Fire Inspection Program for Greek Facilities
at the University of Maryland:
A Model of University and Community Cooperation

Alan Sactor
Department of Environmental Safety
University of Maryland

Abstract

Fires in Greek facilities have claimed the lives of a number of college students in recent history. It is difficult to manage the risks from fire in Greek Facilities because, although they are associated with the college or university, they are often off-campus and privately owned. The University of Maryland at College Park recognized this problem, and as a result, developed a cooperative inspection program with the Prince Georges's County Fire Department and City of College Park which has been in effect since 1972. The University also maintains an inspection program and an innovative renovation program for on-campus Greek Facilities.

Introduction

Virtually every campus that has a Greek system has some form of housing for the fraternities and sororities. It may be a floor in a residence hall, separate facilities owned by the institution, or privately owned off-campus facilities. The programs utilized by different colleges and universities to manage fire safety in Greek facilities varies by institution.

Greek facilities can present a challenge to risk management. They are generally outside the university's normal residential facilities management programs or, as in the case of privately owned off-campus facilities, are not managed at all by the university. In addition, any program that involves Greek facilities must involve the Greek system which can, at times, be confusing to those who are unfamiliar with it.

Fires in Greek Facilities: The Consequences

The consequences of fires in Greek facilities are the same as those associated with any occupancy: property damage, injuries, and deaths.

There have been a number of multiple fatality fires in Greek facilities in recent years. One notable fire occurred at Bloomsburg University in Pennsylvania on October 23, 1994 during homecoming weekend. Four men and one woman were killed in a two story wood fraternity house located near the campus.(1)

Property damage can be quite costly in Greek facilities because many of the buildings are large, old, and historic in nature. Replacement costs are high, and in some cases items within the buildings, or the structures themselves, may be irreplaceable.

Fire Safety Problems

In brief, the following factors contribute to fire safety problems that are associated with Greek facilities:

Construction - The ordinary, wood frame, or even balloon construction of many of the older buildings can contribute to fire and smoke spread. Open stairwells can also be found. Multiple additions, sometimes unauthorized, create concealed spaces for fire to develop and may also change exits and egress patterns and may include combustible interior finishes. The occupancy classification of these facilities, which in many cases (based on fire and building code requirements) is associated with the size and construction of the building, varies to include dormitory, rooming, apartment and single family.

Inadequate fire protection systems - Due in part to the lack of inspections and code enforcement, as was the case at the University of Maryland at College Park [UM] prior to the early 1970's, there may be inadequate fire alarm, sprinkler and kitchen suppression systems, residential smoke detectors, and emergency lighting.

Lack of maintenance - General poor upkeep results in unrepaired holes in walls and broken stairwell and bedroom doors which contribute to smoke and heat spread. Fire protection systems, emergency lighting, and exit signs, when in place, can be in disrepair or out of service.

Occupant behavior - Large social events and rough treatment of the facilities causes damage or excessive wear and tear. Poor fire safety awareness of occupants may result in blocked exits, flammable decorations, unsafe use of combustibles and smoking materials, and tampering with fire protection equipment. Guests in the facilities may not be familiar with exits and fire alarm signals. To emphasize the importance of occupant behavior, consider the following contributing factors in the fatal Bloomsburg University Fire: the fire started in a couch which was thought to have been extinguished by the occupants and placed out on the porch, the smoke detector batteries had been removed (which was a common practice during smoke-filled parties according to the coroner), and one of the victims was a guest.(2)

Organization of Greek Facilities at UM

There are two main types of Greek facilities associated with UM.

University owned facilities are physically located on campus and are leased to the Greek organizations by the University.

Privately owned facilities are physically located off-campus. The Greek organizations which occupy these facilities must be recognized by the University.(3)

Concerns with Off-Campus Facilities

Off-campus facilities house Greek organizations that are associated with, and officially recognized by, the University. Because of this fact, it may be implied that the University has responsibility for the student-residents welfare. Whether or not the University is legally responsible, the publicity generated from an incident could be negative. An incident at a privately owned off-campus facility is generally not distinguished from that occurring on-campus. The headline might likely read " Fire Destroys Sorority House at University of Maryland."

The University has no direct control of privately owned facilities. Controls are generally social and involve the Greek organizations status with the University. This is important because the organization must be recognized by the University. Social controls may have indirect effects such as reducing damage from parties if the organization is restricted from having parties. However, social controls are generally not adequate in addressing problems with the facilities.

University Owned Facilities at UM

The twenty two University owned facilities at UM are classified as renovated or non-renovated. The responsibility for the management is dependent upon the type of facility. The Office of Greek Life in the Office of Campus Programs, Division of Student Affairs provides coordination through the Greek Facilities Coordinator.

