are fire fighter paramedics and work directly for me and our department.
The township spends most of its general fund tax dollars on fire and emergency services. We do not have any township parks to speak of. There is not much else happening. And because of that, when we compare ourselves on the scoring system and the grant process, our emergency services look really good.
Now, that is because of a firm commitment in our community. Another community could take all of that money and put it into roads or parks or other things, and that would make them, even though they did not put forward an effort to make sure that their emergency services were properly provided for; it would put them much higher than somebody who was actually trying to do the right thing.
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Mr. SMITH. Yes, we did put language that we will review and consider and debate in 4548 that says in allocating funds under the fire grant program the administrator shall not discriminate against an applicant whose funding jurisdiction places a high budget priority on fire department needs.
So there needs to be some consideration on that maintenance of effort.
Mr. CRIBLEY. Yes, I believe that is very important.
Mr. SMITH. Chief Hausman, you mentioned in your testimony that your department was designated as a regional response team, for instance, involving weapons of mass destruction, and that the training for this team remains unfunded. Help me understand; help us understand. Who is requiring this training, FEMA, State of Michigan, someone else?
And what will you do if you do not receive the first responder grant or local funding?
Mr. HAUSMAN. We were designated by the State of Michigan as one of the regional teams. We have received Federal money for equipment. Currently there is no money set aside for training in overtime costs that the city encounters through this.
I think it is important that when they set up a regional team like this and they have these efforts, that the city themselves should not have to fund the overtime and the training for this is a regional development.
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Mr. SMITH. So what is the State of Michigan doing in terms of helping with funding?
Mr. HAUSMAN. Currently nothing. I mean, there is some training. Right at the present time it is all equipment and nothing for mandated training.
Mr. SMITH. Representative Johnson.
Ms. JOHNSON. Thank you very much, Mr. Chairman.
Mr. Buikema, I hope you do not think we are picking on you, but I have these questions on this policy.
What will be the role of the Fire Administration in administering the fire grants program following the current round of proposals? And does FEMA intend to change the nature of the program?
Mr. BUIKEMA. You would like for me to speak for Mr. Paulison, I think, Representative Johnson.
Ms. JOHNSON. Take whatever responsibility you want to.
Mr. BUIKEMA. Okay. I know that the Fire Administration which, of course, is part of FEMA, is very much interested in monitoring the grants. In fact, there has been discussion, although nothing is final to my knowledge, about providing at least one staff person per every FEMA regional office to follow up and work with successful applicants in the states in the specific region.
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Now, for example, in Region V, in 2001, there were 277 total grants that were awarded, and in terms of follow-up and to make sure that there is some accountability, the Fire Administration is very much interested in providing staff support to do that very thing.
Again, with the proposed or with the $360 million, I know Administrator Paulison is very much interested in having an efficient and effective program and having, again, a comprehensive peer review process, and to my knowledge, he wants to continue that process which to my knowledge, again, has been very successful thus far.
Ms. JOHNSON. And so you would just enhance what you have and not make a major change.
Mr. BUIKEMA. That is correct.
Ms. JOHNSON. I would like the other panelists to comment on whether or not the type of perception of value of the fire grants program and whether you think it is being administered effectively.
Mr. CRIBLEY. If I may, I do believe it has been administered effectively. I think that the on-line application is very good. I know there were some problems with it, but I think the fact that there only ended up being like 50 out of 19,000 that were on paper or something like that.
Now, the response, the assistance we have received to questions, I coordinated several workshops around the State of Michigan that were presented by FEMA to assist fire departments, and I have never found any shortage of willingness to call back and provide us with information or answer questions.
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Overall I think it is a very good program and a very effective program, and I think that some relatively minor tuning up will make it just even that much better.
Mr. HAUSMAN. Being the recipient of a grant, I guess I could have nothing negative to say about the program. I think it is unfortunate that the need is so great throughout the fire service, and I think it is going to be many years before the fire service catches up to where it should be, but I have no criticism of the program at all.
Ms. JOHNSON. Mr. Buikema, could you describe how the Fire Academy is making use of distance learning technologies, including the Internet for delivery of the Fire Academy's training programs?
And what portion of your budget is developed to these activities?
Mr. BUIKEMA. Well, I am sorry, Representative Johnson. I do not have first-hand knowledge of that information. I do know that the National Emergency Training Center, which combines both the National Fire Academy and the Emergency Management Institute is very much interested in looking at technology to reach a broader audience. I know that they are at that level interested in bringing together closer the emergency management community and the fire service community organizationally. They have a number of training courses where representatives, again, from a variety of organizations train together to understand each other's roles and responsibilities and are aggressively trying to tap into distance learning technologies to provide these opportunities nationally.
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Ms. JOHNSON. Do you see that as being ultimately more cost effective than having each of the firemen come to the academy?
Mr. BUIKEMA. Well, again, I do not have first-hand information on analysis of the information. I think it is a took that the U.S. Fire Administration wants to use. Certainly there is a variety of ways to provide training, both hands on training as well as training that can be done distance learning-wise, and depending on the course and the subject matter, it can be very effective.
Ms. JOHNSON. There are a number of technologies that are available, rather costly, but would probably save a number of lives, and I wondered what is the saturation. Do you know whether or not fire departments are using it?
I know they have got the infrared that would allow a fireman to see some things in the dark and other warnings. Do you know whether the fire departments have taken advantage of much of this technology?
Mr. BUIKEMA. I do not know specifically. Perhaps my two counterparts down there could speak to that.
Mr. HAUSMAN. As far as infrared technology, the infrared cameras, Councilman Coney was very fortunate they are taking advantage of that technology. The Battle Creek Board of Realtors started a fund raising project about two years ago and purchased a camera for all 22 fire departments in Calhoun County.
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I do not know if that is widespread throughout the country or not, but we have been very fortunate in our area.
Ms. JOHNSON. There are so many—my time is up. Let me just finish this one question.
It has been predicted that many lives can be saved especially of our firemen if they have access to this kind of technology when they go on the scenes for major fires and enter into large structures.
Mr. HAUSMAN. I firmly believe that there is great life savings for fire fighters, but as well as citizens. You know, search and rescue in the past has just been a tough way for fire fighters to go because everything is by feel, but now the time you are going to be able to save by being able to step into a room and scan that room and go directly to that citizen is a great enhancement to the fire service.
Mr. SMITH. Go ahead.
Ms. JOHNSON. Just yesterday in my part of Texas, the Nora, Texas area, which is not in Dallas County at all, there was an old jail that somehow caught fire, and they still had individual cells where they had to unlock them one at a time, and they became overcome with smoke before they could get the last eight doors open, and so eight of the inmates perished.
Do you know whether or not there are structures still that primitive other places or how prevalent it is?
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Because it is very difficult for staff or firemen to unlock individual doors with these keys instead of maybe some other kind of technologies, and it is usually rather common with smaller municipalities or locations where you also have a lot of volunteer firemen.
Do you see that improving any?
Mr. HAUSMAN. I would like to defer that to my counterpart.
Mr. CRIBLEY. Okay. Under new national standards I do not believe that you would be able to build a facility like that and require remote unlocking and alarms and that type of thing.
Unfortunately the problem with standards is that as they come out and they provide a higher level of safety, they are generally not retroactive in many cases. And so I would expect that what was experienced in your state, sadly so, could happen other places.
Ms. JOHNSON. Thank you, Mr. Chair.
Mr. SMITH. How do we improve the grant application process?
Of the people in the audience, how many work for a fire department that applied for a grant? Can I see your hands?
How many of those sought outside help in writing that grant? Would you know? Can I see your hands that sought outside help?
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I have had several concerns expressed about the very local, rural fire departments feeling that they have to pay for outside help in writing that grant if they were going to have any chance of being successful, and somehow we want to develop the language and the rules and the precedents so that you give the facts as plainly as you can, but sophistication of grant writing not be the way that you judge the merits of any grant proposals.
And so maybe I will ask our two chiefs your reaction to that.
Mr. CRIBLEY. If I might, Mr. Chairman, as I said, our office coordinated six informational sessions that were actually taught by a representative of Mr. Buikema's staff. Those were haled throughout the State of Michigan and were very, very well attended.
One of the key points that the presenter stressed at least in the three I attended and the other three that I believe took place also was that he said, ''Do not hire anybody to write this. Because it is a peer review process. The people that will review these grants understand how you think and how you speak and how you write. Just put down what you want to do. Just answer the questions. Just explain it, and we will overlook things like grammar, and if we have a question if we do not understand, we will call you.''
So I think that the process, at least as it was represented in our state is very understanding of that concern, and it was represented by the FEMA representatives, ''Don't worry about that. Just tell us what you want to do.'' And I think that message was fairly well received.
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There are several of my friends out here that I think will validate that that was very much expressed, and I think that is a very good thing and a very good way for them to do business.
Mr. SMITH. Try to minimize the swear words and just put it into plain language?
Mr. CRIBLEY. Well, yes, I think they would understand.
