Fire Services Review Special Meeting

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WATEREOHED, (1 06385-2846
FIRE SERVICES REVIEW SPECIAL COMMITTEE
SPECIAL MEETING AGENDA
THURSDAY, May 1, 2025 6:00P.m. WPD TRAINING Ru (41 Avery LANE)
A
1. Establishment of quorum; call to order; introduce new Advisory member
2. Public Comment
3. Approval of minutes for March 27, 2025, meeting.
& oS
4. Consideration and possible action on the RTM’s charge to the committee (RTC 6/7/21): a
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.
a. Continue discussion on Draft 1 of first half of report
b. Initial feedback on Draft 1 of second half of the report
c. Continue discussion on identifying/retaining outside expertise to assist in finalizing report findings
and recommendations.
5. Determine remaining meeting schedule to provide adequate review time, incorporate existing
comments, and address gaps.
6. Adjournment
encl: Replacement notice
FSRSC Minutes March 27, 2025
Second Half Report-Draft 1

Waterford Professional
Firefighters Association
Local 4629
P.O. Box 278, Waterford, CT 06385
Sue Driscoll,
Following the recent resignation of Tom Martin from the Public Safety Ad Hoc Committee, the
members of the Waterford Professional Firefighters Association Local 4629 met and voted ona
replacement for Tom Martin. Our new representative on the committee will be Ronnie Williams, and his
contact information is as follows:
Cell phone: 860-867-6454
Email: ronnierocs@yahoo.com
Sincerely,
Erik Pawlak
President — Waterford Professional Firefighters Local 4629

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Fire Services Review Special Committee Minutes—Special Meeting March 27, 2025
Members Present: Robert Tuneski (BOF); Susan Driscoll (RTM); Richard Muckle (BoS); Matthew Keatley (RTM);
Tim Condon (Public Protection & Safety Comm.); Mike Howley (Interim Director, Fire Services); Tom Martin (Captain, WFD)
Members Absent: Steven Sinagra (Director, Emergency Management); Todd Patton (Chief, Goshen Fire Co.};
Mark Greczkowski (WAS Director of Operations)
Also Present: Town Attorney Nick Kepple
1. Call to order: Chair Tuneski called the meeting to order at 6:02 p.m.
2. Public comment: Erik Pawlak (Captain, WFD) noted that he began his service as a teen-age volunteer firefighter before the
WFD was combined in 2011 and offered to discuss the change in relations between career and volunteer firefighters at a
future meeting. He pointed out several factual errors in the draft report that had been sent the night before. (attached)
3. Previous Minutes: Motion by Keatley, second by Condon, to approve the June 25, 2024, minutes as presented.
Voice Vote: Yes-4 No-0 Abstain-1 (Condon).
Motion by Keatley, second by Condon, to approve the March 6, 2025, minutes as presented. Voice vote: Unanimous.
4. Consideration of FSRSC’s charge from the RTM (6/7/21):
a. Review of provided information: None provided. Howley expects to finalize and submit for next meeting.
b. initial feedback on first draft of report: Chair noted that this is first rough draft (attached) and was looking for comments
on content and quantity of information. Condon and Driscoll confirmed Pawlak’s error citations and provided
corrections. Tuneski said he would contact former members of the defunct Board of Fire Commissioners for info on
when the Board was established and when the Town started financing fire house capital projects. Condon offered his
perspective as one of the co-creators of the FSRSC and its written charge. The effort was triggered by a fatal fire across
the street from Jordan fire station, and citizens were demanding an accurate review of policy and performance. The
report was envisioned, he said, as a “community lift” with representatives from ail fire and rescue first responders who
and would provide data, insights, concerns, and work together to propose strategies.
He noted that the Town established a combined department back in 2011, but implementing the change has long been
delayed and the town has failed to follow through in various ways, including years of neglecting repairs to all the fire
houses. He added that no one is proclaiming an end to the volunteer system, but that we need to recognize and react to
the reality of a system that is foundering nationwide. Noting that previews reviews and reports were done decades ago,
when the situation was very different and the volunteer system was robust, Condon urged the committee to create a
fully-documented report explaining where we were, where we are, and what we need to do...and provide accurate costs
for each option and explanations of why we made our final recommendations, whatever they are. He added that if the