Renovated - UM has established and is maintaining a renovation program for the Greek facilities. The program is divided into yearly phases with two or three buildings being renovated per year at an average cost of one million dollars per building. Priority is based on age and condition. When completed, the buildings are in complete code compliance including residential sprinkler systems. Fire and life safety improvements are based, in part, on deficiencies noted during inspections. Renovated facilities are leased to the Greek organizations on a yearly agreement at a cost of $30,0000 to $40,0000 per year. The rent goes to a capital fund which is used to pay off the construction bonds. Greek organizations that are scheduled for renovation may begin paying into the fund before the renovation takes place. Organizations which cannot pay into the renovation program may not remain in the facility. As of this time renovations have been completed on eleven facilities.(4)

Maintenance management for renovated facilities is provided by the Department of Residential Facilities [DRF] under a required comprehensive maintenance agreement. Fire inspections are included in the agreement. The cost of the maintenance program is above the rent cost.

Non-renovated - Greek organizations lease non-renovated facilities on varying terms based on past agreements and are responsible for the maintenance of the facilities. Repairs and maintenance may be performed by private contractors or by the UM Department of Facilities Management [FM]. Assistance and coordination is provided by the Greek Facilities Coordinator.

Greek Facilities Coordinator [GFC] - The person in this position serves as a clearing house for information for the Greek organizations. The GFC channels information between the Greek organizations and other departments, receives bills (including maintenance), assists with financial management, gives guidance on proposals, interprets guidelines and coordinates maintenance contract issues. The GFC also helps the organizations maintain code compliance by coordinating with the Department of Environmental Safety [DES] as well as handles judicial board referrals and performs a regular walk through of the facilities.(5)

Privately Owned Facilities at UM

The Greek organizations which own or lease facilities off-campus are entirely responsible for the repair and maintenance of the facility. They do not receive assistance from the GFC and cannot utilize the UM Department of Facilities Management.

Greek Organizations

In general, most Greek organizations on campus are local chapters associated with a national organization. Nationals have and enforce rules, policies and regulations, including those for risk management, by which the local chapters must abide. Association with a national is required at UM.(6) Local chapters elect officers who are often held legally responsible for the management of the facilities.

House corporations are legal corporations made up of alumni who become responsible as owners or lessees of the facilities. These corporations often hire House Directors who live in the facilities and manage the daily operations. House Directors are required in UM owned facilities and will be required in all Greek facilities by the year 1996.(7)

There are differences between fraternities and sororities which effect the condition of the facilities. Based on experience at UM, sororities often have stronger ties to their nationals and closer involvement of house corporations than fraternities. Sororities always have house directors and cleaning services and do not have parties which include alcohol in their facilities.(8)

Fire Code Requirements for University Owned Facilities

UM is a state institution and as such, the Maryland Fire Prevention Code, which incorporates NFPA 101, Life Safety Code and the BOCA Fire Prevention Code, is the only applicable fire code. University Guidelines and policies such as those for cooking appliances, lofts, and public assembly are also administered.

Fire Code Requirements for Privately Owned Facilities

Off-campus facilities are located within the City of College Park and are subject to the requirements of the Maryland Fire Prevention Code, City of College Park Housing Code, and the Prince George's County Fire Law.

The City of College Park Housing Code incorporates the Prince George's County Fire Law and allows for the City to administer fines for fire code violations.(9)

Fire Inspection Program for University Owned Facilities

The function of providing fire inspections for Greek facilities at UM has been in place since the 1960's. Changes and enhancements to the program have been implemented over the last several years. The following is a summary of the current program (see tables 1A and 1B).

Frequency and Components - Each facility receives a walk-through each fall and spring semester when the building is occupied. Single station smoke detectors are tested in each room, and building deficiencies and occupant related problems are observed. Fire protection systems are easily tested during the inspection of non-renovated facilities because the systems are not complex. The more complex fire protection systems in renovated facilities are tested separately during winter and summer breaks on a schedule with regular residential facilities.

Reports - Reports of the inspection are sent to the GFC in the form of a memorandum. Each deficiency is prioritized based on severity in a pre-established time frame ranging from immediate to 30 days. If serious problems are observed, immediate work orders for repairs are placed by DES with either DRF or FM.

Scheduling - Scheduling of inspections is coordinated through the GFC. A overall schedule is sent to the GFC who notifies the management of the individual facilities. The GFC generally accompanies DES personnel during the inspection. Master keys are available for renovated facilities and are utilized, especially for system testing during breaks.

Corrections/Repairs - Corrections and repairs are provided for under the DRF maintenance agreement for renovated facilities. Private contractors or FM may be utilized in non-renovated facilities. All work is coordinated through the GFC.

Reinspections - Reinspections consist of a follow-up by the GFC to assure that work orders have been completed in renovated facilities, contracts have been completed in non-renovated facilities and that occupant related problems have been corrected. DES only becomes involved if the problems were serious or very technical in nature.

