August 1994
This supplement is provided as a special service to the Members of the National Volunteer Fire Council. Members are encouraged to reproduce and utilize this report in efforts to fight firefighter arson.
National Volunteer Fire Council Meets with FBI on Firefighter Arson
Quantico, VA - Representatives of the National Volunteer Fire Council recently met in Quantico, Virginia, with Tim Huff of the FBI's National Center for the Analysis of Violent Crime to discuss the issues surrounding firefighter arson. Ken Newton, Chair of the NVFC's Subcommittee on Firefighter Arson was joined by Michael Begland, the Council's Executive Manager.
For more than a year, the Council's Subcommittee has been investigating the problem of firefighter arson, analyzing methods of addressing the crime and looking at ways the NVFC can become more involved in putting an end to the destructive fires set by firefighters. Having conducted a national survey and met with several experts in the field, Newton learned of an FBI investigation looking into the problem. He contacted the FBI early in the year, and established a strong working relationship with Huff who headed the FBI's investigation. Speaking often about their prospective work, the August 4 meeting was the first time the two men has the opportunity to sit down face to face and discuss their findings and review proposals to remedy the problem.
"The meeting was an outstanding success," Newton explained, "sitting down with someone who clearly shared the NVFC's commitment to ending firefighter arson was refreshing and empowering." Newton went on to point out, "The fact that our findings are similar indicates that with leadership, the volunteer fire service can make a real difference in fighting this problem."
Huff's recently released report, Fire-setting Fire Fighters: Arsonists in the Fire Department - Identification and Prevention underscores several of the NVFC's findings. While little is known about the extent of firefighter arson, enough is known to indicate that it is a problem. Additionally, research has shown that many states do little in terms of awareness and prevention. Perhaps most important, both studies found that many of the tools needed to combat this problem are in the hands of most chiefs and departments. An emphasis on education about the costs and consequences of arson and screening of new applicants were regarded by both studies as effective means to ensuring that new recruits are not and do not become arsonists.
In addition to reviewing the findings of the two reports, the meeting focused on the need for action within the volunteer fire service. "This is by no means the culmination of out work on this important issue," Begland said, referring to the meeting, "The National Volunteer Fire Council is committed to putting and end to firefighter arson. This is just one step in the process."
NVFC Firefighter Arson Subcommittee Update
By Ken Newton (NVFC NY State Director)
In September 1993, the National Volunteer Fire Council's Subcommittee on Firefighter Arson was established. Promoted by sporadic reports of arson cases involving firefighters and a review of the available information concerning the issue, the NVFC Officers appointed Ken Newton (New York State Director) to Chair this NVFC Special Subcommittee.
The Subcommittee was charged with investigating the issue of firefighter arson: compiling a report on existing information, conducting the Council's own study of the problem and recommending action the Council should take to overcome this problem.
One of the first challenges the Subcommittee encountered was the tremendous lack of information concerning the issue of firefighter arson. While few doubt that it occurs, accurate numbers illustrating the magnitude of the problem are unavailable.
In the early months of 1994, the Subcommittee conducted a national survey of the problem of firefighter arson. Contacting chiefs, firefighters and marshals in every state, the Subcommittee distributed a survey that sought to gauge the size of the problem, effects on the fire service in that area and measures that have been taken to guard against firefighter arsonists. 85% of the surveys were completed and returned.
Some of the findings from the survey include:
- In most states accurate numbers on both arson cases and the number of cases that involve firefighters are not available. Many states have no numbers on how many arson cases involved fire service personnel. No respondents indicated knowledge of previous or ongoing investigations into the scope of the problem.
- Additionally, many states do little or nothing in terms of training or awareness within the fire service. Those few states that are involved in actively promoting an awareness of the issue incorporate training into State Training Courses, use videos and other tools during department training or utilize the State Fire Marshal's Office for short courses.
- There was a consensus among most respondents that education and screening of applicants are an important part of the solution.
- Only one state is currently pursuing legislation, which would require a criminal background check of all applicants for fire department membership. And while other states are not currently pursuing legislation, most see background checks as a practical means to deterring and identifying firefighter arsonists.
- Most respondents believed that education concerning the costs, dangers and legal aspects of arson, either incorporated onto State Training Courses or given to new department members can make a significant difference in deterring would-be arsonists.
While many respondents were frustrated by the lack of available data concerning the scope of the problem, there is a general sentiment that there is a problem - one firefighter arsonist is one too many. Several of the surveys articulate sincere concern and desire to address the problem:
"Everyone within the fire service must be, and should be, prepared to admit that there is a problem and that precise, firm methods are needed to combat this situation. To ignore the problem or suggest that it does not exist will only increase the damage caused by the arson firefighters involved, as well as destroy the morale of the other firefighters in their departments. There is a problem, we cannot ignore the problem, we must talk to our members about firefighter arson. We must investigate, charge and convict those that are committing this crime."