Well, it is peer review. So they probably understand that, too
Mr. SMITH. Let me ask another question to follow up on Representative Johnson's query. In terms of greater effectiveness of the training programs that the U.S. Fire Administration does, but more than just the new technology to transmit remote learning opportunities, a question.
Chief Hausman, you mentioned there should be more offerings for some of those courses that are in high demand. Should there also be a greater effort of holding these training sessions regionally as opposed to having them at the U.S. Fire Academy? Is that a problem? Should we push to have a greater expansion of remote training by the U.S. Fire Administration rather than going there?
Mr. HAUSMAN. In my opinion, it is a serious problem. You can only send so many people there. They only accept so many people, and it is very difficult for it to really be a small department or a large department for transportation costs and everything that is associated with sending somebody away for a period of time.
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Whereas if there was regional training in the State of Michigan and more programs brought here, I think the program would be greatly enhanced.
Mr. SMITH. Should we make it clear as we write the fire grant program and open up the possibility that multiple municipalities and departments could work together in making an application for some things that are maybe more regional?
I am coming back now to the grant program. Is there some efforts in the grant program that would have a greater advantage if they were regional as opposed to individual municipalities?
Mr. HAUSMAN. When it comes to training and training facilities, yes. There is a great need in many areas for training facilities as well as training. If you could do that by counties, it would enhance the programs.
Mr. SMITH. Chief Cribley, any comments?
Mr. CRIBLEY. I agree also. I think that the Fire Service, as I said in my testimony, needs to move forward toward the regional concept in every area, whether it is grant funding, training. Then you would not have a regional response team that was funded and maintained by one community. It would be funded and maintained by all of the communities involved equally and hopefully that would work out better.
Mr. SMITH. Did you have a comment, Director Buikema?
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Mr. BUIKEMA. I was just going to say I have heard that suggestion, Mr. Chairman, made as well by some fire representatives recently in the State of Illinois who were very much a proponent for what you suggested, in other words, a regional application, if you will, because as Chief Cribley just mentioned, certainly the emphasis is on mutual aid, standardized incident management, folks helping each other across geographic lines, and again, that sentiment has been expressed to me very recently along the lines that Chief Cribley just said as well.
Mr. SMITH. A question in terms of the adequacy of training requirements as opposed to the problem that it presents especially to volunteers in terms of the additional training.
Well, let's start out with your former experience in the State of Michigan. Did you see, are you seeing a problem, a more difficult problem of recruiting volunteers with the additional training requirements? And what is the balance between having a professional, qualified fire fighter and driving some of those individuals out because of the tremendous time that has to be contributed?
Mr. BUIKEMA. Well, there is a balance necessary there. Certainly if the facts are correct, there is something like 30,000 fire fighters in the State of Michigan, and the vast majority of those are folks in the volunteer arena.
And the training requirements have continued to grow, specifically on the side of hazardous materials. For example, since OSHA has implemented some training rules and, again, it has been expressed to me from time to time about the difficulty of attracting qualified volunteers who have the opportunity and the time to avail themselves of the training.
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And I am sure that the Fire Fighters Training Council here in Michigan has striven to come up with innovative ways of getting training on weekends and evenings and the like. When I worked for the State of Michigan we also in the Emergency Management Division administered the Hazardous Materials Training Center, which is located adjacent to the State Police Academy, and we would work closely with the Fire Fighters Training Council in delivering programs, identifying programs which were for the most part advanced programs.
Some were a week or two weeks in length, and even at that we recognized that we had to be innovative in providing opportunities across the state, not just at the HAZMAT Training Center, but bringing them out in some cases to departments so that they could avail themselves of these opportunities sometimes on a modular basis.
And, again, I know Chief Cribley works for the Fire Marshal's Division and probably could speak further on that.
Mr. SMITH. Your comments, Chief Cribley, and then Chief Hausman.
Mr. CRIBLEY. There is no question that time is a problem with training today, but the thing that is driving that is that the job is much more technical. When Benjamin Franklin started this business in our country a couple hundred years ago, they hauled water in buckets. They did not wear turnout gear, and they made sure chimneys were cleaned, and that was about it.
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It is a lot more technical today. Training takes a lot more time, and we cannot not train to do a job just because we do not have the time. We need to either go to those volunteers that only do one or two or three things or go to career people to do that. We cannot use lack of time as an excuse, if you will, or lack of being able to do the job safely and effectively.
Mr. SMITH. Chief Hausman.
Mr. HAUSMAN. Well, I feel very fortunate I do not have the volunteer problem, but training is also an issue in a full-time career department. We have currently two training officers for a staff of 100 people, and with the mandates that we have, you know, we are stretched with two training officers.
And there are more mandates put on us, and the fire service is more complex than it ever way, and training is a critical component to the fire service today.
Mr. SMITH. Help me understand the requirements. How much variation between states would there be? I mean, I am somewhat familiar with Michigan and the Level 2 for fire fighters. I think they have to accomplish a Level 1 within 1 year. Is it a Level 2 within two years?
Mr. CRIBLEY. Paid on-call must achieve Fire Fighter 1 within two years of the date of employment. Full-time career people must be Fire Fighter 1 and 2 within one year.
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Now, the problem with that is that that just talks about the basic fire fighter training. Then if you want them to do EMS, that is additional. If you want to do confined space, that is additional. HAZMAT is additional.
There are a whole lot of additional things. It is not just the basic Fire Fighter 1 and 2 curriculum that is the problem, if you will.
As public expectation of what the fire service does increases, people watch it on television and they assume that all of our people are paramedics, are all trained in technical rescue and all of these other things. The public expectation drives part of it. Safety drives part of it.
Just the expanded technology of the job that fire fighters are expected to do in the state is part of it.
Mr. SMITH. In your department, what percentage of your fire fighters are EMS trained?
Mr. CRIBLEY. About 80 percent.
Mr. SMITH. And Chief Hausman?
Mr. HAUSMAN. One hundred percent.
Mr. SMITH. And, Director Buikema, would that be somewhat your guess on the average for the State of Michigan?
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Mr. BUIKEMA. That is what it would be, a guess, but I believe that is correct, yes, sir.
Mr. SMITH. Representative Johnson.
Ms. JOHNSON. Thank you very much.
Every study and every statistic indicate that the person most at risk during a fire are those in low income areas and the elderly that have all of these bars on the windows. How are the grants targeted to address that problem, which is the major problem in the U.S. for life savings.
Mr. BUIKEMA. I am sorry. I was not prepared to testify on the fire grant today, Representative Johnson. I do not have that information. I am sorry.
Mr. SMITH. Chief, do you have an impression?
Mr. CRIBLEY. I do not think that the competitive portion of the grants recognizes that anywhere, does it?
Mr. HAUSMAN. Not to my knowledge.
Mr. CRIBLEY. However, the noncompetitive fire prevention grant portion of it does talk about fire prevention activities that would target the very young and the very old. That's $10 million, I believe, of the $360 million.
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Does that sound right?
Mr. HAUSMAN. Yes, that is correct.
Mr. CRIBLEY. That is the only place where that is really recognized, and I, too, believe that——
Ms. JOHNSON. But the fact is that that is where the fires occur, where lives are lost, and I just wonder about the initiative of the local fire departments getting funds designated to try to address the problem of savings lives.
Mr. CRIBLEY. I do not believe that the fire grant recognizes that, but I believe that a study would find it correct.
Ms. JOHNSON. Do you recognize it? I mean the fire department.
Mr. CRIBLEY. Yes. In fact, the State of Michigan public education program targets the very young and the very elderly first and then we are trying to build a fire safe generation through our safe-at-home public education program.
Ms. JOHNSON. What do you do with the very young? Most of the time they are kids under ten.
Mr. CRIBLEY. We have established a program in the State of Michigan speaking from the State Fire Marshal's Office, and it has been implemented in my community that our people spend at least an hour a month in every classroom in the school, starting from pre-kindergarten, and just the presence and a concerted, repetitive message we are hopeful will help. I do not know how as to address the problem.
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We cannot do code enforcement in those homes as much as we would like to because we do not have the resources, and society will not tolerate that type of intrusion. So I believe that education is really the only way to attack that problem.
Ms. JOHNSON. On code enforcement, do you work with your local enforcement agencies?
Mr. CRIBLEY. Most fire departments in this state do not do any code enforcement. When I say most, I am talking about the smaller communities. They have neither the expertise nor the time, and they would not be in the one and two-family dwellings anyway.
Ms. JOHNSON. Okay. Because in my home town we give out smoke detectors.
Mr. CRIBLEY. Oh, yes. I would say probably more departments do than do not do that in this state, and they do public education as they can at community events and things like that. That is done.
Ms. JOHNSON. And how much does that cost? I mean does that put any burden on your budget?
Mr. CRIBLEY. Sure, it does. It absolutely does. It puts burden on the time that volunteers and paid on-call have to attend. It puts burden on what full-time staff can be spared to go and do that instead of their day-to-day response business.
