Connecticut 2023 2023 Regular Session

Connecticut House Bill HB06841 Comm Sub / Analysis

Filed 05/16/2023

                     
Researcher: RP 	Page 1 	5/16/23 
 
 
 
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. 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 (§ 1), 
2. requires the state fire administrator to develop facilities across 
the state where people can train for and take the firefighter 
physical ability test (§ 2), 
3. requires the state fire administrator to employ a full-time cadet 
or explorer program coordinator (§ 2), 
4. requires DESPP to (a) provide state fire school instructors and 
facilities sufficient to train at least three recruit classes per year 
and (b) pay fire service instructors doing fire service training at a 
rate that is comparable to what the Police Officer Standards and 
Training Council pays law enforcement officers doing police 
officer training (§ 3), 
5. establishes a Department of Public Health (DPH)-administered 
paramedic candidate scholarship program to give scholarships to 
people training to become licensed paramedics (§ 4), 
6. bars fire departments from denying prospective firefighters  2023HB-06841-R020783-BA.DOCX 
 
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employment based solely on their status as a lawful permanent 
resident noncitizen (§ 5), 
7. requires the Connecticut Housing Finance Authority (CHFA) to 
develop and administer a mortgage assistance program for 
uniformed members of paid or volunteer fire departments (§ 6), 
8. 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 at the Connecticut State Colleges and Universities or 
community colleges who is attending the state fire school as part 
of a program offered in coordination with the college or 
university (§§ 7-9), 
9. requires the State Retirement Commission to establish a 
volunteer firefighter length of service award program (LOSAP) 
(§§ 10 & 11), 
10. requires the State Retirement Commission to develop a new tier 
within the Municipal Employees’ Retirement System (MERS) for 
public safety professionals (§ 12), 
11. 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 (§ 13), and 
12. requires the DPH commissioner to establish a pilot program to 
provide emergency services organizations with specified 
equipment and systems for detecting critical cardiac issues (§ 14). 
EFFECTIVE DATE: July 1, 2023, except the provisions on MERS and 
tiered firefighter classifications are effective upon passage. 
§ 1 — FIREFIGHTER RE CRUITMENT AND TRAINI NG 
COORDINATORS 
The bill requires the DESPP commissioner to appoint a firefighter  2023HB-06841-R020783-BA.DOCX 
 
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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. 
§ 2 — 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 
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. 
§ 2 — CADET OR EXPLORER PROGRAM COORDINA TOR 
The bill requires the Office of State Fire Administrator to hire 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 them. 
§ 4 — 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  2023HB-06841-R020783-BA.DOCX 
 
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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.  
§ 6 — MORTGAGE ASSIS TANCE PROGRAM FOR PA ID 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 who are buying a home as their principal 
residence in the community where they serve. In doing so, 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. 
§§ 7-9 — 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. 
§§ 10 & 11 — VOLUNTEER FIREFIGHTER LENGT H OF SERVICE 
AWARD PROGRAM  2023HB-06841-R020783-BA.DOCX 
 
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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 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. 
The State Retirement Commission must establish the program and 
adopt its implementing regulations in consultation with the 
Commission on Fire Prevention and Control and state 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  2023HB-06841-R020783-BA.DOCX 
 
Researcher: RP 	Page 6 	5/16/23 
 
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 hold 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 
requirements that state law sets 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, each volunteer fire company or 
department must annually 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. Starting by April 1, 
2024, the commission must annually 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 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  2023HB-06841-R020783-BA.DOCX 
 
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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 
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 
Starting by July 1, 2024, the commission must annually 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  2023HB-06841-R020783-BA.DOCX 
 
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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 
award when the participant: 
1. becomes vested and reaches the age of 65 or over; 
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. is totally and permanently disabled as determined 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 must 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. 
§§ 12 & 13 — 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  2023HB-06841-R020783-BA.DOCX 
 
Researcher: RP 	Page 9 	5/16/23 
 
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 
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. The commission 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 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 § 10) and retirement tier 
developed by the State Retirement Commission (see § 12); (b)  2023HB-06841-R020783-BA.DOCX 
 
Researcher: RP 	Page 10 	5/16/23 
 
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 
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. 
§ 14 — DPH PILOT PROGRAM FOR CARDIAC ARREST DETECTION 
EQUIPMENT AND SYSTEM S 
The bill requires DPH to establish a pilot program to give emergency 
services organizations (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. 
BACKGROUND 
Legislative History  2023HB-06841-R020783-BA.DOCX 
 
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The House referred the bill (File 370) to the Education Committee, 
which reported a substitute that removed provisions (1) creating a Fire 
Service Youth Program Advisory Board to, among other things, develop 
a high school curriculum on the importance of public safety and 
community service and (2) on hiring an associated youth program 
coordinator.  
The House then referred the bill (File 663) to the Appropriations 
Committee, which reported a substitute that removed provisions 
appropriating (1) $750,000 to DPH for FY 25 to fund the bill’s paramedic 
candidate scholarship program and (2) $1 million to DESPP for FYs 24 
and 25 to reduce the cost of attending the state and regional fire schools. 
COMMITTEE ACTION 
Public Safety and Security Committee 
Joint Favorable Substitute 
Yea 23 Nay 2 (03/16/2023) 
 
Education Committee 
Joint Favorable Substitute 
Yea 41 Nay 1 (04/18/2023) 
 
Appropriations Committee 
Joint Favorable Substitute 
Yea 46 Nay 7 (05/08/2023)