FIREFIGHTERS are the first line of defense against devastating fires, as they rush into danger to protect lives and property. However, the fight for fire safety begins long before the fire, in the often-overlooked realm of codes and standards. These regulations are not merely bureaucratic red tape. They are the very foundation for firefighter risk reduction (FRR) and community risk reduction (CRR).
While CRR programs encompass a variety of tactics, we often handle codes and standards as secondary. This stems from a lack of awareness or participation in their development, adoption, and enforcement. Unfortunately, this disengagement has real-world consequences.
Codes and standards establish the baseline for overall community health and safety and directly affect the wellbeing of residents as well as the survival of firefighters themselves. By actively championing these regulations, fire departments can play a crucial role in preventing fires, mitigating their impact to taming our fire environment, and even saving lives.
It’s important to have a clear understanding of the critical importance of codes and standards. This comes with exploring the challenges fire departments face in this area and outlining actionable steps for increased engagement. By leveraging their expertise and influence, fire departments can transform codes and standards from dusty manuals into powerful tools to build a safer future for everyone.
The Vision 20/20 Project
One of the modern efforts to address gaps in fire prevention has been the Vision20/20 Project.1 In 2008, the Institute of Fire Engineers’ USA branch sponsored a consortium of prominent fire service leaders. This landmark meeting resulted in the development of five national strategies (Strategy-5) to help fill these gaps. They include the following:
- Prevention advocacy.
- Outreach and education.
- Culture.
- Technology.
- Codes and standards.
- Model performance and evaluation. (This strategy was added in 2020 to formalize a method to develop and evaluate model programs for impact and outcome.)
Mapping Out a Safer Fireground
Strategy-5, listed above, intends to provide a road map to effective development, adoption, and enforcement of the current model of codes and standards. There are many components to an effective codes and standards program.
Its development is typically based on a demonstrated operational need. Technical working groups collaborate in a balanced, public process. A final consensus product is available for use at the national, state, and large metropolitan area levels. However, what happens from that point regarding adoption and enforcement varies across the country. This has a direct consequence for the safety of both the public and firefighters.
The fire service is routinely called on to react to crises, but is our commitment to prevention equal to our reputation as life safety watchdogs? While we bravely confront fires and other hazards, we must also recognize the critical role of prevention in mitigating community and firefighter risks.
Are we effectively advocating for regulations that address the root causes of fires and emergencies? Or are our voices being drowned out by special interests and political pressures that prioritize profit over safety? The time has come for firefighters to step up and demand a stronger emphasis on prevention and reducing risk on the fireground. By engaging in the political process and advocating for safer building and fire codes, firefighter and public education programs, and public awareness initiatives, we can help create a safer environment for all. It is not enough to respond to emergencies. We must work proactively to prevent them.
The following are key points every firefighter needs to understand to have influence in codes and standards:
- Codes and standards development.
- Codes and standards adoption.
- Barriers to effective code enforcement.
- Legislative influence.
Codes and Standards Development
The 10th Amendment of the United States Constitution2 relegates codes and standards management to the states. Modern fire and building code development cycles occur on a three- or five-year cycle, and the fire service usually finds itself either in the position of proponent or opponent during various technical discussions. Provisions are voted on, and new or revised regulations are produced. Presently, the 2027 International Fire and Building/ Residential Codes (IFC/IBC/IRC) as well as several of the National Fire Protection Association (NFPA) standards are in their cycle of review.
Codes and Standards Adoption
In a perfect world, states would incorporate the most current codes and standards. That, however, is not reality. According to the Federal Emergency Management Agency, in the United States, only 32% of natural hazard-prone jurisdictions have adopted current hazard-resistant building codes.3
Building codes dictate the “built-in” fire protection features of buildings, whereas fire prevention codes ensure those requirements are preserved for the life of the building. When codes are adopted, they often have critical elements removed or are adopted in such a manner that local modification is prohibited by law. An example of this is with residential sprinklers in one- and two-family dwellings. Both the IBC and IRC included residential sprinklers in 2008. Yet, only California, Maryland, and Washington, D.C., have adopted this requirement in a comprehensive manner. While we have seen some successes in local adoption of residential sprinklers, some states have fully outlawed their adoption.
When a jurisdiction does not adopt current modern codes and standards, it may experience limited development guidance on emerging technologies, such as with electrical (battery) storage systems and related devices. This lack of guidance creates risk to the public and to firefighters. Buildings may be constructed in a substandard manner. And the public may be penalized with higher insurance costs due to losses that could have been prevented. Finally, businesses, jurisdictions, and personnel may be criminally and civilly liable for negligence due to a failure to effectively enforce codes and standards.
