... he Advisory Commission on Intergovern- 111 Tmental Relations was established by P.L. 380, which was passed by the first session of the 86th Congress and approved by the Presi- dent on September 24, 1959. Section 2 of the act sets forth the following declaration of pur- pose and specific responsibilities for the Com- mission: Sec. 2. Because the complexity of modern life intensifies the need in a federal form of government for the full- est cooperation and coordination of activities between the levels of govern- ment, and because population growth and scientific developments portend an increasingly complex society in future years, it is essential that an appropriate agency be established to give continu- ing attention to intergovernmental problems. It is intended that the Commission, in the performance of its duties, will: 1) bring together representatives of the federal, state, and local govern- ments for the consideration of common problems. 5) encourage discussion and study at an early stage of emerging public problems that are likely to require in- tergovernmental cooperation. 6) recommend, within the frame- work of the Constitution, the most desirable allocation of governmental nature of the American federal system functions, responsibilities, and revenues in the short-term and long-term future among the several levels of govern- and possible adjustments to such sys- ment. tem, if any, which may be desirable, in light of future developments. Pursuant to its statutory responsibilities, The study, The Federal Role in the Fed- from time to time the Commission has been eral System: The Dynamics of Growth, of requested by the Congress or the President to which the present volume is one component, is examine particular problems impeding the ef- part of the Commission's response to this fectiveness of the federal system. The 1976 mandate. Staff were directed to: (a) examine renewal legislation for General Revenue Shar- the present role of the federal government ing, P.L. 94-488, mandated in Section 145 in the American federal system; (b) review that the Commission: theoretical perspectives on American fed- . study and evaluate the American eralism, the assignment of functions, and federal fiscal system in terms of the al- governmental growth; and (c) identify his- location and coordination of public re- torical and political patterns in the devel- sources among federal, state, and local opment and expansion of national govern- governments including, but not limited mental domestic activities. This case study on to, a study and evaluation of: (1) the the federal role in local fire protection is one iv allocation and coordination of taxing of seven prepared by Commission staff pur- and spending authorities between levels suant to this assignment. of government, including a comparison of other federal government sys- Abraham D. Beame tems. (5) forces likely to affect the Chairman Acknowledgements v his volume was prepared by the Govern- tor of technology utilization, US. Fire Ad- Tment Structure and Functions Section ministration; Dean Coston of Coston As- of the Commission staff. Mavis Mann Reeves, sociates; Harold Gallagher, state forester of senior resident and associate professor of gov- Kansas; James W. Giltmier, Senate Com- ernment and politics at the University of mittee on Agriculture, Nutrition, and Fores- Maryland, had responsibility for the research try Staff; David. B. Gratz, vice president, In- and preparation of this case study. Other ternational Association of Fire Chiefs' members of the Government Structure and Foundation; Ken Gray, former legislative Functions Section, including Cynthia Colella, assistant to the late U.S. Sen. Hubert H. Robert Stein, Carol Monical, and, particular- Humphrey; William Hanbury, coordinator, ly, David R.'Beam, project manager, reviewed Intergovernmental Activities, U.S. Fire Ad- the manuscript and made helpful suggestions. ministration; Thomas Hughes, Public Infor- Lynn Schwalje worked out the intricacies of mation Office, U.S. Fire Administration; Table 1 and Figure 1 and typed the copy. Barbara Lundquist, National Data Center, Patricia Koch gave valuable library guidance. U.S. Fire Administration; W. Howard Mc- During the research for the study, many Clennan, president, International Associa- individuals associated with fire protection tion of Fire Fighters; U.S. Sen. Charles M. activities provided information, perceptive Mathias, Jr.; Alexander F. Robertson, Fire comments, advice, and criticism. The Com- Center, National Bureau of Standards; John mission appreciates their generous responses Rockett, Fire Center, National Bureau of to requests for interviews. The following Standards; Anne Rush, Warren County, KY, shared their time and expertise: J. 0. Baker, REA Coop., James Ryan, Fire Center, Na- Jr., staff specialist, Cooperative Fire Protec- tional Bureau of Standards; Erwin Schaffer, tion, U.S. Forest Service; Richard E. Bland, U.S. Forest Products Laboratories, Madison, associate professor of fire engineering, Penn- WI; William Taggart, Senate Committee on sylvania State University; Percy Bugbee, Agriculture, Nutrition, and Forestry Staff; president emeritus, National Fire Protection James Thornton, Farmers' Home Adminis- Association; John L. Bryan, professor and tration; Willard R. Tikkala, director, Co- chairman, Fire Protection Engineering, Uni- operative Fire Protection, Forest Service; versity of Maryland, College Park; Frederick Gordon Vickery, Administrator, U.S. Fire B. Clarke, director, Fire Center, National Administration; and Ralph Winkworth, Bureau of Standards; Joseph E. Clark, direc- North Carolina state forester. In addition Michael J. Smith, acting direc- ander F. Robertson were kind enough to re- tor of research, International Association of view and comment on a preliminary draft of Fire Fighters, was kind enough to search as- the study. Charles S. Morgan, president of sociation records for resolutions relating to the National Fire Protection Association, and federal involvement, and the staff of the his staff also provided helpful criticism. The Senate Committee on Agriculture, Nutrition, report would not have been possible without and Forestry helped to locate committee re- the cooperation and assistance of the people cords. Pat Bowley secured useful research and agencies identified above. Full responsi- materials. We are indebted, as well, to the bility for content and accuracy rests, of staffs of the U.S. Fire Administration Library course. with the Commission and its staff. and the International Association of Fire Chiefs' Library for help in locating necessary Wayne F. Anderson materials. Executive Director Along with providing information, J. 0. Baker, Jr., Richard E. Bland, Percy Bugbee, David B. Walker Joseph E. Clark, David B. Gratz, and Alex- Assistant Director Contents Introduction .................................................. 1 Historical Development ........................................ 3 TheStateRole ............................................. 4 Expenditures For Fire ....................................... 4 Development Of The Federal Role ............................ 4 Current Federal Activity ....................................... 7 U.S. Fire Administration Responsibilities .....................18 Rural Community Fire Protection Program ....................20 Questions on Federal Involvement ..............................23 National Policy Streams .......................................25 Major Events Influencing Policy Streams .....................26 Establishment Of The U.S . Fire Administration ..................27 Early Roots In The Scientific Stream .........................27 The 1940s: Fires Of War ....................................33 The 1950s: Interest Builds .................................. 33 Relocation Of NBS .....................................33 Committee On Fire Research .............................34 Federal Council On Science And Technology ............... 34 Forestry Activities ......................................35 The Early 1960s: The Quickening ............................ 35 Woods Hole Conference .................................35 Council On Science And Technology Action ................ 35 Fire Research Conference Actions ........................36 NBS Actions ........................................... 36 Basis Of Opposition ..................................... 38 The Defense Stream ....................................38 Other Events Of The Early And Middle 1960s .................. 39 Activities Of The Fire Chiefs ............................. 40 The Wingspread Conference .............................41 Wingspread Impact .....................................42 Subsequent Developments ...............................43 1967-68: Legislative Success .................................43 Apollo Spacecraft Fire ...................................43 Riots .................................................. 43 Consumer Policy Developments ..........................43 Senate Action .......................................... 45 House Action ..........................................47 Interest Group Alignment ...............................48 The Fire Research And Safety Act Of 1968 ....................48 Implementation ........................................ 49 The National Commission ...............................49 The Commission Report .................................50 Interest Group Activity During 1968-70 .......................52 The Williamsburg Conference ............................52 Other