FSRSC Minutes 3/27/25 page 2 of 2
FSRSC intends to continue its initial support of maintaining 5 stations, they should be aware that once the shovel goes
into the ground at Oswegatchie, that signals a new age of town-owned firehouses and the potential end of the five-
station option.
Tuneski said we need to put everything in its proper context, from where we were to where we are today and then
where we should go. He added that we need high integrity and accuracy in what we ultimately present.
Atty Kepple told the committee that while he appreciated the effort put in so far, there was no need to struggle with a
lengthy report and they could simply move on with a recommendation and disband. Condon and Driscoll disagreed,
pointing out that the FSRSC’s written charge from the RTM was to provide a thorough review and present a report that
contained recommendations for action. Kepple noted that the people voted and we've had a combined department for
nearly 15 years, and questioned the authority or the role of the FSRSC in charting the town’s future when there will be
an administration or a director who has their own plan. Condon pointed out that the problems we face now are the
result of the town never following through on the initial plans and ordinances to implement necessary policies and
procedures. While times and players may change, a detailed, documented, and well-publicized report would be a
reference for future officials who, if they proposed a change in strategy, could be asked to explain what triggered the
need or what new issue needed resolution.
Muckle stated that the science of firefighting has become much more efficient over the years, so we should not need as
many responders as in the early days. Condon and Driscoll pointed out that changes in training, volume of incidents,
hazardous materials, electric vehicles and greatly reduced flashover times demanded a suitable number of on-duty staff
at a minimum.
c. Consideration of independent report reviewer: Chair asked for updates on members’ efforts to locate potential outside
reviewers. Condon reported that Mystic Chief Clarkin and Old Mystic Chief Ken Richards and Assistant Chief Keith
Richards are willing to review the report. He noted that their tenure in combination departments would be an asset and
that while they are close enaugh to be considered regional colleagues, they are not so close that their input would be
influenced by regular working or personal relationships. Chair asked Howley if he had reached out to colleagues in the
CT Fire Chiefs Association; Howley predicted that they would probably defer, since the group tends to stay out of
individual town issues.
Martin requested, and was given, the opportunity to make a statement before the meeting adjourned. Remarks included
suggestion that IAFC’s Blue Ribbon and Red Ribbon reports on combination fire departments would be good resources for
the committee, reflections on his 3-year tenure on FSRSC, and announcement of his resignation. (attached)
Motion by Muckle, second by Keatley, to include Martin’s statement in the minutes. Voice vote: Unanimaus.
5. Next meeting: Consensus to schedule next meeting for Thursday, May 1, at 6:00 p.m. Location thd.
6. Adjournment: Motion by Keatley; second by Muckle to adjourn at 7:20 p.m. Voice vote: Unanimous.
Submitted by
Susan Driscoll, FSRSC Secretary
encl: Pawlak public comment
Report {first half) Draft 1
Martin resignation

Ree’d from Erik Pawlak 3/28/25
Fire Services Special Review Committee meeting 3-27-25
First half report talking points
-The fire commission was not formed in 2010. This needs to be corrected for the report
-The report is stating that the town will justify a volunteer as active as long as they respond to just one
incident annually. In 2024 the WFD responded to 3100 incidents. If a Little League coach only showed up
to one game we would not consider him an active coach and remove him from his position for
neglecting his role, yet we are trying to justify a single response as acceptable in emergency services?
-[ feel the term for our department should be changed from hybrid to combination. {t is a more widely
accepted and understood term in the industry regarding a department that is made up of paid and
volunteer staff alike.
-Claiming that the standards for paid and volunteer staff are the “exact same” is blatantly false. There
are no pre requisites to become a volunteer fire officer. They just have to be elected to he position by
their peers. Some chiefs have 0 state certified fire officer training and some have not even possessed
their EMT certification. There are pre requisites to be hired as a firefighter and even more so to become
an acting captain and even more requirements to be a captain. Also, the physical requirements are not
the same. Paid staff are required a full physical by Pequot health including blood work, spirometry, and
chest x-rays. Volunteers generally go to their primary care and after the primary care write on a routine
physical that they can be firefighters. The union has lobbied against this practice for years but it
continues today.
-In the report it states the Waterford Fire Engine Co#1 (Jordan) was founded in 1923 but it was in fact
founded in 1920.

FSRSC Report/first half Draft 1 3/26/25/Tuneski
1.0 Executive Summary /BLUF
TBD pending completion of entire report.
2. introduction
2.1 At the June 7, 2021 meeting, under new business initiated by Representative Tim
Condon (Chair of the Public Protection and Safety St g Committee), the RTM voted
to create a special committee, “Fire Services Reviews | Committee”. The charter of
rmance, policies, and staffing,
and present their findings / recommendati iE s needed to enhance public
safety, creating a steering document a : approved motion, the
committee shall consist of five full vo
the new committee was “to review issues inc!
1 Public Protection and Sa’
Safety Committee
rotection and
1 Board of Fi
One Full Tim ire Fi i ‘bythe consensus of the Waterford Full-time
Firefighters)
Richard Muckle, RTM Membe
Greg Attanasio, RTM Member (D)
Susan Driscoll, Public Protection and Safety Committee (D)
Robert Tuneski, Board of Finance (R)
Rob Brule, Board of Selectman (R)

