DRAFTFireServicesReviewAmendedReport DRAFT

Final Report |
Fire Services
Review Special
Committee
July2025 \=*8
\ =. oO

Table of Contents
Page
1.0 Executive Summary 1
2.0 Introduction 2
3.0 Fire Services History 3
4,0 Demographic information 9
5.0 Findings and Discussion i
5.1 Emergency Response Types and Frequencies a1
5.2. Capital Plan 14
5.3 Staffing Findings 4
5.4 Fleet Management Findings 19
5.5 Communications Findings 21
5.6 Waterford Ambulance Findings 21
5.7 Mutual Aid Findings 22
6.0 Five Fire Stations - History and Structure of Waterford's Fire Stations 24
6.1 Why Five Stations Matter 26
6.2 The Case for a New Oswegatchie Fire Station 27
7.0 A Strategic Vision 29
8.0 A Strategic Path Forward for Fire Services 32
8.1 General Framework 32
8.2 Staffing: Strategic Management for Waterford Fire Services 35
8.3 Capital Plan 40
8.4 infrastructure Management: Respecting All Districts and Building a Strong Future 44
8.5 Recommended Strategies for Fleet Management and Budgeting 41
8.6 Overall Strategic Plan 43
9.0 Closing Comment 43
Bibliography 44

Appendices
A. Capital / Facilities Plan
B. Staffing Plan 2025
C. Fleet Plan
D. Letter from Director of Emergency Services
E. Town of Waterford ~ Fire Station Agreements

1.0 Executive Summary
Firefighting has occurred in Waterford from the earliest days of its villages as more structures
were built which needed to be protected from the destructive damage caused by intermittent
fire events. This largely community-based private firefighting effort took on a more organized
form about a hundred years ago when four private firefighting companies all started by
volunteers were established in the 1920's and the fifth was created in the early 1940s. The
Town had financially supported these efforts in various ways for decades, which support was
codified in a formal agreement with the Companies in 1978. The Town established a Fire
Commission under state statute ordinance and charter provisions to oversee the Town’s
financial participation of this private community driven firefighting model. As the costs
associated with firefighting in Waterford grew, for large, specialized fire trucks, equipment,
gear and training, the Town contributed millions to Waterford’s private fire service operation.
In the early 2000s more and more discussion occurred about a larger Town role in the
management of community fire services, culminating in a 2010 change in Waterford’s charter
moving from the management of fire service by the Fire Commission to a Town Fire
Department supervised by a Fire Administrator. Serving as a department head in Town
government, the Fire Administrator works under the supervision of the First Selectman as chief
executive. A Paid Fireman Ordinance was adopted at the same time in recognition of an
emerging need to have Town staff supplement the efforts of volunteers in the reliable provision
of fire services across Waterford. Over the last fifteen years the Town has administered this
emergent “combination” model of both paid and volunteer efforts with new issues arising
constantly regarding the health and safety of firefighters, technological development and
effective resource deployment strategies.
The Fire Services Review Committee was charged with studying this historic evolution of fire
services in Waterford from a largely private endeavor to an increasing Town managed, staffed
and funded effort. The Committee has reviewed extensive documentation provided by Town
staff (primarily the previous Director of Fire Services), engaged in vigorous discussion over 25
meetings within the Committee and with members of the Committee. The Committee has
identified numerous issues the Town will need to address as Waterford’s fire service continues
to evolve.
The Committee’s objective is for the deliberative effort described above to be reflected in this
report to the RTM and through them to the community so Waterford’s decision-makers can
make better informed decisions going forward about the Waterford’s fire service, which
performs a critical government function by protecting lives and the Towns 4.4 billion dollars’
worth of taxable property.

The precise path of the continuing evolution of Waterford’s fire service will be largely driven by
collaborative decisions made each year in the budget process by the Board of Selectmen, Board
of Finance and RTM as informed by input and recommendations from the Fire Administrator
and First Selectman regarding both annual operations and current as well as projected capital
requirements.
2.0 Introduction
2.1 At the June 7, 2021, meeting, under new business initiated by the Chair of the Public
Protection and Safety Standing Committee, the RTM voted to create a special committee, “Fire
Services Review Special Committee”. The charter of the new committee was “to review issues
including performance, policies, and staffing, and present their findings / recommendations of
any changes needed to enhance public safety, creating a steering document and strategic plan”.
Per the approved motion, the committee shall consist of five full voting members as follows:
2 RTM Members (appointed by the RTM)
1 Public Protection and Safety Committee Member (appointed by the Public
Protection and Safety Committee
1 Board of Finance Member (appointed by the Board of Finance}
1 Board of Selectmen Member (appointed by the Board of Selectmen)
And five advisory non/ voting members as follows:
Fire Services Director
Emergency Services Director
Waterford Ambulance Manager
Qne Volunteer Fire Chief (appointed by consensus of the 5 Waterford Fire Companies or
the 5 chiefs)
One Full Time Career Fire Fighter (appointed by the consensus of the Waterford Full-
time Firefighters)
it is noteworthy to highlight that there was a recent compilation of fire services studies entitled
“Fire Service Study, 2018” which is a collection of Fire Services related information dating back
to 1995 including Task Force 95 Study, and Fire Service Study, 2001. This compendium is a very
valuable and relevant historical reference, covering substantial portions of Waterford’s rich and
diverse Fire Services history.

