Fire Services Review Special Committee and Backup

FIFTERN ROPE FERRY ROAD
WATERFORD, CT 08385-2886
FIRE SERVICES REVIEW SPECIAL COMMITTEE
SPECIAL MEETING AGENDA
PHONE: 07442-0553.
wwrwalatordcturg
WEDNESDAY, Juty 9,2025 6:00P.M. WPD TRAINING Ru (41 Avery Lane}
1. Establishment of quorum; call to order
2. Public Comment
3. Approval of minutes for June 25, 2025, meeting.
a. Review and discuss first draft of full report.
b. Discussion and vote on issuing report to RTM.
5. Schedule next meeting.
6. Adjournment.
encl: June 25, 2025, Minutes
Fleet Management Ordinances
Full Report Draft #1 7/2/25
Consideration and possible action on the RTM’s charge tothe committee. (RTC 6/7/21):
Review issues including performance, policies, and staffing and present their findings/recommendations
on any changes needed to enhance public safety, creating a steering document and strategic plan.
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Fire Services Raviaw Special Committee Minutes—Special Meeting June 25, 2025
Members Present: Robert Tuneski (BoF); Susan Driscall (RTM); Tim Gandan (RTM Public Protections & Safety Camm,);
Matthew Keatley (RTM) by phone; Richard Muckle (80S); Ronnlé Willlamis (WFD); Chris Haley (Director, Fire Services);
Steven Sinagra (Director, Emergency Management}
Members Absent; Todd Patton (Chlef, Goshen Fire Co.)}; Mark Graczkowskt (WAS Director of Operations)
1. Call to order: Chair Tuneski-called the meeting to ofder at 6:04 p.m.
2. Public:comment: Member Condon summarized his written recommendations fattached) regarding staffing arid fleet
imafiagement, Ursula Morestiead (RTM) urged the conimittee to give serlaus consideration to'the recommendations.
3..Previous Minutes: Motion by Condon, second by Keatley, to approve the June 18, 2025, minutes.as ameérided by rernoval
of the sentence beginning with “Committee consensus" in paragraph at the top of page 2. Voice Voter. Unanimous.
4. Consideration of FSRSC’s charge from the RTM (6/7/21):
a, Review/discuss Directat’s commierits: Haley reported that he has fourd the updated Valunteer Incentive Plan
Information that previaus director was preparing for FSRSC, but he didh’t have-time to prepare It for this meeting. He did
offer the surnmary of the last ISO evaluation (attached), noting that the town’s water system scored high and that he
anticipates improvements In other areas In the next ISO report since our service. model has chafiged so much since 2046
because we now have three full-time firefighters responding to every call, with 28 certified volunteers as potential
backup, He also predicted'the dispatch scores would te higher due to Sinagra’s efforts over the past few years,
saHaley described the documentation prep and.wait-time for the next ISO rapart as a multi-year process and that
currently his focus.on-immediate practical needs, such as the apparatus repairs causing a $9900 deficit to date and which
he predicts could reach a total'of $450k to'$200k for FY25. He reported that two apparatus are siill an lifts in shops and
out. of commission arid believes that the high volume of mechanical Issues Is hedause the Vehicles‘purchased were
chosen by manufacturer's stock offerings rather than ordered witha purpose-built design. He discussed his expeflence
with this process, and explained that while it.can take up to five years to design and build the apparatus this way, It
results Ina vehicle better suited for its actual use, with a Icnger lifespan that ultimately saves money.
Tuneski asked:Haley to codify tha purpose-built vehicle design process to that. the town would have It as a reference In
20 years after he’s gone.
Discussion then segued to the current fleet management plari. Condon expressed concerrié that the replacement
cycles used for fire apparatus are nat realistic. He used brush trucks as an example, notlhg that In 10-years they would
still have lagged fewer than 15,000 miles and there Is no need to spend or allocate half-a-milllon dollars on them. Haley
agreed ‘that the one-size-fits-all approach does not work for-fire apparatus and noted that fils plan would ultimately
change the fire fleet to 5 engines, 2 ladders and 2 brusti.trucks. Condon estimated that if everything were funded
properly in the fleet management plan, Haley could save about $200,000-a year. But, he added, current funding Is nat
proper and polrited out that W-25 Is only funded far $925,000 which Is vastly under today’s prices.
i

