August 26, 2026 Joint Fire & EMS Advisory Committee Meeting

A Meeting of the Joint Fire/EMS Advisory Committee (Village of Belgium, Village of Fredonia, Town of Belgium, Town of Fredonia) August 26, 2026, at 6:00 PM Fredonia Government Center 242 Fredonia Ave, Fredonia, WI 53021 1. Call to Order 2. Pledge of Allegiance 3. Roll Call 4. Motion to Approve Minutes from the April 2, 2026, Meeting of the Governing Bodies of the Joint Fire/EMS Advisory Committee. 5. Items for Action and/or Discussion a) Review of McMahon & Associates Fire and EMS Collaboration Study. b) Discussion and Possible Action on Future Collaboration of Participating Municipalities. c) Discussion of Capitol Equipment Needs of Participating Municipalities. 6. Motion to Adjourn. P lease note: a Quorum of the Village and/or Town Boards may exist. No Village/Town Board action will be taken. Upon reasonable notice, efforts will be made to accommodate the needs of disabled individuals through appropriate aids and services. For additional information or to request services, contact the Village of Fredonia at 262-692-9125. J OINT MEETING OF THE GOVERNING BODIES OF THE VILLAGES OF FREDONIA AND BELGIUM AND THE TOWNS OF FREDONIA AND BELGIUM MEETING MINUTES Thursday, April 2nd, 2026, at 6:00PM Fredonia Government Center 242 Fredonia Ave, Fredonia, WI 53021 1. President Lenz called the meeting to order, followed by the Pledge of Allegiance. 2. Officials, Staff and Residents in Attendance: Peter Lenz, DJ Syring, Rick Abegglen, Chris Jenkins, Michelle Johnson, Robert Whittaker, Jared Kudek, John Budzien, Brian Weyker, Joshua Van Natta, John M. Depies, Chris Schmoldt, Pat Wester, Nathan Wester, Sam Hutchinson, Mike Jessen, Andy Bartley, Chris Plier, Kate Wagner, Tammy S. Pfeifer, David Wilsnack, Jon Budzien, Tom Bichter, Tom Winker, Holly Winker, Jason Caswell, Steve Jentges, Bill Koeppen, Bob Eichner, Chris Janik, member of the press. 3. Public Comment: None 4. Presentations: a. Clerk Johnson administered the Oaths of Office to Paramedics Michael Jessen, Nathan Wester, and Sam Hutchinson. b. Fire & EMS Collaboration Study- McMahon Engineers/Architects. Robert Whittaker and Jerry Kudek presented the findings of the study. Mr. Whittaker stated that recruitment continues to be a challenge for all departments. He noted that ISO ratings vary among the departments and are dependent on each municipality's water source and available apparatus. He also reviewed each department's budget and apparatus. Mr. Whittaker highlighted that Northern Ozaukee County is already moving in a positive direction through mutual and automatic aid agreements, collaborative training efforts, and the creation of the Joint ALS Paramedic Program. While he stated there is no immediate concern, he urged the municipalities to consider how recruitment challenges may increase over the next ten years. He emphasized that recruiting and retaining volunteers and employees will require ongoing budget commitments. He also noted that the cost of fire equipment has doubled over the past five years, with no indication that those costs will decline. Mr. Whittaker acknowledged that change is difficult and stated that the current model of individual fire departments is sustainable for the time being. He explained that state statutes allow for a levy-limit exemption when a joint fire district is created. As long-term consideration, he suggested the municipalities begin discussing the possibility of reducing from three fire stations to two. M r. Kudek discussed the distribution of apparatus among the departments, noting that there are both overlaps and deficiencies. He outlined possible solutions, including reducing the number of vehicles and sharing the purchase of capital equipment that may be too costly for a single municipality to manage. M r. John Budzien of R&R Insurance gave an overview of how ISO ratings are calculated and utilized in determining insurance premiums. 5. Items for Action and/or Discussion: a. Discussion and Possible Action on Fire & EMS Collaboration Study. i. Questions from Elected Officials of McMahon Representative • Chairman Winker acknowledged that consolidation is a difficult topic and stated that his primary interest is serving residents. He asked Mr. Whittaker what the municipalities could do to recruit volunteer ambulance drivers and EMTs to work across Northern Ozaukee County. He also expressed interest in qualifying for Innovation Grant funding. Mr. Whittaker explained that Innovation Grants are awarded to communities that demonstrate a regional cooperation model. He suggested restructuring the Joint ALS Paramedic Program into a joint fire district. He also stated that EMTs and volunteers should follow consistent training and service protocols so they can provide service throughout each participating community. • Supervisor Depies congratulated Chief Weyker on the fully staffed paramedic program. He asked whether there were opportunities to utilize the staff more efficiently, including partnering with neighboring communities such as Port Washington or Saukville to provide mutual assistance. Chief Weyker responded that a paramedic intercept agreement and mutual fire agreements are already in place throughout Ozaukee County. He added that there is also an opportunity for the full-time staff to conduct fire inspections in participating communities. • Trustee Syring asked whether there would be insurance liability if a driver from one community operated a fire apparatus owned by another community. Mr. Kudek responded that the cleanest path forward would be the creation of a joint fire district or drafting an intergovernmental agreement regarding the purchase and use of shared equipment. • Chief Wester stated his community’s ISO audit indicated that if his department were to be consolidated with another, the community ISO rating would increase. Mr. Budzien did not anticipate a significant change based on the factors Chief Wester shared. Chief Wester shared that his department carries unique equipment on his vehicles. Mr. Kudek assured him that the study considered what each department carries on their rigs. 6. I tems for Future Consideration: Chairman Winker would like to continue discussing the findings of the report at a future meeting of the Joint Fire & EMS Advisory Committee. 