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Most fire departments are career today and have enough people to respond to calls, and if anything gets short changed it's that public education effort. I dare say that even the chiefs that are here today that have designated public education or fire prevention inspection people would really like to have more, but their community respects that whenever the alarm sounds they adequately staff their fire trucks.
So they have to do that first. That is that public expectation. If they can go beyond that, that is great, but I dare say that none of them go beyond that to the level that they would like to do or feel that would really be appropriate. They just have to put out the fires. They really cannot get a handle on preventing the fires.
Ms. JOHNSON. The way that structures are built can deter some of the fires, and I wonder about any type of movement toward local requirements that materials that would be more effective in preventing more damage can be used in new structures.
Mr. CRIBLEY. Michigan is a mini/maxi state. The state construction code specifies the minimum and the maximum that's allowable. Local officials have precious little latitude to require additional fire prevention safety things like sprinklers and so forth.
Ms. JOHNSON. Don't come to Texas. We have got it all.
[Laughter.]
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Ms. JOHNSON. Thank you, Mr. Chairman.
Mr. SMITH. Well, let's follow up on Mr. Hausman. In terms of the smoke detectors, what is the status of your smoke detector project and will you have any follow-up, any tracking to assess the, if you will, success of that program?
Everybody should know that money is becoming more scarce in Washington. So the prioritization of funding and where that limited amount of money goes is a greater challenge, and it seems to me that if we are going to convince our colleagues in Washington to justify this program as opposed to the many alternatives where the money could go, then there needs to be some kind of a follow-up.
How successful is the program in Delta Township with Chief Helbert? How successful in terms of an assessment? Do you plan any assessment? Should we require some kind of assessment evaluation in terms of the progress or the advantages from these grants?
You can start with what is the status.
Mr. HAUSMAN. the status of the program right now is we had to raise $233,000 matching money for a grant. Currently we have raised $130,000 matching money. We probably within the next 30 to 60 days will have raised the other $100,000. The general fund budget just did not have that kind of matching money, but we will raise the money and implement the detector program.
As far as tracking, we currently do track good stats as far as people who have smoke detectors where we have structure fires, and in the future we will definitely be monitoring the system and tracking what this has done for the community.
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Mr. SMITH. Just to follow up, should we have some kind of a tracking or results evaluation and ask every department that has a grant to somehow give us some follow-up two years later or a year later or something?
I do not know how you write it or how you totally evaluate it. Some of these grants you are not going to see the results maybe for five years or something, but we need something somehow to get an assessment.
Mr. HAUSMAN. I think that accountability through this grant process is very critical. It allows some kind of accountability in knowing this is working. I do not know that this program is going to be supported long term.
Mr. SMITH. Did you have additional questions?
Ms. JOHNSON. No, Mr. Chairman.
Mr. SMITH. I am going to ask each of our witnesses to give us maybe a wrap-up of one or two minutes of anything of answers to whatever we did not ask that we should have asked in terms of your recommendation from the fire grant program for the greater effectiveness of the U.S. Fire Administration in helping local fire departments.
And that is sort of the comment that I would like the audience to relate to to some extent on your 60 second evaluation of the program. So we will start with the panel first.
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Any other additional comments you would like to pass on to Congress?
Mr. CRIBLEY. I do not have anything further at this time. I believe they have all been said, and I will give my two or three minutes to one of these guys out here.
Mr. SMITH. Okay. Chief Hausman?
Mr. HAUSMAN. I have nothing further, Mr. Chairman. Just that I would like to thank you for the opportunity today.
Mr. SMITH. You are welcome. Thank you.
Director Buikema?
Mr. BUIKEMA. Mr. Chairman, again I appreciate the opportunity to be here, and I am sorry that Mr. Paulison, Administrator Paulison could not be here to speak about the Fire Administration directly from his position.
I know that he is very much interested in providing a system and a structure to assist on a timely basis the fire service in the United States. His background serves as a nice bridge between the fire service and emergency management in general because he, in fact, was the Fire Chief in Metro Dade, as well as the emergency manager of the county. So he understands the need for cooperation and coordination of such things as mutual aid and regional planning, and I believe that he will provide strong leadership in that position and be very responsive to the needs of the fire services in the United States.
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Mr. SMITH. And we will have him in if nothing else into a private session, Eddie Bernice, in terms of getting his answers and suggestions and input.
Let me deviate and allow me, which will go on the record, I Guess, to introduce my wife and my granddaughter Claire. So, Bonnie and Claire, if you will stand up.
[Applause.]
Mr. SMITH. And Mr. Mike, do you have a microphone that we can start going around the audience? Start right in the back row and then work your way up front with anybody that would like to add a comment or recommendation that we can consider and that will be part of the record.
And if you will give your name and your affiliation for the record.
Mr. CHERRETTE. Is this on? Can everybody hear me?
Dave Cherrette, Augusta Township Fire Department out of Washtenaw County. I am also on the executive board for Washtenaw County Mutual Aid Association.
I would like to say that this grant proposal is a great idea. It needs a lot of help, as much as we can get out there.
My community covers 36 square miles, a population of a little over 5,000. I do have a major railroad that comes through my community; also have a consolidated school district that has about 6,000 students during the day. My department has 25 people on call, fire fighters.
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So we are lacking in funds because we do not have the tag space to provide the support that we have, but I would like to say that you are doing a good job, and thank you.
Mr. SMITH. Thank you.
Mr. GODLEWSKI. My name is Casey Godlewski, Fire Department, and thank you for giving me the opportunity to speak here for a moment.
I have to concur with the members of the panel as far as the regionalization especially for training. We can all use that. I have been involved with an advisory group at Lansing Community College here where we suggested the same idea in the area of a training facility, and they are taking it under consideration.
But I also would like to speak on the grant issue as far as with 19,000 fire departments applying for what money was available, unfortunately there had to be some winners and some losers. So we are going to try again. We are going to keep trying.
And we appreciate your support in even starting a fire grant program.
Thank you.
Mr. SMITH. Just to reinforce your comment, four percent of the grants were accepted, and so a tremendous need out there compared to the funding that went in. We substantially increased the grant funding from a million to 350 million. It has got an authorization that we put in of 900 million, and we hope to have an additional grant funding for the 2003 fiscal year rather than assuming that the 2002 was going to strictly be used for the 2003.
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Mr. SWITZER. Murray Switzer, with Township Public Safety.
I am Vice Chair of the Michigan Municipal Risk Management Authority, Fire and EMS Policy Committee. Risk management authority in Michigan insures 80 percent of all of the communities within the state.
Our policies are four.
Number one, loss of the municipality and to insure that there is not a loss with regulation. It is quite obvious that regulations are brought about by poor management, but the objective of the committee is to make sure that we assist management in becoming proficient so that loss does not occur.
Many things that I have heard here today, whether it become regionalization, the need for that is really in fire fighting the training has never been in the academic surroundings, both within the municipal fire fighting agency. There is a need to bring that within the academic surroundings, such as community colleges.
Law enforcement went to this method years ago. Therefore, our training is very professional.
As far as the avocation for equipment under the grant, they are user friendly. I totally agree with the concept of the cost sharing, the co-op in sharing the funds, mostly because when you look at those under the authority with insurance, they are like everybody else, and they have none.
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The 10 percent/30 percent Health Port, they have none, and I compliment whoever ended up coming across with a cost sharing plan, and most of all I compliment the authors of this bill getting it through and once again getting the appropriations.
Thank you.
Mr. SCRIMGER. George Scrimger with Michigan State Fireman's Association. I am also a member of the local township fire department. It is a small rural fire department, and we have a lot of concerns.
Number one, the fire training classes we use in the State of Michigan, the state association puts on several classes to help train fire fighters throughout the state. There is not enough of them. We are only allotted so many per year, and more parts of the state use them.
As far as this grant goes, there are some problems in the way some of the things can be used. We would like to see separation kept so that the fire service would take a shot at keeping it separate from the terrorism program. We believe that the terrorism program is appropriate, but there are some things that we need in that.
Monitoring equipment for local fire departments, it is a neat thing that is not out there. A lot of fire departments do not have it, and they need something more than what is out there if they do respond because, as you say, they will be some of the first people on scene.
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Along with that, if they are going to get the equipment, you need to have some training. That is another thing that is lacking in the grant program and they are giving in the fire grant. We allow for some money, but we do not allow for any training.
Our local county got some money for weapons of mass destruction. However, none of it could be used for training, and that's really what you need to do first. You need to learn how to do things before you get the tools to use them because if you have the tools and do not know how to use them, you do not have anything. So I am a real believer in having that.
As far as the National Fire Academy does, some things they have are very helpful. The Learning Resource Center, it is a source where fire people get on line and get some information on different subjects. It works very well. If any of you have ever used it, it is really a good tool. I would like to see that kept up, as well as the publications that the National Fire Academy makes available at no cost to fire departments. Those are also very good tools that can help prepare programs for local presentations within our jurisdiction.
And then here again is another subject. The county-wide basis, that is how we do training under my county. We have a local fire association. They put our training on. We would like to be able to put a grant in to enhance our training. We come from basically a rural type county, becoming kind of a suburb type county, but we could use some help with this training center we have that we pretty much go for all hands.
