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OLR Bill Analysis
sHB 6841
AN ACT CONCERNING FIREFIGHTER RECRUITMENT AND
RETENTION.
SUMMARY
This bill makes numerous changes designed to help recruit and retain
people in firefighting and emergency medical services (EMS) careers.
Principally, the bill:
1. establishes a 15-member Fire Service Youth Program Advisory
Board to, among other things, develop a high school curriculum
on the importance of public safety and community service, create
a plan for public safety tracks at technical high schools,
implement the tracks in one technical high school, and make it
available to other schools (§ 1);
2. requires the Department of Emergency Services and Public
Protection (DESPP) commissioner to appoint a firefighter
recruitment and training coordinator in each emergency
preparedness region to (a) recruit people for firefighting careers
and (b) give training assistance to fire departments (§ 2);
3. requires the State Fire Administrator to develop facilities across
the state where people can train for and take the firefighter
physical ability test (§ 3);
4. requires DESPP to provide sufficient instructors and facilities at
the state fire school to train at least three recruit classes per year
(§ 4);
5. requires DESPP to pay fire service instructors doing fire service
training at a rate that is comparable to that the Police Officer
Standards and Training Council (POST) pays law enforcement 2023HB-06841-R000370-BA.DOCX
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officers doing police officer training (§ 4);
6. establishes a paramedic candidate scholarship program
administered by the Department of Public Health (DPH) to give
scholarships to people training to become licensed paramedics;
and appropriates $750,000 to DPH for FY 25 to fund these
scholarships (§§ 5 & 18);
7. bars fire departments from denying prospective firefighters
employment based solely on their status as a lawful permanent
resident noncitizen (§ 6);
8. requires the Connecticut Housing Finance Authority (CHFA) to
develop and administer a mortgage assistance program for
uniformed members of paid or volunteer fire departments (§ 7);
9. provides tuition waivers (a) at the state’s colleges and
universities for paid or volunteer firefighters with at least two
years’ service and the dependent children of paid or volunteer
firefighters with at least five years’ service and (b) for anyone
enrolled the Connecticut State Colleges and Universities or
community colleges that is attending the state fire school as part
of a program offered in coordination with the college or
university (§§ 8-10);
10. requires the State Retirement Commission to establish a
volunteer firefighter length of service award program (LOSAP)
(§§ 11 & 12);
11. requires the State Retirement Commission to develop a new tier
within the Municipal Employees’ Retirement System (MERS) for
public safety professionals (§ 13);
12. requires the Commission on Fire Prevention and Control to study
the different firefighter training and certification levels and
firefighter benefits and recommend changes to recruit and retain
firefighters (§ 14);
13. requires the DPH commissioner to establish a pilot program to 2023HB-06841-R000370-BA.DOCX
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provide emergency services organizations with specified
equipment and systems for detecting critical cardiac issues (§ 15);
14. appropriates $500,000 to DESPP for FYs 24 and 25 to reduce the
cost to trainees and fire departments for attending the state fire
school (§ 16); and
15. appropriates $500,000 to DESPP for FYs 24 and 25 to reduce the
cost to trainees and fire departments for attending regional fire
schools (§ 17).
EFFECTIVE DATE: July 1, 2023, except the provisions on MERS and
tiered firefighter classifications are effective upon passage.
§§ 1 & 3 — FIRE SERVICE YOUTH PROGRAM ADVISORY B OARD
Membership
Under the bill, the Fire Service Youth Program Advisory Board is
comprised of the following members:
1. Office of State Fire Administrator’s fire training director, who
must serve as the board’s chairperson;
2. education and labor commissioners or their designees;
3. Office of Workforce Strategy’s chief workforce officer or
designee;
4. DPH’s Office of Emergency Medical Services director or
designee;
5. Technical Education and Career System’s executive director or
designee;
6. two members appointed by the House speaker, including one fire
service expert;
7. two members appointed by the Senate president pro tempore,
including one occupational safety expert;
8. one member appointed by the House majority leader with 2023HB-06841-R000370-BA.DOCX
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expertise in firefighter or EMS-related legal issues;
9. one member appointed by the Senate majority leader with
expertise in firefighter or EMS-related public health matters; and
10. one member appointed by each of the House and Senate minority
leaders and governor.