7. M otion to Adjourn made by Mr. Winker. Seconded by Mr. Depies. Passed by unanimous voice vote. Shared Fire and EMS Services Analysis FINDINGS & RECOMMENDATIONS REVIEW MEETING APRIL 2, 2026 Project Overview Project Scope: Develop an analysis of options for increasing sharing of fire and emergency medical resources between the Villages of Fredonia and Belgium and the Towns of Fredonia, Belgium. Project Overview Project Work Tasks: • Identify scope/mission and project contacts • Obtain and review documentation provided by each fire department pertaining to the project • Conduct interview and on-site observations with appointed and elected officials, members of the Joint Fire/EMS Committee, and the Fire Chiefs in each of the three departments. • Key Discussion points: Fire/EMS Operations, staffing, levels of service, budgets, calls for service, organizational structure, current cooperative efforts, equipment/apparatus and training ◦ Identify project findings and draft recommendations with Joint Fire/EMS Committee ◦ Finalize recommendations and report document ◦ Presentation of report Belgium Fire Department Overview ◦ Private company providing service to the Village and Town of Belgium ◦ One fire station ◦ Paid-On-Call/Volunteer Department with approximately 33 members ◦ Just less than half the members have 5 or less years of service ◦ Eight members have over 30 years of service with several nearing retirement ◦ Recruitment of new members in the early 20’s has been a challenge ◦ Fire Station and apparatus is owned by the private company ◦ Apparatus is purchased by municipalities Belgium Fire Department Overview ◦ EMS First Responders ◦ Calls for service: ◦ 2024 295 (241 EMS) ◦ 2025 290 (217 EMS) ◦ ISO Rating 3/10 in the Village and 5/10 in the Town ◦ Budget: ◦ 2025 $167,450 ◦ 2026 $171,800 Belgium Fire Department Overview ◦ Apparatus Overview ◦ The Village and Town approved replacing the 1995 pumper. Delivery will be in 2028. Fredonia Fire Department Overview ◦ Municipal department providing service to the Village of Fredonia and portions of the Town of Fredonia through contract with Waubeka Fire. ◦ One fire station ◦ Primary provider of paramedic services to the four municipalities. ◦ Combination Department with approximately 38 members ◦ Fire Chief is a part-time position ◦ Sixteen members with less than 5 years experience ◦ Three full-time paramedics working 24 hour shifts with three additional part-time paramedics ◦ Fire Chief position as part-time is becoming a challenge to meet demands of position Fredonia Fire Department Overview ◦ Fire Station and apparatus is owned by the Village ◦ Calls for service ◦ 2024 726 (468 EMS, 201 Rescue, 57 Fire) ◦ 2025 630 (404 EMS, 151 Rescue, 75 Fire) ◦ ISO Rating 3/10 in the Village and 6/10 in the Town ◦ Budget: ◦ 2025 ◦ $520,000 Fire / Ambulance budget ◦ $474,000 Paramedic Budget ◦ 2026 ◦ $615,755 Fire / Ambulance budget ◦ Includes a one-time final lease payment of $202,171 for engine 662 – paying off the final 3 years on the lease ◦ $501,610 Paramedic Budget Fredonia Fire Department Overview ◦ Apparatus Overview Waubeka Fire Department Overview ◦ Private fire company providing service to the Town of Fredonia ◦ One fire station ◦ EMS Transport services – EMT-Advanced ◦ Paid-on-Call/Volunteer Department with approximately 24 active members ◦ Fire Station and apparatus is owned by the private company ◦ Apparatus is initially purchased by the Town Waubeka Fire Department Overview ◦ Calls for service: ◦ 2024 130 calls (91 EMS) ◦ 2025 144 calls (88 EMS) ◦ ISO Rating 5/10 ◦ Budget: ◦ 2025 $217,763 ◦ 2026 $213,171 Waubeka Fire Department Overview ◦ Apparatus Overview Strong Existing Collaborative Efforts • Mutual & Automatic Aid • Mutual Aid Box Alarm System (MABAS) County-Wide • Automatic Aid between the three departments for simultaneous dispatch for structure fires originated between Fredonia and Waubeka decades ago and added Belgium in 2021 • Shared Paramedic Program • Four municipalities participate in a shared paramedic program • Fredonia Fire Department is the primary paramedic provider under the Agreement • Each department could not operate its own paramedic level service • Initiated in 2023 with financial support from Ozaukee County available through 2025 • Costs are divided by municipalities using a funding formula Strengths of Existing Services • Ability to Maintain Core Base of Paid-On-Call/Volunteer Staff • Strong community ties have allowed departments to maintain a strong core based of POC/Volunteer Staff • As with fire and EMS agencies across the Country, this is becoming harder and harder to maintain • Members maintain training and dedication to their departments • Apparatus & Facilities • Apparatus & facilities are well-maintained •Automatic Aid Program - Departments and communities should be proud of this long-standing best practice •Joint Paramedic Program •Community Support of the fire departments is very strong Challenges Faced • Recruitment and Retention of Paid-On-Call/Volunteer Members • Departments report their average age is rising with challenges in recruiting new members who are retained • The Volunteer/POC Model is currently sustainable for firefighting services • Sustaining the Volunteer/POC Model for EMS is becoming much more challenging • Is the entire Volunteer/POC Model sustainable beyond the next decade? • Funding of Apparatus • Region is apparatus heavy • Costs of apparatus have risen dramatically in last five years – in some cases doubling • Communities can no longer pay cash for apparatus – they need to borrow • All four municipalities reported concerns with their ability to continue to fund the current sized fleet of apparatus Areas of Opportunity for the Region • Regional cooperation – not necessarily consolidation is most effective way to move ahead in the next decade. • Short-term consolidation could result in challenges maintaining POC/Volunteer Staff who are dedicated to the communities they serve and have been long-standing members of the departments. • Joint Fire Inspector • As current staff retires or is unable to perform the work. • Create a joint Emergency Medical Services District • Coordination of the four municipalities allowing for use of levy limit exception for EMS services. • Long-term transition to two fire stations • One in Belgium area and one in southwest area of region. • Quarterly Training • Assist the departments in coordinated emergency responses. Areas of Opportunity for the Region •Create a plan to jointly reduce apparatus fleet over the next 5-10 years. • Needs input from both municipalities who purchase the equipment and represent the residents and the fire chiefs from each department. • Would require a separate agreement to share vehicles. Areas of Opportunity for the Region Possible Fleet Consolidation  APPARATUS UNIT NUMBER YEAT BUILT REPLACEMENT YEAR # OF YEARS TODAY'S VALUE FREDONI AWAUBEKABEL GIUM              FREDONIA Engine 2020 Pierce Fire Engine 662 2020 2045 25 YEARS $1,000,000.00 WAUBEKA Engine 2019 Pierce Enforcer Pumper/Tanker 263 2019 FREDONIA Engine 2005 Fire - Engine Heavy Rescue Truck 663 2005 2030 25 YEARS $1,000,000.00 BELGIUM Engine 2002 PIERCE QUANTUM PUMPER 761 2002 2032 30 YEARS $950,000.00 BELGIUM Engine 2001 PIERCE QUANTUM PUMPER 763 2001 2041-10 Yrs added from 2017 accident 30 YEARS $950,000.00 BELGIUM Engine 1995 PIERCE QUANTUM PUMPER 762 1995 2025 30 YEARS $950,000.00 WAUBEKA Engine 1994 Pierce Dash Fire Engine 262 1994 FREDONIA Ladder 1998 Fire - Telesquirt Ladder 660 1998 2028 30 YEARS $1,900,000.00 FREDONIA Tender 2013 Fire Tanker Truck 667 2013 2038 25 YEARS $350,000.00 BELGIUM Tender 2005 STERLING 3500 GALLON TENDER 767 2005 2035 30 YEARS $450,000.00 WAUBEKA Tender 1984 Autocar 267 1984 BELGIUM AMB / RESCUE 2024 FORD F-550 RESCUE SQUAD 753 2024 2044 20 YEARS $300,000.00 FREDONIA AMB 2018 FORD F-550 AMBULANCE 650 2018 2030 12 YEARS $225,000.00 WAUBEKA AMB 2006 FORD E-450 251 2006 FREDONIA Brush 2020 Fire - Grass Rig 657 657 2020 2035 15 YEARS $45,000.00 BELGIUM Brush 2019 FORD F-450 BRUSH/SMALL FIRES 757 2019 2039 20 YEARS $95,000.00 WAUBEKA Brush 1994 F350 Brush Truck 257 1994 5 3 5 Consider selling to help fund new ladder Consider selling/not replacing - excess vehicle Consider selling/not replacing - excess vehicle Consider selling/not replacing - excess vehicle Benchmarks for Elected and Appointed Officials to Monitor • Staffing Benchmarks • Sustained fire department membership decline of 20% - 30% over three to five years. • Increasing average age of membership without offsetting recruiting. • Ability to retain members that are qualified to operate as pumper operators and/or aerial operators in accordance with Wisconsin Administrative Code SPS 330 which requires operators to complete either; a) an entry level driver/operator pumper or aerial course, or b) an approved state apprenticeship program or, c) an in-house training program approved by the state technical college system board or, d) NFPA 1002: Standard for Fire Apparatus Driver/Operator Professional Qualifications. • Ability to retain members that are promoted to the position of chief officer or fire officer after October 1, 2018 that have completed NIMS Training in accordance with SPS 330.14 and have obtained either; a) fire officer course approved by the technical college system board, or b) an approved state apprenticeship program or, c) an in-house training program approved by the technical college system board or, d) NFPA 1021: Standard for Fire Officer Qualifications. Benchmarks for Elected and Appointed Officials to Monitor Response Capability Benchmarks • Department’s ability to assemble a minimum effective response force for an emergency: • Fewer than four firefighters and a command officer able to respond to a reported structure fire within ten minutes of the time of dispatch on a consistent basis. • A minimum of two medical responders to respond to a call for emergency medical services within ten minutes of the time of dispatch on a consistent basis. • Repeated reliance on neighboring departments to provide first-due response to any fire or EMS response. Benchmarks for Elected and Appointed Questions to Ask After a Fire Response & Staffing • Did our fire department respond: • In a timeframe that meets community expectations? • Did we meet NFPA 1720 response benchmarks? National Fire Protection Association • How many qualified (interior and command) firefighters on scene in the required time to establish an EFFECTIVE RESPONSE FORCE to safely and effectively manage the incident? • How dependent were we on mutual aid, and is that reliance sustainable long- term? • Did mutual aid partners arrive quickly enough to meet our needs? • Would outcomes have been different with faster response times or more staffing? Benchmarks for Elected and Appointed Officials to Monitor Call Volume and Service Demand Benchmarks • Total call volume for a single department exceeding 600-800 calls annually is generally an indicator that full-time staffing is needed. • In 2025, Belgium responded to 290 calls for service, Fredonia responded to 630 calls for service and Waubeka 144 calls for service. • Increase in simultaneous or overlapping calls. Calls for Service 2023 2024 2025 Belgium 276 295 290 Fredonia* 688 728 630 Waubeka 141 130 144 TOTAL 1,105 1,153 1,064 *Includes joint paramedic program and ambulance responses Questions? SHARED FIRE AND EMERGENCY MEDICAL SERVICES ANALYSIS FOR VILLAGES OF FREDONIA AND BELGIUM AND THE TOWNS OF FREDONIA AND BELGIUM OZAUKEE COUNTY, WISCONSIN April 2, 2026 McMAHON ASSOCIATES, INC. 1445 McMAHON DRIVE NEENAH, WI 54956 Mailing: PO BOX 1025 NEENAH, WI 54957-1025 PH 920.751.4200 MCMGRP.COM McM. No. F0402-04-25-00615/RCW/km SHARED FIRE AND EMERGENCY MEDICAL SERVICES ANALYSIS TABLE OF CONTENTS I. INTRODUCTION ................................ ................................ ................................ ..... 1 II. PROJECT WORK TASKS................................ ................................ ........................... 1 III. FIRE DEPARTMENT OVERVIEWS ................................ ................................ ............ 3 IV. EXISTING FIRE & EMS RELATED COLLABORATIVE EFFORTS ………………………….10 V. STRENGTHS OF FIRE & EMS PROVISION IN THE REGION ................................ . 11 VI. CHALLENGES FACED IN FIRE & EMS PROVISION IN THE REGION .................... 12 VII. AREAS OF OPPORTUNITY FOR FUTURE COLLABORATION……………………………12 VIII. BENCHMARKS TO MONITOR FOR CRITICAL SERVICE NEEDS.……………………....16 IX. SUMMARY…………………………………………………………………………………………………….17 PROJECT: SHARED FIRE AND EMS ANALYSIS 1 | P a g e I. INTRODUCTION McMAHON Associates, Inc. (McMAHON) was retained by the Village of Fredonia to conduct an analysis of opportunities to increase sharing of fire and emergency medical services resources among the Villages of Fredonia and Belgium and the Towns of Fredonia and Belgium, all located in Ozaukee County, Wisconsin. The communities are currently protected by three fire departments who actively participate in both automatic and mutual aid. The Villages and Towns of Fredonia and Belgium also participate in an agreement to jointly provide paramedic lev el emergency medical services in their communities. II. PROJECT WORK TASKS To accomplish the objectives set forth in the Scope of Services , McMAHON evaluated current operations and staffing of the Fredonia, Waubeka and Belgium Fire Departments. The evaluation also considered anticipated community growth and its potential impact on future fire and EMS service demands. In conducting this study, McMAHON consulting staff met with the Fredonia Village Administrator, members of the Joint Fire/EMS Committee of the Villages of Belgium and Fredonia and the Towns of Belgium and Fredonia , and the Fire Chiefs and other representatives of the Belgium, Fredonia, and Waubeka Fire Departments. The three fire d epartments were also asked to provide data and documentation about their Departments. The following presents an overview of the work tasks completed by McMAHON during the project. 1. Developed a project team that consisted of members of the Joint Fire/EMS Committee for the Villages and Towns and the Fredonia Village Administrator. 2. Conducted a Project Planning Meeting with the McMAHON Project Manager, Project Team, and key project personnel to define the project scope and objectives; discuss work plans; establish liaison responsibilities; coordinate project schedules; and confirm general project arrangements 3. Obtained and reviewed documentation provided by the project team pertaining to the project. 4. Conducted interviews and on -site observation to evaluate the current conditions, future service needs, and standards of performance of the Department. In conducting this study, we met or conducted telephone interviews with the following personnel: ◼ Village of Fredonia Administrator ◼ Members of the Joint Fire/EMS Committee for the Villages of Belgium and Fredonia and Towns of Belgium and Fredonia. ◼ Fire Chiefs of Belgium, Fredonia, and Waubeka Fire Departments Interviews and observations primarily focused on the following: ◼ Current department operations, staffing, and levels of service ◼ Fire personnel workload, call volume, and activity 2 | P a g e ◼ Administrative organizational structure ◼ Budget and capital needs ◼ Department policies and procedures ◼ Analysis of regulations and rules of the Department ◼ Facilities and Major Equipment ◼ Department training 5. Prepared for and facilitated a project status meeting to discuss the results of the interviews and on -site observations with the Project Team and review draft recommendations. 