FSRSC Minutes: June 25, 2025 page 2 of 2
Haley noted that he expects that inspections/assessments of the entire Fire fleet will be completed by July 7. He
offered a variety of ways we could or should use to improve our fleet management. For example, tagging certain vehicles
as DNR (do not replace} could pravide some budget rellefs rotating or refurbishing stack to delay purchases; or utilizing
financing aptions other than straight banding, that could accumulate Interest to help offset final cost. Given that a
standard S-year plan doesn’t work for 30-yr apparatus, and the huge price tag on Fire’s rolling stock compared to other
departments within the plan, it was suggested that carving out fire-speciffe guidelines could Improve averail budgeting
for fleet management and help avold catastrophic blips for emergency repalrs/replacements.
Condon and Driscoll noted that the fleet management plan, created in 2008, Is long overdue for review and revision
for everything from adequacy of the fong-standing $1 million annual appropriation to replacement cycles. Questions
followed about how the fleet management plan is Implemented—e.g., who makes the final repair/replace decision, are
there regular actuarial reviews to determine recommended annual appropriation? Driscoll offered to pravide the fleet
management ordinances with the next agenda. Candon explained that the RTM could adjust the plan through the
ordinances, and that FSRSC discussions and recommendations would help drive the revisions and members could garner
support on the BoS, BaF, and RTM, Haley noted that the department’s immediate need Is staffing, not fleet management.
Muckle stated that the FSRSC needs to move on the final report, Tuneski sald he has incorporated Williams’ comments
and Slnagra's updated Information. He noted that while some of the data Is old, the upcoming version has more
evaluation and he feels comfortable with the content.
Sivagra reported that he provided updated information on the cammunications upgrade directly to Tunesk! to add to
the draft report, Following a request from Haley on his behalf, committee granted Sinagra reprieve from attendance at
next meeting, with praviso that questions or requests for clarification on his sectian cauld be relayed, as Well as request
for comments on the final version of the report before the committee vote.
Condon sald the point of the committee was not to allow vaicing opinions an big issues or hig needs, but to have the
experts and policy makers work together to provide documented recommendations, and we are not there yet.
Muckle said we are forced by circumstances to do this as saon as possible, since Haley has sald a new OSW fire station
is critical and the FSRSC report |s needed so funding for the station can go forward. Lengthy debate fallowed on purpose
of the report and its role In new station proposal.
Condon asked members to recognize that the pracess behind creation of the OSW Bullding Committee needs to be
changed and that, based an the condition of all the stations, there should be a bullding cammittee charged with
addressing/planning for repairs and renovations at aif five. Tuneski said that members of building cammittees are not
professionals, and we should consider recommending that engineers be contracted to handle that.
Haley suggested that a compromise solution would he for the committee to write a letter to the RTM recommending
funding for the new OSW station and then we could get back to finalizing the report. Condon and Driscoll countered that
the FSRSC already sent a letter of support in 2022, Driscoll noted that 8 months were spent talking about recommending
an OSW building committee because the roof was In danger of caving In any minute~when the Director and First
Selectman could have followed the standard procedure and gone directly to the RTM and gotten immediate approval.
Condon added that the plethora of unaddressed facility Issues shaws a fallure of the current capital plan and that the
committee should be giving the same consideration and treatment to all five stations,
Tuneskl sald he would provide a new draft, with the first and second halves combined, in advance of the next meeting
and that It would show tracked changes for the Inclusion of Willams’ comments and Sinagra's updates, and Include a
summary of committee recommendatians,
5. Next meeting: Consensus to tentatively schedule next meeting for Wednesday, July 9, 2025, at 6:00 p.m. Location thd.
&, Adjaurnment; Motion by Condon; second by Keatley ta adjourn at 8:20 p.m. Voice vote: Unanimous.
Submitted by
Susan Driscoll, FSRSC Secretary
enck Condon comments
2016 [SO Report summary

