1 

Board of Visitors for the National Fire Academy

Fiscal Year 2023 Annual Report

Meeting Schedule 

Dec. 6, 2022 

March 8, 2023 

August 7, 2023 

Introduction

The Board of Visitors (Board) for the National Fire Academy (NFA) plays an important role in 

supporting the academic stature of the NFA. From the Federal Register:

The purpose of the Board is to review annually the programs of the National Fire 

Academy (Academy) and advise the Administrator of the Federal Emergency 

Management Agency (FEMA), through the United States Fire Administrator, on the 

operation of the Academy and any improvements therein that the Board deems 

appropriate. In carrying out its responsibilities, the Board examines Academy 

programs to determine whether these programs further the basic missions that are 

approved by the Administrator of FEMA, examines the physical plant of the 

Academy to determine the adequacy of the Academy’s facilities, and examines the 

funding levels for Academy programs. The Board submits a written annual report 

through the United States Fire Administrator to the Administrator of FEMA. The 

report provides detailed comments and recommendations regarding the operation of 

the Academy.

Thus, the Board’s role is to: 

• Review NFA programs to ensure they fulfill the basic mission of the U.S. Fire 

Administration (USFA).

• Ensure that NFA facilities are adequate for their assigned purposes. 

• Ensure appropriate funding levels for NFA programs. 

• Provide advice and recommendations to the USFA via an annual report of its activities. 

The Board reviewed the NFA in the first 3 areas listed above. The NFA Board of Visitors was 

glad to gather in person at the National Emergency Training Center (NETC) in Emmitsburg, 

Maryland, for the August meeting to review NFA programs, facilities and funding. After 

receiving briefings from USFA program representatives, the Board offers this report in 

fulfillment of the fourth responsibility. 
2

The Board would like to emphasize the following:

• NFA continues to have urgent vacancies in essential staff and leadership positions. 

Currently 18% of positions at NFA are unfilled. Addressing this requires streamlining of 

the hiring process. The Board recognizes the hiring process may be beyond the control of 

NFA staff. Filling vacancies takes 6 to 12 months to complete, interfering with attracting 

and retaining desirable candidates.

• It is imperative that the USFA and NFA obtain the required funding to maintain their 

mission and the expected role they play within the Department of Homeland Security 

(DHS)/FEMA.

• NFA continues to champion the need for a state-of-the-art, on-campus, physical and 

mental health and wellness center to model the expected behaviors taught to students.

National Fire Academy programs

The NFA provides training and education to over 67,000 career and volunteer fire and 

emergency medical services (EMS) personnel per year (84,395 average over 5 years). Classes 

are delivered in person on NFA’s campus, through online synchronous and asynchronous 

courses, through partnerships with state and metropolitan fire training organizations, and with 

institutions of higher education. 

U.S. Fire Administrator Dr. Lori Moore-Merrell continues to invigorate the USFA through

enhanced grassroots outreach, affinity group engagement and a new Strategic Plan, including:

• Establish the USFA as the leader of the nation’s fire and EMS.

• Prepare the nation’s fire and EMS to prevent, prepare, respond and mitigate all hazards.

• Inspire fire service research and technology innovation.

• Establish a prepared, resilient and engaged USFA workforce.

Dr. Moore-Merrell also continues to emphasize integrating EMS priorities into NFA’s offerings, 

enhancing the capture of data and the capacity to use that data to empower activities, and the 

ongoing enhancement of wildland urban interface (WUI) offerings with special attention to the 

impact of climate change. The NFA maintains the goal of a student-centric approach with current 

and relevant professional development opportunities for career and volunteer fire and EMS 

personnel. 
3

Education, training and partnerships

A robust spectrum of courses and course delivery options demonstrates the evolution of the NFA 

with the changing fire service and the emergence of new teaching technologies. 

Mediated courses: During fiscal year (FY) 2023, the NFA fully implemented the migration to 

Blackboard as the platform for the learning management system (LMS). The Board continues to 

support the growth of mediated course offerings where appropriate, as an effective and efficient 

mode of training delivery, especially for students who are not able to attend campus.

NFA Online: During FY 2023, NFA Online Self-Study completions totaled 37,554.

The NFA State Fire Training Systems Grant program offers $20,000 to each state fire training 

system/academy. The complications and costs of administrative overhead and burden of work 

results in a decision in some states to not accept or use these grant funds. During FY 2023, there 

were 32 state fire training grant recipients. These funds can be used to hire instructors, pay for 

training costs, and support a wide variety of local delivery training efforts for all facets of the fire 

and EMS service nationwide. The Board encourages NFA staff to continue to market the use of 

these funds by as many states as possible.

