Putney FD Operations Analysis

Town of Putney
FIRE DEPARTMENT
Putney, VT
Fire Department
OPERATIONS
ANALYSIS
Operations Analysis Putney Fire Department
Contents
Acknowledgments ....................................................................................................................... iv
SECTION I: BASELINE ORGANIZATIONAL ASSESSMENT ..................................................... 1
Introduction.................................................................................................................................... 2
Town of Putney .......................................................................................................................... 2
Putney Fire Department ........................................................................................................... 2
Staffing & Personnel Management .............................................................................................. 4
Administrative Staffing .............................................................................................................. 4
Operational/Emergency Response Staffing .......................................................................... 7
Personnel Management ......................................................................................................... 10
Financial Overview ..................................................................................................................... 12
Revenue ................................................................................................................................... 12
Expenditures ............................................................................................................................. 13
Reserves .................................................................................................................................... 15
Observations ............................................................................................................................ 15
Financial Findings .................................................................................................................... 18
Capital Facilities & Apparatus ................................................................................................... 19
Fire Station Features ................................................................................................................ 19
Putney Fire Station ................................................................................................................... 20
PFD Apparatus Inventory ........................................................................................................ 25
Apparatus Maintenance & Replacement Planning ........................................................... 27
Other Capital Equipment ....................................................................................................... 34
Service Delivery & Performance ................................................................................................ 35
Incident Data Issues ................................................................................................................ 35
Service Demand ...................................................................................................................... 35
Distribution Analysis ................................................................................................................. 39
Travel Time Analysis ................................................................................................................. 40
Reliability Study ........................................................................................................................ 44
Response Performance .......................................................................................................... 45
Projected Population Growth & Future Service Demand .................................................. 48
SECTION II: OPERATIONS & SUPPORT PROGRAMS .......................................................... 51

Emergency Medical Transport & System Oversight ................................................................ 52
EMS Service Demand .............................................................................................................. 53
The EMS System........................................................................................................................ 54
Medical Control & Oversight ................................................................................................. 57
i
Fire Training & EMS Continuing Medical Education ................................................................. 61

Training Staff ............................................................................................................................. 61
General Training Competencies ........................................................................................... 61
Training Topics Discussion ....................................................................................................... 63
Fire Training Program ............................................................................................................... 63
Training Facilities & Resources ................................................................................................ 66
Support Programs—Special Teams ........................................................................................... 67
Special Team Response Service Demand............................................................................ 67
Apparatus and Staffing for Special Teams ........................................................................... 68
Special Team Resources ......................................................................................................... 68
SECTION III: COMMUNITY RISK ASSESSMENT .................................................................. 70

All Hazards Risk Assessment ...................................................................................................... 71
Population and Demographics ............................................................................................. 71
Physical Hazards ......................................................................................................................... 87
National Risk Index .................................................................................................................. 87
Social Vulnerability .................................................................................................................. 88
Natural and Human-Caused Hazards .................................................................................. 89
Transportation Networks ....................................................................................................... 100
Land Use ................................................................................................................................. 105
Occupancy Types ................................................................................................................. 112
Emergency Management ................................................................................................... 122
Implementing & Evaluating a Community Risk Strategy ...................................................... 123
Community Risk Reduction Program .................................................................................. 123
Putney Community Risk Reduction Plan ............................................................................. 128
Improved Concepts for a CRR Plan .................................................................................... 129
SECTION IV: RECOMMENDATIONS & STRATEGIES......................................................... 137

Recommendations.................................................................................................................... 138
General Recommendations ................................................................................................ 138
Staffing Recommendations ................................................................................................. 140
Finance Recommendations ................................................................................................ 142
Capital Equipment Recommendations .............................................................................. 145
Service Delivery ..................................................................................................................... 152
Emergency Medical Services .............................................................................................. 153
Training Recommendations ................................................................................................. 154
Code Enforcement and Inspection Recommendations .................................................. 155
ii
Planning Recommendations ............................................................................................... 158

Policy Recommendations .................................................................................................... 159
Grant Recommendations .................................................................................................... 161
Critical Infrastructure Recommendations ........................................................................... 162
SECTION V: APPENDICES ................................................................................................ 163

Appendix A: Table of Figures ................................................................................................... 164
Appendix B: References ........................................................................................................... 167
iii
Acknowledgments
AP Triton Consulting wishes to extend its sincere appreciation to each of those individuals
whose contributions and assistance made this project possible.
Our sincere appreciation is extended to each of you…
Putney Fire Department