FSRSC Report/first half Draft 1 3/26/25/Tuneski
The non-voting / advisory members included the following:
Michael Howley, Director of Fire Services
Steve Sinagra, Director of Emergency Management
Mark Greczkowski, Manager of Waterford Ambulance
Donald Chapman, Volunteer Fire Chief
Tom Martin, Full-time Waterford Career Firefight
with the following sections pop
Agendas / Minut
This bind ion | Director Howley, and
? i committee to review, mostly
technical public: ‘alevant to firefighting in Waterford. Other
information addres iffi acting and keeping volunteer firefighters,
the issues of hybrid and i ind demographic comparisons to other similarly
sized / populated towns. A
a Volunteer Recruitment Plan.
t revisions of Staffing Plans were provided, as was
Oonally various metrics measuring the level of
membership and activity of the volunteer firefighters in Town firefighting service were
offered.
The committee functioned by meeting and discussing topics of interest to the Fire
Services. Initially some of the key topics included the status of the Oswegatchie Fire
Station, communications (radio and pager), the relationship between the volunteers and

FSRSC Report/first half Draft 1 3/26/25/Tuneski
the paid firefighters, volunteer recruitment, and general staffing of Fire Services.
Initially, the status of the Oswegatchie Fire Station was viewed as the highest priority as
it was considered in risk of collapse in need of urgent action. Each topic was discussed
over one or more meetings. Director Howley continued to provide relevant information
regarding each discussion topic. This information added to that currently in the binder.
Over time and at the request of an RTM member at
was asked to also addressed fire apparatus fleet
infrastructure. And policies were discussed sp
their meetings, the committee
ent and general
ver the tenure of the
committee.
Others, including the Emergency Servi t information on
communications. Most information fro alance of the advis ambers was
verbal through the meeting:
There was also a fair amount discussions P and, condition
of the Oswegatchie Fire Station.
New informatio
detailed meeti
information.
both quantitative and qualitative information as
primarily provided by the
public as captured in meeting
re Services, other advisory members, and the
és. 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. No independent research by members of the committee
has been used.
In January of 2023, an Interim Report was prepared, and approved in a 3-0-1 vote and
delivered to the RTM.

FSRSC Report/first half Draft 1 3/26/25/Tuneski
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 report were presented at the February 3, 2023 RTM
Meeting by the chairman, at which time, as a result of the findings, the RTM
unanimously voted to create the Oswegatchie Fire Station Building Committee.
Following the issue of the interim report, the Commi
focus of some of the members shifted to other i
including the newly established Oswegatchie
xperienced a brief hiatus, as
(Town responsibiliites,
mittee. After the hiatus, the
meeting resumed with a change in membe
Susan Driscoll changed from |
RTM representative
Matt Keatley was
ent. A brief second hiatus was
who it was thought could
yearly collected infe ion. veral months and resumed March 6",
2025. That meeting of the final report. as well as updating previously
provided information. c d was partially responsible for the second hiatus
of the committee.
3.0 Fire Services History
Fire services pre-date the incorporation of the local fire departments, which occurred in
the 1920-1940’. Prior to having fire stations from which services were deployed, the
Town.... Need more input here

FSRSC Report/first half Draft 1 3/26/25/Tuneski
In 2010, the Board of Fire Commissioners was formed, in accordance with a Town
charter revision. It 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 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.
with each fire station in
id not have direct control
cts. The board set policies for
f.those throughout the Town.
The board oversaw the funding of fire services. It wor’
determining equipment and operation needs, alth
over the day to day operation of the individual
fire and rescue services, and coordinated th
The board had oversight of the over th arshalis offi the Town
Communications Center.
The Town is divided into 5 fire districts, e ent and fire
station. Each fire departme
General Statutes of the State o
signed legal agreement with the
exchange of an an
jth its own fire de
rs. Each department
and there were provisions made
izational was largely very distributed
ght, few if any checks and balances, and no direct
Town accountability. But ‘cowards a more centralized organization to better
address Waterford needs.
The Board of Fire Commissioners was replaced by a flatter, 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 Town paid
official. This change in organization placed accountability back to the Director and
ultimately the First Selectman of the Town. It also centralized the budget creation and
5

FSRSC Report/first half Draft 1 3/26/25/Tuneski
allocation process. The current Director of Fire Services position is responsible for all
things fire service-related 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
Fire Marshalls Office
Budget development and lor
In addition to cr:
consolidated d
He single most impactful step
g Fire Services. It was essential in unifying
Board could have been mor
Along with this change came vertical organization and consistency in policies and
practices.
Fire services today is more organized and in a better position to deliver services to the
Waterford taxpayer.