6. Reviewed the present fire workflows and processes to analyze and develop potential organizational and operational sharing opportunities to improve efficiency and effectiveness. This review was based on the Commission of Fire Accreditation International (CFAI) categories and criteria. The performance indicators that were examined include the following: ◼ Governance and Administration ◼ Assessment and Planning ◼ Goals and Objectives ◼ Financial Resources ◼ Community Risk Reduction Programs ◼ Physical Resources ◼ Human Resources ◼ Training and Competency ◼ Essential Resources ◼ External System Relations ◼ Health and Safety 7. Determined any public safety industry standards and trends related to the Department’s operational requirements. During the development of all recommendations, McMAHON considered many factors and standards as a basis for recommendations, including: ◼ National Highway Safety Traffic Administration (NHSTA) ◼ National Fire Protection Association (NFPA) ◼ Federal Emergency Management Agency (FEMA) ◼ National Fire Administration (NFA) ◼ Occupational Safety and Health Administration (OSHA) ◼ Insurance Services Office (ISO) Rating Schedule ◼ Commission on Fire Accreditation International (CFAI) ◼ Local Fire Protection Ordinances 3 | P a g e 8. Developed a comprehensive report on opportunities for enhancing sharing of fire and emergency medical resources in the Villages and Towns of Belgium and Fredonia utilizing the information provided by the documentation received, the interviews, review of national standards, and on -site observations. The projected growth and level of service needs were considered during the development of these recommendations. 9. Listed and described the findings and recommendations. 10. Assembled the draft study report and performed a detailed quality assurance review of the document to ensure that the document meets the expectations of the Project Team and conforms to McMAHON's standards. 11. Prepared and delivered the draft report to the Project Team for review and comment. 12. Received feedback from the Project Team regarding the content of the draft report . Changes to the analysis based on the returned comments were made, as were deemed appropriate. Produced and delivered copies of the final document to the Project Team. 13. Presented the findings and recommendations of the analysis to the Village and Town Boards. III. FIRE DEPARTMENT OVERVIEWS BELGIUM FIRE DEPARTMENT OVERVIEW The Belgium Fire Department, Inc. provides fire and first responder level emergency medical services to the Village and Town of Belgium. Both communities are on the northern side of Ozaukee County. 2023 2024 2025 Belgium 276 295 290 Fredonia* 688 726 630 Waubeka 141 130 144 TOTAL 1,105 1,151 1,064 Calls for Service *Includes joint paramedic program and ambulance responses 4 | P a g e The Belgium Fire Department is a Wisconsin Non-Stock Corporation. No formal contractual agreement exists between the Fire Department and the Town or Village of Belgium. The Village and Town of Belgium have a combined population of 3,986 according to the State of Wisconsin’s Official Final Estimates of Population for 2025. Since the 2020 Census, population rose 4% in the Village of Belgium and 1% in the Town of Belgium. The combined area of the two communities is just over 38 square miles. The Belgium Fire Department is made up of paid -on-call/volunteer members. The Department currently has thirty-three active members of the Department. Members are provided with a stipend of $10 per hour for calls for service and $10 per training. Years of service with the Department are summarized below. The Department reports there are four to five members that are nearing retirement and that they have struggled recruiting people in their early twenties for the Department. Generally, the Department indicates their membership numbers have been steady for a number of years. Members who participate in firefighting activities must have, at minimum, Entry Level Firefighter. Emergency medical responders must have Emergency Medical Responder as a minimum. The Department does have several Emergency Medical Technician-Basics and a Paramedic on its roster. The Belgium Fire Department operates from one fire station located at 195 Commerce St in the Village of Belgium. The fire station and property are owned by the private company. The building was built in 1979 and was recently remodeled. Years of Service Number of Members 1 - 5 Years 15 6-10 Years 5 11 -15 Years 2 16-20 Years 1 21-25 Years 0 25-30 Years 2 Over 30 Years 8 Belgium Fire Department Member Years of Service Summary 5 | P a g e The Department’s organizational structure consists of a Fire Chief, Assistant Fire Chief, two Captains, three Lieutenants, a Chief Engineer and twenty-five members who are firefighters and/or emergency medical personnel. The Department responded to 293 calls for service in 2024 and 276 calls for service in 2023. In both years, emergency medical service calls accounted for just over 80% of all calls for service. The Insurance Services Office (ISO) Public Protection Class Ratings System provided a rating of 3/10 in the Village of Belgium and 6/10 in the Town of Belgium. These ratings are both considered split class ratings. The first number (“3” or “6”) indicates t he rating for locations within 5 road miles of a recognized fire station and within 1,000 feet of a fire hydrant or alternate water supply. The second class (“10”) applies to properties over 5 road miles of a recognized fire station. The ISO Public Protection Class Rating System evaluates fire departments on four key areas: emergency communications systems, fire department capabilities, water supply, and community risk reduction programs. Generally, between 5-10% of fire departments across the United States have an ISO Rating of 3 or higher. The Belgium Fire Department is funded through money from the Village and Town of Belgium. The Fire Department establishes a budget for the year. The cost share between the Village and Town is determined based on the percentage of total equalized value of the two communities. Funding to purchase vehicles and apparatus is not included in the budget data above. 