Thomas Goddard
Putney Fire Department Members
Fire Chief
Response Agencies
SWNH Fire District Mutual Aid
Municipal Fire/EMS Agencies
Rescue, Inc.
Town of Putney
Karen M. Astley Kim Munro
Town Manager Treasurer
Aileen Chute Peg Alden

Selectboard Chair Selectboard Vice Chair
Charles Raubicheck Eric McGowan

Selectboard Clerk Selectboard Member
Nate Snell Town of Putney

Selectboard Member Community Members
Putney Diner Putney General Store
Landmark College
…and each of the EMTs, Firefighters, officers,

and support staff who daily serve the citizens and visitors of the
Town of Putney and the surrounding unincorporated
areas of Windham County.
iv
Section I:
BASELINE ORGANIZATIONAL
ASSESSMENT
1
Introduction
Town of Putney
Putney, Vermont, is a picturesque town in Windham County in the southeastern part of the
state. It has a rich history dating back to its settlement by European colonists in the late
18th century. The town was chartered in 1753, but the first permanent settlers arrived in the
1760s. The area was initially known for its fertile land and farming opportunities.
In the 19th century, Putney's economy expanded with the development of agriculture and
industry. Farmers grew various crops, including grains and tobacco. Water-powered mills
were established along the Sacketts Brook, aiding the community's growth.
Putney has a strong connection to education. In the early 19th century, it became home
to Putney School, a progressive independent school founded in 1935, known for its unique
educational approach. The school attracted educators and students from around the
world.
In the 20th century, Putney became a center for the arts, attracting artists, musicians, and
writers. It is known for its vibrant arts community, with institutions like the Sandglass Theater
and Yellow Barn hosting cultural events and performances.
Today, Putney maintains its rural charm and is known for its natural beauty, making it a
popular destination for outdoor enthusiasts. The town continues to value education, the
arts, and community involvement.
Putney Fire Department

Before 1898, fire protection in the Town of Putney was handled independently by each
village within the town, and these efforts were often informal and rudimentary.
In March 1898, the town took a significant step by allocating $500 to support the Fire
District, which focused on providing fire protection to the central village area of Putney.
Later, in March of 1903, the town decided to purchase 700 feet of hose for the newly
established Putney Hose Company, which was responsible for safeguarding the village. This
purchase became crucial due to the ongoing expansion of the downtown village.
The year 1920 marked a milestone as the Putney Hose Company acquired its first chemical
firefighting apparatus. In 1930, recognizing the need for enhanced firefighting capabilities,
the Town of Putney and the Village Fire District jointly invested in a new fire engine and
additional equipment to reinforce the company's service to the village.
2
However, in March of 1934, spurred by town growth and a series of devastating fires, the
town earmarked $500 to construct a new fire station. Simultaneously, there was strong
community support for unifying the Town of Putney and the Fire District to provide more
efficient service to the entire community. In 1935, the Village Fire District was succeeded by
the Putney Fire Department, which assumed responsibility for fire protection services across
the whole town. In addition, the department is supported by the Putney Fire Association, a
non-profit organization providing fund raising activities and community service.
Since then, the Putney Fire Department has maintained a commitment to delivering high-
quality service and maintaining readiness to protect the community and its residents.
Today, the department offers all hazard fire response and emergency medical services
from its headquarters at 21 Carl Snyder Drive.
3
Staffing & Personnel Management

Effectively, fairly, and compassionately managing personnel is an art as much as a
science. Consistency, fairness, safety, and opportunities for personal and professional
growth are key attributes required to ensure the long-term health of an emergency
services organization. Additionally, the organization must possess sufficient administrative
resources to adequately provide operational and logistical support, public life safety
education, community health services (if provided), training services, and overall
administrative services in support of agency operations.
Several national organizations recommend standards to address staffing issues related to

fire and EMS operations. The Occupational Health & Safety Administration (OSHA)
Respiratory Protection Standard and the National Fire Protection Association (NFPA)
Standards 1710 and 1720 are frequently cited as authoritative documents.1,2 In addition,
the Center for Public Safety Excellence (CPSE) publishes benchmarks for the number of
personnel recommended on an emergency scene for various levels of risk (known as
Effective Response Force). Specific to PFD, the Commission Accreditation of Ambulance
Services (CAAS) publishes benchmarks for safety, training, staffing, and personnel
management, to name a few. In this section of the report, Triton evaluated the
organization and deployment of administrative and operations personnel in the Fire and
EMS departments, with the goal of identifying efficiencies, inefficiencies, and opportunities
to improve overall organizational strength and efficiencies.
Administrative Staffing
Putney Fire Department (PFD) is managed by a full-time paid Fire Chief and ten volunteer
staff positions designed to support the department's fire suppression and EMS functions. The
following figure summarizes the administrative support personnel allocated to the Putney
Fire Department.
Figure 1: Administrative Staff Positions