The sincere concern about the problem and willingness to even speak openly about it, suggests that with the right direction and tools, the volunteer fire service can make significant strides in addressing the problem. However, most chiefs and departments feel that the tools they need to address the problem are somehow out of reach.
As discussed earlier, education and a screening process for new members present two effective means to combat firefighter arsonists. As some state currently practice, by incorporating arson discussions into training, showing a video to all new members about the cost and consequences of arson and utilizing the State Fire Marshals Office for education programs, a department can create a strong deterrent to arsonists and an environment where firefighters are sensitive to the issue.
A screening process, where a department can access an applicant's criminal records, would alert the chief that a prospective member has a criminal history. In the Council's investigation, it discovered cases where individuals were actually convicted of arson in one state and moved to another only to set new fires. Both education and screening are tools that are available to most departments in greater or lesser degrees.
As the NVFC Firefighter Arson Subcommittee moves forward with developing specific recommendations for the Council, it will focus on the areas of awareness, education and developing a department screening process. The NVFC Firefighter Arson Subcommittee is just one of numerous committees the NVFC has established to help further the interests of the volunteer fire, EMS and rescue services.
Fire-Setting Fire Fighters: Arsonists in the Fire Department - Identification and Prevention
By Timothy G. Huff, Federal Bureau of Investigation, FBI Academy, Quantico, VA
"Local fire fighter arrested for arson!" A headline like this in your community's newspaper can be a nightmare come true for any fire chief. What are the chances it could happen in your department? That depends on you. This article deals with the phenomenon of fire fighters who commit arson, why they commit the crime and what you can do to prevent it.
The focus is on fire-fighting personnel who betray their comrades, families, and communities by committing arson. No one knows how many fire fighters are arsonists. The number of known cases is relatively small, considering the approximately one million paid and volunteer fire fighters in this country. Thankfully, the overwhelming majority of fire fighters dedicate their lives to serving their communities and richly deserve the hero status they often achieve.
However, the author easily located 25 cases of fire fighter arson by polling fire investigators in attendance at arson training sessions across the continent. Indeed, every audience produced a few new cases. The data in this article were gleaned from seven states and one Canadian province. The investigators who solved the cases supplied the data. Sixteen of the cases involved lone offenders: the other nine involved multiple offenders amounting to 59 conspirators. In all, there were 66 offenders (9+59) responsible to 182 fires. Using a protocol prepared at the FBI's National Center for the Analysis of Violent Crime (NCAVC) in 1993, the author conducted interviews with the investigators who solved the arson cases.
Motives
There are predictable reasons fire fighters set fires. The author isolated three motives in the 25 cases studied. The predominant motive found was excitement. The excitement motive was the driving force for the great majority of the group offender cases analyzed in this study (N=8 for 89 per cent). This is particularly true for the groups of youthful fire fighter arsonists. IS often was the dominating reason for lone offender as well (N=8 for 56 per cent). These fire fighters put their training and expectations of fire fighting into action by setting the fires themselves.
In another aspect of the excitement motive reported by investigators, the arsonist hope to be perceived a hero for his fire-fighting efforts (all reported offenders were male). The fantasy of being highly regarded by peers, family, friends, and members of the community overwhelms good judgment and common sense they said.
Some excitement fire setters preferred to set fire in relation to public service events such as parades, musters, training days, drills, or holidays to maximize public or peer attention. The send of belonging and feelings of power and excitement were important to the offender.
Profit was another motive. Some fire fighters received considerable overtime pay if kept on beyond their regular shift. Wildland fire fighters are included here too. In some jurisdictions, volunteer fire fighters received a fixed sum of money for each call to which they responded.
Revenge was the least common of the three motives used by the fire fighter arsonists. A disgruntled employee for any of many reasons may set fire in retaliation for a perceived grievance. In one case a volunteer torched the fire station. In another case a group of demoralized fire fighters turned fire setters in retaliation for a grievance against their chief.
Lone of Group Offenders
In most serial arson cases (three or more fires set with a cooling-off period between each) where an NCAVC analysis connects an arsonist with the fire service, a single offender was responsible. This study included 16 lone offenders. Less common, yet significant, were cases where multiple arsonists from one department were responsible for the fires. Nine such cases are reported here. Frequently the multiple-arsonist cases were a part of fire department programs connected with younger participants, such as programs designed for apprentice fire fighters, youth groups, or some auxiliary fire fighter programs for teenagers.