So any help we could get in that way would help us greatly.
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Another little thing, recruitment. We could use some help with that. One of the things that would help is if we could get some help with the National Volunteer Fire Council in their 1-800 fire line. It is a program that they have got out that if you call this number anywhere in the United States that provides it, they will pass that number on to the local fire department.
Our problem is we have no money to fund the advertisement to let people even know that the program exists in the state, and it has been there for a few years and we cannot afford to let people know it exists.
Mr. SMITH. Just a quick reaction, and you can pick this up if you go to the Library of Congress Web site and punch in the House of Representatives. H.R. 4548 is the bill that we are looking at that, number one, makes a distinct separation that the fire grant program is going to be separate from the terrorist training effort program.
But secondly, we did include under (3) to include funding to enable training. So we have expanded it to allow for the inclusion of certain training as far as the competitive grant system.
Mr. BURTON. I am Mike Burton, the Fire City in the City of Grand Rapids, and I would like to thank you for this opportunity to share some thoughts today.
I want to add to my colleagues on the need for training dollars and training resources. You heard quite clearly that in the volunteer community that is a considerable challenge, and I take no issue with that. The urban setting is just as big of a challenge, and we face enormous capacity issues which each of the new tasks have taken on over the years comes with a sizable training commitment, and we struggle greatly to keep up with that commitment, let alone adding new duties on for terrorism and weapons of mass destruction.
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So we ask for your assistance there. It is to the point where we need overtime dollars, and I know those are not easy to fund through grant processes, but that is what we need.
It was very well put that the public expectation of the local fire department has grown immensely over the years. The public has high expectations. We constantly strive to deliver and exceed those high expectations, but it does take resources.
With many of the grants that come along, they fund equipment quite nicely. That is a one time funding mechanism for the equipment, but these training costs go on year after year, particularly in skills that we do not have great opportunity to apply. Maintaining those skills becomes very a important issue.
And I also would like to add support for the regional training sites. We have pockets throughout this state, through every state where a regional training site is. Please consider the value that they bring to not only the fire service, but to all responders for emergency management, be it our law enforcement brothers and sisters, our local military, public works.
Whatever the cause may be, we need regional training sites that will enable us to be better prepared on a larger basis.
Thank you.
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Mr. SMITH. Chief, thank you.
Mr. GAISER. I am Ken Gaiser, Fire Chief, Jackson, Michigan.
And sitting here today I have heard a lot of comments, and a lot of things have gone through my mind. I have taken a lot of notes, and many of the things have already been said. By no way can I ever bring forth all of the things that have gone through my head.
I would like to, first of all, direct my comments at an opportunity that I believe is to have the U.S. Fire Administration to become more effective for the first responders, and I would just for a minute like to mention the American document, ''The Nation's Fire Prevention and Control,'' from 1974. Chapter 3 is entitled ''Are There Other Ways?'' and Chapter 3 is something that for many years, I expect for the last 25 years actually I have been challenged with are there other ways.
And I would like to address my thoughts and how I believe that the Federal Government and the U.S. Fire Administration can help all of us, and that is by intensifying and continuing its leadership role in the advancement of residential sprinklers throughout the nation.
We know and have known for a long time that the vast majority of people that die by fire in the United States die in their own home, and it is these same family dwellings and the manufactured homes is where these deaths occur.
As a success story that ''Is America Burning'' has told in the last 30 years, ''Is America Burning'' first suggested that we should consider purchasing and installing smoke detectors.
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I remember a time when there were fire chiefs that would not even recommend putting smoke detectors in for fear of litigation should one of them fail. Today we have gone from 12,000 fire deaths a year down to less than 4,000 deaths per year, and I believe that is a success story, and it is primarily because of the use of technology, smoke detector technology.
Residential sprinklers have been well known and understood for many years. Today a very small percentage of the home are protected by residential sprinklers. It is my honest belief that if we put residential sprinklers in all of the homes in America we could eradicate the loss of life significantly reduce the loss of property, allow fire departments to operate in better working environments, respond further and longer and still make a difference.
This is a big challenge that I am suggesting, putting sprinkler heads in every home in America, but I do believe that it is a challenge that we can as a nation accomplish. It is probably no bigger challenge than building an atom bomb or reaching the moon. Id o believe it is doable.
I encourage Congress through the U.S. Fire Administration to fund initiatives to accomplish putting sprinklers in all homes in America, starting with manufactured homes first.
A manufactured home has the distinct advantage that all homes in America that are built in factories are built under one federally controlled set of specifications which is developed by HUD and enforced by HUD. They are currently putting one fourth of the new homes of America—are manufactured homes.
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If we will take the same approach that the automobile industry used with air bags, we can begin putting sprinklers in mobile homes when they roll off the assembly line. Those homes will go all over the United States. They will be lived in by people that disproportionately suffer by fire, the very young and the very old, and they will in those homes, if protected, make a difference for us.
With that there is not anything else I can say.
Thank you.
Mr. SMITH. Chief, thank you very much. We will pursue.
Do you have any analysis of costs? If you have not, we will meet with you later and we will review cost, and we will have an examination of the cost effectiveness.
Mr. GRUTZA. Hello, sir. My name is Joe Grutza. I am the Fire Chief from the City of Trenton. I am also the President of the Southeastern Michigan Fire Chiefs Association.
My comments will go to the upcoming hopefully first responder program. Just a few suggestions that I have is that there is a real need a lead time so that we can effectively plan our spending. It is expensive when we go with Chief Cribley's suggestion on regionalization. There is going to be a need for cooperation between the fire service and law enforcement in this kind of issue, and I think that is something that will take time in some areas.
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And I guess my message will be the first in should not be the policy. I believe that the policy should be based on the region's ability to provide the maximum protection per citizen per dollar spent, along with the region's location and the hazard.
Those are just my comments. Thank you.
Mr. SMITH. Very good. Thank you.
Mr. SAUER. My name is Bob Sauer of the Michigan State Police, Emergency Management Division, Homeland Security Section.
Echoing my background before coming to the State Police, it was strictly from fire for 27 year, and I would like to back up much of what we have heard about training, the need for U.S. Fire Administration and its leadership and guidance on how we approach things in the future in the fire service and what types of courses and standardizing those types of courses.
One thing that I see from my particular seat in my office here is that there is such a wide range of courses that are being provided not only from the Department of Energy, from FEMA, from the Department of Justice, from the Department of Defense covering a wide gamut of weapons of mass destruction in the type of courses.
And what causes some confusion in a number of different areas, a incident command course in WMD, if it's an operations course in WMD, a technician course in WMD, we need a one stop shop. We need somebody with their arms and their hands around all of these different entities at the Federal level. Who all is doing this training that we can standardize the types of training that are going on?
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If it's Chief Hausman's people at Battle Creek, if they do a FEMA course, a technician WMD, is that the same course that Chief Cribley's people are getting that they're getting through the Department of Energy, or that Chief Ball's people are getting it from the International Association of Fire Fighters?
You know, there needs to be some standardization of training that we are doing because right now I think there is a good intent that we are saturating, you know. We have good training out there, at whatever cost and market that we can, but we are lacking some standardization here.
The criteria, the implementation phase of it is just not standardized across the country, and furthermore, on a one stop shop, it is a matter of there are a number of different agencies, but I think the U.S. Fire Administration and the National Fire Academy and Emergency Management Institute could really step up to the plate with like leadership in providing an avenue to provide different types of things, be it equipment testing, be it standardization in protocols, be it emergency management planning.
I think that one stop shopping is within FEMA. I think there is a great deal of effort made by a number of other Federal agencies that are all trained to do good things, but I think as far as the National Fire Academy, in particular, the U.S. Fire Administration have been doing for a long time.
I think there is history there, and I think there is validity in what they have done. I think there they have tested and they need to set some standards there that I think we would hate to lose by other agencies, that then you are ill prepared to take on the challenge.
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Mr. SMITH. Anyone else?
[No response.]
Mr. SMITH. If not, we thank our witnesses. We thank everybody today for attending.
Without objection, the testimony for this hearing will remain open for an additional five business days for any additional comments or questions, with your permission that we did not ask, and we will be contacting Mr. Paulison for responses to some of the questions that Representative Johnson and I had for him.
[Whereupon, at 3:10 p.m., the Subcommittee was adjourned.]
Appendix 1:
Additional Statement
PREPARED STATEMENT OF R. DAVID PAULISON
Administrator, United States Fire Administration, Federal Emergency Management Agency
Good afternoon, Mr. Chairman and Members of the Committee. My name is R. David Paulison, and I am the Administrator, of the U.S. Fire Administration (USFA). I appreciate the opportunity to appear before you today on behalf of the Director of the Federal Emergency Management Agency (FEMA), Joe Allbaugh. We are here today to discuss the United States Fire Administration, its programs and services and how to improve the preparedness, effectiveness, and safety of our first responders. We will work together for the good of the fire service and the public they serve.