Enforcement - Enforcement related uncorrected deficiencies or occupant behavior is coordinated through the GFC and the Office of Campus Programs. Referrals may be made to the University's Judicial Programs Office where a variety of sanctions may be imposed on an individual or the organization. Sanctions may include probation, suspension, fines, or community service. DRF may also provide enforcement through the maintenance contract for renovated facilities. Violation of the contract may result in additional monetary charges or eventual loss of the organization's lease. In the past, DES sent official letters threatening enforcement by the Office of the State Fire Marshal. This did not prove to be effective and was eventually phased out. However, such enforcement could be utilized in the rare event of an extreme case.(10)

Fire Exit Drills - Fire exit drills, which also serve as a form of public education, are conducted once each semester. Failed drills are repeated at a later date. Failures usually result from occupants not participating or not calling the fire department. Notification of upcoming drills is coordinated through the GFC.

Fire Inspection Program for Off-Campus Facilities

The fire inspection program for off-campus, privately owned facilities is based on an multi-agency agreement which was originally implemented in 1972. UM involvement evolved from the fire exit drill program. While conducting the drills, personnel from the Department of Public Safety, a precursor to DES, observed the deteriorated conditions within the off-campus facilities. Upon informing the responsible code enforcement agencies of the conditions, the assistance of UM was solicited.(11)

Agreement - The fire inspection agreement for off-campus Greek facilities is between UM, Prince George's County Fire Department [PGFD], and the City of College Park [CCP]. Originally written by UM in 1972, and re-written in 1992, the agreement states: "Contingent upon resources, the purpose of this agreement is to provide for the cooperation of the parties in conducting fire safety inspections at University recognized, off-campus fraternity and sorority houses."(12) The agreement identifies the roles and authority of each party; DES personnel act as authorized agents representing PGFD (and are also legally appointed Special Assistant State Fire Marshals). Procedures for scheduling, reinspection, imminent hazards, enforcement and administration are also identified. Prior to implementation, the agreement was reviewed by the legal counsel of all parties and signed by the UM Vice President of Administrative Affairs, Director of Environmental Safety, CCP City Manager and Director of Public Works, and the PGFD Chief of Department.

Frequency and Components - Each facility is inspected once each academic year during the fall semester. The fire inspections are conducted in conjunction with CCP Department of Public Services inspections. Single station smoke detectors are tested in each room and building deficiencies and occupant related problems are observed. Older, low technology fire protection systems are tested for functioning at the time of the inspection. Complex fire alarm systems are not tested, however documentation is required indicating that all fire protection systems (sprinkler, fire alarm, kitchen suppression, emergency lighting) have been tested and maintained in accordance with code requirements.

Reports - PGFD correction orders are issued. A representative of the facility signs and accepts the correction order. Each deficiency is prioritized based on severity in a pre-established time frame ranging from immediate to 30 days. Copies are retained for DES, PGFD, CPP, and the local fire station.

Scheduling - Inspections are scheduled by CPP Department of Public Services and coordinated with DES. Letters of notification are sent to the House Corporations thirty days in advance (see table 2).

Reinspection - Reinspections are also scheduled by CPP Department of Public Services and coordinated with DES. Second inspections occur thirty days after the initial inspection. DES is involved through the second inspection, at which time all paperwork is turned over to PGFD (a major change included in the 1992 agreement). If subsequent fire inspections are required, they are conducted thirty days after the second inspection and seven days after the third inspection. These subsequent inspections are scheduled and conducted entirely by PGFD. After the fourth inspection, PGFD may return to the facility every twenty four hours to inspect outstanding violations.

Enforcement - Enforcement is handled by PGFD and CPP. City of College Park penalties consist of fines assessed for outstanding violations after the second inspection, non-issuance of the required occupancy permit, legal action and closing of a facility. PGFD penalties include fines assessed after the 4th inspection and criminal charges. Criminal charges are rare but can be brought if violations are serious enough such as maliciously locked exits. Both PGFD and CPP may assess fines every twenty four hours if there are outstanding violations after the 4th inspection. An appeals process is in place for both jurisdictions. PGFD may also grant variances. All violations must be cleared by both CPP and PGFD in order for an occupancy permit to be issued by CPP (see table 2A, 2B, and 2C).(13) (14) (15)

Fire Exit Drills - Fire exit drills, which also serve as a form of public education, are conducted once each semester during the same time period as on-campus facilities. Failed drills are repeated at a later date. Failures usually result from occupants not participating or not calling the fire department. Notification of upcoming drills is coordinated through the GFC in assistance to DES.

Positive Aspects of Off-campus Agreement

The agreement has an inherent effect for improving life safety conditions in the facilities. It assures at least one inspection process per year in an increasingly financially strained jurisdiction. Prior to the establishment of the program there were very few fire inspections of the Greek facilities and of those most were preceded by fire incidents or complaints.