The NFA’s Fire and Emergency Services Higher Education (FESHE) program connects the 

NFA with institutions of higher education engaged in fire and emergency services degree and 

certificate programs. More than 120 colleges and universities are currently active in the FESHE 

program. The FESHE program manager position has been vacant for over 2 years which has 

limited the important work able to be completed. When the position is filled, the NFA is 

committed to the partnership and will work with FESHE leadership to reexamine the relationship 

as well as review and rebuild the programs and processes in place when the position was 

vacated.

The NFA State/National Weekend program has resumed full strength after being heavily 

impacted by COVID-19. Some state weekends have been successfully combined, resulting in full 

course offerings and excellent interaction among attendees. Additionally, several national 

weekends will allow individuals from throughout the country to attend 2-day classes and 

experience the NFA campus. The Board is particularly supportive of weekends emphasizing 

outreach to affinity groups such as the partnership with Women in Fire to produce a Women’s 

Weekend. These offerings underscore the commitment of NFA to serving the entirety of our

diverse fire service and help to recruit future attendees and instructors from groups that 

historically were not well represented on campus.

Through the NFA off-campus delivery programs, each state receives 9 2-day classes, and each 

region receives 3 5/6-day classes. Classes not used may be reallocated to other states and 

regions. This program continues to support strong partnerships with state fire training agencies.
4

Leadership and Partnership Branch

The Leadership and Partnership Branch includes curricula for Executive Fire Officer (EFO), 

Managing Officer, Leadership and Executive Development, Community Risk Reduction, 

Planning and Information Management, Training Management, Fire Prevention, Public 

Education/Technical, and WUI. The updated EFO Program has been fully implemented and 

legacy course offerings have concluded. EFO students have provided positive feedback about the 

curriculum and delivery of the program. The Board supports the efficient partnership with an 

external institution of higher education to deliver the EFO M5104, “Applications in the Exercise 

of Leadership: Capstone I” course. The Managing Officer Program is currently undergoing a 

redesign. The conceptual framework will possibly be 1 in-person class and 1 virtual class in each 

of 2 years. However, the design work will inform the type and length of the courses. The Board 

looks forward to updates about the new program as it develops.
5 

Table 1 outlines the application and admission data for the EFO and Managing Officer programs.

Table 1: EFO Program and Managing Officer Program 

application and admission data

EFO Program Managing Officer Program

Applied Admitted Admit % Applied Admitted Admit %

FY 2017 268 163 60.8 218 153 70.2

FY 2018 298 189 63.4 240 153 63.8

FY 2019 252 37 14.7 229 129 56.3

FY 2020 145 0 0.0 267 85 31.8

FY 2021 244 89 36.5 240 100 41.7

FY 2022 517 120 23.2 195 24 12.3

FY 2023 0 0 0 0 0 0

Total 1,724 598 34.7 1,389 644 46.4

Average 287.3 99.7 34.7 231.5 107.3 46.3

Note: The information provided in this chart came from the FY reports in the NETC admissions system. The numbers may be 

different in other documents based on the way the data is included in each line or category. Values may also vary depending upon 

when data was retrieved.

Response and Special Operations Branch

The NFA Response and Special Operations Branch includes curricula for Incident Management 

and Coordination, Emergency Medical Services, Fire and Investigative Sciences, Hazardous 

Materials and Response to Terrorism, and Responder Health and Safety. The board recognizes 

and applauds the creative partnership with the U.S. Forest Service and CAL FIRE to deliver the 

wildfire investigation course (FI-210) in Redding, California. The board looks forward to 
6

learning more about this partnership and encourages the continued application of new and 

imaginative ways to deliver course content to students. 

Training, Administration, Planning and Analysis Branch

Changes are in progress regarding the recruitment and bid evaluation of contract instructors. 

The intent is to separate the bid for course amounts from the travel cost to improve geographic 

diversity (e.g., cadre from California will be paid equally as cadre from Pennsylvania). USFA 

and NFA leadership have been intentionally reaching out to affinity groups such as the 

International Association of Black Professional Firefighters, Black Chief Officers Committee, 

Women in Fire, the National Association of Hispanic Firefighters, Native American Fire Chiefs 

Association, and the International EMS & Firefighters Pride Alliance to enhance diversity, 

equity and inclusion and ensure that all members of fire and EMS feel welcomed to attend and 

instruct at the NFA campus.