The balance of information surveyed is listed in the bibliography. ’
The process then, that the committee followed in generating this report and the findings /
recommendations herein was one of deliberate discussion and debate on the topics of interest,
as well as solicitation and retention of both quantitative and qualitative information as primarily
provided by the Director of Fire Services, other advisory members, and the public as captured in
meeting minutes, All information used by this committee (including various revisions based
upon year / time) and used in this report has been originally presented to the committee. The
source materials used to create this report are provided on the Waterford Town website under
the Fire Services Special Review Committee title.
In January of 2023, an Interim Report was prepared and approved in a 3-0-1 vote and delivered
to the RTM.
The report recommended that the Oswegatchie Fire Station, described as being in “extensively
deteriorated condition”, be demolished and that a new Fire Station be built to replace it. The
findings of the interim report were presented at the February 3, 2023, RTM Meeting by the
chairman, at which time, partly because of the findings, the RTM unanimously voted to create
the Oswegatchie Fire Station Building Committee.
3.0 Fire Services History
Prior to the incorporation of the private fire stations which occurred between 1920-1940,
according to An illustrated History of Waterford Connecticut, a bucket brigade was organized to
put out the Baptist minister's neighbors’ house fire, and housewives used brooms to put out
stubborn brush fires... Since the early 1900s the five private fire stations listed in Table 1 have
served the Town of Waterford. Along the way, changes were made in how fire services were
managed and administrated to grow with community changes.
in 2010, the RTM voted to disband the Fire Commission and replace it with a Director of Fire
Services administering fire services for the Town of Waterford. The Waterford Fire Department
was created via the Code of Ordinances (Chapter 2.36) and the board of fire chiefs was
established representing each of the five volunteer companies. charged the RTM with
appointing one person from each fire district to serve on a board of five commissioners. The
commission had the authority to elect officers, establish rules of procedure, set meeting
frequency; and possessed authority as vested by State Statute.
The board oversaw the funding of fire services. it worked with each fire station in determining
equipment and operation needs, although it did not have direct control over the day-to-day

operation of the individual fire districts. The board set policies for fire and rescue services and
coordinated the provision of those throughout the Town.
The board had oversight of the over the Fire Marshalls office and the Town Communications
Center.
The Town is divided into 5 fire districts, each with its own fire department and fire station. Each
fire department is incorporated as a non-profit corporation under the General Statutes of the
State of Connecticut. Each fire department has an individually signed legal agreement with the
Town stipulating that they will provide fire services in exchange for an annual funding
appropriation from the Town. Each fire department was required to prepare and submit a
budget to the Board of Fire Commissioners, who then would tabulate it with input from the
other fire departments, the Fire Marshalls Office, and the Emergency Communications Center,
and submit this to the Board of Finance for review. Each fire department is independently
managed and operated, in accordance with bylaws established by each, and has its own
hierarchy of officers. Each department provided volunteer fire-fighting activities to the Town,
and there were provisions made to provide mutual aid among companies.
In essence, with funding provided by the Town, the Board of Fire Commissioners managed Fire
Services for Waterford. The organization was largely distributed with multiple levels of
volunteer oversight, few if any checks and balances, and no direct Town accountability. But it
was a step towards a more centralized organization to better address Waterford needs.
The Board of Fire Commissioners was replaced in 2010 by Charter revision by a more centralized
Management structure, featuring a Director of Fire Services. This position eliminated the second
tier of management over the private fire departments, instead creating a direct line of reporting
and accountability from the individual fire departments to a professional Town administrator.
This change in organization established accountability for the efforts of the fire companies as
well as the full and part-time paid fire fighters by the Director and ultimately the First Selectman
of the Town, as Chief Executive, it also centralized the budget creation and allocation process.
The current Director of Fire Services is responsible for all fire service-related functions including:
¢ Policy development and management
* Equipment, procurement and maintenance
« Hiring of paid firefighters
* Training of personnel and maintenance of standards
¢ Maintenance of the firefighting infrastructure
¢ Staffing
« Volunteer recruitment and retention
® Emergency Communications

e Fire Marshalis Office
* Budget development and long-range planning
e Fleet Management
In addition to creating a leaner more accountable fire services organization, it also consolidated
data collection and management. It formalized and centralized record retention, This
information, including examples like response type and frequency, volunteer participation,
training, expenditures, fleet maintenance, capital planning, equipment inventories, etc. were
collected and tabulated for management review and use as opposed to being mined
periodically fram the sourced department or the Commission. The formal collection and
tracking of these streams of data contributed to a greater ability to evaluate current fire services
activity overall performance and forecast future needs. This evolution in fire services
management structure was the single most impactful step taken by the Town in recent history
regarding Fire Services. tt was essential to unify policy and practice. This change also
encouraged the use of data-driven decisions, supplanting previous decision making that
depended on the Board of Fire Commissioners’ consensus for recommendations.
Along with this change came vertical organization and consistency in policies and practices.
As a result of the Community's decision through revising the Charter to move to a different
management structure, Fire services today is more organized and in a better position to deliver
firefighting services to the Waterford taxpayer in a safer and more cost-effective manner.
Fire protection in the Town of Waterford was originally provided by volunteers, working out of
the five stations. At one time there were hundreds of registered volunteers. The town was flush
with people looking to give back and to provide public service. The stations thrived based upon
local fund raising and were in essence self-supporting.
Volunteers were the backbone of Fire Services until 1961, when the first part time firefighter
was hired by the Town of Waterford. Over time and for a variety of reasons, the ranks of
volunteers have shrunk. The reasons are mainly economic, with fewer peaple able to take time
off from work to provide service. The drop in volunteers has resulted in the need to hire paid
fire fighters as replacements to provide acceptable levels of fire service to the Town. Currently
there is an active list of 30 volunteers, as characterized by responding to at least one incident
annually. Going forward, a metric to comprehensively characterize volunteer corps strength may
be helpful for future staffing determinations. Some fire departments have a more robust level of
volunteer support while others are nearly at risk of becoming non-functional due to their
limited volunteer participation.