FSRSC Report/first half Draft 1 3/26/25/Tuneski
Figure compares the organizational structure of the previous and current fire
services management structures.
TBD
Figure ___ Organization Charts, Board of Fire Coms aréd to Director of Fire Services
Fire protection in the Town of Waterfo y volunteers, working
out of the five stations. At ongétime there were i unteers. The
town was flush with people lo6! 0 gi “ar i > The stations
thrived based upon local fund ra
Volunteers were V
firefighter was or a variety of reasons,
i Ramic, with fewer
volunteers has
service composed of both paid and
onomic issues nationally, this is becoming the
e services. What cannot be achieved historically
'y paid fire fighters.
normal situation for many
with volunteers is being augrri
Hybrid 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 fire station. Among the downsides is that the
additional coverage comes with increases in operational costs, and unfortunately has
resulted in visible contempt between the paid and unpaid ranks, despite all firefighters
7

FSRSC Report/first half Draft 1 3/26/25/Tuneski
being trained to the exact same standards. The failure to get along is a potential
distraction and detriment to 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 benefited enormously from depe n all-volunteer service for a
number of years. The only financial burden prs rn by the Town was associated
with training, materials and equipment, ang ehicles and buildings);
Salaries, and the associated benefits, wet
Not having unli
best available
Fire Date of
Company Street Address Incorporation
1 Waterford Fire 89 Rope Ferry Road 1923
2 Quaker Hill Fire 17 Old Colchester Road 1927
3 Goshen Fire Depart 63 Goshen Road 1928
4 Oswegatchie Fire Compa 441 Boston Post Road 1930
5 Cohanize Fire Company 53 Dayton Road 1942

FSRSC Report/first half Draft 1 3/26/25/Tuneski
TBD
Figure__- Map of the Town of Waterford Depicting Locations ire Stations and Fire Districts
Figure ___ Cohanzie Fire Station
Figure ___ Quaker Hill Fire Station
Figure __ Oswegatcb
Figure oshen Fire Statio!
The Town of on October 8, 1801. It is a rural town
oastline and a population of 19,554 +/- and is
has grown at a steady rate since the 1970’s,
in 2016 expect Waterford’s population to decline
part of New London Coun
although State projections co
through 2040.
Despite these projections, the population continues to grow, and recent growth
announcements from local businesses (for example Electric Boat) suggest that local
populations including Waterford could increase. The Town’s Director of Planning and
Zoning notes that the population actually appears to be increasing slightly. Figures __
demonstrates the census trend, Table__—s depicts current development underway as
9

FSRSC Report/first half Draft 1 3/26/25/Tuneski
of March 2025. Additional commercial growth is likely with the revitalization of the
Crystal Mall and the potential for the development of a data center on the Dominion
property.
Figure __— Population Change by Decade
Table Summa
10

Ree’d 3/27/25
Town of Waterford
Fire Services Review Committee
Attn: Susan Driscoll, Recording Secretary
3/27/2025
April of this year will be three years that I can say I have had the privilege and honor to have
been appointed to the Fire Service Review Committee. It has been my pleasure to work
alongside those whom I have, during this tenure.
That said, with this letter, it is my intent to resign from the position.
Please allow me to address my thoughts and concerns to you, as well as factors that have been a
concern of mine that have led me to my decision.
“It is in my opinion that Mr. Tuneski, has done an injustice to the Fire Services Review
Committee. This committee was established in June of 2021 by the Representative Town
Meeting (RTM). The first meeting did not happen until April 2022, which is almost a year later,
and then there was another gap from July 2024 until March of this year. The first order of
business from Mr. Tuneski was to determine whether the town of Waterford needed to continue
to maintain a five fire station model. Once the recommendation was made to continue to utilize
5 fire stations moving forward the next order of business was the committee needed to
recommend replacing the current Oswegatchie Fire Station with a new town-owned building.
It is my opinion, as Captain of the Waterford Fire Department, with over 30 years of experience
in the field of firefighting, that this was a frivolous move. It was done without necessary data
and documentation to support the five station model, including a response data analysis
regarding the five station model. Now that we have several stations with 24/7 personnel, it is
pertinent to have this researched so effective and appropriate considerations are implemented for
the safety of our town.
Of note, I personally have requested to meet with Mr. Tuneski on numerous occasions in past
years, which never came to fruition; however, it is a known fact that he had allocated time to
meet with five fire chiefs in town, outside of the committee, but never once has met with the
career firefighters to have a similar discussion.
In addition, a discussion among the committee members at one of the meetings, of which I was
not present, about Waterford having a decline in volunteer firefighters, Chief Todd Patton
blatantly blamed the career firefighters in the department as to be the reason for the lack of
retaining volunteer firefighters. Had I been able to attend this meeting, I would have been able
to speak to this matter and bring attention to what I believe the problem is. With Chief Patton’s