Major deficiencies were identified and corrected when the program began in the early 1970's. Improvements that were made include enclosed stairwells and fire separation, additional exits, fire alarm systems, some sprinkler systems, emergency lighting and regulation of interior finishes. Deteriorating conditions are able to be monitored and the need for additional improvements noted and required.

University involvement is a positive aspect because it adds some amount of control for off-campus facilities. UM is aware of conditions in the facilities and is not surprised in the event of an incident. DES personnel are able to provide consistency and develop working relationships with house corporations and management. As a result, DES personnel can provide consultation on improvements. This would include those incorporated into on-campus renovation projects. Good working relations also are helpful in gaining compliance.

Working with other agencies and jurisdictions provides benefits beyond fire inspections. University-Community relations are improved. Professional relations with PGFD and Prince George's County are also maintained and improved.

Negative Aspects of Off-Campus Agreement

Using DES personnel to inspect off-campus facilities is a time consuming program which requires one full month of work time per year. This time could be utilized to perform similar duties at the over two hundred major buildings and other facilities owned by the University. In addition, the legal implications of working outside the University umbrella have not yet been tested.

Providing off-campus services only to Greek organizations can be perceived by the University community as partiality to the Greek system. The numerous other off-campus facilities such as apartment buildings and other rentals that house students are not inspected by DES. However, this argument may be countered by the fact that only facilities on property zoned for fraternities and sororities are inspected by DES. Greek "satellite facilities" which are buildings that house members of the same Greek organization but are not on properly zoned property are not inspected by DES.

Lastly, the University may be seen as an enforcer extending its hand into private property. Greeks in particular may feel that University involvement challenges their autonomy.

Conclusion

Although it is hard to quantify fire prevention efforts, the fire inspection program at UM can be considered successful. To this date there have been no fire deaths or serious injuries. Also important is the fact that numerous life safety improvements have been made to the Greek facilities both on and off campus which are directly attributable to the program.

The program at UM may or may not be suitable for other Colleges or Universities. Some factors to consider include: the degree of services provided by the local jurisdiction, the number of Greek facilities associated with the institution, the amount of support provided to the Greek system by the institution, and specifically for off-campus facilities, if adequate College or University personnel are available to assume additional duties and whether administrators feel that such involvement is beneficial.

As it stands, the fire inspection program for Greek facilities at UM may well serve as a model of University and community cooperation.

Bibliography

College Homecoming Celebration Curtailed by Five Deaths in Fire. (1994 October). The Washington Post, p.A22.

Daves, John D. (Derek). Interview with author. College Park, Maryland. 6 June 1995

Nichols, Dawn K. Interview with author. College Park, Maryland. 31 May 1995

Office of the Vice President for Student Affairs. (1995). Greek Life: A Foundation to the Future. University of Maryland.

Prince George's County Maryland Government (1979). The Fire Safety Law of Prince George's County.

Ryan, Robert W. Interview with author. College Park, Maryland. 15 June 1995.

University of Maryland. 1992. Agreement for the inspection of off-campus fraternity and sorority houses between the City of College Park, University of Maryland, and Prince George's County, Maryland.

Wasserman, Gene. Interview with author. College Park, Maryland. 7 June 1995.

Foot note

College Homecoming Celebration Curtailed by Five Deaths in Fire. (1994 October). The Washington Post, p.A22.
College Homecoming Celebration Curtailed by Five Deaths in Fire. (1994 October). The Washington Post, p. A22.
City of College Park, Maryland (1964). City of College Park Code, Housing Regulations.
Wasserman, Gene. Interview with author. College Park, Maryland. 7 June 1995.
Wasserman, Gene. Interview with author. College Park, Maryland. 7 June 1995.
Nichols, Dawn K. Interview with author. College Park, Maryland. 31 May 1995.
Office of the Vice President for Student Affairs.(1995). Greek Life: A Foundation for the Future. University of Maryland.
Nichols, Dawn K. Interview with author. College Park, Maryland. 31 May 1995.
City of College Park, Maryland (1964). City of College Park Code, Housing Regulations.
Wasserman, Gene. Interview with author. College Park, Maryland. 7 June 1995.
Ryan, Robert W. Interview with author. College Park, Maryland. 15 June 1995.
University of Maryland. 1992. Agreement for inspection of off-campus fraternity and sorority houses between City of College Park, University of Maryland, and Prince George's County Maryland.
Prince George's County, Maryland Government (1979). The Fire Safety Law of Prince George's County.
City of College Park, Maryland (1964). City of College Park Code, Housing Regulations.
Daves, John D. (Derek). Interview with author. College Park, Maryland. 6 June 1995.