In general, the volunteer fire fighting corps of the past has dramatically declined, and the future
is pointing to the need for more paid firefighters.
The Town of Waterford now functions as a “combination” fire service composed of both paid
and volunteer firefighters. Due to similar economic issues nationally, this is becoming the
normal situation for many municipal fire services. What cannot be achieved historically with
volunteers is being supplemented by paid fire fighters.
Combination fire services have consequences, some good and some not so good. Among the
upside consequence is that coverage of certain parts of Town can be provided part or full time
by paid fire fighters. They can also be deployed to various stations as need dictates. They are
independent of a specific fire station. Among the downsides is that the additional coverage
comes with increases in operational costs and unfortunately has resulted in occasional chafing
between the paid and unpaid ranks, despite ail firefighters being trained to the exact same
standards. The failure to sometimes get along is a potential distraction and if unaddressed a
possible detriment to Waterford’s fire services.
At the other end of the fire services spectrum, there are some towns, for example New London,
which have fire services composed entirely of paid fire fighters. Moving to an all-paid firefighter
service will come with a large cost that will only grow with time, based upon annual increases in
salary, benefits, and retirement costs.
The Town has historically benefited greatly from depending on an all-volunteer service for many
decades. The only financial burden previously borne by the Town was associated with training,
materials and equipment, and maintenance (vehicles and buildings); Salaries, and the
associated benefits, were not part of the equation.
A significant takeaway from the change in composition of fire services is the focus on
performance and cost. The use of data, emergency response type, time, frequency and from
which part of town, now become important in conducting cost/benefit analysis by the Town.
Are there adequate responders to address the risks? Does the Town have adequate funding to
provide adequate staffing of fire services?
Not having significant numbers of volunteers to augment the efforts of paid staff creates
ongoing resource allocation decisions for the Director and ultimately the First Selectman. These
staff resource decisions should be based on quality data properly utilized. If possible, it is in the
best interest of the Town to continue to recruit and maintain a corps of volunteer firefighters to
not only maintain the rich history of the town, but more importantly help manage growth in fire
services costs.
The town is supported by 5 fire companies, described in Table 1, located on the map provided in
Figure 1, and depicted in Figures 2-6.

Fire
Date of
Company Fire Company Name Street Address incorporation
1 Waterford Fire Engine Co,, No. T inc. 89 Rope Ferry Road 4923
2 Quaker Hill Fre Company, inc. 17 Old Colchester Road 1927
3 Goshen Fire Department, inc. 63 Goshen Road 1928
4 Oswegatchie Fire Company, No.4,Inc. 441 Boston Post Road 4930
5 Cohanzie Fire Company No. 5, Inc. 53 Dayton Road 1942
Table 1- Fire Company Demographic Data
QUAKER HILL La nepeer OT F
. FIRE
~ veacags enna COMPANY ,
Nes gant ce PPL /
sy COHANZIE FIRE £
os COMPANY ‘
* aaa!
ks H
x § f
% e 4
: X Pr
OSWEGATCHIE i \
FIRE COMPANY : 4
N, £
“| WATERFORD }
FIRE ENGINE }
i, COMPANY 1 :
ro | 4 j
GOSHEN fe ‘
FIRE DEPARTMENT y &
NS a
| “ear +.
Figure 1- Map of the Town of Waterford Depicting Locations of Fire Stations and Fire Districts

COHARZIE FIRE CO.
NOWSING,
Figure 4- Oswegatchie Fire Station

Figure 6- Goshen Fire Station
4.0 Demographic Information
The Town of Waterford was incorporated on October 8, 1801. It is a partly rural/partly suburban
town 36.7 sq. miles in size, with 23 miles of coastline and a population of 19,554 +/- and is part
of New London County. Waterford has grown at a steady rate since the 1970’s, although State
projections completed in 2016 expect Waterford’s population to decline through 2040.
Despite these projections, the population continues to enjoy modest growth, and recent
employment announcements from local businesses (for example Electric Boat) suggest that
area populations including Waterford could increase. The Town’s Director of Planning and
Zoning notes that the population appears to be increasing slightly. Figure 6 demonstrates the
census trend; Table 2 depicts current development underway as of March 2025. Additional

commercial growth is likely with the revitalization of the Crystal Mall and the potential for the
eventual development of the airport property on Crossroads South and a possible data center
on the Dominion property.
Figure 3.1. Population Change by Decade (1970 - 2020)
20,000
19,517 19,571
19,152
19,000
18,000
17,000
16,000
1970 1980 1990 2000 2010 2020
Source: U.S. Decennial Census 1970 - 2020
Figure 6-Population Change by Decade
(Town of Waterford, Key Demographics and Trends)
Recent Newly Constructed, Approved & Pending Housing
Townhome
Development Status Affordable Units _ Single Family Duplex Studio ES School
Waterford Heights Quaker Hil
Brookside Apariments 0 3 % 2 Oswegaichie
‘Kathryn Court Estates CJ 10 Oswegatchie
Waterford Woods 126 8 Groat Neck
ivy Hil Vilage = Great Neck
Waterford Central
Clark Lane Community
Total Units
Great Neck
Great Neck
‘Source Tonn of Waterford Panning & Development Department, Sept 206
Table 2-Summary of Current Residential Building Units as of September 2024
The population density is 435 residents per square mile, less than the state average of 648
residents per square mile, but more than New London County, 348 residents per square mile
More resident workers commute out of Town for employment than the number of employees
who travel to Waterford for work.
The number of workers commuting into Town and share of residents working in Town has
decreased since 2010.
Waterford is nestled between Montville to the North, East Lyme to the west, and New London
to the east. The former two are like Waterford demographically, while New London is a small
city with approximately one third more residents (approx. 28,000) than Waterford.
10