Targeted efforts to recruit, hire and onboard new instructors have been hampered due to the lack 

of available staff to evaluate candidates and perform interviews. Additionally, the hiring process

for contract instructors is complicated and time intensive, disincentivizing potential instructors 

from joining the teaching pool. NFA has assigned a staff member to serve as the point of contact 

to assist interested instructors with navigating the federal contracting system. NFA staff is 

working to implement a quarterly contract instructor hiring process that will alleviate the 

challenges identified in FY 2023.

This year, the American Council on Education (ACE) reviewed 17 courses (15 repeat and 2 

new). The ACE credentialing program provides third-party, unbiased assessment of course 

content and rigor. Many colleges and universities accept ACE-approved NFA courses for 

academic credit transfer. 

Table 2 offers an overview of course deliveries and attendees.
7 

Table 2: Course delivery student completions

FY 2022 final 2023 preliminary Difference % difference

Offerings Attendees Offerings Attendees Offerings Attendees Offerings Attendees

NFA sponsored

Resident

2-day 45 777 75 1,414 30 637 66.7 82

2/6-day 137 2,355 170 3,334 33 979 24.1 41.6

6-day (pilot) 5 73 13 259 8 186 160 254.8

10-day 45 841 28 562 -17 -279 -37.8 -33.2

Subtotal resident 232 4,046 286 5,569 54 1,523 23.3 37.6

Nonresident

2-day 224 3,546 248 4,011 24 465 10.7 13.1

6/10-day 34 614 44 744 10 130 29.4 21.2

Mediated 1 29 2 87 1 58 100 200

Virtual 65 1,397 12 268 -53 -1,129 -81.5 -80.8

LMS 40,090 37,554 0 -2,536 -6.3

Subtotal 

nonresident 324 45,676 306 42,664 -18 -3,012 -5.6 -6.6

Total NFA 

sponsored 556 49,722 592 48,233 36 -1,489 6.5 -3

State sponsored

6-day 1,055 15,699 988 13,789 -67 -1,910 -6.4 -12.2

Approved 360 5,874 317 4,534 -43 -1,340 -11.9 -22.8

Total state 

sponsored 1,415 21,573 1,305 18,323 -110 -3,250 -7.8 -15.1

College 513 3,224 411 1,986 -102 -1,238 -19.9 -38.4

Total NFA 2,484 74,519 2,308 68,542 -176 -5,977 -7.1 -8 

Note: The information provided in this chart was from Sept. 30, 2023.

The NFA evaluates long-term training effectiveness of resident courses through surveys of 

students and their supervisors. During FY 2023 (Oct. 1, 2022, to Sept. 30, 2023), 565 students 

and 492 supervisors responded to the long-term evaluation. As with previous years’ responses, 

students indicated that they were able to transfer the training skills and learning to their jobs, and 

supervisors reported improved performance. Response data are shown in Table 3. 
8 

Table 3: Long-term evaluation results

Long-term evaluation reporting 

elements

2018 2019 2020 2021 2022 2023

Students reporting they were able to apply 

NFA training at home 91.0% 94.3% 93.9% 88.1% 93.8% 94.9%

Students reporting NFA training improved 

their job performance 97.1% 96.3% 96.4% 91.8% 97.4% 94.9%

Students reporting they shared NFA training 

with their peers 97.9% 95.1% 97.2% 91.7% 96.2% 96.7%

Students reporting they conducted formal 

courses with NFA material 24.8% 23.6% 24.2% 17.0% 22.9% 21.4%

Students reporting they established new 

policies and procedures based on NFA 

training

77.1% 72.5% 70.8% 63.2% 59.7% 68.9%

Supervisors reporting improved performance 

from NFA training 90.9% 89.4% 92.3% 92.5% 93.6% 91.6%

Supervisors reporting improved departmental 

performance 91.1% 86.9% 91.4% 91.7% 93.6% 92.0%

Supervisors who say they will recommend 

NFA training to others 97.4% 96.4% 96.9% 96.2% 97.6% 97.5%

Supervisors reporting NFA benefits 

outweigh costs 94.7% 92.4% 95.2% 93.9% 95.2% 95.1%

Note: Data reported was derived from NFA Long-Term Evaluation Forms sent to both students and their supervisors 4 to 6 

months after the NFA training class ended.

National Fire and Emergency Medical Services Programs and National Fire Data 

and Research Center 

While the National Fire and Emergency Medical Services Programs Division (NFEMSP) and the 

National Fire Data and Research Center Division (NFDRC) are not officially within the charge 

of the Board of Visitors, the close work between NFA and NFEMSP/NFDRC requires 

consideration of NFEMSP/NFDRC efforts to provide context to the NFA assessment. 

