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Board of Visitors for the National Fire Academy

Fiscal Year 2019 Annual Report

September 10, 2019

Meeting Schedule

March 19, 2019

May 6, 2019

Sept. 9-10, 2019

The U.S. Fire Administration’s (USFA’s) Board of Visitors for the National Fire Academy 

(NFA) (Board) reviewed the NFA in three areas of responsibility and submits the following 

report for Fiscal Year (FY) 2019.

An examination of NFA programs to determine whether these programs further 

the basic missions which are approved by the Administrator, Federal Emergency 

Management Agency (FEMA)

The NFA continues to be a mission-critical organizational unit within the Department of 

Homeland Security (DHS)/FEMA. It directly supports FEMA’s USFA mission to support 

citizens and first responders to ensure that, as a nation, we work together to build, sustain and 

improve our capability to prepare for, protect against, respond to, recover from and mitigate all 

hazards.

In FY 2018, the Board spent a significant amount of time evaluating and making 

recommendations for changes to the Executive Fire Officer (EFO) Program at the NFA. The 

Board convened four subcommittees composed of a broad range of stakeholders representing 

national fire and emergency service organizations. After thoughtful deliberation, the Board

unanimously approved the recommendations of each subcommittee at its Aug. 27-28, 2018,

meeting directing NFA staff to move forward with the changes. The update given by staff during 

our Sept. 9-10 meeting indicates that the changes are on schedule and a great amount of work has 

taken place internally and externally to implement the new EFO Program. The tremendous work 

of staff involved in managing the transition, working with subject matter experts and contracts, 

and communicating with students enrolled in the current program is commendable. 

One of the changes in the new curriculum will be that the class will work through the two-year 

program as a cohort, which will strengthen the relationships made during the program. External 

communications with stakeholder organizations, presentations at national fire service 

conferences and social media efforts have been effective and should continue as the transition 

from the old to the new takes place. Of particular note is the work being done by staff with the 

International Association of Fire Chiefs (IAFC) EFO Section and the Black Chief Officers 

Committee, which have been enlisted to help recruit a diverse pool of EFO student applicants as 

well as potential instructors. NFA staff should be complimented for its partnership with the 

National Fallen Firefighters Foundation and the First Responder Center of Excellence for sharing 

the work being done by these organizations, especially in the areas of fire service cancer 

prevention and behavioral health.
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The work being done, and the interest from fire service personnel across the nation, shows the 

success of the Managing Officer Program which is now entering its fifth year. The NFA’s 

Managing Officer Program is a multiyear curriculum that introduces emerging emergency 

services leaders to personal and professional skills in change management, risk reduction and 

adaptive leadership. Acceptance into the program is a meaningful step in professional 

development as a career or volunteer fire/emergency medical services (EMS) manager, and 

includes all four elements of professional development: education, training, experience and 

continuing education. The update given by program staff shows the value the nation’s fire 

service has placed in this program and the volume of students who are applying. NFA staff relies 

on a partnership with state fire training academies which play an integral role in this program as 

they are delivering the courses required before an individual can apply to the campus-based 

program at the NFA. The program is successful but will need to be scheduled for an evaluation 

in the next year or two as it will be passing the five-year mark. To recognize the limited staff at 

the NFA, and the time commitment needed to implement the updated EFO Program, the Board

suggests that the Managing Officer Program evaluation takes place after the EFO transition is 

successfully completed. More than 500 students are currently involved in this program and more 

than 200 applications are being received by NFA staff on an annual basis.

The National Fire Incident Reporting System (NFIRS) under the National Fire Programs 

Division at USFA has been working with the NFA to offer NFIRS training for end users. This 

program focuses on how agencies can access their own data through the data warehouse to 

receive timely information. This group is also working with IAFC on regional training deliveries. 

Currently NFIRS captures data on more than 28 million incidents a year. In the past year, this 

program had to abolish and combine two positions to create a new NFIRS position. This causes 

concern for the Board because the work done by these two positions will no longer be done. The 

Board’s NFIRS subcommittee will engage with NFA staff to enhance awareness of the program 

and to identify needs.

The NFA continues to play a vital role by serving as a single point of contact for national, state, 

local, tribal and territorial fire and EMS stakeholder groups by soliciting their input on course 

development, delivery and outreach. The NFA also supports federal partners, including: 

Department of Justice/Bureau of Alcohol, Tobacco, Firearms and Explosives (ATF); Department 

of Defense (DoD); Department of State; and other components. In addition to its federal partners, 

the NFA continues to work closely with all major fire and emergency services stakeholders. 