5.0 Findings and Discussion
5.1 Emergency Response Types and Frequencies
Data on types and frequencies of responses as well as response times was provided by the
Department of Fire Services to the Fire Services Ad Hoc Committee and was distilled into graphs
to better display pertinent information.
Response types and frequencies are depicted in Figures 7-11.
Number of Responses
FP FP ND ie}
ogaowgao 2. cc &
Co. a oo ©
500
Total Responses
17 18 19 20 21 23 24 25
Fiscal Year
Note: Responses for year 2025 have been extrapolated based upon responses through March)
Figure 7- Eight Year Trend of Responses
11

Strucural Fires as a Perecent of Total Responses
45
4.0
3.5
3.0
25
2.0
1.5
1.0
0.5
Percent of Structural Fires
00 |
Number of Responses
; Fiscal Year
Figure 8- Percent of Total Responses that Are Structural Fires
Total Number of EMS Responses
Fiscal Yearr
Figure 9- Eight Year Trend of EMS Responses
| | | | |
| |
| | | | |
| | | | |
| | | | |
| | | } |
| | |
| | |
| | | |
| |
17 18 19 20 21 23
24
I | |
| | | | |
| |
| | | |
A? 18 19) 20 21 23 24 25
25
12

EMERGENCY RESPONSE TYPES, AVERAGE 2017-2025
Fires
2%
Figure 10-Summary Percentage of Structural Fires, EMS, and Other Incident Types
Seven Year (2018-2025) Average Response Time by
Company
12.00
10.00
8.00
6.00
4.00
2.00
0.00 ‘
Cohanzie Fire Goshen Fire Jordan Fire Odwegtchie Quaker Hill Fire
Department Department Company Fire Company
Department
Minutes
Figure 11- Average Response Times by Company
13

As seen from the data, most responses are responses to EMS calls throughout town as well as
motor vehicle accidents with and without injuries, structural fires hazardous conditions, service
calls, good intent calls, false alarms, severe weather incidents,
5.2 Capital Plan
An abbreviated capital / facilities plan was provided by the previous Director of Fire Services. A
copy is attached as Appendix A, and is distilled here in Table 2
YEAR
STATION. 24 25 26 27 28 Totals COMMENTS
Jordan $ 100,000.00 $65,000.00 | $ 55,000.00 $220,000.00 |Kitchen in 2027
|Quaker Hill $ 150,000.00 $ 150,000.00 |Bunk RoomRenovations, Bathroom Renovations
Goshen $ 150,000.00 $ 150,000.00 |includes items pushed out from 2023 and 2025, Roof replacement 2030
lOswegatchie | $ 80,000.00 $ 80,000.00 |On hold pending new building
Cohanzie $ 30,000.00 $ 30,000.00 |Bunk room, bathroom, day room renovations, new windows and doors
\
$ 630,000.00
Table 2- Outyear Maintenance Planning of Existing Stations
5.3 Staffing Findings
The Town of Waterford Fire Services are currently staffed full-time as shown in Figure 12.
Full time firefighters
20
15
10
Staffing Plan
23-24 24-25 25-26 26-27 27-28 28-29 29-30
Fiscal Year
=== Annual Additions of FT Firefighters =e Running Totals
Figure 12- Current and Projected Staffing
14

This is an increase in the previous numbers of firefighters from the previous year. Appendix B
outlines the previous Director of Fire Services’ recommendation for staffing the fire stations in
Waterford over the next 5 years. A summary of his assessment is provided herein. Figure 12
also graphically depicts the proposed increase. The dip in hiring reflects a pause to assess
needs,
It is important to underscore that staffing levels for the Waterford Fire Department have
increased since the inception of the Ad Hac Fire Services Committee.
The previous Director of Fire Services has expressed a strong belief that staffing should continue
to grow to meet both the current and future demands facing the community, Increased
construction, population growth, and rising call volumes will require additional response
capabilities to maintain Waterford’s public safety standards.
Key Takeaways from the Director’s January 2025 Staffing Report
« Full-Time Staffing of Three Fire Stations
The Director recommends that three fire stations should be staffed full-time with career
(paid) firefighters:
o Company 1 Uordan}
o Company 4 (Oswegatchie}
o Company 5 (Cohanzie)
Although specific justifications are not explicitly listed, it is presumed that these
companies were selected because they have:
« The largest call volumes
« Strategic geographic distribution: one station near each east and west
end of Town and one centrally located station providing rapid access
across Waterford.
« Part-Time Staffing of Two Fire Stations
The remaining two stations, Quaker Hill and Goshen should be staffed with part-time
paid firefighters to ensure broad coverage while managing costs.
« {mportance of Maintaining Adequate Staffing
Maintaining sufficient staffing is critical to:
o Protecting personal safety and property.
o Maintaining a high Insurance Services Office (ISO) rating, which directly affects
residents’ insurance premiums,
15