The board is within the Office of State Fire Administrator for
administrative purposes only.
Duties
The bill requires the board to do the following:
1. advise the Commission on Fire Prevention and Control;
2. develop a (a) standard curriculum for grades nine through 12 on
the importance of public safety and community service and (b)
plan for technical high schools to offer public safety tracks,
including firefighting and EMS tracks and certifications;
3. introduce this curriculum and implement these tracks as a pilot
program in one technical high school by July 1, 2025, make them
available to other technical and other high schools, and
coordinate state funding to the schools to provide the curriculum
and tracks;
4. establish a fire service instructor training program for technical
and other high schools;
5. support fire departments, fire districts, and other nonprofit
entities providing or seeking to provide cadet or explorer
programs; and
6. expand and implement the United States Fire Administration’s
fire service apprenticeship program’s components.
Payments to High Schools, Fire Departments, and Other Entities
Starting in FY 24, the bill requires the board to pay $5,000 to each (1) 2023HB-06841-R000370-BA.DOCX
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technical or other high school operating the board’s public safety tracks
curriculum or planning to do so in the following fiscal year and (2) fire
department, fire district, or nonprofit operating a cadet or explorer
program or planning to do so in the following fiscal year.
Office of State Fire Administrator Coordinating Staff
The bill requires the Office of State Fire Administrator to employ a
full-time youth program coordinator to (1) oversee curriculum and
public safety track programs developed by the board, (2) implement
state standards and a best practices guide for the programs, (3) ensure
their consistency and continuity, and (4) oversee program instructor
hiring and training.
It similarly requires the office to employ a full-time cadet or explorer
program coordinator to (1) oversee cadet or explorer programs, (2)
implement state standards and a best practices guide for the programs,
(3) encourage their establishment and expansion throughout the state,
and (4) encourage the expanded use of regional fire training schools for
these programs.
§ 2 — FIREFIGHTER RE CRUITMENT AND TRAINI NG
COORDINATORS
The bill requires the DESPP commissioner to appoint a firefighter
recruitment and training coordinator in each of the state’s emergency
preparedness regions. These coordinators must (1) recruit people for
careers in firefighting or manage firefighter recruitment programs, (2)
give training assistance to fire departments, and (3) coordinate or
conduct training programs for fire departments that request this
assistance.
§ 3 — STATE FACILITIES FOR FIREFIGHTER T RAINING AND
TESTS
The bill requires the State Fire Administrator to (1) develop facilities
across the state where people may train for and take the candidate
physical ability test for firefighters year-round or (2) contract with a
vendor to do so. He must:
1. seek to develop these facilities at multiple locations, with 2023HB-06841-R000370-BA.DOCX
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preference given to regional fire school sites, to improve training
and test taking opportunities and access; and
2. provide training and test taking equipment to any participating
regional fire school or state facility.
The bill requires the fire training director to coordinate the training
and oversee the training and testing facilities.
§ 4 — STATE FIRE SCHOOL INSTRUCTORS AND FACILITIES
The bill requires DESPP to:
1. provide state fire school instructors and facilities sufficient to
conduct training for at least three recruit classes per year and
2. compensate fire service instructors at a rate comparable to that of
POST’s law enforcement instructors for police officer training.
§§ 5 & 18 — PARAMEDIC CANDIDATE SCHOLARSHIP PROGRAM
The bill establishes a paramedic candidate scholarship program,
administered by DPH, to give scholarships to people training to become
licensed paramedics. Under the bill, DPH must:
1. by January 1, 2024, develop a policy on the program’s
administration, including (a) its eligibility criteria and (b) how
scholarships are paid and distributed; and
2. beginning with FY 25, award scholarships according to this
policy and the bill.