Putney FD Administrative Staff Positions No. of Staff
Fire Chief 1
Fire Captain 4
Fire Lieutenant 2
EMS Captain 1
Support 3
Total Admin. Positions 11
4
Administrative Staff Discussion

Triton understands that although Putney FD lists 11 Administrative positions, all but the Fire
Chief are volunteers. Based on the data and information acquired during our onsite
interviews, the status and currency of these volunteer fire and EMS staff officers may be
overstated by the numbers noted in the preceding figure. Department staffing records
indicate that a number of these individuals are no longer attending emergency calls and
training drills.
The Fire Chief, in addition to his leadership and administrative role within the PFD, is
currently responsible for performing four additional administrative roles within the Town of
Putney municipal organization:
• Health Officer
• Fire Prevention Inspection Officer (State and local fire code enforcement)
• Emergency Management Director
• 911 Coordinator
Municipal Health Officer

By law, every town and city in Vermont has a local board of health. The local board of
health consists of the town health officer and the town select board (or town council). The
duties and responsibilities of the Vermont boards of health are established by State Statute.
Recommended by the Town Select Board, the Health Officer serves as the local
representative of the VT Department of Health/Environmental Heath Office.
Town Health Officers are responsible for:
• Investigating possible public health hazards and risks within the town or city
• Taking action to prevent, remove, or destroy any public health hazards
• Taking action to lessen significant public health risks
• Enforcing health laws, rules, and permit conditions and taking the steps necessary to
enforce orders
5
Health Officers in Vermont are seen as the frontline of Fire Safety, responding to complaints
of improper or malfunctioning heating equipment, electrical hazards, and hoarding in
dwelling occupancies. Local fire departments often assume this role, as it closely aligns
with their fire and life safety code enforcement functions. Local health officers have no
jurisdiction over the enforcement of life safety or fire and building codes wholly; Within their
rental housing inspection authority, there are only very limited and specific items pertaining
to life safety and fire and building codes. Any issues noted during an inspection are
required to be forwarded to the regional fire prevention office for follow up. Specific to
Putney, the Fire Chief would be acting then as the State authorized fire marshal (AHJ). The
Town of Putney has entered into an agreement with the Vermont Division of Fire
Safety/Department of Public Safety to assume local responsibility for performing inspections
and enforcing the Vermont Fire & Building Safety Code as it applies to existing public
buildings. The town has designated employees of the PFD to carry out the responsibilities
under this agreement. Currently, the town has designated the Fire Chief to perform these
inspections and related code enforcement. Putney is required to investigate all complaints
alleging unsafe conditions, conduct follow-up inspections, provide copies of inspection
reports to the state, provide data input to the DPS/DFS FIRE database system, and provide
quarterly reports of enforcement activities.
Note: In order to meet the increasing and unmet demands of fire prevention services and
inspections, the fire department entered into a municipal inspection agreement with the
Vermont Department of Public Safety, Fire Prevention Division, in March 2008. This
agreement provided for the transfer of all fire prevention and life safety permitting,
inspection, and code enforcement from the division to the Town of Putney and the Putney
Fire Department. The fire chief was appointed as the town’s first official fire prevention
inspector at that time.
Town Emergency Management Director

The executive officer or legislative branch of the town or city is authorized to appoint a
town or city emergency management director (EMD) who shall have direct responsibility
for the organization, administration, and coordination of the local organization for
emergency management, subject to the direction and control of the executive officer or
legislative branch.
6
911 Coordinator
The primary role of the 911 address coordinator is to ensure that your physical address
matches the state's 911 maps and database. This is important so emergency services can
find your location when you call for help. The 911 address also routes the 911 call to the
appropriate public safety answering point (PSAP) that is associated with the emergency
services in your area.
Each of these additional roles requires official appointment by various Vermont State
agencies, with responsibilities governed by specific Vermont State Statutes.
Operational/Emergency Response Staffing

Safe and effective fire and EMS operations require the rapid deployment of a sufficient
number of well-trained personnel, reliable vehicles, and equipment. These resources must
be strategically located to respond quickly while also ensuring they can back up other
response units if they are out of service on another emergency. This concept will be
discussed in depth in this study's Service Delivery Analysis section. The following figure lists
the Putney FD emergency response staffing.
Figure 2: Emergency Response Staffing

Number of
PFD Operations Position
Personnel
Fire Chief 1
Captain 4
Lieutenant 2
Firefighter 12
Firefighter/AEMT 1
Firefighter/EMT 1
EMS Captain 1
AEMT 1
EMT 1
EMS Provider 2
Support 3
Probationary FF 2
Total: 31
7
Fire & EMS Staffing Discussion