* Review of Staffing Growth Every Three Years
Staffing levels and the pace of growth should be formally revisited on a three-year cycl
to adapt to changing community needs.
« Competitive Salaries
Until 2624, Waterford’s starting firefighter salaries were below the state average.
However, the most recent labor contract addressed this disparity, helping facilitate the
hiring of 3 new firefighters.
¢ Pursuit of SAFER Grants
The Director recommends aggressively applying for SAFER (Staffing for Adequate Fire
and Emergency Response} grants to offset hiring and personnel costs.
e Projected Staffing Model for FY 2030-2031
The Director's plan envisions:
o 10 career firefighters on duty always (requiring 30 career firefighters total)
o A 24/48 schedule (24 hours on, 48 hours off)
o Ablend of part-time staffing seven days per week
Full operations from ail five fire stations
oO
oO
Deployment of a variety of apparatus tailored to incident needs.
« Standards of Response Coverage (SOC) Analysis
The Department should consider conducting a Standards of Response Coverage (SOC)
analysis to formally evaluate operational efficiency and identify opportunities for
improvement.
In presenting his Staffing Plan, the Director also provides a brief history of the Waterford Fire
Department’s staffing evolution. The trend reflects a slow but steady migration toward paid
firefighters, driven by challenges in retaining and recruiting sufficient volunteer personnel.
The Director identifies four critical factors justifying the continued expansion of paid staffing:
1. Nationwide Decline in Volunteer Firefighters
Recruitment and retention challenges mirror a broader national trend.
2. (ncreased Calls for Service
Higher call volurnes place additional strain on the fire response system.
e
16

3. Commercial and Residential Development
Development in Waterford is progressing at a pace that threatens to outstrip current
service capabilities.
4. Service Response Times and Their Impact
Variations in response times can have serious consequences for life safety, property
protection, and insurance costs.
Establishing staffing levels of fire stations can be a challenging task. There are no definitive legal
requirements, whether federal or state that dictate the specific number of firefighters each
town or station must have. There are two primary organizations whose standards influence fire
departments throughout the state and nation. These are:
OSHA (Occupational Safety and Health Administration)- a federal agency under the U. S.
Department of Labor responsible for setting and ensuring safe and healthy working conditions
for employees, through the issuance of enforced standards.
NFPA (National Fire Protection Association- a glabal not-for-profit organization that develops
and publishes over 300 standards and codes that target the elimination of economic loss, injury,
and death due to fire, electrical or related hazards. Their standards are widely recognized and
commonly adopted but not mandated.
Two primary organizations, OSHA (Occupational Safety and Health Administration} and NFPA
(National Fire Protection Association), publish many standards that significantly influence fire
department operations and fire service deployment. Among these are several overarching
standards that impact fire department staffing, either directly or indirectly. The most referenced
include:
« OSHA 29 CFR 1910.156 ~ Fire Brigade Standard
This standard establishes requirements for fire brigades, including organizational
structure, training and education, personnel requirements, and the use of personal
protective equipment (PPE). It specifically applies to fire brigades performing interior
structural firefighting. :
» OSHA 29 CFR 1910.156 Revision ~ Emergency Response Standard
A proposed revision of the Fire Brigade Standard, this updated Emergency Response
Standard—~once approved—will impose a significant number of new requirements.
These will largely focus on expanded training, qualifications, and safety procedures for
fire stations. The revision has completed its public comment period and is pending final
issuance. However, the official effective date remains uncertain as of the publication of
this report.
17

* OSHA 29 CFR 1910.134 ~ Respiratory Protection Standard
These standard addresses requirements for respiratory protection in hazardous
environments. Critically, it establishes the “Two-in / Two-out Rule,” which mandates that
two personnel must remain outside a hazardous environment to monitor and assist two
personnel operating inside an IDLH (Immediately Dangerous to Life or Health)
environment.
e NFPA 1710 — Standard for Career Fire Departments
NFPA 1710 sets standards for the organization and deployment of fire suppression
operations, emergency medical operations, and special operations provided by career
fire departments.
« NFPA 1720 ~ Standard for Volunteer Fire Departments
NFPA 1720 outlines similar standards tailored for volunteer fire departments, focusing
on deployment expectations based on community demographics.
Neither OSHA nor NFPA directly prescribes exact staffing levels for fire departments, However:
* OSHA influences staffing indirectly by establishing mandatory safety standards, including
equipment, working conditions, and training requirements.
« NFPA affects staffing through its emphasis on response times and the minimum number
of personnel required based on population density.
For example, NFPA 1720 sets the following staffing guidelines:
« Rural areas (population density of 500 or fewer people per square mile}: A minimum of
six personnel should respond within 14 minutes or less for 80% of incidents.
« Suburban areas (population density between 500 and 1,000 people per square mile): A
minimum of 10 personnel should respond within 10 minutes or less for 80% of incidents.
The Town of Waterford contains both Rural and Suburban areas, meaning it must plan
accordingly to meet both standards.
In addition to the regulatory standards and guidelines outlined above, fire department staffing
is determined by a combination of critical factors:
« Community Needs: Including call volume, types of emergencies encountered, and
population density.
e Budgetary Constraints: Municipal governments operate within limited financial
resources, primarily based on tax revenues.
é
18