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The events of September 11th impressed upon our Nation the critical work of our fire services. A service that was once taken for granted is now viewed as an essential component of the public safety equation. On September 11, the fire departments of the City of New York, the City of Arlington, VA and Shanksville, PA responded in urban, suburban, and rural communities of our country. Perhaps for the first time, the nation witnessed on live television an example of heroism that is practiced by the fire services of this nation in countless smaller incidents every day. The fire services suffered a terrible blow that day and we all mourn for those lost. Last year, at a congressional hearing, Noreen Lucey, the sister of one of our fallen heroes from the tragic Worcester, Massachusetts fire, talked about the six firefighters who gave their life to that blaze and summed up their reasons for a selfless response. She said quite simply: ''That's just what they do.''
This is a familiar state of readiness for the fire service. The same state of readiness that is required to respond to a community's normal risks. The difference is the magnitude of the event and the subsequent operational requirements. I read the after action reports on previous large scale emergency operations for hurricanes, earthquakes, floods, fires. The very challenges that were faced in the response to the events of September 11th are in many ways the challenges the fire service and emergency management community face in response to all hazards. I also want to thank the Committee for your concern, your support and your understanding of the need to recognize the fire services contribution to public safety and their future needs.
OVERVIEW OF UNITED STATES FIRE ADMINISTRATION
As an entity of the Federal Emergency Management Agency, the mission of the USFA is to reduce life and economic losses due to fire and related emergencies through leadership, advocacy, coordination and support by providing public education, training, partnering with research and technology institutes for the improvement of equipment utilized in prevention, and collecting data for analyses to assist in fire service capabilities within all communities.
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USFA creates partnerships among community's fire official, zoning official, code enforcement official, and emergency managers to address the community's total risk reduction efforts. Local fire departments are the most logical starting point for community risk reduction. the mission of the USFA is to reduce life and economic losses due to fire and related emergencies through leadership, advocacy, coordination, and support. We serve the Nation independently, in coordination with other Federal agencies and in partnership with fire protection and emergency service communities. With a commitment to excellence, we provide public education, training, technology, and data initiatives.
USFA's 5 Year Operational Objectives Beginning in FY 2002:
To reduce the overall loss of life from fire by 15 percent by reducing by 25 percent the loss of life of
— those in age group 14 years old and below, and
— those in age group 65 years old and above, and
— firefighters.
2,500 communities will have a comprehensive multi-hazard risk reduction plan led by or including the local fire service.
USFA uses the tools listed below to aid the fire service community and guide federal, state, local, and private entities in reducing loss of life and property from fire.
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Public Education—providing PSAs, access to USFA web page, publications, campaigns, videos, conferences and meetings for the public, fire service, educators, day care centers and others.
Provide training to improve the effectiveness of the fire service with increased emphasis on prevention of fire and injuries/deaths to the age groups of 14 years and older, 65 years old and above and firefighters.
Develop and continually refine research and technology capabilities in order to improve on suppression, protection, and warning devices (testing and evaluating products to improve prevention).
Collect data to assist identifying problems areas, determine solutions and monitor program to reduce losses.
USFA partners with numerous organizations to assist USFA in reaching its goal of reducing the lost of life; NIST/CPSC/ATF/IAAI/
Public Education
Many Americans believe that ''fires only happen to other people—not to me and not in my home.'' Yet over 80 percent of fire deaths occur in residences, most often claiming the lives of the young, the elderly, and the disadvantaged. American homes suffer a fire every 10 seconds, and every 60 seconds they suffer a fire serious enough to call the fire department. Every 2 hours someone is killed in a home fire, about 4,000 people per year.
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The USFA's National Fire Programs (NFP) Division sponsors numerous activities to promote residential protection from fire. This includes the use of protective devices, such as residential fire sprinkler systems and smoke alarms to provide early warning of fire, especially at night when families are most vulnerable.
In addition, USFA is working to reduce the number of fire deaths and injuries by:
Increasing public awareness about the dangers of fire.
Promoting research and public awareness about fire detection and control devices.
Assisting in improving fire and life safety at home and in the workplace.
Enhancing protection of firefighters.
USFA also extends its reach through partnerships and special initiatives with the fire service, the media, other Federal agencies, and safety interest groups.
Training
USFA's National Fire Academy (NFA) was created to ''advance the professional development of fire service personnel and other persons engaged in fire prevention and control activities.'' Located within the USFA in Emmitsburg, Maryland, the NFA provides career and volunteer fire service courses and programs in fire prevention and suppression technologies, incident management, leadership and advanced managerial skills, and training in hazardous materials response and emergency medical services delivery. The NFP Division performs program development and maintenance. The Academy also trains allied professionals, including code enforcement officials, architects, city managers, administrators, and planners.
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More than 50,000 fire service professionals participate in NFA-presented/State-sponsored outreach courses each year, including resident and independent self-study students. Through a network partnership with seven colleges and universities, NFA's Degrees at a Distance Program (DDP) initiative provides fire service personnel the opportunity to pursue an academic degree through independent study. Additionally, new distance learning technologies, such as Internet-based courses, are now on line.
The USFA has been a leader in developing programs to assist first responders in their quest to respond to terrorist incidents. Key personnel responding to the Pentagon were trained as early as 1997 for the purpose of preparing for a multi agency response to the Washington, D.C. area. Response personnel from Boca Raton who handled the Anthrax incident were trained through USFA.
The Fire Department in New York City specifically requested USFA staff to assist them during the World Trade Center Incident, and the Salt Lake City Olympic Public Safety Command received specialized training for response personnel in preparation of the Olympics.
The United States Fire Administration's National Fire Academy has terrorism programs that range from self-study courses you can take in your home as well as university programs for government leaders.
Emergency Response to Terrorism: Self-Study (ERT:SS) (Q534) is a self-paced, paper-based document and is designed to provide the basic awareness training to prepare first responders to respond to incidents of terrorism safely and effectively.
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Emergency Response to Terrorism: Basic Concepts, a two-day course designed to prepare them to take the appropriate course of action at the scene of a potential terrorist incident
Emergency Response to Terrorism: Tactical Considerations—Company Officer (ERT:TC–CO), is a two-day course designed to build upon the existing skills of the initial first-responding supervisor from the Emergency Response to Terrorism: Basic Concepts course or Emergency Response to Terrorism: Self-Study guide.
Emergency Response to Terrorism: Tactical Consideration—Emergency Medical Service (ERT:TC–EMS) is a two-day course is designed for the first on-the-scene responding EMS personnel with the responsibility to render patient care to victims of terrorist incidents.
Emergency Response to Terrorism: Tactical Considerations—Hazardous Materials (ERT:TC–HM) the students will be trained in security considerations, identifying signs of terrorism, anticipating unusual response circumstances, assessing information, and initiating self-protection actions.
It is important to remember that all of the above courses are two days in length and are part of the National Fire Academy's Direct Delivery Program. That means that they can be delivered in or near any community. Moreover, they can be funded either through the Terrorism Training Grants or State Fire Training Grants, so the cost to departments should be minimal.
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Another ''plus'' in this training is that the ERT series of courses have been evaluated by the American Council on Education and have been recommended for one semester hour credit each in AAS—Fire Science or EMS Technologies. If you are enrolled in a degree program, your institution may allow you credit for these courses. The entire National Fire Academy course catalog is available on line and can be found at www.usfa.fema.gov/nfa .
These courses address what we are doing now. Where we need to go in the future is the question. As we see it, all levels of government and the fire services community have several issues to address, both internally and externally. First let me address some of these needs and trends.
Research
USFA research efforts are accomplished through partnerships with Federal agencies and public and private organizations. Initiatives on data and research are suggested by stakeholder input and then shaped by FEMA and USFA strategic goals. Currently, a number of research and applied technology initiatives are underway in fire detection, suppression and notification systems, and fire and emergency responder health and safety.
USFA has a longstanding working relationship with the National Institute of Standards and Technology (NIST). In FY02, USFA has provided NIST with approximately $1.7M for work related to structural collapse prediction, personal alert safety systems, thermal imaging, protective properties of firefighter protective clothing, effectiveness of hose streams, evaluation of structural ventilation techniques, evaluation of localized residential fire suppression systems, and comparison and analysis of conflicting recommendations regarding sprinkler design criteria.
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Sprinkler Design Criteria—The objective of this research project is to investigate the minimum spray density design criteria used for residential sprinklers. Residential sprinklers are designed to wet the walls of the room and throw the water into the hot upper gas layer in order to cool the gases in the room to prevent flashover and limit the spread of fire.
Localized residential fire suppression systems—The objective of this research project examines the feasibility of utilizing fire suppression technology aimed at specific hazards in residential occupancies such as the kitchen, as it is the most common area for residential fires.
Evaluation of Structural Ventilation Techniques—This effort is intended to improve firefighting tactics and firefighter health and safety by enabling a better understanding of structural ventilation techniques including positive pressure ventilation and natural ventilation.