Except for the paid full-time Fire Chief, all PFD fire personnel are part-time employees of the
Town of Putney. The Fire Department roster lists 31 personnel, 12 of which are currently
considered “active” based on response and training records provided to Triton. Of these
12, six are students at the local college and are only available when they are on campus
during the school year.
It is important to understand that the term “active” unfortunately does not guarantee a
dependable response force. The Fire Chief shared that it has become common for him to
be the only available person to respond to emergency calls during daytime hours on most
weekdays when volunteer fire personnel are out of the area for work, school, or family
commitments. It is also not uncommon for fire apparatus to respond to calls for service with
only a driver and no other personnel to effectively operate the on-board equipment or
perform fire suppression or rescue tasks associated with the emergency.
Maintaining an effective, adequately staffed, and dependable fire department is critical

to ensuring the health and safety of the Town of Putney and the surrounding community
now and well into the future. In Triton’s experience, volunteer participation ebbs and flows
depending on a few factors, including local economic conditions, the reputation of the
organization, and the overarching societal changes related to decreased volunteerism.
Nationally, volunteer fire departments still comprise most of the fire service. With that said,
today’s fire service is finding it more difficult to recruit, hire, and retain volunteer firefighters.
An article by the National Volunteer Fire Council, the topic of volunteer retentions was
discussed.
The number of volunteer firefighters in the U.S. reached a low in 2011. While there has been
a slow increase since then, the growth isn’t enough to meet the steady increase in call
volume, which has tripled in the last 30 years due in large part to the increase in
emergency medical calls. Major factors contributing to recruitment challenges include
increased time demands, more rigorous training requirements, and the proliferation of two-
income families whose members do not have time to volunteer. Fire departments today
are also expected to provide a wide range of services and multi-hazard response, creating
further challenges for resource-constrained departments.
8
Triton understands that the department has struggled with recruiting and retaining quality
response personnel for some time. Information shared by the Fire Department
administration and town revealed that the number of volunteers has significantly
decreased since 2015 from a high of approximately 40 personnel to less than about 12
active volunteers in 2022.
In today’s environment, emergency response organizations that depend on volunteers

must be pragmatic in their recruitment planning and honestly introspective in assessing
institutional drivers that may be contributing to volunteer turnover.
A 2020 research study commissioned by the National Volunteer Fire Council included a
survey of over 1000 current and former volunteer firefighters.3 The survey results from former
firefighters identified the following issues that drove them away from their organizations:
• The department atmosphere is full of cliques and groups that exclude others.
• Department leadership that doesn’t focus on or support the needs of members.
• Department atmosphere where members of different generations don’t get along.
• Lack of camaraderie or sense of community among everyone in the department.

Interestingly, the survey results from current department members who were asked what
drives volunteers away from the organization were somewhat different:
• Lack of support and flexibility in juggling volunteer responsibilities with other life
commitments.
• The realities of volunteering changed or didn’t meet the expectations that were set
before signing up.
• Lack of clear expectations of how much time and effort will be required each week
or month for meetings and training.
• Department atmosphere is full of cliques and groups that exclude others.

These key factors, along with additional data collected in the research, led the NVFC to
conclude:
“While flexibility in training requirements and volunteering schedules remain

important factors in retention, these data indicate that department leadership and
culture are at least as, if not more, influential when it comes to volunteers choosing
to leave the service.”
9
During a recent site visit to Putney, Triton's interviews with current and past Fire Department
members suggested that a number of these same types of issues may have been present
in the past or are currently present within the department. Managing volunteer
organizations is inherently challenging in the best of times, and changing demographics,
community expectations, and social influences can undermine their sustainability and
effectiveness. Putney FD does not appear to be immune to these same types of issues and
their impacts on its recruitment and retention of volunteer fire and EMS personnel. The Town
of Putney may want to consider focusing additional attention on the findings noted in the
National Volunteer Fire Council study and the importance of strong, compassionate, and
professional leadership that fosters and supports the inclusivity and value of employees and
volunteers as one initiative to re-vitalize its fire department staffing.
Personnel Management
Effective and efficient personnel management is critical to any organization's success. This
section of the study examines the administrative components related to managing Putney
Fire Department staff.
Policies, Rules & Regulations