On Sept. 21 and 22, the NFA is convening a strategic planning workshop bringing together 

diverse fire service leaders, fire service research partners, and those engaged in fire and 

emergency services higher education programs to evaluate and redefine the role of the NFA in 

serving professional development throughout the American fire service. The Board commends 

NFA staff for the work being done to evaluate changes needed to bolster professional 

development of the nation’s fire service. The Board looks forward to hearing the outcome of the 

upcoming meeting.

The Board requests that NFA staff continue, and expand, outreach efforts through and with 

partner organizations and increase visibility at national fire service events to share training and 

education opportunities available for career and volunteer members with a focus on increased 
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participation of all elements of the fire and emergency services. This outreach should include 

presentations and information booths at selected regional and national fire service conferences. 

Use of various social media platforms is highly encouraged to attract a diverse audience.

Outreach should also be targeted to affinity groups that represent underrepresented fire service 

personnel such as the Black Chief Officers Committee, the International Association of Women 

in Fire & Emergency Service (Women in Fire), the National Association of Hispanic 

Firefighters, and others. The outcome of this initiative should focus on increasing diversity 

among students and instructors.

National Fire Academy Overview

Resident classes are reserved for those requiring high-level discussion/interaction, specialized 

simulation or modeling capabilities, close supervision and counsel, or the introduction of new 

subject areas. The NFA continues to leverage its resources through delivery of regional and state 

courses and a growing number of online distance-learning courses. The Board continues to 

actively encourage evaluative research and targeted efforts that positively and significantly 

impact workplace and student diversity. 

Work recently completed by NFA staff to update fire prevention, community risk reduction, fire 

and arson investigation, and EMS classes is greatly appreciated as it shows the diverse work 

done by career and volunteer fire personnel around the country and, equally important, the 

diverse portfolio of classes offered, developed and managed by the NFA.

The replacement of burn cells on campus for the hands-on fire and arson investigations program 

and the continued instructional partnership with the ATF is to be applauded. Because of attrition 

of fire investigators around the country due to retirement, this program has a significant backlog 

of students that needs to be addressed. This will require additional funds to be allocated for burn 

cells, additional classrooms, lodging, course and instructor costs, and student stipends for travel. 

The Board recommends NFA staff to explore partnerships which could allow fire investigator 

training to be offered off campus.

The following chart reflects the student completions in each of the course delivery areas. Data 

for 2019 will be available after Dec. 1, 2019:

2016 2017 Change % 2018 Change %

NFA-sponsored resident 7,298 6,107 -16.3% 6,547 7.2%

NFA-sponsored non-resident 4,966 5,409 8.9% 5,712 5.6%

State sponsored 24,333 25,835 6.2% 23,265 -9.9%

State approved 9,644 9,362 -2.9% 8,802 -6.0%

Colleges/Universities 4,949 5,537 11.9% 5,449 -1.6%

Online self-study 52,067 50,523 -3.0% 52,168 3.3%

Total 103,257 102,773 -0.5% 101,943 -0.8%
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The NFA staff continues to pursue new applications for technology in course delivery, 

administration and information dissemination. The NFA continues to add courses to the 

materials download feature, giving state fire training agencies and contract instructors direct 

access to NFA two-day and six-day course materials. This provides users with real-time access 

to NFA course materials. Currently, 60 courses are available that state fire training offices can 

download. Access to these course materials is also available to state EMS organizations.

The NFA awards Continuing Education Units for all NFA courses through the International 

Association of Continuing Education and Training. This is extremely beneficial to a growing 

number of NFA students who are required to meet continuing education requirements for 

certification. In addition, the NFA is a “Preferred Provider” with the International Code Council 

(ICC). This program recognizes and promotes ICC-approved educational opportunities as they 

relate to codes, standards, building construction and other subject areas.

The American Council on Education (ACE) will conduct a review of 41 existing NFA courses 

on Nov. 5-6, 2019. The ACE review process provides an independent and objective third-party 

assessment of the NFA’s academic quality, as well as tangible benefit for students who can use 

the credits to pursue higher education through other academic institutions.

The Board supports NFA staff efforts to reestablish the analysis that crosswalks and compares 

NFA classes to national fire service standards. In addition, work is being done to ensure that 

NFA classes, which include the National Incident Management System (NIMS), be evaluated 

and updated over the next year to meet the new FEMA NIMS standards.