remarks and accusations against the “career firefighters,” I have very good reason to believe he is
being influenced.
Again, my opinion.
Another issue that has brought me to my decision to resign is the current lack of leadership for
the fire service in Waterford. Chief Howley resigned his position in June of 2024 and to date we
still have not found a replacement for his position. The first selectman, Rob Brule, appointed
Fire Marshal Steve Dubicki, in the interim. Unfortunately, Mr. Dubicki could not keep up with
the demands of both positions he held; Fire Marshall and Director of Fire Services.
Consequently, Chief Howley was asked to come back on a part time basis, and while he retained
this part time position, this is only a temporary “fix.” This “temporary fix” does not work; the —
department needs a full time Director of Fire Services that can manage and function at a high
capacity given the town of Waterford’s fire department, and the public service needs. An
example of why this is important to the department, is quarterly town-wide fire officer meetings.
Because of the void in the position needed as Director, we have not had a meeting since June
2024, which is a major component to interagency communications and operations to protect the
town.
Finally, an issue that has been known for years and has been brought forward by the union
numerous times... There are different standards held within career, part-time, and volunteer
employees. And some of these variations and standards are a direct violation of state and federal
laws. Osha approved medical screenings for all staff that wear respirators, age requirements, and
meeting OSHA requirements should be mandatory for all employees / volunteers for the safety
of not only the staff, but for the safety of the town as well
I encourage this: committee to read a report written by the International Fire Chiefs Association
titled “A Call For Action The Blue Ribbon Report Preserving and Improving the Future of the
Volunteer Fire Service.”
On page 16 of the report it states “A combination system will not work when it is based on
prejudice or when either group of firefighters, volunteer or career functions in a minority role
and is perceived subservient to the other.”
With the above highlighted issues mentioned, the possibility of having this report being
controlled by persons outside of the committee, and the liability of having my name attached to
the final report from which someone may get hurt, I have decided to herby resign effective
March 28, 2025 from the Fire Service Review Committee.
Respectfully Submitted,
Thomas M. Martin
Captain, Waterford Fire Department

Report Part 2
FINDINGS
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. o
Response types and frequencies are depicted in Figures...
Total Responses
4500
4000 Pong
3500
io
Qo
Oo?
o
2500 L
2000
4500
1000
500
Number of Responses
18 17 19 21 23 25 27
Year
Note: Responses for year 2025 have been extrapolated based upon responses through March)
Figure __- Eight Year Trend of Responses
Part 2, Working Copy 2

f Total Responses
Oo
af
Percen
45%
4.0%
3.5%
3.0%
2.5%
2.0%
15%
1.0%
0.5%
0.0%
Percent of Structural Fires
i
H
5
>
i
i
45
17 19 21 23 25
Year
4500
4000
500
Number of Responses
be WN @ Oo
S288ese8s8
So 6 6 6 6 Sf
o
27
EMS
|[evmscrnenmne funn arenceitn cnn
i
}
|
/
15 17 19 24 23 25
Year
Figure ___- Eight Year Trend of EMS Responses
Part 2, Working Copy 2
27

EMERGENCY RESPONSE TYPES
EIGHT YEAR AVERAGE
2%
Other
28%
EMS
70%
Figure - Summary Percentage of StructuralFires, E S, and Other Incident Types
Average Response Time
12:00
9:36
7:12
4:48
2:24
0:00
Average Response Times, 2022, By Company
10:14
Fire Company
B Jordan Fire Company '@ Quaker Hill Fire Company
w Goshen Fire Department m Oswegatchie Fire Department
= Cohanzie Fire Department
Figure - Average Response Times by Company
Part 2, Working Copy 2

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,
Capital Plan
An abbreviated capital / facilities plan was provided by the Director of Fire Services. A copy is
attached as Appendix , and is distilled here in Figure
YEAR ,
STATION 24 25 26 27 28 [Totals COMMENTS 2s,
Jordan $ 100,000.00 $ 65,000.00] $ _55,000,00 $ 220,000.00 [Kitchen in 2027 “5. SER
Quaker Hill $ 150,000.00 $ 150,000.00 |Sunk RoomRenavatians, Bathraom?. Renovations ax
Goshen, $ 150,000.00 $150,000.00 |includés.Items pushed out fromi:2023 and 2025, Roof rep placement 2030.
lOswegatchie | $ 80,000.00 $80,000.00 Jon hold pentiing new building ==
Cohanzie $30,000.00. $ 30,000.00 {funk room, bathroom, day raont navations, new windows and doors
Figure _. - Outyear Maintenance Planning of xisting Station’
Staffing Findings
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 aré two srimary organizations whose standards influence fire
departments throughout the state and ination. 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 global 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.
Fire Service Staffing Standards: OSHA and NFPA Guidance
Two primary o1 ganizations, 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
Part 2, Working Copy 2

