View source shows this. I'm not really sure how this is empty seeing how the method invocation is being hit and I view the variables and they are filled in properly in the debugger.
<c:forEach items="[ejb.entity.Agency@1f721a9]" var="userAgency"> <c:forEach items="" var="incidentType"> </c:forEach> </c:forEach></div></div>
Please disregard as it turns out my core tag lib was bound to an older uri. sigh