Modus Operandi
Most fire fighter arsonists acting alone used material found at the sire when setting a fire. It was less common to find one bringing gasoline to the scene or using incendiary devices. To begin their fire-setting careers, many of these arsonists favored targets such as dumpsters, trash piles or vegetations (so-called nuisance fires). Twenty-seven per cent of the lone offenders (N=4) and 56 per cent of the group offenders (N=5) began this way. Arsonists often escalated over time, setting fire more frequently and selecting targets with more damage potential. These targets often evolved in loss potential from the simple dumpster or trash fires, to vehicles, to abandoned or unoccupied structures. In extreme cases, occupied buildings were targeted. One fire fighter selected storage shed beneath the stairs of occupied apartments, setting his fires at night.
This lone arsonist commonly used matched or a cigarette lighter applied to the available fuel. This is referred to as a hot set, as opposed to using a delay incendiary device. Nighttime was the favored period for fire setting, presumably to afford the arsonist the cover of darkness to avoid detection. All the offenders studied set fire at night. Some also occasionally set daytime fire; only one did so frequently.
Arsonists engaged in conspiracy most commonly drove to the scene to set their fire (N=7 or 88 per cent). Fifty-three per cent (N=8) of the lone offenders drove; five (33 per cent) walked. The remainder were mixed. For example, one lone arsonist sometimes walked and other times drove. Another one walked or sometimes rode a bicycle. The fires were set within the fire district until the arsonist perceived suspicion directed his way. At that point, some arsonists set fires in adjoining districts to deflect suspicion or ceased setting fire for a period of time.
Telltale Signs of Firefighter Arson
An increase in nuisance fires within the jurisdiction of the fire department was a common denominator in 38 per cent of the 25 fire fighter arson cases examined. At the same time, few similar fires were found in adjacent jurisdictions. In two cases it was found that fire fighters in close-knit conspiracies would never call for a fire investigator to come to the scene of the fires they set. This behavior might serve as an indicator when suspicions of fire fighter arson are aroused.
The research also revealed offenders were often fairly new members of the department. "Fairly new" is used here because the fires were set by the arsonist after a period of familiarity with the department and fellow fire fighters. The average time with the fire department was 2.4 years for the 66 arsonists. Most group offenders appeared not to have the inclination to set any fires before joining the department. The idea occurred to them later.
Characteristics of Lone Offenders
There were characteristics and traits common to firefighter offenders who acted alone. This offender, we now know based upon the research, was predictably a white male. All of the lone offenders were white as were 60 per cent of the group offenders. The remaining 40 percent of the group offenders were black. There were no cases involving female arsonists connected with the fire service. All but two of the arsonists were between the ages of 18 and 30 with the average being 23. There were two exceptions involving older men. The oldest was a lone offender of 41 who set fires for profit.
Often the arsonist who acted alone had a spotty employment record including frequent job changes, with much absence and tardiness. He may have a criminal record for petty offences such as theft. The record may also include vehicle code violations, violations relating to alcohol abuse, or other misdemeanors such as trespassing. He very likely had a poor academic and behavior record in school.
Characteristics of Group Offenders
Those instance of multiple arsonists from one department usually involved younger offenders (16-35 years of age, average 19). They too were white males, except as noted above, and exhibited immature behavior in many of their social activities. One member of any group was dominant and became the leader or co-leader with another dominant person. The remainder were followers. There was strong peer pressure to cooperate in the fire-setting episodes, and even greater pressure not to disclose the activity to others outside the group. All multiple offenders in this study drove to the scenes. Often they were more organized in their fire-setting behavior than the lone offender. The groups did more planning in target selection and often brought a flammable liquid to the scene. They had middle class upbringing and no prior criminal records. Many were still in school.
Telltale Indicators
Typically, there was an evolution of similar events connected with firefighter arson cases. Investigators reported similar thoughts and feeling expressed by fire department personnel during the course of the arson problem.
One similarity in cases was that many nuisance fires were set before serious investigation into the matter was begun. Departments that thoroughly investigate all fires may be exempt from this factor. Indeed, a good investigation policy may deter the firefighter arsonist.
Investigators also reported that initially, fire department personnel were perceived as being beyond suspicion. Next, the possibility of fire personnel involvement was briefly considered, then rejected as unlikely. Later, the reluctance to believe a firefighter was responsible for the arson gave way gradually to genuine suspicion. This suspicion was closely held because of a reluctance to confide in anyone in case the person holding the suspicion was wrong. Further, any suspicion of a peer by rank-and-file firefighters was not expressed to management for the same reason, plus fear of the personal consequences if the suspicion was in error.
What about the Chief?
The research disclosed some interesting phenomena regarding the departments' chief officers. There is sometimes reluctance on the part of a fire department's management to report suspicions of firefighter arson to law enforcement authorities. Fire department relations with the police are not always the best, and fire chiefs understandable fear their suspicions being made public. Disclosure could bring shame to the department, whether the suspicions are correct or incorrect. The nagging fear of "what if I'm wrong" is an extremely powerful deterrent to disclose suspicions. The impact on employee morale is but one example of the negative result of suspicions becoming known. To focus upon the employee/suspect who is perfectly innocent can have far-reaching negative consequences. It makes good sense from the standpoint of morality, efficiency, and responsibility to eliminate anyone in the fire fighting ranks from suspicion early in an investigation. The investigation can then concentrate in other potentially more productive areas, and innocent firefighters can be defended from any speculation that they are involved. (The whole case may reveal negligent hiring practices by the department.)