Research on Personal Alert Safety Systems (PASS)—This research project on the performance enhancement of PASS devices will involve lab and live operational testing using the results of such efforts in the elimination of false activations, accuracy, tie in with Global Positioning Systems (GPS), thermal sensing and exposure, shock/impact testing, ease of use, etc. Integration of research results into National Fire Protection Association (NFPA) and possibly other national consensus standards will be addressed as part of this project effort.
Evaluation of Thermal Imaging Systems Technology—This research on performance on thermal imaging systems includes bench-scale and field operational testing on existing technology and technology in development to measure accuracy, linearity, and image recognition. This project complements existing NIST funded work that they are performing in the development of a standard on thermal imaging technology.
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Investigation of Tools for Prediction of Structural Collapse—Researches effective technology and associated hardware to predict the onset of structural collapse during fire ground operations. Current efforts involve live fire testing in various types of structures and concentrates on the development and enhancement of acoustic/vibration technology evolved from tools used to monitor the structural integrity of dams, as well as other technologies such as; laser displacement devices, thermal imaging cameras, etc. Began development of reference guide for structural collapse indicators in partnership with Mr. Frank Brannigan, a world renowned expert on hazards of building construction in fires.
Protective Properties of Firefighter Protective Clothing—An effort to develop measurement equipment and techniques for the evaluation of the thermal environments experienced by firefighters and to examine the thermal performance of the firefighter's protective clothing.
Evaluation of Hose Streams—An effort to determine the effectiveness of a range of water applications, e.g., straight stream, fog, etc. that may have an effect on the tactical decisions, equipment choices, and water supply requirements that effect fire departments across the country.
The Consumer Product Safety Commission and the USFA are currently partners on the development of a ''smart'' stove that detects top-of-stove fires and will shutdown before flame is visible; a cost effective and time efficient test methodology to evaluate mattress flammability in support of a Federal standard; and, with the participation of the National Association of Homebuilders, ways to bring wiring in older residences up to a reasonable degree of fire safety at a moderate cost.
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USFA is working with fire service organizations such as the IAFC, IAFF, and NVFC on projects regarding firefighter wellness-fitness, respiratory exposure, and the psychological impact of mass firefighter fatalities.
Collaboration with academic institutions allows USFA to capitalize on the technical expertise and special facilities of American colleges and universities in support of efforts in fire research and applied technology. Examples include: North Carolina State University testing PPE, Harvey Mudd College studying structural collapse prediction, and the University of Alaska participating in the Disaster Resistant University initiative.
USFA and NIST are working with Harvey Mudd College in the Investigation of Tools for Prediction of Structural Collapse research project in relation to acoustic/vibration technology and its application in prediction of structural collapse. Harvey Mudd College has background in research of using vibration detection technology related to monitoring of the integrity of dams, bridges, and related structures. This technology may have application in building collapse prediction.
Data Analysis
USFA's National Fire Data Center (NFDC) is responsible for the gathering, analysis, publication, and dissemination of data related to the prevention, occurrence, control, and results of fires of all types. The program is designed to provide an accurate analysis of fire in the United States by identifying major problem areas, assisting in setting priorities, determining possible solutions, and monitoring programs to reduce fire losses. This includes exploring the causes of firefighter fatalities, in order to reduce the number of deaths.
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The primary means by which the NFDC collects information on the fire problem is the National Fire Incident Reporting System (NFIRS). The largest annual national collection of fire data in the world, NFIRS consists of incident-based data voluntarily submitted by local departments through participating State offices, usually the State Fire Marshals. Without NFIRS, there would be no centralized and uniform collection of fire data in the United States.
To assist fire departments, the NFDC makes available the Fire Data Analysis Handbook. This handbook describes statistical techniques to turn data into information that fire departments can use to solve fire problems, improve resource allocation for combating fires, and identifying training needs.
COORDINATION AT THE FEDERAL LEVEL
FEMA is a small agency. Our success depends on our ability to organize and lead a community of local, State, and Federal agencies and volunteer organizations. We know whom to bring to the table and what questions to ask when it comes to the business of managing emergencies. We provide an operation framework and a funding source.
The Federal Response Plan (FRP) is the heart of that framework. It reflects the labors of interagency groups that meet as required in Washington, D.C. and all 10 FEMA Regions to develop our capabilities to respond as a team. This team is made up of 2 Federal departments and Agencies and the American Red Cross, and organized into interagency functions based on the authorities and expertise of the members and the needs of our counterparts at the state and local level.
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While USFA has seen the effectiveness among and within the Federal family, we must acknowledge that the fire services at the local level have had limited training to respond to terrorist incidents. The primary focus of the federal effort to date in delivering this training needs to be better coordinated. USFA, working with the FEMA Office of National Preparedness, should include senior fire services leadership in the coordination of fire and emergency services response planning effort to these catastrophic events.
The fire departments across the nation need to be an integral part of the planning, training and policy development for terrorism preparedness. While there is a general acknowledgement that the law enforcement community has a significant deterrence and investigation role, it is also true that the fire services are the first on the scene, and therefore the first at risk. Any future considerations on training and funding for equipment must take this into account.
STRONGER PARTNERSHIPS WITH EMERGENCY MANAGEMENT
It is increasingly clear that the cooperation between the emergency management community and the fire services needs to be strengthened and encouraged. While at the local level emergency managers are at many times the local fire chief, at higher levels there is a disconnect. Improved cooperation should include joint training development and delivery, cooperative agreements and the development of a statewide and perhaps nationwide mutual aid system. Resources directed for terrorism preparation should have a strong fire services component.
Quality, robust and consistent communications capabilities should be developed and implemented for the fire services.
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Currently there is no secure means to provide first responders with important, uncompromised information.
We have to communicate with all response and supporting agencies at every level of the Federal Response Plan, which is the framework for the federal support that they will need in terrorist events.
There should also be training and exercises to ensure understanding and ability to work within this structure.
We need to work toward an institutionalized operating, common ICS/IMS throughout the country.
Incident management must address coordination issues with the Federal Response Plan.
Self-deployment of agencies and assets outside the plan and the IMS request creates difficulty in coordination and strains the time and attention of legitimate responders.
Standardized state and regional mutual/automatic aid plans would be helpful.
We need to explore a national credentialing system for first responders.
We need to consider additional training in vehicle/logistics/staging security, personnel security, scene security, control and accountability of teams and resources as well as issues of deployment, sustainability, and recall.
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USFA and the States provide appropriate and adequate first responder training but we need to train more students. Training efforts should do more to ''push'' materials and skills towards the end user. This will necessitate the use of additional and non-traditional methods including technology oriented deliveries and more partnering with state and other training authorities.
USFA needs to consider delivering more leadership and strategic skills classes and deliver more training in integrated/area IMS operations. The issue of holistic community participation and benefit requires broad-spectrum participation among the attendees' communities.
USFA needs to look toward research and development to provide community assistance to match threat level with resources available or obtainable in terms of protective gear. It is important to be able to quickly assess the threat environment that the fire services faces at an incident and be able to quickly provide the appropriate protection to them.
ASSISTANCE TO FIREFIGHTERS GRANT PROGRAM
Overview
The Assistance to Firefighters Grant Program's purpose is to award grants to fire departments of a State to enhance their abilities with respect to fire and fire-related hazards. This program seeks to identify departments that lack the basic tools and resources necessary to protect the health and safety of the public and their firefighting personnel. Initiated in Fiscal Year 2001, this grant remains an important element in supporting the most pressing needs of at risk communities and fire service providers in reducing the loss of life and property from fire, including loss of life and injury to firefighters.
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There were some challenges in 2001 associated with initiating the program. Those challenges resulted in changes in the 2002 program.
Challenges in FY 2001 Grant Program
FEMA received the funds late in the FY (short time line to initiate and complete requirement)
Limited Staff
Reviewing/Processing thousands of applications
Demonstrating a successful Grant Program to secure future Congressional support
The need to establish grant program during transition
Changes in the FY 2002 Grant Program
Funds received earlier in FY and longer timeline to issue the grants
The capability to hire additional staff with FY02 funding requirements
Fiscal Year 2002 Summary
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As a result of the last year's appropriations, the Grant Program has received $150 million that must be obligated by September 30th of the current fiscal year and an additional $210 million received in the Emergency Supplemental that is expendable until September 30th, 2003. We expect most of the supplemental appropriation will be obligated in FY 2002 with almost all of the remainder obligated in the first quarter of FY 2003.
Total Online Applications Received: 19,519
Total Paper Applications Received: 50
Application requests totaled more than $2.2 billion.
This represents about 1000 more fire departments applying than in 2001. There were fewer total applications this year than in 2001 because departments were only allowed to apply for one grant instead of two.
Peer Review Panels are meeting now to review and score more than 9,000 of the top applications. With the assistance of more than 200 volunteer fire service personnel, USFA carry out the peer review of the highest scoring applications. A total of 7,500 applications that scored in the competitive range were reviewed by examining project narratives and other required components, especially the extent to which the narratives established need and described a cost effective solution. The applications that scored in the excellent and good range were then ranked and reviewed again for any questions or outstanding issues that may have been raised by the reviewers. After taking into account the priorities of the grant program, including the legislative instruction to ensure geographic distribution of the funding, the Grants Program Office began to make recommendations for awards. The first awards were announced by the FEMA Director on July 23, 2001, remembering USFA did not receive the funds until the 2d Qtr of FY01.