Fira Service Ad Hac Cammittae Members, June 24th 2025
As one of aur maln recommendations we must come up with a method for staffing the
Waterford Fire Service. This staffing mode) must ba consistent with the current method of 3
Peraone! at Jordan and Cohanzie as the Town elected officials Junded the required additional
firefighters contingent to their placement In said locations, and as explained by Selectman Brule
and then Director Howley, At the last meeting June 18th 2025 we had, In my opinion, very
productive conversations about the fleet and the slatus of human capital. One of the main
takeaways that | wish to stress Is the Quaker Hill station and region of our Town, Per the travel
time map given fo committea members this region of Town Is isolated In a manner no other
section of our Town Is and therefore must not be ignored or dismissed when designing a staffing
model. When this topic was briefly discussed the Director elucidated ideas of using one of our
mutual ald partners, The City of New London, in a manner which gaes beyond mutual ald into
that of automatic ald to assist In addressing the oullined Issue. While this may be a component
of tha emergency response it does not completely alleviate our responsibility and statutory
obligation ta the residence of Quaker Hill, | would like ta offer the fallawing staffing model and
recommendations for discussion.
1.) Draft, propose and execute automatic aid agreements with Naw London for the Goshen
and Quaker Hill regions, East Lyme for the Jordan and Oswegatchie regions along with
1-95 & 395 northbound lanes and Montville for the Quaker Hill ragion and 395
Southbound lanes. .
2.) Adopt a policy that no paid firefighter work aione, full time or part time.
3.) Propose the creation and promotion of 3 Lieutenants fo be quartered at the Cohanzle
Station,
4.) Staff the Cohanzie station with 2 firefighters and the nawly promoted Lleutenants for a
total af 3 personel.
5.) Staff the Jordan Station with 2 firefighters and the Captain- who shall have the ability to
resporid separately. Total of 2 personnel,
6.) Upan the completion of the Oswegatchle construction, staff this station with 2 full time
firefighters with a fulura goal of 3 firefighters
7.) Staff the Quaker Hill station with 2 firefighters 24/7, part time employees,
8.) Town to fund the Deputy Chief position
9,) Director fo explore the possible creation of a department machanic/enginger to complete
light service issues with the fiset to be funded by the offset in cast savings from sending
apparatus to a third party.
These proposals were all topics at the last meeting but need to be further flashed out. The
Director also proposed a fleet plan of 5 Engines and 2 100 foot Aerial Platforms. We as a
committee must lool dasper into the issues with the fleet as major adjustments are naeded not
only for the fire service but for the sustalnabllity of the feet plan as a whale. Waterford as a
community doas not want to find itself in a position where we may have fo purchase multipla
large apparatus in a single budget year. The following polnts are for discussion, consideration
and or recommendation,

4.) Immediately move to replace W-65 as It is partial funded In this fiscal year, due
to tength of delivery and current usage of W-15
2.) Follow previous recommendations to eliminate and not replace W-32 a 1998
angina.
3.) By or In fiscal year 2028 do not replace W-21, instead relocate W-41 or W-42 to
the Quaker Hiil Station.
4.) Use the allocated replacement monay in FY 28 to bulid a Squad style engine to
be quartered at Oswegatchie,
5.} Upon delivery of he Squad, relocate tha remaining Oswegachle engine to
Jordan and ellminats W-11, thus allevialing the need to purchase two engines In
the same year. 
.
6.) Elitninate the replacement af Brush Unit W-43 saving roughly $226,206 and sell
current vehicle
7.) Remove the brush skid mount unit from W-53 and place It on W-34,
8,) Eliminate the replacement of Brush Unit W-83 saving roughly $316,000 and salt
the current vehicla
9.) Recommend tha replacement cycle for Brush unit W-23 be based on repair and
maintenance rather than manufacture year thus greatly extending Its lifespan.
10.) Brush units te be run out of Goshen and Quakar Hill statlons,
Finally { would like to put a bit more emphasis on one particular recommendation and that is the
funding of the Deputy Fire Chief. This position was created a few years ago and has been
funded and cut throughout multiple budget cycles. This past year Selectman Brule added a
vehicle ta the fleet plan in FY 27 for the Deputy Chief, indicating to me his desire to sea this
position be funded and filled. Further the Director stated that he has been working almost every
night until 1 am. This is unhealthy for our new Director and also must be resulting in large
amounts of PTO which he may never ba able to utllize,.
These are a few of the nates and recommendations from our last meeting meant fo further the
discussion,
Respectfully Submitted
Timothy Condon
District 1 Representative Town Mesting