The Town maintains a detailed employee personnel manual that covers topics ranging
from administering payroll to defining the benefits offered to full-time, part-time, and
volunteer employees. The online version of the manual indicates it was last updated in April
2021.
PFD maintains a list of 48 SOPs outlining procedures and directives covering the activities of
the department and its members.
• Administration—6
• Basic Operations—31
• EMS—5
• Special Operations—6
Of these 48 SOPs, less than 50% of them have been reviewed or revised within the past 24
months.
10
In addition to Triton’s noting the large number of procedures needing review or revision,
significant gaps were identified in policies and procedures related to effective and
consistent personnel management, especially as it relates to volunteer personnel.
Examples of personnel management topics absent from the current SOGs include
selection, hiring, and promotion processes, and detailed job descriptions, to name a few.
11
Financial Overview
Fiscal sustainability is essential to the successful operation of all municipal service providers.
This section summarizes the Town of Putney Fire Department’s current revenues and
expenditures. Additionally, customary municipal financial policies and practices are
discussed.
For presentation purposes, we have classified revenues and expenditures as either

recurring or non-recurring. Recurring items are those that are anticipated on an annual
basis and are usually quantifiable. Conversely, non-recurring items are items of receipts
and expenditures that may not occur annually or are not easily quantifiable and may
include grants, debt proceeds, debt payments, and capital expenditures.
The PFD is an operating department within the Town of Putney. As such, determining
financial policies and adopting budgets falls to the Town Select Board. The Town operates
on an annual budget, running from July 1st through June 30th each year.
Like most municipalities, the Town’s General Fund (GF) is the primary fund for overall town
operations, including the fire department. Because this project is specific to the fire
department, the financial overview found in this section focuses primarily on the General
Fund.
Revenue
The Town’s General Fund is principally comprised of property taxes, representing 89% of the
revenue generated in FY23 and FY24. In FY22, the Town realized a significant enhancement
in its total tax rate, going from 0.7922 to 0.9023, representing a 13.9% increase. Of this
amount, 0.4874 was allocated to the General Fund. The balance was allocated to the
Highway Fund and Local Agreement.
For FY24, the total tax rate increased to 0.9764, representing an 8.2% increase. Of this
amount, 0.5321 is allocated to the General Fund. This represents a 9.2% increase in the
General Fund revenue allocation.
As with most municipal fire agencies, the primary funding source for PFD is the Town’s
General Fund. The fire department also receives some limited direct revenue sources. The
following figure summarizes the Fire Department’s allocated direct revenue for the most
recent five fiscal years.
12
Figure 3: Putney Fire Department General Fund Revenues
2020 2021 2022 2023 2024

Revenue/Expenses
Actual Actual Actual Budget Budget
Recurring Department Revenues
Inspection Fees $1,089 $1,869 $461 $7,000 $7,000
Special Detail $4,590 ($390) $2,195 $3,500 $3,500
General Services $0 $0 $0 $5,000 $5,000
Non-Recurring Revenue
Grants $176,463 $7,535 $17,809 $0 $0
Fire Station Rental $50 $0 $0 $0 $0
TOTAL REVENUE: $182,192 $9,014 $20,465 $15,500 $15,500
In addition to the General Fund revenue, annual Private School Contributions are received
and recorded in Fund 330, the Public Safety Reimbursement Fund. This revenue is provided
in lieu of municipal taxes and utilized to offset bond payments for the fire station. It is Triton’s
understanding from town administration that there are no contracts or agreements in
place outlining these contributions. Instead, annual letters are sent to the schools.
Expenditures
PFD, being a volunteer, paid, on-call fire service provider, makes them somewhat unique.
The Chief is the only position that is full-time and benefited. While most service providers
incur the majority of their expenses in salaries and benefits, PFD’s staffing costs are fairly
limited. According to the current budget, the department incurs an equivalent or greater
cost for annual training than it does for emergency response staffing (excludes the Chief).
After accounting for the fire department’s directly received revenue, the Town’s General
Fund allocation to PFD represents 17.9% of the Town-wide FY24 GF budget of $1,668,226. Of
course, this percentage changes depending on the consistency of revenue receipts and
whether or not expenditures remain within budget.
A summary of PFD expenditures for the most recent five fiscal years is provided in the
following figure.
13
Figure 4: Putney Fire Department Expenditures