structure, training and education, personnel requirements, and the use of personal
protective equipment (PPE). It specifically applies to fire brigades performing interior
structural firefighting.
e 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 ndi is pending final
issuance. However, the official effective date remains uncerta -as of the. Publication of
this report. :
e OSHA 29 CFR 1910.134 — Respiratory Protection Standatd..
This standard addresses requirements for respiratory protection i in hazardous
environments. Critically, it establishes the “Two inf’ Two- out. le” swhich mandates that
two personnel must remain outside a hazardous: en ironment ‘© monitor and assist two
personnel operating inside an IDLH (immediately Ds geroust
environment. 2
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 spécial operations provided by career
fire departments. :
oe NFPA 1720 ~ Standard for Volunte C rire Departments
NFPA 1720'outlines s f ilar standards: tailored for volunteer fire departments, focusing
on deployment: expectations based on community demographics.
Staffing influence of OSHA 2 nd NFPA Standards
Neither OSHA nor. NFPA dite ctl prescribes exact staffing levels for fire departments. However:
SHA ‘influences staffing indirectly by establishing mandatory safety standards, including
Ui ) ent, ‘working conditions, and training requirements.
¢ NEPA affects staffing through its emphasis on response times and the minimum number
of personne! required based on population density.
For example, NFPA 1720 sets the following staffing guidelines:
e 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.
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e 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.
Staffing Considerations for Waterford’s Combination Fire Department
Overview
In addition to the regulatory standards and guidelines outlined above, fire department staffing
is determined by a combination of critical factors: 2
¢ Community Needs: Including call volume, types of emergencies'encountere and
population density. uae :
limited financial
» Budgetary Constraints: Municipal governmen €op
resources, primarily based on tax revenues.
e Risk Assessment: Considering the hazardous nature of buildings, presence of industrial
facilities, building sizes, and related factors, .
¢ Authority Having Jurisdiction (AH he individual, office, or organization empowered to
make and enforce regulations affecting re services te. g., fire marshal, building official,
or other regulatory aut jority).
In the Town of Waterford, the uthority Having IJurisdiction 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:
: “Thei im ortance of ata collection, trending, and reporting—as depicted in Figures
eannot be overstated. This data serves as a key indicator of departmental
performance ‘and represents the only consistently quantifiable, objective factor available
for staffing evaluation.
e Subject Matter Expertise:
Local 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.
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e 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.
The Town of Waterford Fire Services are currently staffed full-time as shown in Figure .
Staffing Plan
20
2
= 15
oO
o
g= 10 :
o .
£ es Current full-time staffing, 6 firefighters
Z 3
23-24 24-25 25-26 26-27 27-28 28-29 29-30
Fiscal Year
coxa Nn nual Additions of FT Firefighters umewnoe Running Totals
This is an increase in the previous numbers of firefighters from the previous year. Appendix xyz
outlines. the Director of Fire Services’ recommendation for staffing the fire stations in Waterford
over the next 5 years. Figure also graphically depicts the proposed increase.
Staffing Developments and Projections for Waterford Fire Services
Overview
It is important to underscore that staffing levels for the Waterford Fire Department have
increased since the inception of the Ad Hoc Fire Services Committee.
The Director of Fire Services has expressed a strong belief that staffing should continue to grow
to meet both current and future demands facing the community. Increased construction,
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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 (Jordan)
o Company 4 (Oswegatchie)
o Company 5 (Cohanzie)
Although specific justifications are not explicitly.
companies were selected because they.have:
ted, it is presumed that these
"The largest call volumes
ie station neat each east and west
end of Town and one centrally located station providing rapid access
across Waterford.”s
“Strategic geographic distribution’
By
* Part-Time Staffing of Two Fire Stations»,
Two stations should be staffed with part -time paid firefighters to ensure broad coverage
while managing | costs,
« Importance | of Maifitaining Adequate Staffing
Maintaining SI fficient ssi ing is. critical to:
: protécting persons safety and property.
Maintaining a high Insurance Services Office (ISO) rating, which directly affects
: residents’ insurance premiums.
° Rev ew of ti affing Growth Every Three Years
Staffing levels and the pace of growth should be formally revisited on a three-year cycle
to adapt to changing community needs.
« Competitive Salaries
Until 2024, 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 firefighter(s).
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e Pursuit of SAFER Grants
The Director recommends aggressively applying for SAFER (Staffing for Adequate Fire
and Emergency Response) grants to offset hiring and personne! costs.