Summary of 2016 ISO Report an Wid Fire Sarvices presented by Dir. Haley 6/25/25
These polats represent the summaty of the malor oategorles of the PPC evatuatton,
67.76
ayoradl points gutat 195.8
Overall PPC Value: 0474%
Effective Date: 6/1/2016
Community Risk Reductton Points (CAR)
4.24
Water Points
4048 R98 Trad
Fire Department Palrts
29,22
90,78 26,72
Emergency Communication Center Points (EGC)
5.94 s 67,76
4,22 + 96.26 * 29.29 + § +
GRR Water Fire ECC Divergence © Tatat
Points Points Points Paints Paints
Compare the foltawings fa Peer Group = =@ State Group tg Nationwide
Waterford ¥ 18 Communttiag: 1
Fire Protection Area Rumber of 3 Story Gultdinge: Vlew Somumuntiles
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180 reviews the community's fire prevention code adaption and enforcement, public fira satety education, and fire Investigation. This review
can add an additional 5.5 points to a grading,
Points: 4.2 out of 6.5
To sanutata a change tn polota for any sub-category, click on ao Iitdividual chart,
Pravention Cade and Enforcement ()
8
Safety Edueation @
a
Invaaitigatlan @)
a 0.87
Compere the following: €’PeerGroup @) 9 State Group ( Nationwide
Waterford ¥ 1a Caramunitios: 7
Fire Protection Area, Number of 3 Story Buildings View Communities
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ISO evaluates the commurity's water supply system to determine the adequacy for fire suppression purposes. We also consider hydrant
size, tybe, and fristailation, as well as the frequency and completeness of hydrant Inspection and flow-tasting programs.
Points: 35,3 out of 40
Yo simulate a change in palnts far ony sub categary, cick a ary individual chart,
Water System Cupaiillity ©
29,08
Hydrants @
2.98
212 2.91 an
inspection @
216 28
Flow Testing ©
0
042 096 146
Compare the following: Pear Group @) State Group 1 Natlonwide
Waterfard v| 10 Communities: 1
Flee Protection Area. Number at 5 Story Buildings Miew Comununities
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‘The review of the ECC foauses on the community's facilities and support for handling and dispatching alarms for structure fires.
Points: § out of 10
To alnutate a change In points far any sub-category, clfck an an individual chart.
Emergency Reporting (
195
1.37 1.88 as
Compare the following: © Peer Group @ State Group © Nationwide
Watertard - 10 Cammuntties: 1
Firg Protection Area Number of 3 Story Bulldings Yio Commiuntiles,
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{SO focuses on a community's fire suppression capabilities by measuring the fire departments first-alarm respanse and Initial attack to
minimize potential logs. ISO reviews such items ag engine carnpantas, tadder or service companies, reserve apparatus, pumping capacity,
equipment carrted on apparatus, deptoymant of fire campanies, company personnel, training, and operational considerations,
Points: 29.2 out of 50
Yo sitnutete a change In pointe for any sub-category, cltak an an Individual chart,
Engine Companies @
898 482 8.07
Reserve Pumpers
O12 O16 O28
Pump Capacity @
° 228 298
Ladder / Service
Resurve Ladder / Service @)
0.08
Deployment ©
o
407-848
Personnel ()
3.37
Training D
2.04
24h 38S
Operational Considerations @
144178 4
Compate the following; €2PeerGraup @ #4 State Group @ Nationwide
| Waterford Yi to Communities: 4
i Fire Protection Area Number af 3 Story Buttdlags May Communities
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Chapter 3.17 - FLEET MANAGEMENT PLAN AND RESERVE ACCOUNT FUND
3.17.010 - Establishment.
WHEREAS, The first selectman, acting pursuant to this authority under the Town Charter Section 3.2.3 is authorized to
develop a capital spending plan, which is then ratified by the board of selectmen and board of finance and forwarded to the
representative town meeting;
WHEREAS, "Capital items" include capital expenditures that exceed ten thousand dallars in cost, such as vehicles and other
apparatus;
WHEREAS, the finance director, acting under the first selectman and hoard of finance, has proposed that the capital spending
plan include a component entitled, "Fleet Management Plan" to properly manage the capital expenses of said vehicles and
apparatus and account for thase specific town funds;
NOW, THEREFORE, a fleet management plan and reserve account ordinance is hereby established to be knawn as the fleet
management plan.
(Amend. of 6-1-09)
3.17,020 - Applicability.
This chapter shall apply to all town boards, commissions, agencies and departmenté, Including the town board of education.
(Amend. of 6-1-09)
3.17.030 - intent of plan.
In recognition of the budgetary burden to maintain its fleet, the Tawn of Waterford shall prospectively recagnize the annual
costs associated with fleet replacement based upon defined life-cycle parameters and establish a segregated reserve fund to
account for timely asset replacement, using a combination of proceeds derived from an equalized rate of annual
appropriation complemented by residual value proceeds and fund investment income. .
It is the intent to level the budgeting requirement of fleet replacements over an extended period of time ‘and to that end itis
recognized that the annual budget requirement will not be equal to the defined costs of replacement. The plan is-structured
using the full replacement value of the fleet as a base and spreading the cost over a number of years to provide a constant
level of budget annually and allow the residual resale values of the replaced vehicles and the fund performance (Investment
income) to equalize the annual cost differentials.
{Amend. of 6-1-09)
3.17,040 - Implementation.
The first selectman, under the authority of Charter Section 3.2.3, capital spending plan, through the town finance director,
shall supervise and implement a "fleet management and 5-year capital improvement plan guideline" to effectuate the
administration of the fleet management plan. .
(Amend. of 6-1-09)
3.17,0S0 - Definitions.
Variance. Any change that Involves a substitution in equipment, change in the replacement yéar called for in the plan, or
expenditure for a budgeted acquisition In excess of ten percent of the amount noted in the plan, or twenty-five thousand:
dollars, whichever Is less. .
(Amend. of 2-6-17(1); Amend. of 6-1-09)
3.417.060 - Reserve account agreement,
Procedures:
1 The first selectman, with the advice of the finance director, will develop a funding level for the asset replacement
schedule for the current year capital budget. As part of the annual capital improvement budgetary pracess,
departments will be provided with a list of assets within Its department scheduled to be replaced In the
Upcoming fiscal year. If the department heads have recommendations other than that defined by the plan, they
must justify in writing each change to the first selectman.
2, Durlng the budgetary process, once the department heads agree with the vehicles/equipment due for
replacement in the budgetary period as defined by “the plan," the value of all departmental replacements is to