2021 2022 2023 2024 2025 2026 $139,000 $144,400 $151,450 $159,023 $167,450 $171,800 Belgium Fire Department Budget History 6 | P a g e The Belgium Fire Department operates a fleet of seven vehicles. Funding for purchase of vehicles is provided by the Village and Town. Once purchased, the vehicle becomes property of the corporation. The Department contracts with a company to perform state-mandated fire inspections of commercial and multi -family properties. Two inspections of properties are conducted per year. There are approximately 200 properties that require inspection in the Village and Town of Belgium. In interviews with Department leadership, the Department indicated they have been able to retain a sustainable number of responders but are continually trying to recruit additional members as they realize they have retirements of current members coming in the near future. The Department has identified it needs to identify its next generation of leaders in the organization. Fredonia Fire Department Overview The Village of Fredonia operates the Fredonia Fire Department as a municipal fire department. The Department is the primary fire and emergency medical services provider for the Village of Fredonia. The Department also has a primary service area in the Town of Fredonia through a contract with the Waubeka Fire Department. The Department, under contract, also provides paramedic services for the Village of Belgium and Towns of Belgium and Fredonia. The Village has a population of 2,250 people according to the State of Wisconsin’s Official Final Estimates of Population for 2025. Total land area of the Village is 2.14 square miles. The Fredonia Fire Department operates from one fire station located at 201 S. Milwaukee Street. The station is owned by the Village of Fredonia. The facility is in very good condition and has had recent updates. Vehicle Year Purchased Expected Replacement Year Fire Engine/Pumper 2002 2032 Fire Engine/Pumper 1995 2025 Fire Engine/Pumper 2001 2041 Tender 2005 2035 Command Pick-Up 2004 2031 Brush Truck 2019 2039 Rescue Squad 2024 2044 Belgium Fire Department Apparatus Inventory 7 | P a g e The Department has a total of thirty -eight members in the Department. Members are paid on an hourly basis. A summary of the membership’s years of service is in the chart below. The Fire Chief’s position is considered part -time. The Fire Chief manages the Department with the support of three assistant chiefs, a deputy chief, two captains and three lieutenants. All of these positions are also part-time. There are three full-time paramedics that each work a 24 -hour rotating shift. The Department has a strong roster of paid -on-call members with a large number of members who have less than five years’ experience. The Department responded to 471 calls for service in 2024, and 438 calls for service in 2023. In both years, nearly 90% of calls for service were for emergency medical services. The Insurance Services Office (ISO) Public Protection Class Ratings System provided a rating of 3/10 in the Village of Fredonia. This rating is considered a split class rating. The first number (“3” or “6”) indicates the rating for locations within 5 road miles of a recognized fire station and within 1,000 feet of a fire hydrant or alternate water supply. The second class (“10”) applies to properties over 5 road miles of a recognized fire station. Years of Service Number of Members 1 - 5 Years 16 6-10 Years 1 11 -15 Years 6 16-20 Years 2 21-25 Years 3 25-30 Years 9 Over 30 Years 1 Fredonia Fire Department Member Years of Service Summary 8 | P a g e The ISO Public Protection Class Rating System evaluates fire departments on four key areas: emergency communications systems, fire department capabilities, water supply, and community risk reduction programs. Generally, between 5-10% of fire departments across the United States have an ISO Rating of 3 or higher. The Fredonia Fire Department is funded via the Village’s property tax levy , contracts for paramedic services and other revenue sources. The Village Board establishes a budget for the year. The Department operates a fleet of eight vehicles. A major purchase looming for the Department is the replacement of its ladder truck, currently projected for purchase in 2028. State mandated fire inspections are performed by department members. Approximately 200 inspections are performed annually. Department members also provide fire prevention/risk reduction programming. Waubeka Fire Department Overview The Waubeka Fire Department , Inc. provides service to the Town of Fredonia. Waubeka Fire Department subcontracts with the Random Lake Fire Department and Village of Fredonia Fire Department to service portions of the Town of Fredonia. The Town of Fredonia has a population of 2,072 people according to the State of Wisconsin’s Official Final Estimates of Population for 2025. The Town of Fredonia is 35 square miles. 2022 2023 2024 2025 2026 $281,760 $326,000 $720,919 $994,271 $1,117,365 $387,620 $520,159 $615,755 $333,299 $474,112 $501,610 Fredonia Fire Department Budget History Fire Dept Budget Paramedic Budget Vehicle Year Purchased Expected Replacement Year Fire Engine/Pumper 2020 2045 Fire Engine/Pumper 2005 2030 Telesquirt/Ladder 1998 2028 Tender 2013 2038 Command 2024 2039 Paramedic Intercept 2022 2037 Brush Truck 2020 2035 Ambulance 2018 2030 Fredonia Fire Department Apparatus Inventory 9 | P a g e The Department has a total of twenty -four members that have either fire training certifications or emergency medical services certifications/licensures. A summary of the active fire/emergency medical responder’s years of service is below. All members are volunteers but receive stipends for participation. The Department operates from one fire station located at W4114 River Rd. The building was originally built in 1963 with a major addition in the early 1980s. The Department does own a second building that is used for storage. The Department’s command staff reports the station is in fair to good condition, but that they are limited in space in the station. The Department’s command staff includes a fire chief, assistant chief, two captains and a lieutenant. The Department responded to 130 calls in 2024, and 141 calls in 2023. In both years, 65% of all calls were for emergency medical services. The Department provides emergency medical transport services at the Advanced EMT level. The Insurance Services Office (ISO) Public Protection Class Ratings System provided a rating of 5/10 in 2025. This rating is a split class rating. The first number (“5”) indicates the rating for locations Years of Service Number of Members 1 - 5 Years 5 6-10 Years 5 11 -15 Years 2 16-20 Years 1 21-25 Years 2 25-30 Years 5 Over 30 Years 4 Waubeka Fire Department Member Years of Service Summary 10 | P a g e within 5 road miles of a recognized fire station and within 1,000 feet of a fire hydrant or alternate water supply. The second class (“10”) applies to properties over 5 road miles of a recognized fire station. Waubeka Fire Department is funded primarily through a contract with the Town of Fredonia. For 2025, the Department reported a budget of $217,763. The Department operates seven vehicles. Apparatus is purchased by the Town of Fredonia and then turned over to the Fire Department after the debt is paid off. The Department reported they attempt to maintain their engines for thirty years before needing replacement. The 1994 engine and/or the 1984 tender will likely need replacement soon. The Department provides State mandated fire inspections to 52 properties. IV. EXISTING FIRE & EMS RELATED COLLABORATIVE EFFORTS BETWEEN DEPARTMENTS/MUNICIPALITIES The three fire departments servicing the four municipalities have a standing history of collaborative/service sharing efforts that have enhanced services in northern Ozaukee County. Mutual & Automatic Aid Responses A long-standing mutual aid effort has existed in Ozaukee County under the Mutual Aid Box Alarm System (MABAS) that provides for a standardized mutual aid agreement not only in Ozaukee County but across multiple Midwest States. 