The bill authorizes DPH to accept public or private gifts, grants, and
donations to fund the program. Additionally, for FY 25, it appropriates
$750,000 to DPH from the General Fund for these scholarships.
§ 6 — RESIDENCY STATUS OF PROSPECTIVE FIREFIGH TERS
The bill prohibits fire departments from denying a prospective
firefighter employment based solely on his or her status as a lawful
permanent resident noncitizen. 2023HB-06841-R000370-BA.DOCX
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§ 7 — MORTGAGE ASSISTANCE PROGRAM FOR PAID OR
VOLUNTEER FIREFIGHTE RS
The bill requires CHFA to develop and administer a mortgage
assistance program for uniformed members of paid or volunteer fire
departments in the state purchasing a home in the community they
serve as their principal residence. In giving this assistance, CHFA must
(1) use down payment assistance or any other appropriate housing
subsidies and (2) allow the mortgagee to realize a reasonable portion of
the property’s equity gain when it is sold.
§§ 8-10 — TUITION WAIVERS
The bill requires UConn, the Connecticut State Colleges and
Universities (CSCU), and regional community-technical colleges to
waive tuition for the following students:
1. uniformed members of paid or volunteer fire departments who
have served for at least two years in the state, as documented by
their department chief; and
2. dependent children of uniformed members of paid or volunteer
fire departments who have served for at least five years in the
state, as documented by the department’s chief.
The bill also requires CSCU and the regional community-technical
colleges to waive tuition for students attending the state fire school who
are enrolled in a program offered together with a community college or
state university that accredits courses in the program.
§§ 11 & 12 — VOLUNTEER FIREFIGHTER LENGT H OF SERVICE
AWARD PROGRAM
Overview
The bill requires the State Retirement Commission to establish a
volunteer firefighter LOSAP for eligible volunteer firefighters providing
qualified services to a volunteer fire company or department in
recognition of their long-term service. The program provides length of
service awards of up to a specified amount ($6,000, annually adjusted
for inflation) for each year of service credit. The benefits vest after a
participant has five years of service credit. 2023HB-06841-R000370-BA.DOCX
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The State Retirement Commission must establish the program and
adopt its implementing regulations in consultation with the
Commission on Fire Prevention and Control and Sta te Fire
Administrator. The State Retirement Commission may contract with
third parties to deliver program services.
The bill establishes a new trust fund, the Volunteer Firefighter
LOSAP Trust Fund, which must be used to make the length of service
award payments and pay the program’s administrative expenses.
Regulations
By January 1, 2024, the State Retirement Commission, in consultation
with the Commission on Fire Prevention and Control and State Fire
Administrator, must adopt regulations to implement the program. The
regulations must include provisions on the following:
1. earning service credits and determining award amounts, which
may include a point-based system that requires that members
earn points for responding to calls, attending meetings and
trainings, and other factors;
2. documenting these earned credits, including a system allowing
volunteer fire companies and departments to annually report
members’ service credits; and
3. contesting service credit determinations awarded to participants.
Volunteer Firefighter LOSAP Trust Fund
The bill establishes the Volunteer Firefighter LOSAP Trust Fund as a
separate, nonlapsing fund that must contain any money the law requires
and be held separately from other moneys, funds, and accounts. It
authorizes the fund to holds all deposits, gifts, grants, and donations
from public or private sources, to allow it to carry out its purposes. The
investment earnings credited to the fund’s assets become part of the
fund and any balance remaining at the end of any fiscal year is carried
forward to the next year.
It extends to the fund the same oversight and investment 2023HB-06841-R000370-BA.DOCX
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requirements set by state law for other state trust funds, including the
Teachers’ Pension Fund, the State Employees Retirement Fund, and the
Connecticut Municipal Employees’ Retirement Fund.
Annual Reporting of Members’ Service Credits
Beginning by January 1, 2024, and annually afterwards, each
volunteer fire company or department must submit to the State
Retirement Commission (1) a list of eligible firefighters and (2) the
amount of service credit each one earned with the department. They
must do so as the commission prescribes.