The NFA continued a systematic study of its resident courses with students and their supervisors 

to determine long-term training effectiveness. During FY 2019, 487 students and 399 supervisors 

responded to the Long-Term Evaluation. As with previous years’ responses, students indicated 

they were able to transfer the training skills and learning to their jobs, and supervisors reported 

improved performance. The data show:
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Long-term evaluation reporting elements 2016 2017 2018 2019

Students reporting they were able to apply NFA

training at home

91.2% 96.4% 91.0% 94.3%

Students reporting NFA training improved their job 

performance

94.4% 96.6% 97.1% 96.3%

Students reporting they shared NFA training with 

their peers

97.7% 99.0% 97.9% 95.1%

Students reporting they conducted formal courses 

with NFA material

24.4% 26.6% 24.8% 23.6%

Students reporting they established new policies and 

procedures based on NFA training

72.5% 69.3% 77.1% 72.5%

Supervisors reporting improved performance from 

NFA training

90.9% 85.5% 90.9% 89.4%

Supervisors reporting improved departmental 

performance

86.6% 88.4% 91.1% 86.9%

Supervisors who say they will recommend NFA

training to others 

96.7% 95.7% 97.4% 96.4%

Supervisors reporting NFA benefits outweigh costs 91.6% 99.2% 94.7% 92.4%

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

supervisors four to six months after the NFA training class ended.

An examination of the physical plant of the National Fire Academy to determine 

the adequacy of the facilities

The size, age and scope of the National Emergency Training Center (NETC) campus facility 

continues to offer both challenges and opportunities. The historic nature of many of the NFA 

buildings also needs to be noted due to the complexity these add to the ongoing maintenance and 

repair work done on campus. 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) Division to manage the physical plant and numerous 

activities held on campus each year.

While much progress has been made, particularly relating to Americans with Disability Act 

compliance and energy efficiency, deferred maintenance continues to be a critical issue.

Currently, there remains about $35 million in deferred maintenance. Replacement of aging roofs 

and heating, ventilating, and air conditioning (HVAC) systems on campus is greatly appreciated 

and long overdue. The HVAC and roof replacement schedule, as proposed by NETC’s MOSS, 

needs to be completed in a timely manner. The Board recommends that FEMA establishes an 

additional annual $5 million deferred maintenance allocation for the NETC campus. The Board

commends FEMA and NETC staff in their ongoing efforts to upgrade and maintain the aging 

physical infrastructure.
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The replacement of the 20-year-old fire alarm and detection system on the entire campus needs 

to be a priority not just for life safety reasons, but also because the USFA should be the role 

model for the nation in the fire prevention arena.

Campus facilities include the library and the Publications Center which continue to provide

essential support for NFA students. However, there remains a long-documented need to expand 

the NETC facilities to accommodate the addition of 300 students per semester. While the NETC 

maintains one of the highest utilization rates in the DHS, additional classroom, lodging and 

support space are required for the NFA to continue fully supporting the broader DHS/FEMA

mission.

The NETC campus also needs a state-of-the-art physical fitness, health and wellness center for 

use by students, instructors and staff so the NFA can lead the fire service by example as it does 

in so many other areas.

The NETC’s MOSS team should request additional funds specifically to address aging driveway 

and parking surfaces throughout the campus. Frequent rain showers in the region, and snow and 

ice in the winter months, clearly show the stagnation of water and the impact poorly paved areas 

have on the safety of staff and students who walk and drive on these surfaces.

Installation of solar panels on appropriate campus facilities (four buildings to date) should 

continue along with the replacement of lighting fixtures with energy-efficient (LED) solutions.

While the goal of all buildings having solar panels would be the desired outcome of the Board, 

we realize that is not realistic nor possible because of the historic preservation constraints many 

of the structures on campus are governed by. The Board commends MOSS staff for its ongoing 

efforts to seek energy-efficient options across the campus.

The Board is pleased to see the plans for the redesign of the main entrance area to enhance the

safety and security of staff and students with a visually appealing portal, with construction to 

begin soon. The work done by NETC’s MOSS and NFA staff to create a secure and professional 

appearance, while preserving the historic trees along the main entryway, is appreciated.

The Board was appreciative of the long-standing efforts to create and implement an online 

admissions application process. This system is currently being used by Emergency Management 

Institute students with NFA students to follow in the next semester. The ultimate goal is to be a 

paperless system.

Of most concern during the Board’s two-day visit was in the area of information technology (IT)

and systems. Simply stated, the staff at the NFA are very limited in the ways they can 

communicate with students and support of off-campus programs. Specifically, the NETC needs 

enhancements to the campus-wide wireless system to include unrestricted Wi-Fi, file-sharing 

capabilities and access to information via cloud-based solutions.

To meet current technology requirements, the NFA needs to continue to upgrade the classroom 

environment. Although there have been recent improvements, students and Board members 
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experience issues with internet connectivity and campus-wide access. As an example, the FEMA 

firewall prevents access to many sites necessary for research, collaboration and data storage. 