The confrontation with the suspect(s) and the actual arrest(s) may not be nearly as troubling to a department as all the prior stress. The adverse publicity, the dealings with the media, the post-arrest investigation, and the judicial proceedings increase the chief's burden. Next come the efforts at face-saving, healing, and restoring confidence within the department and beyond.
Prevention
Some administrators are interested in grant money so studies of the problem can be conducted. The breadth and depth of the problem has not been studied. While grants are nice, the immediate and apparent answer to prevent firefighter arsons is deceptively simple: applicant screening. The trauma and accompanying problems of having an arsonist in the fire department can be minimized if applicants are screened with a background examination. Screening cannot be one hundred percent effective for a fire department any more than for a police department, but it is the best insurance. There are cases where volunteer firefighters suspected of arson moved from one state to another. A series of arsons took place in the communities shortly after the men's arrival and appointment to volunteer companies. The arsonists were suspected of setting fires before they moved. Preappointment telephone calls to the firefighters' previous departments by the new chiefs may have prevented a serious problem for the victimized departments and communities. The previous chiefs, if contacted, might have conveyed their suspicions to the new chiefs.
States have varying restrictions on what can be revealed to a prospective employer. Signed waivers by firefighter applicants permitting the hiring authority to acquire confidential information is an option. Background investigations can be lengthy and labor intensive. More cursory ones need not be. The investigation should be conducted by experienced personnel, but does not have to be. The police department has the forms and experience, but perhaps not the time, to conduct fire department personnel background checks. Local law enforcement can provide guidance if fire department personnel intend to conduct the background investigation. Police officials can explain the state's legal restrictions and requirements. Some fire departments use fire investigators or deputy fire marshals as background investigators. Others use administrative personnel. At least some effort must be made to view the personal side of any applicant to the department, whether paid or volunteer. One volunteer chief said he had enough trouble finding volunteers for his department, "A background check might deter potential volunteers," he said. The options must be weighed by the hiring authority.
All factors must be weighed so an informed decision may be made whether to do: no background check, a limited one, or a complete one. The most complete background checks, which include psychological examinations, can predict which applicants are a risk to hire or enroll even if they have never set a fire. Of course, background checks of the caliber are expensive. The most cursory background check should include a review of high school records, credit records, medical records, criminal history, driving record, employment record and references. It is particularly important to check with previous fire departments the applicant was associated with.
Recruits, particularly younger ones, should be informed about the penalties and consequences of fire setting. A unit of instruction can include what to do if a colleague is suspected of setting fires.
With younger offenders, focused instruction on the criminal aspects of arson, including so-called nuisance fires, may have deterred the activity. Instruction might include obvious dangers arsons pose to firefighters and other, cost in dollars, image to the department, and penalties (fines and prison time). Arson detection training can be given at this time too, in order to correctly channel the recruits' mind-set.
Summary
Based upon this research, NCAVC analysts conclude that in the majority of cases involving firefighters who commit arson, the most basic of background investigation before hiring can reveal potential problems. These problems range from criminal records to mere suspicions shared by former fire fighting colleagues. The suspicions may be that the applicant was responsible for conduct unacceptable for a firefighter. Less obvious are cases where the arsonist was hired as a firefighter and a background check would have revealed indicators of future problems such as a poor driving record, behavior problems in school, petty criminal activity involving theft or other, more serious misdemeanors.
Prompt investigation of the possible telltale signs of firefighter arson can be a deterrent. Many chiefs do not permit even cursory investigation of so-called nuisance fires, concluding these investigations are a waste of time, money, and resources. While there may be rational arguments for the policy in this era of tight budgets, it is a fact many arsonists escalate in the fire-setting behavior. This is, they begin their fire-setting careers torching dumpsters or small patched of vegetation, but escalate in frequency and selection of targets. Since they were successful in avoiding apprehension for the dumpster fires, they graduate to abandoned buildings, unoccupied building, and other targets of increasing value and risk to fire fighting and civilian personnel.
The earliest possible intervention can be made by demonstrating rapid and thorough investigation of all fires to the extent resources and common sense permit. The more cursory of investigations may eliminate the possibility of firefighter involvement.
It is sad but true that a firefighter gone bas not only distracts his department, but also disgraces his profession, as does a dishonest policeman. However, until more departments adopt proactive measure in the firefighter appointment process, whether paid or volunteer, there is little hope of anything but a continuing problem.