Of note, the Board is concerned with the increasing fire death rate nationally and will be 

interested in efforts to reverse these developing trends. 
9

U.S. fire death estimates (2012-2021)

Source: National Fire Protection Association (NFPA)

U.S. fire death rates per million population (2012-2021)

Source: National Center for Health Statistics and U.S. Census Bureau
10

Home Fire Fatalities and Social Vulnerability Explorer

Source: USFA

The National Fire Incident Reporting System (NFIRS) has historically served as a repository of 

fire incident data. USFA is in the process of developing a new analytical platform for incident 

data collection, storage and reporting called National Emergency Response Information System

with an anticipated implementation period of 2024-2025. The legacy NFIRS is planned to sunset 

in 2025.

USFA has released noteworthy publications including “Retention and Recruitment for the 

Volunteer Emergency Services,” “Study of Emergency Vehicle Warning Lighting Systems,” and 

“Funding Alternatives for Emergency Medical and Fire Services.” 

National Emergency Training Center, Physical Plant

The size, age and scope of the NETC campus facility continue to offer both challenges and 

advantages. The historic nature of many of the NFA buildings adds complexity to the ongoing 

maintenance and repairs. On behalf of students and other stakeholders, the Board appreciates the 

tremendous support FEMA has provided to address capital improvement and maintenance issues 

on campus. We applaud the continued outstanding work of the NETC Management, Operations 

and Support Services (MOSS) in managing the physical plant and numerous activities held on 

campus each year. 
11

The Board of Visitors thanked Mr. Hodge and the staff for all the work that has been done. It 

was great that the unplanned fixes did not hurt the budget for the planned fixes. The burn range 

work was essential, and they appreciated the staff coming out with Mr. Hodge to show them 

around. The maintenance staff is well organized with prioritizing the facility’s needs and keeping 

everything within the budget.

Dr. McIntosh stated that in the past there was mention of switching from twin beds to double beds. 

Did that happen? Ms. Gartrell-Kemp replied that they did get new mattresses; some are double, 

and some are twin. Dr. McIntosh asked if they have made any rooms accessible for service animals, 

because that was mentioned in the past. Ms. Gartrell-Kemp replied that she would have to ask 

about that, but she did see someone in Building S with a service dog. Per MOSS, there are 4 rooms 

in Dorm F that can support service animals. In addition, MOSS confirmed that C West was 

converted from twin to double mattresses.

Capital improvement and deferred maintenance projects completed during FY 2023 included the 

enhanced Burn Range addition, the welcome center and security upgrades, much-needed elevator 

upgrades, and tunnel repairs. The Board is especially pleased that both the fire alarm system with 

public address system and the campus-wide Wi-Fi upgrade have been completed. Both have 

been high-priority concerns from past Board reports.

Ongoing projects include the enhancements to multiple buildings, the Walk of Honor (funded by 

National Fallen Firefighters Foundation), parking lot maintenance, picnic area, bus repair and 

possible replacement, and additional solar installation.

Additional efforts included the unforeseen repairs of the cabin bridge and fencing and extensive 

plumbing projects. MOSS has demonstrated fiscal responsibility with the ability to respond to 

these incidents without exceeding budget. Additional projects have been identified as “shovel 

ready” for execution in the event additional budgetary resources become available.

The NETC campus continues to need a robust, safe and welcoming physical fitness, health and 

wellness center for use by students, instructors and staff. This has been submitted as a program 

decision option but has not been selected for funding from FEMA. NFA should lead the fire 

service by example in the arena of physical and mental wellness as it does in so many other 

areas. The Board emphatically advocates for this resource.

The FY 2024 budget includes a much needed $2.5 million investment in the NETC IT 

infrastructure and an additional $2.5 million for bioretention pond and lift station enhancements. 

The Board looks forward to future updates regarding these 2 projects.

Funding

The USFA and the NFA continue to demonstrate commendable stewardship with respect to 

fiscal responsibility. While the operational budget has remained relatively stable, inflation results 

in higher costs for operations. It is imperative that the USFA and NFA receive an increase in 
12

funding to maintain their mission and the expected role they play within DHS/FEMA, as well as 

recruit and retain valued staff. 

The NFA has established memorandums of agreement with other agencies to provide training on 

the NFA campus. This allows for high-quality and cost-effective training delivery, expanding the 

reach of NFA without draining funds from the operational budget. However, the USFA bears the 

full cost of NETC maintenance. The Board encourages FEMA to evaluate appropriate cost 

sharing between the Emergency Management Institute and NFA for ongoing NETC maintenance

and improvements. 