be nated on the project consolidation farm under the project name of fleet management In the current year
capital budget.
3. The first selectman will provide the board of selectmen with a list of assets due for replacement in that fiscal
year (the “plan”) together with a summarization of the departmental requests and put forth a recommendation
on the funding level of fleet management in the current year capital budget. This recommendation will be
calculated by using an average of the next seven years’ funding requirements, This level of budget will remain
constant throughout that period only if the plan is nat amended to eliminate or increase the number of assets
from the prior year.
4. Any town official or board who/which seeks to challenge the first selectman's asset replacement list shall bring
their challenges directly to the board of selectman for its consideration as part of its recommendation to the
board of finance for current year capital budget. Moreover, all town boards, commissions, and officials may
appeal the plan’s total budget before the RTM at its annual budget meeting each fiscal year.
5. The board of finance through its budget review pracess will make a recommendation to the representative town
meeting on the first selectman's fleet management plan, as part of the current year capital budget. ~
6. The board of finance can recommend approval of the first selectman's plan or return the fleet management plan
to the board of selectmen with a zero dollar recommendation for the board of selectmen to reconsider the plan
as a whole ar to reconsider the appropriation originally put forth by the board of selectmen.
The representative town meeting will take final appropriation action.
8. in the event of a variance requested by a department after the budget process has been completed, the first
selectman shalt commence a meeting of the fleet management ad hoc committee, consisting of the first
selectman or his/her designee, RTM moderator or designee, board of finance chairperson or designee, and
finance director to consider the plan variance request. A quorum of three-fourths of the committee is required
for business to he transacted. A unanimous vote of the committee present and voting ts required for any fleet
plan variance to be approved, It |s recognized that the pracess is not static and priorities will change due to
service outsourcing, downsizing or technology advancements.
9. if an emergency requiring a mid-year replacement outside the defined schedule should occur (i.e., replacement
of a vehicle damaged in an accident), the department head shall request a meeting of the fleet management ad
hoc committee to determine if such vehicle will be replaced out of cycle. The committee shall report to the
hoard of finance on any approvals granted through this process,
(Amend. of 2-6-17({4}; Amend. of 6-1-09)
3.17.070 - Fleet management reserve fund.
The Town of Waterford will malntain a segregated account entitled, "fleet management reserve fund" and all assets .
maintained in this account shall be invested in a manner to satisfy the anticipated liquidity needs to replace assets. Any assets
belng held in reserve beyond that required for current year replacements, may be invested in securities or other appropriate
instruments in which liquidity Is not a consideration In order to maximize investment earnings. All investment earnings shall
be redeposited in the account for the purpose of offsetting the expense of providing fleet replacement funds.
The major source of funding will be provided through an annual operating transfer in from the current year capital fleet
management line item.
Residual values from sale of replaced equipment shall also be deposited into this account for the purpose of offsetting the
expense of providing fleet replacement funds. The fund may also accept revenue from other sources such as rental of
equipment or vehicles, grants, gifts or donations.
Funds may be expended from the fleet management reserve fund if they have previously been appropriated by the
representative town meeting or an exception from the fleet management plan has been approved by the board of finance
expenditure authorization committee.
An annual réconciliation/accounting shall be completed by the finance department and subject to audit to verify the expenses
of the account.
(Amend, of 6~1-09)
3.17.086 - Effective date.
This chapter shall take effect fifteen days from date of passage, and shall remain in effect until otherwise amended, pursuant
to Section 3.1.13 of the Waterford Charter.
{Amend, of 6-41-09)

