The General Assembly requested in its 1977 session that the Virginia Advisory Legislative Council study the question of establishing a mechanism for coordinating the state's various fire prevention and protection activities. It expressed its concern in Senate Joint Resolution No. 97.

The Council appointed Senator Willard J. Moody of Portsmouth chairman of the committee that was to conduct the study. The following persons were appointed as members of the committee: George Alexander
of Fairfax (Virginia Fire Service Council); R. J. Bartholomew of Charlottesville (Deputy State Forester); Robert E. carter of Richmond (Supervisor, Fire Services Training, Department of Education); Richard Cronin of Fairfax (Professional Firefighters Association); Delegate Alan A. Diamonstein of Newport News (Virginia Housing Study Commission); James Epperly of Christiansburg (Virginia Fireman's Association); J. Lloyd Gregory of Martinsville (State Fire Chiefs Association); Ken L. Johnson, Sr., of Virginia Beach; Delegate George W. Jones of Bon Air; Frank B. Kaye of Arlington (Virginia Fire Prevention Association); T. E. Masters, Jr., of Portsmouth; C. S. Mullen, Jr., of Richmond (Chief Fire Marshal); Leo V. Schocklin of Portsmouth (insurance salesman); H. Selwyn Smith of Richmond (Secretary of Public Safety); Claude J.  Staylor of Norfolk; and Lawrence W. Wuensch of Halifax. Mr. Staylor and Mr. Wuensch served as representatives of the Virginia Municipal League and the Virginia Association of Counties, respectively.

The Committee met several times and held public hearings in Roanoke, Norfolk, Fairfax and Richmond, as well. The many firefighter and local government officials who attended these meetings and hearings expressed a great deal of interest in the work of the Committee and concern that steps be taken to improve the general position of the fire services. The Committee had specifically requested comments regarding the need for a State-level agency for fire services and the duties of such an agency. Both the oral and written testimony indicated the existence of a strong consensus that such an agency be created.