« Projected Staffing Model for FY 2030-2031
The Director’s plan envisions:
o 10 career firefighters on duty at all times (requiring 30 career firefighters total)
o A24/48 schedule (24 hours on, 48 hours off)
o Ablend of part-time staffing seven days per week .
o Full operations from all five fire stations
o Deployment of a variety of apparatus tailored to incident neéd
« Standards of Response Coverage (SOC) Analysis. 3 .
The Department should cansider conducting « a Standa ‘ds of R ponse e Coverage (SOc)
analysis to formally evaluate operational efficiency and i entify ‘Opportunities for
improvement. . :
Historical Context and Justification for stating Expansion
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 continued expansion of paid staffing:
1. Nationwide. Decline in Volunteer Firefighters
Recruitment and re tention challenges mirror a broader national trend.
iRereasea, Calls for. Service
“Higher call Volumes place additional strain on the fire response system.
3. Commercial and Residential Development
Development i 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.
Fleet Management
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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:
e Fire engines
e Ladder trucks
e Specialized apparatus
¢ Support vehicles
A detailed inventory and status assessment of the fleet is provided in Figure and the
Appendix :
YEAR
: Repiacemact}
Flee Town | Moget SiYeecTots) Yesraet | Refurbhinenent
AssetID | Asse ID Near 2035 2026 2027 2B 3029 Mileage Hours: Renair Cost: Service Boint System ;
wea 201408: 2015 M888, 2464 $37,581.00.
53 100815 2008 $51,300.00 408 1499 $2943.00:
W585 300079, 2008 $2,200,000.00 AMBER 4816 §192.074.00°
WEEE 201022. 2014 $7300.00 Sag24 $ 4225.00
w-57 402081, 2010 252 2 87 49,790.00
WlE 301615. 2018 22833: 1180 5:
Carts : 301388, 2088 38500 3
cars§ xganea “2043 [6490000 247000) $29.00.
Gacks | 1OHHOR: 2056 $5400.00 112090 $3901.00
New 5 85,000.08 eee: : ES.
WS 201236 2016 16689. $7503.00.
W.32 o0203. | 1986 39230 3. 4906.008 ©
wes 101927" 2012 51832 3 2g7mea ss,
weg 300310 2007 $73,000.00 506% $2°apg19.00° 8 3s
W983 100376, 2007 E nao, $ "25608.00) 8, a
waa a 2108. . SS UP
Weal | 108322) 2015 39196 50,874,000 43 3B
Was A03836 2016 3 Baga 8 ‘86,333.00 8 6
wea sors” 2018 5108: 4430.00, 7 a
Wea? 400433. 2007 q 24, $3720. $id 18 B
Wess, 10286 2006 $226,060 SS hape36 1399.00, 19 co i
Wag 2070 y 35127) 80.00; | § $
wen 200311 2008 a $925, 00.00 asad: $9,408.00, 39 26
W223 400267: 2008 a a #374, 18 845.00: 49 Ea
W285, 201432: | 2035 ca z 7808 2403.00 7 BR
AS 100236,” 2006 3. 72,000.00 |." PES 59800. 6232.00." 19
We2e ROR Ena Seay 2850. 2
$84,000.00 _$ 2,564206,00 . 211,000.00 $885 50000 ie 3. 27803.55 Average 5-Yc Renate Cast per Vehicle |
| 5. $67,268.00 Total Seo
'§ 383,558.00 Average Cast er Year
Maintenance and Capital Acquisition Costs.
Figure
Waterford’ s current fleet} geared heavily toward traditional firefighting, may warrant strategic
over: time to better match the evolving mission of an Emergency Services or First
Responder organization.
Regardles: § 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:
e Track vehicle condition and maintenance
« Monitor vehicle utilization
e« Manage repair records and costs
e Improve budgeting and forecasting accuracy
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e 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.
Existing Town Resources: Building a Collaborative Maintenance Model .<
in addition to Fleetio, Waterford has internal resources that can be le
management efficiency:
. Department of Public Works: Potential to expand the use of Pub! ic. Works mechanics
e Shared Procurement: By coordinating purchases.¢ of routine patts, supplies, and service
contracts across departments, the Town can further control, ;
« Cross-Departmental Asset Review: Collaboration: between Fire: ervices, Public Works,
and the Finance Department can ensure e objective evaluations of fleet needs, promoting
smarter capital investments. eo
Acentral component of this efforts the use sé.of a maintenance score, a tool designed to evaluate
the operational integrity of each vehiéle, This storing system assists in proactively planning for
maintenance needs, scheduling repairs, and detern ining appropriate timelines for vehicle
replacement. °
Communications:TBD
Waterford AmBulance-TBD
Conclusion
Waterford’s Fire Services have a proud history and a strong operational foundation. By
implementing the above recommendations—centered on vision, data, adaptability, and
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strategic investment—the Town can ensure that its emergency response capabilities not only
meet today’s needs but are positioned for long-term excellence.
The future of Waterford Fire Services is not just about preserving tradition—it’s about smartly
adapting and leading into the next generation of public safety.
6.0 A Strategic Vision
Evolution of Waterford’s Fire Services
Like many small towns, Waterford’s fire services have evolved over time—shifting from a fully
volunteer model to today’s combination fire department and moving ‘steadily toward greater
professionalization. . 2 :
In the early 1900s, fire protection was provided by a network of vately owned,
independently operated stations. Over time, these private: companies were managed
collectively by a Board of Fire Commissioners. Today, V faterford benefits from a centralized
management model, led by a Director of Fire Services, ehsurlta profe ional oversight and
strategic coordination. ,