2020 2021 2022 2023 2024
Description
Actual Actual Actual Budget Budget
Firefighting & EMS
Chief Salary & Benefits $50,653 $56,179 $60,964 $63,050 $66,833
Paid On-Call; Special Detail;
$40,305 $27,778 $31,153 $39,452 $40,531
Emergency Response
Medical Services/Exams $8,510 $1,430 $9,439 $8,600 $8,600
Mutual Aid Dues $30,722 $31,950 $32,982 $33,569 $34,572
Prevention Programs $2,467 $1,291 $15,437 $2,500 $2,500
Fire/Rescue Training $20,034 $30,770 $33,457 $44,943 $46,292
All Other Expenses $21,285 $20,377 $21,280 $25,220 $26,700
Total Firefighting & EMS: $173,975 $169,775 $204,713 $217,334 $226,028
Fire Station Maintenance $30,855 $24,012 $28,780 $24,170 $26,670
Truck/Equipment
$234,230 $73,980 $87,907 $56,100 $61,400
Maintenance
TOTAL EXPENSES: $439,060 $267,767 $321,400 $297,604 $314,098
Net Funding from General
($256,868) ($258,753) ($300,935) ($282,104) ($298,598)
Fund:A
A FY23 and FY24 General Fund allocations should be expected to actually exceed these projections,
given the history of revenue coming in less than anticipated and expenditures exceeding budget
allocations.
Figure 5: Putney Fire Department Expenditures by Category

$250,000
$200,000
$150,000
$100,000
$50,000
$0
Total Firefighting & EMS: Fire Station Maintenance Truck/Equipment
Maintenance
2020 Actual 2021 Actual 2022 Actual 2023 Budget 2024 Budget
14
Reserves
Maintaining adequate reserve funding is essential to fiscal stability. Without unassigned
reserves, unanticipated or emergency expenditures burden operational funding or cause
a need to borrow or increase revenue.
The 2024 Financial Supplement speaks to the need to achieve GFOA-recommended

reserves of 15%–30% of total town-wide expenditures. For Putney’s General Fund, that
equates to approximately $500,500 in unassigned reserves for FY24, if targeting 30%.
According to the Fund Equity Leadsheet, the total projected reserve fund balance as of
June 30, 2023, is $356,493.98, of which $277,970.20 is unassigned.4 That value represents
16.7% of General Fund expenditures. While this is an improvement over the prior year’s
projections, additional funding should be directed to the reserve until the town’s selected
target value is achieved.
Observations
Putney Volunteer Firefighter’s Association
Clarity is needed regarding the financial relationship between the Town and the Volunteer
Firefighters Association (PVFA). Specifically, as it relates to the rights to various revenues
received. It is unclear where funds collected from fundraisers and other activities are
deposited. According to the town administration, these funds are not provided to the
town. In reviewing the town’s financial reports, Triton found no line item reflecting funds
collected or donated by the Association.
The Association bylaws state, “The Treasurer shall keep an exact accounting of all
Association receipts and disbursements, including donations to and from the Association.”
However, the Town does not receive a copy of this annual accounting. In fact, the Profit
and Loss Statements for the most recent five years had to be requested by the Town in
order to be reviewed for this project.
Finally, it appears that the Association is undertaking projects that should be within the
purview of the Town. For example, a remodel of a portion of the fire station was underway
at the time of this report. The project is being managed by the Fire Chief and funded by
the PVFA. The project was undertaken in 2009 through an agreement between the PVFA,
Town Manager and Selectboard. There appears to be a need to define how the space
should be utilized and clear plan for project completion. PFD will not require 24-hour living
quarters for firefighters in the foreseeable future, and the town should evaluate how to best
use the space.
15
The relationship between the Town and the Association must be clearly defined and
articulated in an agreement executed by the parties. The PVFA bylaws state:
“The mission of the Putney Volunteer Firefighter’s Association, Inc. is to promote the
general welfare of the members of the Putney Fire Department, whose activities
include providing emergency response services within the town of Putney. The
Association will promote positive relationships between the Putney Fire Department
and the general public through educational, professional, and social interactions.”
Yet the activities of the PVFA support an opportunity for improvement, which enhances the
need for a written agreement. Lacking such fiscal and administrative structure is imprudent
and could be deemed improper. Any activities of the Association beyond educational,
professional, and social interactions occurring without the express written authority of the
Town should be ceased immediately.
Revenue
In reviewing specific revenue sources, the budgeted value of inspection fees has far
exceeded the actual cash receipts. Since FY18, $7,000 has been budgeted as anticipated
inspection fee revenue. The highest actual receipts were in FY21, totaling $1,869. This does
not seem to comport with the department’s indicated accomplishments. For FY21, the
number of inspections was not indicated in the annual town report. However, the 2022
town report states the department conducted 113 fire prevention and 52 health-related
inspections while the revenue collected was $461.5
These potential discrepancies between the number of inspections and the revenue
collected lead to questions regarding whether the fees are being properly accounted for.
If the revenue is accurate, and actual inspection fees only run between $500 and $1,900,
the budgeted revenue must be reduced to reflect anticipated funds more accurately.
Expenditures
Based on various interviews conducted, expenditure tracking also seems to be
challenging. It appears that the town administration is unable to access the fire
department’s software systems. It also seems that documentation usually requisite to issue
vendor payments and expense reimbursements may be lacking. This is a significant breach
of appropriate fiscal management. The Town’s Internal Control and Financial
Management Procedures Manual outlines various policies and guidelines to be followed.
Verifying whether or not they are complied with falls beyond the scope of this project.
16
Before FY24, capital expenditure planning was not implemented for the General Fund
assets outside the Highway Department. Therefore, the Fire Department does not have a
Capital Improvement Plan (CIP). The documents uploaded for this project include a
spreadsheet titled “Fire Department Capital Plan” that accounts for equipment and
infrastructure expenditures into FY30. No associated Asset Management/CIP tracking
system or documents were provided. The FY24 Financial Supplement speaks to this issue
and the importance of initiating this planning over the next few years. It is commendable
that this issue has been recognized and is planned to be addressed. The CIP and an Asset
Management System are key components to prudent project and asset planning, as well
as financial management, which will be discussed in greater detail in the capital section
(the one that delves into evaluating the assets) of this report.
General
In reviewing the budget history for FY18 through FY22, several line items' actual costs
appear to exceed the budgeted amount. Although some expenditures came in under
budget, the result was still that actual total expenses exceeded budget. This is either an
issue with inappropriate financial planning/forecasting or expenditure control.
Municipalities must operate within its annual budget allocations to maintain long-term
fiscal sustainability, barring unforeseen emergencies.
Long-range financial forecasting is a best practice utilized by many public agencies. In