Eligible Firefighters
Bona Fide Volunteers and Qualified Service. By April 1, 2024, and
annually afterwards, the commissioner must determine which eligible
firefighters satisfy the service credit requirements set by the program’s
regulations and the amount of credits applicable to each participant. An
“eligible firefighter” is a firefighter who is:
1. a “bona fide volunteer” performing “qualified service” in a
volunteer fire company or department and
2. not otherwise earning credit for his or her qualified service in
another other LOSAP, municipal pension system, or other
comparable program.
Under the bill, a “bona fide volunteer” is one who does not receive
compensation for providing firefighting and prevention services, EMS,
or ambulance services (i.e., “qualified service”) except for the
reimbursement of reasonable expenses incurred while performing these
services, reasonable benefits, and nominal fees for the services. The bill’s
definitions of “bona fide volunteer” and “qualified service” are tied to
the federal rules for length of service award plans. Under federal law, a
plan paying only length of service awards to bona fide volunteers or
their beneficiaries is exempt from the rules and tax treatment for
deferred compensation plan under the Internal Revenue Code (26 U.S.C.
457(e)).
Eligible Service. Participants must receive service credit for their 2023HB-06841-R000370-BA.DOCX
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service as an eligible firefighter before, on, and after July 1, 2023. Their
service credits may not be forfeited.
Participation Waivers. Eligible firefighters may decline to
participate in the program by filing an irrevocable participation waiver.
The waiver must be signed by the firefighter and his or her volunteer
fire company’s or department’s chief. The firefighter must file this
waiver before he or she satisfies the service credit requirements to
participate in the program.
Length of Service Awards Credited to Program Accounts
By July 1, 2024, and annually afterwards, the commission must
determine which participants qualify for a length of service award
based on the regulations’ service credit requirements and credit their
program accounts in an amount set by the regulations. Under the bill,
the “program account” is a separate account maintained for each
participant that reflects the applicable contributions and forfeitures,
investment income or loss, and administrative and investment expenses
allocated to each participant and paid from the trust fund.
The award may not exceed the limit established under federal law’s
special rules for length of service award plans. (The inflation-adjusted
limit is $7,000 for 2023.)
Vesting
A participant’s accrued service award (i.e., the total value of his or
her program account as of a given date) becomes vested once he or she
has five years of service credit, as determined under the regulations. If
he or she has not been an eligible firefighter for 36 consecutive months
and their accrued service award has not become vested, his or her
accrued service award is forfeited and deposited in the trust fund.
Payment of Accrued Service Awards
The commission must pay a participant his or her accrued service
awards when the participant:
1. becomes vested and reaches the age of 65 or over; 2023HB-06841-R000370-BA.DOCX
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2. has 20 years of service credit, except as described below;
3. is vested and has not been an eligible firefighter for at least 36
consecutive months; or
4. has been determined to be totally and permanently disabled by
the U.S. Social Security Administration, the Workers’
Compensation Commission, or any other entity the State
Retirement Commission approves.
Under the bill, a participant may file a written election with the State
Retirement commission before reaching 20 years of service credit to
defer payment until he or she reaches age 65.
If a participant is paid his or her accrued service award and then
qualifies for a length of service award at any other time under the bill’s
provisions and program regulations, the commission may pay his or her
service award directly to the participant.
Death Benefits
Under the bill, if a participant dies before receiving his or her accrued
service award or length of service award, the commission must pay it to
the participant’s designated beneficiary. Participants must designate
their beneficiaries on a commission-prescribed form.
§§ 13 & 14 — NEW TIER OR CLASSIFICATION FOR PUBLIC
SAFETY PROFESSIONALS UNDER MERS
New Tier or Classification
The bill requires the State Retirement Commission to develop a new
tier or classification within MERS for public safety professionals. This
tier or classification must do the following:
1. take into consideration the tiered classifications developed by the
Commission on Fire Prevention and Control (as described below)
and
2. allow someone employed as a firefighter to retire from the job
with one municipality and accept a firefighter job with another 2023HB-06841-R000370-BA.DOCX
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participating municipality and be eligible for retirement benefits
with the second municipality.