This transition has been driven by necessity: a combination of thé’need for greater efficiency,
declining volunteer availability, and the i increasing complexi J of emergency services.
Importantly, consolidation of management has improved operational effectiveness without
sacrificing public safety. “ Ps
Cost Evolution and Changing
ational Realities
Historically, the cost of maintaining, an all: volunteer fire service was substantially lower than
the costs associated with a combination or career fire service. Early expenses, largely captured
through Town: reements, (Ref: Agreement xxx), were focused on station maintenance,
volunteer training,.and equipment provision.
However, as the fire service evolved:
« Buildings'and equipment aged, requiring greater maintenance investment.
« Volunteer staffing declined significantly, forcing the Town to hire part-time and then
full-time firefighters.
« Annual fire service costs have steadily increased (see Figure ), reflecting both
broader operational demands and necessary modernization efforts.
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Placeholder
for Figure
Today, while many stations remain crucial geographic and’ operational assets, they are no
longer community hubs filled with volunteers during ‘downtime. Instead, they’serve primarily as
deployment outposts for paid staffing and critical equi ment. ee 2
Volunteer Decline and Professional Growth
Since the late 1990s, volunteer recruitment and’ retention have faced major challenges—
consistent with national trends. AS volunteer numbers declined, Waterford responded
proactively by:
«Hiring part-time and Ie time. firefighters to maintain service levels
. Strategically dej loying fully stime paid firefighters to Oswegatchie, Jordan, and Cohanzie
« “Full-time paid staffing covers the Town’s busiest districts.
. time staffing supports areas where volunteer activity has declined but where
servicé’demands remain critical.
°s,
Deployment patterns reflect careful use of demographic, call volume, and risk data (see Figures
}, aligning staffing levels with service needs to ensure efficient and economical
operations.
Rethinking Service Models for the Future
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Given the challenges associated with sustaining the original volunteer agreements, and with
volunteers becoming increasingly scarce, rethinking the model for fire and emergency services
in Waterford is both timely and necessary.
Key questions for strategic evaluation include:
« How can existing data be used more proactively to optimize resource deployment?
e Should staffing levels be customized to call volume and risk patterns rather than
uniformly distributed? ce
« Can Waterford maximize the use of all five stations while adapting staffing and
equipment strategies? ~
e How can service delivery evalve to balance cost- effectiveness, public safety, and
taxpayer value? ae
Strategic Considerations for a Future Vision
Any new model must reflect the Town’s underlying obligations to its’ residents and taxpayers,
including: . oe
e Uniform and consistent provision Of emergency serv es
* Effective and efficient utilization of equipment, apparatus, and buildings
e Strategic deployment: of both volunteer and career personnel
e Responsiveness to current and future risks associated with development and population
changes By a
e Prudent and transparent’ managertient of operational costs
e Alignment with 2a defined and forward- looking vision for public safety
Emergency. Ser ces: A Broader Mission
Based onthe data provided {Figure __), Waterford’s emergency services landscape has
dramatically sshifted;
. Emergenty medical and other non-fire calls outnumber structural fire responses by a
ratio of 35:1.
e Structural fire responses now represent only a small fraction of total incidents.
This important trend suggests that Waterford Fire Services is evolving into a broader Emergency
Services or First Responder organization—a change that reflects national best practices.
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While the reduction in structural fires is a positive public safety outcome, the Town’s new
mission must focus on:
¢ Providing agile, community-wide emergency response capabilities
e Equipping and training personnel for a diverse range of incidents
¢ Maintaining strategically located stations to optimize response times and service
delivery
7.0 Conclusion: A Strategic Path Forward
7.1 General Framework
Waterford’s fire services model must evolve in response to changing demographics, emergency
trends, and fiscal realities. By building upon the historic five-station framewo sand adapting
it through data-driven decision making, flexible staffing, and Strategic investrent—the Town
can protect its residents, support its first responders, and: deliver outstanding emergency
services well into the future. :
The future of Waterford Fire Services is rooted in tradition— ut shaped by innovation,
efficiency, and a bold commitment.to public, safety.
a. Development of a 5-Year Strategic Pian -.:
In coordination with the Town’ s executive leadership, Fire Services administration, and other
emergency management, personnel, the: owns should create a comprehensive 5-Year Strategic
Plan. : 2
Modeled after WateHford’s Plain of Conservation and Development (POCD), or potentially
crafted asa subset: of it; ‘the Strategic Plan would address:
. Staffing plans’ 5 5
“Growth and/or contraction projections
“ Facility,and résource development plans
. Other essential aspects of Fire Ser