4
Risk Assessment: Considering the hazardous nature of buildings, presence of industrial
facilities, building sizes, and related factors.
Authority Having Jurisdiction (AHJ): The individual, office, or organization empowered to
make and enforce regulations affecting fire services (e.g., fire marshal, building official,
or other regulatory authority).
In the Town of Waterford, the Authority Having Jurisdiction is the Waterford Fire Department.
Staffing Determination Process
The exact determination of appropriate staffing levels is a multi-faceted exercise. It requires
balancing objective data, expert judgment, and available financial resources.
Objective Data:
The importance of data collection, trending, and reporting—as depicted in Figures 6-11
cannot be overstated. This data serves as a key indicator of departmental performance
and represents the only consistently quantifiable, objective factor available for staffing
evaluation.
Subject Matter Expertise:
Lacal fire service experts, notably the Director of Fire Services and his team of
experienced professionals, play a vital role in assessing staffing needs based on
operational demands and evolving community risks.
Municipal Leadership and Financial Oversight:
The Town’s Chief Executive (First Selectman), along with the Board of Selectmen (BOS),
Board of Finance (BOF), and Representative Town Meeting (RTM), are responsible for
reviewing staffing recommendations, balancing financial realities, and ensuring that fire
service funding decisions align with the broader interests of Waterford residents.
5.4 Fleet Management Findings
Waterford’s Fire Services maintains a substantial fleet of emergency vehicles—currently 26 in
total—primarily designed to support fire suppression operations. This fleet includes:
Fire engines
Ladder trucks
Specialized apparatus
Support vehicles
A detailed inventory and status assessment of the fleet is provided in Table 3 and the Appendix
Cc.
19

Fleet
Town
AssetIO Asset 1D
we52
W53,
W-55
We56
wWesT
Wee
Car 15
Car 55
Car 8
New
wat
W-B2
W.B4
W386
w.93
wad
Wea
WES,
Weak
Wea?
Wega,
W46
wWead
Waa
Weds
As
W286
As fire suppression now represents only a small percentage of emergency call responses,
193405,
100515.
100073
103012
301013,
101615,
193354
301203
101409,
301236
100203,
102127,
200310
100376.
402323,
101536,
101803
100433.
400256,
100353,
sounsr
Joigaa.
00236
Table 3- Summary of Fleet Maintenance and Capital Acquisition Costs
Modet
Year
2016
2008
2004
2011
2010
2018
2018
2018
2036
2015
1998
2012
2007
2007
2018
2016
2038
2007
2006
2020
2006
208
208
2008,
2021,
2005
2035
YEAR
27
28
2g
iiezge
Hours
Replacement é
SYearlota Yeatsof Refurbishment
Azpair Cost
Seevke
Point System
5 3.00.0
$2,200,000.00
$73,000.00
$64,000.00
$__ $4,090.03
$65,000.00
$ FSKOOO
$226,206.03
$925,008.05
$22,000.00
SEA SHLOG 9 R563, 208.00
$214,000.00 : $996,206.00 $
OSES.
10488
asia
54224
2833.
39500
337000.
1000
a
18668.
39230
183,
53206.
639
2B
28186:
32844,
3205,
43720
S2RE4
35127:
3eans,
974:
$4800,
2450
2ABE
1419
4316
S42
wee
3539
2295
FOR
2356
$028
20
wa?
BES
and
aah
S66
3503
perry
1075
3373
BOWE AWED ED
3s
5
$
Cw nw
an Yes
3
87 851.00
2343.00
82,874.00
483.00
80,753.00
2250.00
2,488.00
3,002.00
25 P4620
48D82.00
2F7BOO
28,819.00
25,601.03
80574.00
$8,333.00
$4301.00 |
612,00
13830.00
940,00
$9,408.00
45,865,00
24,608.00
6232.00
27,823.84 Average S¥r Ropar Cost per Vehicle
L$ 867,705.00 Town svecos
$
s
6
2
Fc
5
7
?
a2
a
ab
aw
a
18
38
a
3
7
cc
3
8
49
33
?
Ed
RRSRB BIO GRR RS
EVR eR oes
2
133592.00 ‘Average Cost Per Year
Waterford’s current fleet, geared heavily toward traditional firefighting, may warrant strategic
realignment over time to better match the evolving mission of an Emergency Services or First
Responder organization.
Regardless of future adjustments, effective fleet management today remains essential to
ensure the reliability, safety, and fiscal responsibility of this critical public asset.
Using Fleetio Software: A Modernized Approach to Fleet Management
To optimize fleet performance, Waterford utilizes Fleetio, a modern fleet management
software platform designed specifically to:
« Track vehicle condition and maintenance
¢ Monitor vehicle utilization
« Manage repair records and costs
« Improve budgeting and forecasting accuracy
« Support asset replacement planning
Fleetio provides real-time, centralized data that allows the Fire Services leadership, Town
executive staff, and financial officials to make data-driven decisions about asset maintenance,
replacement, and allocation.
This technology represents a significant advantage for Waterford, enabling the Town to extend
the useful life of its vehicles, improve operational efficiency, and strengthen long-term financial
planning.
20