In developing this new tier or classification, the commission may
consult with the Commission on Fire Prevention Control, the State Fire
Administrator, and any other entities it deems appropriate. By January
1, 2024, it must report to the Public Safety and Security Committee on
(1) the terms and benefits that apply to the tier or classification and (2)
any necessary implementing legislation.
Commission on Fire Prevention and Control Study
The bill requires the Commission on Fire Prevention and Control to
(1) study the different levels of training and certification and available
benefits for firefighters and (2) recommend benefits to recruit and retain
firefighters. It must report its findings to the Public Safety and Security
Committee by January 1, 2024.
The study must do the following:
1. develop a tiered firefighter classification based on the factors it
deems relevant, which may include one or more classifications
for firefighter trainees, including firefighter certification and
training level, years of experience, and responsibilities (i.e.,
supervisory, executive support, or administrative responsibilities
and employed or volunteer status);
2. (a) identify existing firefighter benefits, including the bill’s
volunteer firefighter LOSAP (see § 11) and retirement tier
developed by the State Retirement Commission (see § 13), (b)
propose changes to them, and (c) identify new ones that could
encourage employed and volunteer firefighter recruitment and
retention;
3. for these benefits, consider as an eligibility factor whether the
firefighter (a) follows the National Fire Protection Association’s
standard 1582 (i.e., the standard outlining an occupational
medical program to reduce risks and provide for firefighters’
health, safety, and effectiveness) and (b) does not use tobacco 2023HB-06841-R000370-BA.DOCX
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products; and
4. consider basing eligibility for these benefits on a firefighter’s
inclusion in a specific classification tier to encourage firefighter
recruitment and retention.
§ 15 — DPH PILOT PROGRAM FO R CARDIAC ARREST DETECTION
EQUIPMENT AND SYSTEMS
The bill requires DPH to establish a pilot program to provide
emergency services organizations with (1) equipment that can identify
people at a high cardiac arrest risk, (2) an early detection system that can
identify people at a low cardiac arrest risk before they experience critical
cardiac issues, or (3) both. Under the bill, “emergency services
organizations” are state and local police departments; paid or volunteer
fire departments; municipal constabularies; ambulance companies; and
public, private, or volunteer organizations that provide emergency
transportation or treatment to patients. By October 1, 2023, DPH must
(1) post the program’s description on its website (in a conspicuous
place), including its eligibility criteria and application process; and (2)
notify each emergency service organization about the opportunity to
apply.
By January 1, 2025, the DPH commissioner must report to the Public
Safety and Security Committee on the pilot program’s results and
recommend whether to continue or expand it.
§§ 16 & 17 — APPROPRIATIONS FOR REDUCING FIRE SCHOOL
TRAINEE COSTS
The bill appropriates $500,000 in each year of the FY 24-25 biennium
to DESPP from the General Fund to reduce the cost of attending the state
fire school for trainees and fire departments. Under the bill, these funds
are in addition to any reimbursement the state provides for Firefighter
1 certification and recruit training from the state fire school training and
education extension account.
The bill appropriates an additional $500,000 in each year of the FY 24-
25 biennium to DESPP from the General Fund to reduce the cost of
attending regional fire schools. 2023HB-06841-R000370-BA.DOCX
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BACKGROUND
Related Bill
sHB 6838, favorably reported by the Public Safety and Security
Committee, (1) eliminates the Office of State Fire Administration and
creates a Division of Fire Services Administration within DESPP as a
successor agency; (2) transfers the State Fire Administrator’s current
duties to a deputy commissioner and expands them; and (3)
appropriates $250,000 for DESPP to study issues facing the state’s fire
service and develop a strategic master plan to address those issues.
COMMITTEE ACTION
Public Safety and Security Committee
Joint Favorable Substitute
Yea 23 Nay 2 (03/16/2023)