Full Report Draft #1 (Tuneski) 72/25
RECE|VED FOR RECORD,
1.0 Executive Summary WATERF ORG, CT
Firefighting has occurred in Waterford from the earliest days of its #lagdvlagtRordsttlicd Wes
were built which needed to be protected fram the destructive.damage caused by intermittent
fire events, This largely community-based private firefighting effarrmmak & oteOrgaiitied
form about a hundred years ago when four private firefighting companies a 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 décades, which support was
cadified in a farmal 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 madel. As. the costs
associated with firefighting in Waterford grew, far 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 fromthe 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 Waterfard’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. introduction
2.1 At the June 7, 2021, meeting, under new business initiated by the Chair of the Public
Protection and Safety Standing Cammittee, 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
One 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)
{t 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 infarmation 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 togics of interest,
as well as solicitation and retention of both quantitative and qualitative information as primarily
provided by the Director of Fire Services, ather 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 Waterfard Town website under
the Fire Services Special Review Cammittee 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 vated 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 ta
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 Waterford Fire Department was created and the historic management structure for
fire services in Town, the Fire Commission was disbanded, in accordance with a Town charter
revision. The new department was created via the Code of Ordinances (Chapter 2.36) and
charged the RTM with appointing one person from each fire district to serve on a hoard 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 fram the
ather 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 ald among companies.
In essence, with funding provided by the Town, the Board of Fire Commissioners managed Fire
Services for Waterfard. The organization was largely distributed with multiple jevels of
volunteer oversight, few if any checks and balances, and no direct Town accountability, But ft
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
¢ = Voluriteer recruitment and retention
e Emergency Communications
e Fire Marshalls Office
« Budget development and long-range planning
* 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 from 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. it 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.
Asa 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 te give back and te 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 people 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. Some fire departments have a more robust level of valunteer 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 cannat be achleved historically with
volunteers is being augmented 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 all 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 same 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 born 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, naw 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 resaurce 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 pravided in
Figure 1, and depicted in Figures 2-6.

Fire Date of
Company Fire Company Name Street Address Incorporation
Waterford Fire Engine
1 Company 89 Rope Ferry Road 1923
2 Quaker Hill Fire Degartment 17 Old Colchester Road 1927
3 Goshen Fire Department 63 Goshen Road 1928
4 Oswegatchie Fire Company 441 Boston Post Road 1930
5 Cohanize Fire Company 53 Dayton Road 1942
Table 1- Fire Company Demographic Data
QUAKER HILL 5
wf. FIRE ~
ee wall COMPANY
. COHANZIE FIRE we i
“, COMPANY
‘, ‘
% sf AF ¢ !
OSWEGATCHIE [\. r \
FIRE COMPANY | % 4 , i '
A Cee aaa Mie "WATERFORD 4
7; Y Pare of FIRE ENGINE }
hod Lips COMPANY 4 f
GOSHEN / / 5
FIRE DEPARTMENT ic y
i ‘ ; i
Figure 1- Map of the Town of Waterford Depicting Locations of Fire Stations and Fire Districts