reviewing the Town’s available documents, it does not appear that forecasts are currently
generated by staff for review by the Select Board and the public. Implementing a five-year
forecasting model would be beneficial for determining both requisite revenue and
anticipated expenditure planning purposes and increase fiscal transparency.
The Town’s 2024 Financial Supplement is a well-crafted document that achieves its stated
objective of providing a communication tool for the public to understand operations and
the financial plan better. It is a very good step toward enhancing fiscal and operational
transparency.
A forensic audit exceeds this project's scope and AP Triton's expertise. However, given the
issues identified during our review of the financial practices, it may be prudent for town
administration to consider a comprehensive audit of policies, procedures, and practices.
17
Financial Findings
• Although Putney has a Financial Procedures Manual, no documentation regarding
a Purchasing Policy/Purchase Order System was found. This is an issue townwide, not
just for the Fire Department.
• The Fire Chief appears to be submitting for expenditure payments and expense
reimbursements without the proper supporting documentation.
• Nobody is clear on the role and responsibilities of the PVFA. Additionally, activities
related to revenue collection for and expenditures associated with town assets are
unknown to town administration.
• The Fire Department does not have a Capital Improvement Plan (CIP).
• The inspection fee revenue does not seem to match the number of inspections
indicated in the annual reports.
• The Town lacks an Asset Management Policy and associated Asset Management
System.
• No agreements are in place formalizing the private school contributions.
18
Capital Facilities & Apparatus

Apparatus and other vehicles, trained personnel, firefighting and emergency medical
equipment, and fire stations are the essential capital resources necessary for a fire
department to carry out its mission. No matter how competent or numerous the firefighters
are, if appropriate capital equipment is unavailable for operations personnel, it would be
impossible for PFD to perform their responsibilities effectively. The essential capital assets for
emergency operations are facilities, apparatus, and other emergency response vehicles.
This report section entails a basic assessment of PFD’s fire station and frontline apparatus.
Fire Station Features

Fire stations play an integral role in delivering emergency services for several reasons. To a
large degree, a station’s location will dictate response times to emergencies. A poorly
located station can mean the difference between confining a fire to a single room and
losing the structure or survival from sudden cardiac arrest. Fire stations also need to be
designed to adequately house equipment and apparatus and meet the needs of the
organization and its personnel.
Fire station activities should be closely examined to ensure the structure is adequate in size
and function. Examples of these functions can include the following:
• Kitchen facilities, appliances, and storage
• Residential living space and sleeping quarters for on-duty personnel (all genders)
• Bathrooms and showers (all genders)
• Training, classroom, and library areas
• Firefighter fitness area
• The housing and cleaning of apparatus and equipment, including decontamination

and disposal of biohazards
• Administrative and management offices, computer stations, and office facilities
• Public meeting space
In gathering information from the fire department, Triton asked PFD to rate the condition of
its station using criteria from the following figure. The results are shown in the figure that
follows.
19
Figure 6: Criteria Utilized to Determine Fire Station Condition