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FEMA/USFA expects to begin awarding grants in late May or the first week of June. USFA expects to award all $360 million by December 30, 2002.
Computer applications, though brand new, had only a few problems that were corrected and worked well. This proved to be a good test of the ability to accept grant applications on-line and can be used in the future for other grant programs.
Volunteer/Combination fire departments: 17, 786 applications requesting more than $1.9 billion.
Career fire departments: 1,733 applications requesting more than $287 million.
Under the ''Assistance to Firefighter'' competitive grant program, applications are divided into four program areas. The breakdown below indicates the breakdown of the grant money being requested:
Fire Operations and Firefighter Safety: $882,539,097 representing 58 percent of the applications.
Fire Fighting Vehicles: $1.26 billion representing 37 percent of the applications.
Emergency Medical Services: $35,174,783 representing two percent of the applications.
Fire Prevention Programs: $30,580,741 representing three percent of the applications.
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Looking Ahead
As FEMA Director Allbaugh has stated, ''firefighters are the first in line for budget cuts and the last in line for recognition. This must stop.'' This program should not however replace the primary responsibility for funding and support, which lies with the local and state governments. Federal assistance should be supplemental and should be directed to the areas and programs in greatest need.
State and local support of the fire services must be increased and the federal role should be to foster that participation. Incentives to local governments need to be developed.
Standardized state and regional mutual/automatic aid plans would be helpful.
Need to explore a national credentialing system for first responders.
Additional training in vehicle/logistics/staging security, personnel security, scene security, control and accountability of teams and resources as well as issues of deployment, sustainability, and recall.
USFA and the States provide appropriate and adequate first responder training but we need to train more students. Training efforts should do more to ''push'' materials and skills towards the end user. This will necessitate the use of additional and non-traditional methods including technology oriented deliveries and more partnering with state and other training authorities.
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Delivering more leadership and strategic skills classes and deliver more training in integrated/area IMS operations. The issue of holistic community participation and benefit requires broad-spectrum participation among the attendees' communities.
Research and development to provide community assistance to match threat level with resources available or obtainable in terms of protective gear. It is important to be able to quickly assess the threat environment that the fire services faces at an incident and be able to quickly provide the appropriate protection to them.
As we all learn lessons from the tragedies in New York, Virginia and Pennsylvania, lets not lose sight of the fact that as the community's first response organization, the fire service needs to work closely with police and other local officials. We need to determine what areas of our cities and towns could be targets, but we also need to plan for the unexpected event that goes beyond our ability to respond with just one community's resources. This type of planning and cooperation is critical to responding to and recovering from terrorist events.
As September 11 has demonstrated, the fire services are the first line of homeland defense and we owe it to the people we serve to be as prepared as possible.
On behalf of the entire staff of the United State Fire Administration and the fire services community and all of the leadership and staff at FEMA, I want to again thank the Committee for the opportunity to testify today. I will be happy to address any questions you might have.
Appendix 2:
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Additional Statements from Listening Session
PREPARED STATEMENT OF DONALD E. THOMPSON
Vice President for Research and Dean, The Graduate College Western Michigan University Kalamazoo, Michigan
Comments on Reauthorization for the National Science Foundation
Good morning to you, Chairman Smith and Members of the Subcommittee on Research. Let me first thank the Subcommittee for conducting a listening session in Michigan on the important topic of NSF reauthorization. It is an honor to appear before you on behalf of Western Michigan University's academic community and to share comments on the National Science Foundation. My remarks will address three areas: programs of note, funding levels, and accelerating the application of federally funded basic research.
Western Michigan University
In 2003 Western Michigan University will celebrate its centennial, marking a century of transformation from a small regional teaching college into one of the 45 largest universities in the country, now enrolling 30,000 students, nearly 6,000 of whom are graduate students. WMU educates the state's second largest number of Michigan resident undergraduates, and is the fourth largest producer of teaching personnel in the nation. WMU is the second fastest growing university in the State of Michigan (based on the Fiscal Year Equated Student count for the past two years), and the 7th fastest growing Carnegie research-extensive university in the United States. WMU has a significant national and international reputation, and our Graduate College offers nearly 100 graduate degree and certificate programs. With its ubiquitous computing environment, the University is also the Nation's first (and largest) public ''wireless'' institution.
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Western Michigan University is a nationally recognized student-centered research university whose academic programs and research agenda emphasize applied research. That sense of the practical resonates throughout faculty and student research, as well as regional economic development initiatives. As a result, the institution's research priorities build on its historical strengths in education, the mathematical sciences, bio-environmental chemistry, and program evaluation to develop research programs in nanoscale science and engineering.
Overview of NSF Funding at WMU
During the past three fiscal years (1999, 2000, and 2001), the National Science Foundation granted 45 Western Michigan University projects a total of $14.7 million.
That amount, categorized by function, breaks down as follows:
Research, 88.57 percent
Instruction, 1.04 percent
Public service, 6.74 percent
Academic support, 0.74 percent, and
Scholarships and fellowships, 2.91 percent.
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For these three fiscal years, NSF funding represents 41 percent of the University's federally sponsored funding and 8 percent of its total sponsored funding.
Programs of Note
A matter of paramount importance is increasing the number of scientists and engineers who will lead us into the frontiers that nanoscale science and engineering are establishing today—who will conduct the basic and applied science, champion commercialization, and prepare pre-K–16 educators and their students as scientifically literate citizens.
Achieving a diverse and well-prepared workforce of scientists, engineers, mathematicians, and their educators will require broadened participation of individuals, pre-K–16 partnerships, and the continued integration of research and education, research and practice.
Within this context, Western Michigan University views several programs in the Directorate for Education and Human Resources as especially valuable.
1. The Math and Science Partnership program (NSF–02–061) joins mathematics and science research and education to ensure that pre-K–12 students realize their potential. It links networks of researchers and practitioners, requires system-level interactions, and addresses what is, in my view, the most critical issue that American education faces in terms of attracting students to science, technology, engineering, and mathematics (STEM) disciplines.
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2. The Louis Stokes Alliances for Minority Participation program (LSAMP) (NSF–O1–140) and Alliances for Graduate Education and the Professoriate program (AGEP) (NSF–O1–138) aim to increase the number of baccalaureate and doctoral degrees awarded, respectively, by targeting talented students in under-represented populations.
3. The Directorate for Education and Human Resources' Evaluation program continues to gain in importance as the demand for greater accountability within education grows. At the same time, there is a relatively small community of STEM evaluators. To meet that need, the Evaluative Research and Evaluation Capacity Building program (NSF–02–34) advances evaluation practice by building a state-of-the-art knowledge base and enhancing capability and infrastructure in STEM education.
Funding Levels
Western Michigan University supports the doubling of the NSF budget, and, in view of the importance that I have ascribed to increasing the number of scientists and engineers and those who educate them, I would note that, among the directorates, Education and Human Resources is central to the development of American scientific leadership. Let me cite three key considerations:
1. Development of new programs to increase the number of baccalaureates awarded in STEM disciplines. The recently published program solicitation for NSF's Science, Technology, Engineering, and Mathematics Talent Expansion program (STEP) (NSF–02–075) is welcome not only because of its goal (to increase the number of baccalaureates) but also because of its breadth, scope, and fit with existing programs, complementing, for example, the Louis Stokes Alliances for Minority Participation program.
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2. Expansion of programs to increase the number of doctorates awarded in STEM disciplines. The Research Experiences for Undergraduates Supplements and Sites (REU) (NSF–O1–121) program provides universities a vehicle for engaging young scientists and engineers in research, and AGEP moves them through the doctorate and into the professoriate.
3. Increases in graduate stipends in the Graduate Research Fellowships (NSF–O1–146), Graduate Teaching Fellows in K–12 Education (NSF–02–042), and Integrative Graduate Education and Research Training (IGERT) (NSF–00–78) programs are important not only in attracting young scientists and engineers but also leveraging stipend increases at universities, thus improving compensation broadly.
Accelerating the Application of Federally Funded Basic Research
The traditional University model for the commercialization of intellectual property (IP) relies upon faculty research for its creation; time from discovery to application is dictated by University research agendas and priorities. Another model, and one that I would suggest the members of the subcommittee consider, is driven not by discovery and application but by importation and commercialization.
From a rich history of pharmaceutical and medical device development in southwest Michigan dating back to the founding of The Upjohn Company more than a century ago have come companies specializing in analytical services to the pharmaceutical industry, companies specializing in custom synthesis of specialty organic intermediates, and independent entrepreneurs providing pharmaceutical services for clinical development. Drawing upon that history and driven by the partnership of the private-sector engine Southwest Michigan First and Western Michigan University, regional economic development has adopted as its strategic focus the identification and importation of technologies and/or companies that can be developed into pharmaceutical products and services.