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 lacal businesses (for example Electric Boat) suggest that
area populations including Waterford could increase. The Tawn’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,
Figuré 3.1. Papiilation Change by Decade. (1970 - 2020)
20,000 mem gna Fey
19,152:
19,000
38,000 oye pee
17,227
VECO nee ceueennnces nue sate uectineeina er venti nn ne
1970 1980. 1990 2000 2010 2020
Souree: US. Degennial Census 1970 - 2020
Figure 6-Population Change by Decade
(Town of Waterford, Key Demographics and Trends}
Recent Newly Constructed roved & Pending Hous
Waterford Uainnts 284 Pp. 22 109 z ‘Quaker iti
(Reocksifo Apartments a 3 ra 2
Katyn Cour Sistates 19 10 ‘Oswegstehig
Avalertors Woods FCrY ue rn ‘Great Neck
INyEsi Vilage. 40 4 Great Heck
Wakertord Cactiat oder Gocinscilos 2g ag orl z Geagt Neck
[eta Lanta Comannity Under Contraction | a7 a
Roberts Vaiage © ag (a Sai Ray Ss
Fearce: Tou of Waterford Penney & Deswlanaitet Deport Saat sate
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 Landon 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.
Total Responses
A800 pb ; posctnaneesenneegetesapttnnnr men paceman
4000
3500
3000
2500
2000
1500
1000
500
Number of Responses
17 18 19 20 24 23 24 25
Fiscal Year
Note: Responses for year 2025 have been extrapolated based upon responses through March)
Figure 7- Elght Year Trend of Responses
11

Strucural Fires as a Perecent of Total Responses
A 209
Percent of
rR
Oo om
oO fr
ot
17 18
19 20 ai
Fiscal Year
i
i
pened
Figure 8- Percent of Total Responses that Are Structural Fires
Total Number of EMS Responses
3000
a 8 B
8 8 8
o & &
Number of Responses
e
Q
S
ao
1
i
'
i
500 |--~ set denes ersacbeewe
17 18
19 20 21
Fiscal Yearr
Figure 9- Eight Year Trend of EMS Responses
24
12

: "EMERGENCY RESPONSE TYPES, AVERAGE 2017-2025
i Fires
i 2%
Figure 10-Summary Percentage of Structural Fires, EMS, and Other incident Types
42.00
40.00
wy
32 600
=
4.00
2.00
i 0.00
800 ny
Seven Year (2018-2025) Average Response Time by
Company
Cohanzie Fire Goshen Fire Jordanfire Odwegtchie
Department Department Company Fire
Figure 11- Average Response Times by Company
Department
Quaker Hill Fire
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. i i H i
STATION 24 25 26 27 8 Tatats T SNE
Hordan $100,000.00 $_8§000.00 1S ‘s5,coaos | [ $ 220,000.00 {kitchen in 7027 1 i 7
Quaker Hit “$150,090.00 150,000.00 [Bunk AoamRtanoyatlons, Bathroom i
{6osttent $150,090.00, $50,000.00 linclades Rens pushed out fear 2023 and 2025, ‘eat feplacement 2030
lOswepatchie | $80,000.00 20,006,00 [On hold pending new bullding : i i
icohanwie $30,000.00 39,900.00 leuk roam, bathroom, day room Fevvatons navrwidous oddone
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,
14

ied
a
i
4 18
1 245
| 2
| 3= 10 -
w
£ira 3
it) aro _ —
| 23-24 24-25 2526 26-27 27-28 «= «28-29-2930
Fiscal Year
smonem Annual Additions of FT Firefighters === Running Totals
Figure 12- Current and Projected Staffing
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.
Itis important to underscore that staffing levels for the Waterford Fire Department have
increased since the inception of the Ad Hoc 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
e 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 Vordan)
o Company 4 (Oswegatchie)
15

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 ta ensure broad coverage while managing costs.
Importance of Maintaining Adequate Staffing
Maintaining sufficient staffing Is critical to:
o Protecting personal safety and property.
o Maintaining a high Insurance Services Office (ISQ) rating, which directly affects
residents’ insurance premiums.
Revi