In the Rhode Island case of the Station Nightclub fire, in 2003, the building owners went to prison, and more than $115 million in settlements have been paid out. Of this amount, the state of Rhode Island and the town of West Warwick agreed to pay $10 million each in damages.4
During a code development cycle, special interest groups may seek trade-offs5 in fire protection. A code trade-off may be permitted when a building has an automatic sprinkler system installed. It may affect the building height and area and means of egress requirements and reduce passive fire-resistance barriers. Barriers include fire walls and partitions, fire stopping, fire doors, spray-on fireproofing, and smoke curtains. Firefighters must be aware that these scenarios are for the life cycle of the building, especially in large and complex structures.
Barriers to Effective Code Enforcement
The United States has experienced many disastrous fire outcomes related to ineffective or nonexistent code enforcement. Many of the country’s large civilian life-loss fires point to failures with codes and standards. And we’ve seen firefighters pay a price for this, having been killed or scarred for life— both physically and mentally.
It’s also important to consider barriers to effective code enforcement. The biggest barrier is our own fire service culture. If the organization feels that code enforcement is the sole purview of the fire prevention office, it is likely that firefighters will not feel vested in the effort. This sends a message that leadership has not made the connection to fire safe buildings and firefighter survival.
Mary Marchone, a retired National Fire Academy training specialist, stated, “There is no honor in responding to an incident that could have been prevented in the first place.”
Fire prevention is part of every job in the fire service. Every department should include it as part of the core training curriculum for personnel. Jurisdictions served by volunteer personnel may be limited by law to certify as fire inspectors, or they may simply not be able expand their bandwidth beyond emergency response to address this function. Where this occurs, the local building official may be assigned the responsibility of fire prevention inspections. The individual in this role is often unprepared to understand the hazards of fire.
According to Richard Mikutsky, the New Jersey state fire marshal, “Since 1985, the New Jersey Division of Fire Safety has had a fire inspector certification and recertification program in place. The recertification cycle is every three years for all fire officials (prevention unit head) and fire inspectors (prevention inspectors and fire unit firefighters) who enforce the state edition of the IFC.”
These are not the only factors to consider. Code enforcement is historically one of the first areas affected by budget cuts. Again, this is a failure on the part of governing leaders to understand that a community’s quality of life is greatly impacted by a fire that could have been prevented. Consider a business, small or otherwise, that is interrupted by a fire. The immediate loss of commerce results in lower revenue tax. Employees may be laid off, meaning they may miss mortgage and car payments, may have less overall purchasing power, and may have to rely on government assistance to survive. Add to this the tragic loss of a civilian or firefighter, for which the cost and impact is immeasurable.
The fight for fire safety begins long before the fire in the often-overlooked realm of codes and standards.
Legislative Influence
Codes and standards development, along with enforcement, are often hampered by legislators who either do not understand the importance of codes and standards or simply place community development over safety. This is an area where the fire service lacks the political acumen and economic horsepower to overcome the influence of the developer dollar.
North Carolina recently placed a moratorium on the adoption of current codes until 2031.6 Hurricane Helene has given us a preview of how weakened regulations will negatively affect community resilience. When a state prohibits a jurisdiction from enforcing anything but the adopted code, it prevents a locality from dealing with a unique hazard. For example, a state may present both urban and rural characteristics. If the code is written as a “one size fits all” regulation, the urban location may not be able to enact regulations to meet that hazard. State fire marshals often can’t opine on an important code issue for fear of losing their jobs. Many are political appointees, and they must support the position of their administration, which often favors development. As a result, the main fire prevention voice for the fire service and the public is silenced.
1. The balcony construction features a lightweight C-joist structural support system. (Photos by Jack Murphy).
2. A “know before you go” (KBYG) is tagged as a firefighter safety and precautions item. The finished C-joist balcony features high-hat lights that are potential ignition sources (electrical wiring/junction boxes).
Where Do We Go from Here?
We are at a critical crossroads with respect to the development, adoption, and enforcement of codes and standards. Culturally, we need to recognize that fire is a failure of prevention.
This is something we can—and mustcontrol organizationally. And we must strive to be a uniform voice in the political arena.
Eyes of the Future
When driving past a new construction site, firefighters should note building phases that might impact the fireground. (photos 1 and 2). Strong firefighter voices could project FRR concerns about the potential exterior façade composition along with life safety risks for occupants trapped on the balcony.
At a national level, the United States Fire Administration (USFA) has united the fire service under the One Voice initiative. The initiative recognizes codes and standards as being among the top areas where we must be more aggressive. We must see fires in the context of occupational disease and as physically damaging, as every fire represents an exposure. Here are other programs that identify codes and standards as a critical area to become involved in:
- The NFPA’s Fire & Life Safety Ecosystem.
- The National Fallen Firefighters Foundation (NFFF) “16 Firefighter Life Safety Initiatives.”
- The Vision 20/20 Project.