2023 2024 2025 2026 $208,590 $209,437 $217,763 $213,171 Waubeka Fire Department Budget History Vehicle Year Purchased Fire Engine/Pumper 2019 Fire Engine/Pumper 1994 Tender 1984 Pick up Truck 2021 Brush Truck 1994 Ambulance 2006 UTV 2014 Waubeka Fire Department Apparatus Inventory 11 | P a g e All three departments are also part of an automatic aid response agreement. The agreement calls for all three departments to be simultaneously dispatched for reports of a structure fire in any of the three departments’ response areas. Fredonia and Waubeka Fire Departments have participated in the automatic aid agreement for decades together. Belgium signed on to that agreement in 2021. All three departments praised the automatic aid agreement for providing a rapid response from all three departments for reports of structure fires. Shared Paramedic Program The four communities currently share a paramedic program that is provided by the Village of Fredonia Fire Department through an intergovernmental agreement between the four municipalities. The initiative started in 2023 with financial support from Ozaukee County for the years 2023, 2024 and 2025. The Agreement between the municipalities called for costs not offset by revenue, not to exceed $293,358, from the program to be shared by the four municipalities. The Agreement was updated to reflect the need to operate without financial support from Ozaukee County beginning in 2026. Beginning in 2025, the four municipalities created a Joint Fire/Emergency Medical Services Advisory Committee comprised of two members from each municipality’s governing board. The Committee’s primary mission is to review operations, financial reports, and budgets of the joint paramedic program. The program has been a success to date. Each individual Department could not operate its own paramedic level service. V. STRENGTHS OF FIRE & EMS PROVISION IN THE REGION Ability to Maintain Core Base of Volunteer/Paid-on-Call Staff All three fire departments have a strong history of dedicated community service by volunteer firefighters and emergency medical services personnel. In recent years, the Fredonia Fire Department has begun adding full-time and part-time emergency medical services members. The majority of fire service -related costs incurred by the four municipalities are associated with the purchase and replacement of fire apparatus.. Additional financial support for the fire departments is also supported through fundraising. The members of all three departments have significant pride in serving their communities and in the strength of their fire departments. This has allowed the Departments to maintain service using mostly volunteers/paid-on-call staff. The ability to recruit and retain paid -on-call and volunteer staff across the United States has been challenging. People have busy careers and family lives that make working what in essence becomes a part-time job with very unpredictable work hours extremely hard. The three fire departments should be commended for being able to continue to operate with paid-on-call/volunteers. The leadership and members of the three departments are successful because of their dedication and commitment to their communities. Apparatus/Facilities All three Departments ensure their station and apparatus are well maintained. They have all utilized these assets to their fullest and attempted to ensure apparatus is well-maintained as long as possible. 12 | P a g e Automatic Aid As mentioned earlier in this report, the three departments have been long -standing participants in automatic aid – meaning they are simultaneously dispatched for reports of structure fires in each other’s response areas. In many communities across the Unit ed States, fire departments still wait to call for assistance until they are on scene of an emergency that they cannot manage. This delay in calling for help results in additional risk to lives and property. Community Support The three departments continue to enjoy support from the community both financially and in times of need. This most likely is a result of the firefighters and emergency responders being residents actively involved in their communities and the leadership in the three departments. Joint Paramedic Program The cooperative effort of standing up a joint paramedic program to serve the four municipalities is a tremendous success and provides the basis for additional cooperative efforts between the municipalities and departments. Cooperative Quarterly Training The three departments hold joint quarterly fire and pump operations training. This provides all three departments with the ability to participate in coordinated training that improves effectiveness when they work together in emergency situations . Belgium and Fredonia conduct monthly EMS training together with support from their medical director. VI. CHALLENGES FACED IN FIRE & EMS PROVISION IN THE REGION Recruitment and Retention of Paid-On-Call/Volunteers All three Departments report that the average age of their members is getting older with fewer new recruits coming into the Departments that are retained. One Department commented that they see challenges with maintaining sufficient numbers of paid-on-call/volunteers to sustain service in seven to ten years. Funding of Apparatus Each department maintains a relatively large fleet of fire apparatus. From the consulting team’s perspective, the region is apparatus intensive. Costs of apparatus have risen dramatically over the past five years. Fire engines that cost $500,000 just six to seven years ago are now at least $1 million. Communities that previously paid cash for apparatus are now borrowing for apparatus. All four communities reported concern about the rising cost of apparatus and their ability to continue to fund the current fleet of apparatus. VII. AREAS OF OPPORTUNITY FOR POSSIBLE FUTURE FIRE & EMS COLLABORATION IN THE REGION Interviews conducted by the consulting team with municipal and fire department leadership identified a shared concern regarding the long-term sustainability of the volunteer and paid-on-call service delivery model beyond the current decade. Both municipal officials and fire department leadership acknowledged that proactive planning will be necessary to ensure continued service reliability as staffing, financial, and operational pressures increase. 