While the Board understands the complex nature and importance of information security, and the 

need for the DHS to protect the work of full-time staff and various assets, there is an immediate 

and business need for the NFA to be able to communicate with students off campus. In 

comparison, the DoD has figured out a way for military service academies to conduct their 

educational programs for the men and women attending these institutions using current 

technology without impacting IT security. We ask that DHS gives the IT needs of the USFA and 

NFA the same attention so they can accomplish their mission of serving fire service personnel 

across the country. The Board recommends appropriate funding, and DHS IT staff support, to 

improve internet and data access on and off campus, and the campus IT infrastructure to support 

the growing number of courses that are delivered to complete the FEMA mission.

With the growth and importance of IT, the Board once again recommends that the NFA and 

USFA seek a full-time Chief Information Officer and create a branch to oversee and manage all 

enterprise functions.

An examination of the funding levels for National Fire Academy programs

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 NFA receive an increase in funding to 

maintain its mission and the expected role it plays within DHS/FEMA. 

The USFA bears the cost of NETC maintenance. Appropriate cost sharing needs to be addressed 

by FEMA.

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. A 

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.

While there is a cost to both on-campus and off-campus training, it is important to recognize that 

every emergency and disaster starts locally. To the extent that a community has a well-trained, 

well-led cadre of first responders, that emergency stays local. If it is poorly handled, or if it is so 

large that the local forces are overwhelmed, it may trigger a state and federal response. It is in the 

interest of both DHS and FEMA to try to keep local emergencies local. As of Sept. 30, 2019, 

there were 28,428,813 total incidents reported to NFIRS from 24,102 fire departments for 2018,

and there were 59 presidentially declared major disasters reported in 2017 per 

https://www.fema.gov/disasters/year?field_dv2_declaration_type_value=DR.

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. 
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According to the USFA data, in calendar year 2018, there were 82 on-duty firefighter fatalities 

and 3,655 civilian fatalities (https://www.usfa.fema.gov/data/statistics/). The National Fire 

Protection Association estimated that there were 58,835 firefighter injuries in calendar year 

2017. Reports from the National Institute of Occupational Safety and Health state that some of 

these deaths and injuries could have been averted through training. Above all else, the NFA was 

created to prevent those tragedies. The Board continues to recommend an emphasis on firefighter 

health and safety as a part of the overall training mission which the NFA has proactively 

embraced with the recruitment of a new training specialist to oversee its new firefighter health 

and safety curriculum area. The recently offered pilot classes have all been well received and 

show the benefits of the currency and relevancy of the responder health and safety curriculum. 

Throughout FY 2019, visionary leadership was provided by the U.S. Fire Administrator, Chief 

G. Keith Bryant, and Deputy Fire Administrator, Dr. Denis Onieal. Chief Tonya Hoover, NFA 

Superintendent, now in her third year, is actively involved with the Board of Visitors to ensure 

the timely and relevant delivery of effective training and educational courses by well-qualified 

instructors. The Board is honored to collaborate on the implementation of the superintendent’s 

vision for the future. Finally, the Board would like to thank the dedicated and passionate staff of 

the NFA, National Fire Programs Division and MOSS, who are responsible for the USFA’s 

success. 

The Board would like to recognize and thank three talented individuals who have spent many 

decades serving the nation’s fire service who have retired or will be retiring from the USFA over 

the next few months. Terry Gladhill, Branch Chief for Training, Administration, Planning and 

Analysis Branch; Deputy NFA Superintendent Dr. Kirby Kiefer; and Deputy U.S. Fire 

Administrator and former NFA Superintendent Dr. Onieal. All three have made a lifetime of 

friends and, more importantly, have made a significant impact on the training and education of 

career and volunteer firefighters from around the country and around the world.

The Board also thanks outgoing Vice Chair Steven P. Westermann for his outstanding leadership 

and congratulates him for his successful and enduring career in the fire service.

The Board applauds USFA for 45 years of dedicated service to the nation’s fire service.
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Fiscal Year 2019 Board of Visitors

Andrew K. Pantelis (Chair) 

District Vice President

International Association of Fire Fighters

Washington, D.C.

Eriks J. Gabliks (Vice Chair)

Director

Oregon Department of Public Safety Standards & Training

Salem, Oregon

Steven P. Westermann

Chief Emeritus (Ret)

Central Jackson County Fire Protection District

Blue Springs, Missouri

Kevin D. Quinn

First Vice Chair

National Volunteer Fire Council

South Kingstown, Rhode Island

George M. Stapleton

Operations Chief

South Carolina State Fire

Columbia, South Carolina

Dr. Patricia A. McIntosh

Emergency Management Coordinator

College of the Mainland

Texas City, Texas

Thomas E. Romaine, Jr.

Smokechaser

Minnesota DNR-Forestry

New Ulm, Minnesota

John S. Butler 

Chief

Fairfax County Fire and Rescue Department

Fairfax, Virginia