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Already we have been successful. The past 18 months have seen imported technology from a half dozen existing startup companies, entrepreneurs, and major pharmaceutical companies. To name three:
1. NephRx, Inc. emerged from technology discovered at the University of Chicago, and research has commenced at WMU to develop novel therapies for the treatment of gastric ulcers.
2. SenseGene, Inc. was founded in Kalamazoo in fall 2001. Based on intellectual property developed at Wayne State University, the science centers around novel mechanisms for regulating gene expression in cancer.
3. NanoMed, Inc. was founded based upon novel drug delivery technology developed at the University of Kentucky and is committed to relocate their developmental efforts to the wet-lab facility at WMU.
The National Science Foundation, by encouraging importation models such as this one, could then position universities to accelerate the application of federally funded basic research and foster economic development in areas such as the life sciences, advanced technology, and information technology.
Western Michigan University is positioned to bring to the state of Michigan a share of an increased NSF budget, graduate more scientists and engineers, foster application of federally funded basic research, and strengthen economic development regionally.
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At this time, I will conclude my remarks by reiterating the underlying theme here, that being, without an investment in human capital there will be no conversation about American preeminence in science, about a robust economy, or about a society that looks to higher education for answers to some of the most important scientific questions of the day.
Thank you.
PREPARED STATEMENT OF MARVIN G. PARNES
Associate Vice President for Research & Executive Director of Research Administration, The University of Michigan
Mr. Chairman and Members of the Subcommittee,
Good morning. My name is Marvin G. Parnes, Associate Vice President for Research and Executive Director of Research Administration at the University of Michigan. My duties include oversight of our offices of sponsored research and technology transfer, as well as management of resources for new research program development. I appreciate this opportunity to respond to your questions and share some observations about NSF from a University of Michigan perspective. My comments build on previous testimony to the Subcommittee on Research by Stephen Director, Dean of the College of Engineering (March 13, 2002), Fawwaz Ulaby, Vice President for Research (September 28, 1999), and Timothy Killeen, the former Associate Vice President for Research (February 28, 2000).
Mr. Chairman, we wish to begin by recognizing your outstanding leadership in support of basic science and in advancing the critical role NSF plays in the life of the University. Michigan has benefited by your willingness to learn about its programs through visits to our campus and as a host to our faculty when they visit Washington.
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Our brief comments are organized to be responsive to your questions.
1. Provide an overview of research activities at the University of Michigan.
Michigan is a comprehensive research university with strengths in many disciplines and boasts a host of interdisciplinary programs. As you know, the University of Michigan has a large research program. In FY 2001, our total research expenditures were $592M. Of that, approximately $50 million, or about 12.5 percent, of the federal support for research at the University came from the NSF. This provided direct support for 791 active projects, 570 faculty researchers, 102 postdoctoral fellows, 429 graduate students, and 196 undergraduate student researchers. NSF support is critical to our research programs in engineering, mathematics, physical sciences, geosciences, biological sciences, computer and information sciences, and the social, behavioral, and economic sciences. This broad portfolio of NSF-sponsored research contributes enormously to the intellectual vigor of our institution. The importance of these NSF programs to the University of Michigan's education and research mission simply cannot be overstated.
2. What NSF programs and initiatives are most valuable to your university?
Individual investigator awards are of paramount importance because they nourish the creativity and innovation that is the cornerstone of all other research efforts.
NSF Initiatives such as Nanotechnology, Biocomplexity, and Nanoscale Sciences have positive impacts in many areas, even when NSF funding is not forthcoming because they stimulate new modes of collaboration and new formulations of problems and solutions. At the UM we use these initiatives to organize workshops, bringing faculty together to form new collaborations, and to establish new links to industry and other universities.
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IGERT (Integrative Graduate Education and Research Training Program) is an excellent program for stimulating creative approaches to graduate research training and provides a means for new programs to crystallize their intellectual direction and establish innovative curricular and organizational structures. Major Research Centers, supported through programs such as the ERC, STC, Frontier of Physics, etc., are very important and significant, galvanizing new relationships that link research and training with societal and industrial applications while maintaining a fundamental research focus.
Support for K–12, undergraduate education and pipeline issues, as well as recent programs such as ADVANCE, support campus-based creativity and program development and highlight the national importance of local efforts in creating a diverse scientific cadre. Major Research Infrastructure awards have proven valuable to Michigan over the years, again by bringing together groups of faculty to focus on high priority activities and raise the aspirations of researchers as a result of new leading edge equipment.
Lastly, we find that NSF has been the most user-friendly funding agency. Their online computer system, known as Fastlane, provides excellent support for grant application and management. Fastlane is light years ahead of all the other agencies and provides a model for what all Federal agencies should strive for.
3. What programs could be improved, and how?
Young investigators need support to maintain their motivation and provide encouragement. NSF Career Awards should be increased in number. Alternatively, additional individual investigator award programs could be developed as special competitions for young investigators with substantial funding but possibly smaller individual awards.
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Foundations like Burroughs-Wellcome Fund are funding new/young investigator awards in the biomedical sciences and we need the equivalent in engineering and natural sciences. Program emphasis on K–12 is valuable, but our investigators would like to see more funds for evaluation and integration of program innovations.
The IGERT is an excellent program, but needs more funds beyond student support for development and administration related to the establishment of new programs.
The Great Lakes are a key issue for UM and other Great Lakes universities and UM is working collaboratively on new initiatives to support Great Lakes research and would welcome greater NSF support. We are also delighted to see funding for the National Ecological Observatory Network (NEON) included in the President's FY03 budget request.
4. In your view, how should the Committee prioritize funding among different directorates?
As you might imagine, there is no consensus among our faculty about how the priorities should be set among directorates; all fields are important at a comprehensive research university.
One general comment from a number of our faculty is that the size of individual investigator awards from many NSF directorates has been eroding over the years. Faculty with many years of experience with the NSF say that they used to be able to support several graduate students on a given grant, whereas today it is hard to fund even one student. Put another way, it takes about two funded projects to support the same amount of research as one project covered a decade ago.
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5. Please provide any other thoughts on how NSF can be further strengthened.
We must continue to focus on filling the basic science pipeline at the undergraduate level. Fellowships for undergraduates and special programs like IGERT should be enhanced to draw undergraduates to areas like physics, chemistry and math. Programs that support the research experiences for undergraduates, such as the NSF Research Experiences for Undergraduates (REU) Program should be expanded. We applaud your Committee's attention to undergraduate education and encourage support for legislation such as the Tech Talent Bill which work to ensure that we have an adequate supply of people trained in key scientific and technical fields. While our universities are greatly enriched by the international students who are among our best and brightest students, we would like to encourage more U.S. citizens to enter science and technology fields.
6. Regarding the way in which basic research is managed at the university level, should Congress explore guidelines requiring that a portion or all revenues gained as a result of federally funded basic research be used specifically for future university research activities?
By and large, technology transfer and research commercialization derived from basic research barely supports itself. Universities engage in these activities to ensure that our research efforts are used for the public good. Few schools make significant money, and those who do generally have one of two ''big hits.''
The Bayh-Dole Act already requires that all proceeds of technology transfer be reinvested in research and education. We believe that the Bayh-Dole Act is working very well and additional guidelines are not required.
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NSF's role in support of basic research is essential and it is important not to expect any revenue return from research in the short term. Without adequate unfettered basic science research to lay the ground work, there will be few discoveries that result in technology with applied potential.
Flexibility and local autonomy in managing research funds is important. Research universities are always investing in their own research. At the UM, $98 million, or 16.6 percent, of our research is self-supported, and other universities spend comparable amounts in support of research.
7. How does the University of Michigan work to assure that knowledge and capabilities acquired through basic research address public and private needs? How can Congress help to accelerate the application of federally funded basic research?
Addressing public and private needs is central to UM's mission.
UM Mission Statement The mission of the University of Michigan is to serve the people of Michigan and the world through preeminence in creating, communicating, preserving and applying knowledge, art, and academic values, and in developing leaders and citizens who will challenge the present and enrich the future.
Our students are our best conveyors of research to the public through the application of their leading-edge knowledge and skills in the workplace. NSF contributes directly and indirectly to much of the education of students in areas with NSF research support programs. Our Centers have very explicit programs directed at getting research results into use through industrial affiliates programs, etc. We are proud of the accomplishments of NSF funded programs like the Science and Technology Center for Ultrafast Optical Sciences, the Engineering Research Centers for Reconfigurable Machining Systems and Wireless Integrated Microsystems in meeting industry needs and spawning new businesses.
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Technology transfer continue to increase its presence on campus. The Bayh-Dole Act is a very effective stimulus for ensuring that universities commercialize their research results and it should continue to receive strong support.
Congress should be a model and use research in their deliberations: e.g., environmental issues, social policy issues, education all benefit from research findings.
While we are deeply concerned with national security issues, we believe that caution must be exercised in placing restrictions on sharing research results. Research findings should not be unduly restricted or controlled as openness and intellectual exchange is the cornerstone of not only a free society, but also of a system of rich scientific development and application.