13 | P a g e From a long-term perspective, regionalization of fire and emergency medical services is generally more sustainable than individual municipalities attempting to independently provide these services. However, interviews also identified important short-term considerations that must be addressed to avoid unintended negative impacts. In the near term, leadership from the Waubeka and Belgium Fire Departments expressed concern that immediate consolidation or full regionalization could adversely affect the ability to retain volunteer and paid-on-call personnel. These departments cited strong community identity, local pride, and organizational culture as key factors supporting recruitment and retention. There is concern that full regionalization could diminish these attributes and negatively impact staffing levels. Both departments indicated that the current service delivery model, supported by automatic aid agreements, is functioning effectively and is likely sustainable for the next seven to ten years. The Fredonia Fire Department has begun transitioning toward a combination department model, utilizing both full-time and paid-on-call personnel. Full-time staffing at Fredonia primarily supports the jointly operated regional paramedic and EMS program serving all four municipalities. It is McMahon’s recommendation that an immediate move towards full consolidation between the three departments not be pursued in the short term but that the municipalities utilize the next decade to plan for what a regional fire/emergency medical services organization will look like beyond the next decade. That planning can include additional cooperative efforts in the short-term that allow each of the three fire departments to maintain their identity and community-based support. Opportunities for collaboration in the next decade could include: Create a plan to reduce fire apparatus fleet Each department maintains a sizeable fleet of apparatus. In some cases, the size of the fleet is based on the Department’s ability to maintain its Insurance Services Office Rating. The ISO Rating System requires a minimum pumping capacity in order to get f ull rating points in one part of its multi-part rating system. As an example, the Belgium Department needs to maintain three engines to get full rating points in that specific area of the ISO Rating System. Due to the distance between the Belgium Fire Station and the Fredonia Fire Station, it is not possible for the two Departments to cooperate and share apparatus to get all possible points in the rating system. A discussion between municipal and department leadership should occur regarding whether maintaining three engines in Belgium is necessary the next time an engine is in need of replacement, which is projected to be in the year 2032. Ordering that engine will likely need to occur in 2030 if current timelines for delivery of apparatus from manufacturers remain unchanged . A similar discussion should occur whether Waubeka and Fredonia need to each maintain two engines. Coming to a decision requires four major points of discu ssion; a) service impact of the change, b) can the Departments staff the current fleet of equipment, c) what is the impact of the ISO Rating with a reduction in the number of engines and is there is fiscal impact on property owners, 4) fiscal impact to the municipalities. If the ISO Rating is not deemed a sufficient reason to maintain the current fleet, a potential regional fleet concept for the next decade could include the following: 14 | P a g e • Fredonia: one engine, one ladder truck, one tender, and one brush unit • Waubeka: one engine and one tender • Belgium: two engines, one tender, and one brush unit Each department would continue to maintain its command, support, and EMS vehicles. Implementation of a reduced or rebalanced fleet model would require formal shared-apparatus agreements allowing members of each department to operate apparatus owned by the other departments, particularly during periods when units are out of service for maintenance or repair. Successful implementation of these types of collaborative initiatives would require clear policy direction and buy-in from municipal governing bodies, fire department leadership, and department membership. These incremental steps can serve as building blocks toward a more fully regionalized fire and EMS service delivery model in the future. Joint Fire Inspector The State of Wisconsin mandates fire departments conduct fire inspections of public buildings and places of employment within the fire department’s territory for the purpose of ascertaining and causing to be corrected any conditions liable to cause fire, or any violations of any law or ordinance relating to fire hazards or two the prevention of fires. Currently, each of the three fire departments conduct their own fire inspections using members of their departments. State Administrative Code does not require specific training for fire inspectors, other than that they must complete training approved by the Fire Chief. Industry best practices would have the fire inspector certified as Fire Inspector I which requires completion of an approximate 60 -hour course and certification exam. The Departments are able to currently meet the demand of the workload. As Departments are unable to each meet the demand of performing fire inspections, consideration should be given to have one of the departments employ a certified fire inspector that can perform fire inspections for all three departments under a contractual agreement. Current Shared Model Engines 7 4 Ladder Trucks 1 1 Tenders 3 3 Brush Trucks 3 2 Ambulances 2 2 EMS/Rescue 2 2 Command/Support 3 3 UTV/ATV 1 1 Combined Apparatus Fleet 15 | P a g e Create a Joint Emergency Medical Services (EMS) District The four communities currently jointly fund paramedic services provided by the Village of Fredonia. Each municipality pays a portion of the cost to operate the service based on a formula established in the intermunicipal agreement. The Agreement reduces overall costs for the service by revenue received. The remaining costs are then split between the municipalities. The intermunicipal agreement does cap annual cost increases of up to 6% unless a higher increase is approved by all four governing boards. The four municipalities should give consideration to creating a Joint EMS District that is governed by representatives of each participating municipality and has authority to adopt annual budgets and policy. The Joint EMS District would then contract with the Village of Fredonia as the service provider for the EMS district. Creating this EMS District would provide governi ng oversight by all four municipalities, allow for the four municipalities to utilize a property tax levy exception detailed in Wisconsin Statutes Chapter 66.0602(3)(h) for costs related to the EMS District, and would set an organizational structure that could be used for a possible eventual consolidation of the three fire departments even though this most likely won’t be needed for at least a decade. Wisconsin Statutes 66.0602(3)(h) 1. Subject to subd.2, the limit otherwise applicable under this section does not apply to the amount that a city, village, or town levies in that year to pay for charged assessed by a joint fire department or a joint emergency medical services district, but only to the extent that the amount levied to pay for such charged would cause the city, village, or town to exceed the limit that is otherwise applicable under this section. 