Existing Town Resources: Building a Collaborative Maintenance Model
In addition to Fleetio, Waterford has internal resources that can be leveraged for fleet
management efficiency:
+ Department of Public Works: Potential to expand the use of Public Works mechanics
and facilities for standard maintenance tasks, achieving economies of scale.
* Shared Procurement: By coordinating purchases of routine parts, supplies, and service
contracts across departments, the Town can further control costs.
» Cross-Departmental Asset Review: Collaboration between Fire Services, Public Works,
and the Finance Department can ensure objective evaluations of fleet needs, promoting
smarter capital investments.
A central component of this effort is the use of a maintenance score, a tool designed to evaluate
the operational integrity of each vehicle. This scoring system assists in proactive planning for
maintenance needs, scheduling repairs, and determining appropriate timelines for vehicle
replacement.
§.5 Communications Findings
The Town purchased new pagers for the volunteers, and the Town is in the process of
transitioning to the state radio system to replace the current one. Appendix D is a letter
provided by the Director of Emergency Services summarizing the state of emergency
communications in the Town of Waterford. in short, plans laid in place years ago are being
fulfilled to the Director's satisfaction.
5.6 Waterford Ambulance Findings
Waterford Ambulance is a private contractor operating out of its privately owned building
located at 454 Boston Post Road. They operate their ambulances out of this one location,
providing one ambulance 24 hours a day. And one ambulance for 16 hours from 08:00-00:00.
Waterford Ambulance is a private contractor whose employees are not employed by the town
of Waterford. The Waterford ambulance service pays Waterford an annual fee for using our
radios, radio system, and dispatching services,
‘
The extent to which the Town will enter into providing ambulance service via Fire Services is a
TBO topic for the future to be assessed by the new Fire Services Director.
21

5.7 Mutual Aid Findings
Mutua! aid refers to a formalized agreement between neighboring fire departments and
emergency services to assist one another during incidents that exceed the immediate capacity
of a single department.
In practical terms, mutual aid means that if Waterford’s Fire Services are fully engaged in an
incident—or if a particular incident demands specialized resources or additional manpower—
neighboring towns such as New London, East Lyme, Montville, or others can be requested to
assist. Similarly, Waterford is obligated to respand to aid requests from neighboring
communities when called upon.
Mutual aid covers a wide range of situations, including but not limited to:
e = Structure fires
« Hazardous material (HAZMAT) incidents
«. Major vehicle accidents
« Emergency medical situations
e Natural disasters and severe weather emergencies
« Large-scale public safety events (e.g., mass casualty incidents)
Legal Basis and Responsibilities
Mutual aid arrangements are typically codified in formal agreements or memoranda of
understanding (MOUs) between municipalities. These agreements clarify roles, expectations,
operational procedures, and financial responsibilities when one jurisdiction assists another.
In the case of Waterford:
« The Town has entered into mutual aid agreements that bind Waterford legally to
provide reasonable assistance when requested.
« Assistance must be provided to the extent possible without compromising Waterford’s
own public safety obligations.
« Waterford retains discretion—typically via the Fire Services Director or Chief Officer on
duty—to determine the level of aid that can be safely offered without endangering its
own residents.
Key Legal Considerations:
1. Duty to Provide Aid Once Dispatched
Once Waterford dispatches resources under a mutual aid request, there is a legal and
operational expectation that those resources will perform professionally and safely
under the requesting jurisdiction’s incident command structure.
2. Risk to Waterford’s Assets
When Town personnel, vehicles, or equipment are sent outside of Waterford’s
jurisdiction, the Town assumes certain liabilities and risks, including:
o Potential damage to equipment
22

o Potential injury to personnel
o Potential exposure to legal claims (though many agreements include
indemnification clauses)
3. Workers' Compensation and Insurance Coverage
Firefighters, whether paid or volunteer, remain covered under Waterford’s workers’
compensation insurance while operating under mutual aid, ensuring protection in the
event of injury or death while assisting another community.
Cost Recovery (Rare but Possible)
Generally, mutual aid is provided without direct financial compensation. However, in
certain extraordinary situations (especially extended deployments), Waterford may
have the right to seek reimbursement for extraordinary costs under disaster
declarations (e.g., FEMA reimbursements after federally declared emergencies}.
Right of Refusal Based on Capacity
Importantly, mutual aid agreements do not require a town to endanger itself to aid
another. if Waterford’s available resources are insufficient to safely respond to both
local needs and a mutual aid request, the Fire Director (or highest-ranking officer) has
the legal and ethical duty to prioritize
What Mutual Aid Is Not
Mutual aid is not a replacement for adequate staffing and equipping Waterford’s own
fire and emergency services.
Mutual aid is not guaranteed: other towns might not be available at critical times,
especially during widespread regional emergencies (e.g., hurricanes, major storms),
Mutual aid does not absolve Waterford of its primary legal responsibility to
independently and adequately protect its residents
Strategic Importance for Waterford
Given the Town’s legal obligations and operational realities, mutual aid should be understood
as:
A valuable supplemental tool, not a core component of service delivery.
A safety net for rare, high-demand incidents, not a routine staffing solution,
An obligation of reciprocity means that Waterford must be equally prepared to both
request and provide aid without compromising its own community’s safety.
As Waterford continues to modernize its fire services and evolve toward a combination
department structure, mutual aid will remain critical—but it must be managed wisely, with full
recognition of its benefits, limitations, and legal responsibilities.
23