Increased Awareness and Involvement
The Vision 20/20 Project offers free educational resources on all aspects of CRR. The International Fire Service Training Association, the NFFF’s “Preventing the Preventable,” and the NFPA also offer free online training in the principles of CRR. Conduct after-action reviews (AARs) and review NIOSH reports. Often the root cause of firefighter deaths and injuries is the failure of prevention. This is usually highlighted in a report.
The NFFF provides training on conducting an AAR. It is important to attend prevention-related conferences and symposia. The International Association of Fire Chiefs sponsors a CRR Leadership conference every two years. The Vision 20/20 Project also offers a biannual symposium on CRR. Many states also offer one- or two-day fire prevention conferences.
Get Involved in the Political Process
We need to be more of a force with county and city administrators as well as state and local legislatures. Take advantage of public events to get critical messaging out. Many states sponsor a fire service day during their legislative session. Wear your Class A uniform, go, and be vocal. Chiefs should strongly consider joining organizations such as the National Association of Counties and the International City/County Management Association.
We must become vocal advocates for prevention and FRR. By actively engaging in code development, advocating for their adoption, and ensuring proper enforcement, fire departments can significantly reduce fire risks and save lives. Let us transform from reactive responders to proactive protectors. Join the movement: Champion FRR and CRR in a local community today! Learn more about the_NFPA’s and the International Code Council’s code development process.
ENDNOTES
- Vision 20/20 Project. The Vision 20/20 Community Risk Reduction, strategicfire.org.
- Lawson, Gary, and Robert Schapiro. “The Tenth Amendment.” National Constitution Center, bit.ly/3UTf7gR.
- “Building Code Adoption Tracking.” Federal Emergency Management Agency, 2024, bit.ly/4128X24.
- “State, Town Reach Nightclub Fire Settlement.” NBC 10 WJAR, 18 Aug. 2008, bit.ly/48ZfD2J.
- “Impact of Fire-Sprinkler Trade-offs on Occupant and Building Safety.” Air Movement and Control Association, Jun. 2018, amca.org.
- “IBHS Ranks Hurricane Coast States on Building Code Adoption, Enforcement.” Insurance Institute for Business and Home Safety 23 Apr. 2023, bit.ly/49dF0ht.
REFERENCES
“Code Development.” International Code Council, 12 Jul. 2024, iccsafe.org.
“The Standards Development Process.” NFPA, bit.ly/4frBdQ5.
JACK J. MURPHY is a retired fire marshal and deputy chief with the Leonia (NJ) Fire Department. He also served 15 years as countywide deputy fire coordinator for Bergen County, New Jersey. He is a past chairman of the Fire/Life Safety Directors Association of Greater New York and an adjunct professor at John Jay College/Fire Science Institute (NYC). Murphy is a principal member on the following NFPA committees: 1660 Emergency, Continuity, and Crisis Management; Preparedness, Response, and Recovery; 1082 Facilities Fire/Life Safety Director Professional Qualifications; and the 2800 Facility Emergency Action Plans and High-Rise Building Safety Advisory Board. He is also a representative on the NFFF Strategy-5 Codes and Standards. Murphy has written many fire service articles for Fire Engineering as well as the Fire Engineering’s Handbook for Firefighter I and II chapter on preincident planning. He is coauthor of High- Rise Buildings: Understanding the Vertical Challenges and Bridging the Gap-Fire Safety and Green Buildings. In 1997, Murphy was appointed an honorary FDNY battalion chief. He is a member of the FDIC Educational Advisory Board and was the recipient of the 2012 Fire Engineering Tom Brennan Lifetime Achievement Award.
W. KEITH BROWER JR. has been a special projects consultant for the National Fallen Firefighters Foundation (NFFF) since June 2019. His primary role is to represent the Foundation on the Vision 20/20 Steering Committee. He is also responsible for developing content and training to increase awareness for Life Safety Initiatives #14 and #15. Brower is an advocate under the “Everyone Goes Home” program. He retired from the Loudoun County (VA) Combined Fire and Rescue Service (LC-CFRS) in 2018, after 45 years of career and volunteer service. Among all the ranks, he served as the chief fire marshal from 2003 to 2010 and chief from 2010 to 2018. Brower’s accomplishments include overseeing the rewrite and readoption of the Loudoun County Fire Prevention Code (2007), directing the consolidation of the County Fire and Rescue Department and the 15 volunteer fire and EMS companies into a single operational entity in 2014, developing the “Preventing the Preventable” course for the NFFF, serving as the team leader for Vision 20/20’s Strategy-5 (Codes and Standards), and serving as a participant on the USFA Codes and Standards workgroup. Brower has numerous professional certifications. In 2018, he was recognized as chief fire officer by the Center for Public Safety Excellence and was honored as the Governor of Virginia’s Career Fire Chief of the Year. In 2019, Brower was given the Distinguished Alumni Award by Bridgewater (VA) College.