2. The exception to the limit that is described under subd.1 applies only if all of the following apply: a. The total charges assessed by the joint fire department or joint emergency medical services district for the current year increase, relative to the total charges assessed by the joint fire department or joint emergency medical services district for the pre vious year, by a percentage that is less than or equal to the percentage change in the U.S. consumer price index for all urban consumers, U.S. city average, as determined by the U.S. Department of Labor, for the 12 months ending on August 31 of the year of the levy, plus 2 percent. b. The governing body of each city, village, and town that is served by the joint fire department or joint emergency medical services district adopts a resolution in favor of exceeding the limit as described in subd.1. Combine Fredonia and Waubeka Fire Stations in the Future The region is currently served by three fire stations – Fredonia, Waubeka and Belgium The Fredonia and Waubeka Fire Stations are 2.4 miles apart. The Belgium Fire Station is 7.2 miles from the Fredonia Fire Station and 8.8 miles from the Waubeka Fire Station. The current growth projections suggest the region could be served by two fire stations Belgium 200 Fredonia 200 Waubeka 110 Fire Inspections - Annual 16 | P a g e Currently, the three fire stations are well -maintained and generally meet the needs of the Departments. Prior to any major investments in either the Fredonia or Waubeka Fire Stations, elected officials should carefully consider such investment and take into consideration that two fire stations can likely serve this region. VIII. Benchmarks for Elected and Appointed Officials to Monitor For Critical Service Needs It is prudent for the municipalities that fund the three fire departments to receive consistent, standardized reporting on departmental capacity and service delivery performance. Ongoing monitoring of key benchmarks will provide elected and appointed officials with objective information needed to plan for future operational and capital expenditures necessary to sustain fire and emergency medical services. Staffing and Response Capability Benchmarks • The Department’s ability to assemble a minimum effective response force to respond to an emergency: o Fewer than four firefighters and a command officer able to respond for a reported structure fire within ten minutes of the time of dispatch on a consistent basis. o A minimum of two medical responders to respond to a call for emergency medical services within ten minutes of the time of dispatch on a consistent basis. • Repeated reliance on neighboring departments to provide first -due response to any fire or EMS response. 17 | P a g e • Sustained fire department membership decline of 20-30% over three to five years. • Increasing average age of membership without offsetting recruitment. • Ability to retain sufficient members of the Department that are assigned as a pumper (fire engine) or aerial operator that meet the minimum training requirements in Wisconsin Administrative Code SPS330 which requires the individual assigned as a pumper or aerial operator to have completed; a) an entry level driver/operator-pumper or driver/operator aerial course approved by the technical college system board, or b) an approved state apprenticeship program, or c) an in -house training program approved by the state technical college system board , or d) NFPA 1002: Standard for Fire Apparatus Driver/Operator Professional Qualifications. • Ability to retain sufficient members of the Department that are promoted to the position of chief officer or fire officer (commonly captain or lieutenant) after October 1, 2018 that have completed National Incident Management System Training in accordance with SPS 330.14 and have obtained the minimum training and education requirements as specified by; a) a fire officer course approved by the technical college system board, b) an approved state apprenticeship program, c) an in-house training program approved by the technical college system board, or d) NFPA 1021: Standard for Fire Officer Qualifications. Call Volume and Service Demand Benchmarks • Total call volume for a single department exceed ing 600-800 calls annually is generally an indicator that full-time staffing is needed. • Increasing frequency in simultaneous or overlapping calls that strain available staffing and resources. Reports on this information are best provided by the fire chief to the village or town boards on at least an annual basis. IX. Summary The Belgium, Fredonia and Waubeka Fire Departments have strong community support and continue to meet the demands for service in the Villages of Belgium and Fredonia and Towns of Belgium and Fredonia. As these communities have grown, the fire departments h ave faced, like many other fire and emergency medical services departments across the Country, a challenge in recruiting and retaining members. While these three departments are not at a point where they are unable to respond to emergencies, they do face c hallenges. Calls for emergency medical services continue to rise. The four communities have collectively acted to address the increase in demand for emergency medical services by agreeing to create a joint paramedic program that responds based out of the Fredonia Fire Department. The three departments have been proactive in establishing automatic aid agreements for major fire responses which provides for a larger number of responders to be dispatched to a report of a structure fire at the onset of an incident as opposed to waiting for the primary responding fire department to request assistance. McMahon was contracted to provide recommendations on additional cooperative efforts that the four municipalities and three departments can undertake in the future to sustain fire and emergency medical services provision. 18 | P a g e While combining the three departments, at some point in the future, maybe the best option for providing service to the region, having them remain independent is the best short-term option. Many of the volunteer/paid -on-call members of the three departments have committed many years of service to their communities, live in the communities they protect and have participated in fundraising for their hometown fire departments. Moving to combine the three departments in the short term is not advised. Maintaining independent departments in the short term does not preclude strengthening interdepartmental cooperation. The report identifies five recommended cooperative initiatives that would allow the departments to maintain or improve service levels while limiting future costs, particularly related to major capital investments. In addition, the report identifies key benchmarks that elected and appointed officials should monitor through regular reporting from fire department leadership. While the consulting team finds that the current model of having three primarily volunteer/paid-on-call departments with limited full-time staff may be sustainable for the next seven to ten years, it is important that the communities have information that allow them to create effective cooperative fire and EMS organizational structures and plan for an increase in personnel costs as more full -time staff is needed to maintain fire and emergency medical services in the region.