6.0 Five Fire Stations - History and Structure of Waterford's Fire Stations
Waterford has a long-standing tradition of volunteer fire service, dating back to the early 20th
century. The Town’s five volunteer fire stations emerged as a direct response to growing local
needs, with each station strategically located in areas experiencing population development.
Notably, all five stations were constructed by volunteers, using funds they independently
raised.
To formalize and distribute responsibilities, a series of fire districts were created, providing an
organized framework for managing the growing fire services system.
Since 1942, Waterford has maintained five fire stations, all incorporated within a span of 19
years. These five stations remain operational today.
Waterford’s population continues to grow steadily, and the current infrastructure of fire
stations remains largely supportive of existing development patterns. According to the most
recent census, Waterford’s population stands at 19,554.
While census projections suggest the population may stabilize or even decline slightly in the
future, recent development activity—as illustrated in Table 2—indicates the potential for
continued population grawth, which could influence future demand for fire services.
Waterford’s proud tradition of volunteer fire service has evolved over decades to meet the
needs of a growing and changing community. Originally founded around local volunteer efforts,
the Towns five fire stations—established through a historic agreement (Appendix E}—provided
critical coverage and protection. This agreement, whereby volunteers deliver fire protection
services in exchange for maintaining stations, equipment, and training, remains foundational
today, granting Waterford access to a network of five strategically located stations.
As Waterford grows, the Town has a unique opportunity to honor its rich legacy while
thoughtfully planning the next generation of emergency services—services designed not only
for today’s challenges but for tomorrow’s vision.
While census projections suggest that Waterford’s overall population (currently 19,554} may
remain stable or decline slightly, other trends paint a more dynamic picture:
e Growth in the Senior Population:
An increasing proportion of older residents will drive greater demand for emergency
medical services.
24

e Recent Development Activity (Table 2):
Despite broader forecasts, recent residential and commercial building activity suggests a
blossoming population.
* Town Size and Diversity:
Spanning 37 square miles, Waterford features a mix of rural, suburban, and commercial
properties, each requiring thoughtful, responsive fire and emergency service coverage.
Several factors are shaping the evolving mission of Waterford’s Fire Services:
e Significant Commercial Entities:
o Dominion Energy's Nuclear Power facility
o The proposed Data Center
o The Crystal Mali complex
These assets represent critical infrastructure requiring specialized response
capabilities.
e Changing Building Patterns:
Newer construction often features:
o Higher population densities
o Multi-story structures
o Fire-resistant materials
These improvements enhance safety but also introduce new challenges, such as
greater exposure to hazardous synthetic materials in fires.
« Expanded Scope of Emergency Responses:
Today, structural fires represent a small fraction of calls. Firefighters are now routinely
responding to:
o Hazardous material incidents
o Severe weather events
o Service calls
o Medical emergencies
o False alarms
« Distribution of Service:
Analysis of call data indicates that emergency call volume is distributed across the Town,
reinforcing the critical value of maintaining all five fire stations.
U
25

6.1 Why Five Stations Matter
Maintaining a five-station model continues to provide tangible, town-wide benefits:
1.
Response Times
The current station locations enable fast, reliable service delivery in alignment with
National Fire Protection Association (NFPA) standards.
Volunteer Retention
Reducing or closing stations could diminish volunteer participation and necessitate more
career staff, increasing casts.
Strategic Coverage
Stations are located near high-density neighborhoods and key assets such as the Crystal
Mall, Dominion Nuclear Power Station, interstate 95, Interstate 395, Route 85 and
Waterford’s schools, Town Hall, Community Center, Beaches, Niantic River, and Thames
River aff spread over 37 square miles.
Insurance Rates and ISO Ratings ;
Maintaining five stations helps preserve Waterford’s favorable Insurance Services Office
(ISO) rating, protecting residents from higher insurance premiums.
Resiliency and Emergency Sheltering
Each station provides a critical location for resident sheltering during townwide
emergencies and supports Waterford’s integrated Task Force emergency management
approach.
(nfrastructure Readiness
Except for Oswegatchie (which requires replacement), the other stations are
maintainable through repair.
Emergency Operations
As Waterford’s Fire Services evolve into a broader Emergency Services Organization,
each station will play a key role in housing resources, personnel, and shelter facilities
across the community.
A Proven, Successful Model
The five-station approach has effectively served Waterford for over 100 years—providing
life-saving protection, community reassurance, and continuity.
26

Looking Forward: Waterford’s Vision for Emergency Services
As Waterford embraces the future, its fire services must continue to evolve and potentially into
a madern Emergency Services and First Responder Organization, ready to address a broader
range of public safety needs. As noted earlier, such a change may warrant a charter update. A
suitable name could be Waterford Fire and Rescue.
Key elements of this future vision should include:
« Investing smartly in facility upgrades, apparatus modernization, and training.
e Expanding partnerships with local and regional agencies.
« Applying for grants (such as SAFER grants) to enhance staffing and resilience.
« Adapting tactics to meet the challenges of changing construction patterns, population
shifts, and evolving threats.
By recognizing the value of its current infrastructure and proactively planning for the future,
Waterford is charting an exciting and responsible course—one that builds on its proud past
while preparing for a bright, resilient future.
The future of Waterford’s fire services is not about standing still. It's about growing, adapting,
and leading—and the Town is ready.
6.2 The Case for a New Oswegatchie Fire Station
In January 2023, the Ad Hoc Fire Services Committee released an interim report recommending
the replacement of the Oswegatchie Fire Station due to extensive structural and mechanical
deficiencies. At the same time, the Committee strongly reaffirmed the Town’s five-station fire
service delivery model as the most effective and strategic approach for meeting Waterford’s
emergency response needs.
in addition to the broader reasons supporting the five-station model, the following specific
points highlight why replacing the Oswegatchie Fire Station is critical to Waterford’s future:
a.Strengthens Public Safety
« Ensures contin