The NFA is unique in the federal government because its specific mission is to train state, local, 

tribal and territorial first responders and their leaders, not primarily federal employees. Any

reduction in resident classes at the NFA would result in a degradation of incident management 

capabilities, community risk reduction, hazardous materials response, and arson detection and 

prosecution at the local level where it is needed most.

While training has a cost, the lack of training is even more expensive in terms of life loss (both 

civilian and firefighter), property damage, litigation, economic impact and societal effects. 

According to USFA data, in calendar year 2022 there were 94 on-duty firefighter fatalities 

(https://apps.usfa.fema.gov/firefighter-fatalities/). According to the NFPA, in calendar year 2021, 

there were an estimated 3,800 civilian fire fatalities (https://www.nfpa.org/News-andResearch/Data-research-and-tools/US-Fire-Problem/Fire-loss-in-the-United-States).

Observations

Student feedback

Members of the Board of Visitors visit classes and meet with NFA students during the Board’s 

annual campus meeting. While the sample size is limited to the classes meeting on campus and 

the Board’s available time, the information is still instructive.

Everyone enjoyed the interaction with the students and observing how they are doing in the 

classes. All the students seemed very appreciative of the upgrades to the facilities. The students 

complimented their knowledgeable instructors and had positive comments regarding the campus. 

There were representatives of a wide range of ranks attending courses. Some students suggested 

having more course offerings for the courses that are more popular, citing long waiting periods 

for some classes. Students were also appreciative of the admissions process having a fast 

turnaround for letting students know that they were eligible to take the courses. There was also 

mention of increasing charging stations for electric vehicles. The students primarily had positive 

comments with few suggestions as highlighted.
13

Board celebrations and concerns

The Board recognizes several successes that deserve recognition.

USFA staff continues to demonstrate competence, professionalism and dedication throughout 

the many challenges of running such a complicated institution. The Board is intensely grateful 

for everything these individuals do on behalf of the NFA campus and the nation’s fire and EMS 

service.

Time, facilities and funds have been used effectively to make enhancements to existing and 

future training programs. The Board is especially enthusiastic about the current and impending 

upgrades to campus information technology.

Efforts to incorporate diversity, equity, inclusion and belonging throughout the curriculum and 

within the staffing, contract instructors and admission process are recognized and appreciated. 

All facets of the fire service should feel welcome at the NFA.

Multiple programs are realizing success through creative partnerships with external agencies. 

These include but are not limited to the training delivery with CAL FIRE, Women’s Weekend 

with Women in Fire, and the launch of an improved EFO capstone course with the external 

higher education partner. The Board commends these innovative approaches and encourages 

future collaborations.

The Board also wishes to call attention to these specific concerns:

Multiple vacancies in key leadership and critical support positions are impacting program 

delivery including processing applications of students, interviewing and onboarding new 

instructors, reviewing and refining existing courses and programs, and developing new offerings. 

Existing staff has undertaken added duties to compensate for the lack of staff. This could result 

in overworked, overstressed staff and ultimately in additional vacancies and a reduction in 

quality of service. The Board acknowledges that hiring is a challenge in almost all sectors, 

including throughout the emergency services. We urge the USFA and FEMA to provide any 

resources available to expedite the hiring process.

In conclusion

The Board would like to thank the dedicated and passionate staff, faculty, students and 

administrators who all contribute to the success of the NFA and USFA. The Board applauds the 

USFA for 49 years of dedicated service in support of the nation’s fire, EMS and emergency 

services in the unwavering pursuit of a safer nation. 
14

Fiscal Year 2023 Board of Visitors

John S. Butler (Chair)

Fire Chief

Fairfax County Fire and Rescue Department

Fairfax, Virginia

Dr. Patricia A. McIntosh (Vice Chair)

Lifetime Member (Inactive)

League City Volunteer Fire Department 

League City, Texas

Kristin Crowley

Fire Chief

Los Angeles Fire Department

Los Angeles, California

Steven Dubay

Deputy Chief

Colorado Springs Fire Department

Colorado Springs, Colorado

Dr. Michael Macey

Director of Public Safety

St. John’s College

Santa Fe, New Mexico

Chief Kevin D. Quinn

Past Chair

National Volunteer Fire Council

Washington, D.C.

Dr. Mark A. Rivero

Site Coordinator

Southern Illinois University

Henderson, Nevada

Thomas E. Romaine, Jr.

Smokechaser

Minnesota Department of Natural

Resources — Forestry

New Ulm, Minnesota
15