Like new condition. No visible structural defects. The facility is clean and
well-maintained. The interior layout is conducive to function with no
Excellent unnecessary impediments to the apparatus bays or offices. No significant
defect history. Building design and construction match the building’s
purposes. Age is typically less than ten years.
The exterior has a good appearance with minor or no defects. Clean

lines, good workflow design, and only minor wear on the building interior.
Roof and apparatus apron are in good working order, absent any
Good
significant full-thickness cracks, crumbling of the apron surface, or visible
roof patches or leaks. Building design and construction match the
building’s purposes. Age is typically less than 20 years.
The building appears structurally sound with a weathered appearance

and minor to moderate non-structural defects. The interior condition
shows normal wear and tear but flows effectively to the apparatus bay or
Fair offices. Mechanical systems are in working order. Building design and
construction may not match the building’s purposes well. Shows
increasing age-related maintenance but with no critical defects. Age is
typically 30 years or more.
The building appears cosmetically weathered and worn with potential

structural defects, although not imminently dangerous or unsafe. Large,
multiple full-thickness cracks and crumbling concrete on the apron may
exist. The roof has evidence of leaking and multiple repairs. The interior is
Poor
poorly maintained or showing signs of advanced deterioration with
moderate to significant non-structural defects. Problematic age-related
maintenance and major defects are evident. It may not be well-suited to
its intended purpose. Age is typically greater than 40 years.
Putney Fire Station

The following figure describes the various features and conditions of the Putney Fire
Department’s single fire station.
20
Figure 7: Putney Fire Station

Address/Physical Location: 21 Carl Snyder Drive, Putney, VT 05346
General Description:
The fire station is in excellent condition with the
potential for future expansion including living
quarters on the second floor.
Structure
Date of Original Construction 2005
General Condition Good
Seismic Protection No
Auxiliary Power LPG generator
ADA Compliant Yes
Number of Apparatus Bays Drive-Throughs 0 Back-Ins 5 Total Bays 5
Total Square Footage First floor 11,400; Second floor 5,025; Total 16,425
Facilities Available
Sleeping Quarters Bedrooms 4 Beds 8 Dorm Beds 8
Maximum Staffing Capability 8 (Total number of staff that can be housed at station)
Bathroom/Shower Facilities 3
Gender Segregation (Y/N) Bathrooms Y Showers Y Bedrooms Y
Exercise/Workout Facilities Yes
Kitchen Facilities Yes
Individual Lockers Assigned PPE lockers
Training/Meeting Rooms Yes
Washer/Dryer/Extractor Yes
Safety & Security
Station Sprinklered Yes
Smoke & CO Detection Yes
Decon & Biological Disposal Yes
Security System No
Apparatus Exhaust System Yes
21
Putney Fire Station Overview

PFD deploys its personnel and apparatus from a single Figure 8: Upstairs Workout Room
facility—Station 38. Built in 2005, the station is in overall
good condition. The first floor consists of a training
room, two offices, an emergency management
conference room, and a kitchen area. The second
floor is being renovated by fire personnel to include
bedroom and kitchen facilities, including a workout
room and additional storage rooms. The station
cannot house firefighters on the second floor until the
construction is completed. Rather than utilizing
volunteer firefighters, the Town should consider using a
licensed contractor to finish the second floor of the
fire station.
Figure 9: Boiler & Fire Pump Room
The boiler and sprinkler room for the station were well-
maintained. Heating Oil #2 is stored in this room for
the boiler. The fire suppression system was inspected,
and an inspection tag was attached (July 2023). The
water heater and exit pathways always need to be
kept clear.
The elevator was built for Americans with Disabilities Act (ADA) compliance for the public,
with the current inspection certification in the elevator mechanical room. However, the
elevator held building materials and other items that should be removed immediately. The
fire station’s elevator should always be kept operable and clear.
22
Pumper Hall/Apparatus Bay Area

The pumper hall/apparatus bay area was clean and maintained. Each firefighter is
assigned an open locker inside the pumper hall for their turnout gear, portable radio, and
other personal equipment. All battery banks for battery-operated tools are stored in the
back of the apparatus bay.
Figure 10: Gear Lockers in Apparatus Bay
The station is equipped with a decontamination shower (open to the station at the top), a
utility sink, and an extractor washer. Turnout gear and boots are hung on racks to dry.
The fire hose stands out as a crucial tool in the realm of firefighter, making its maintenance
equally essential for extending its lifespan and ensuring optimal performance. Every time a
firefighter picks up the department’s hose, the firefighter can pick up harmful chemicals,
and, if not properly cleaned, can grow mold and mildew. To achieve this, it is imperative to
undertake proper care, cleaning, and storage practices. Implementing a straightforward
approach, Putney employs a specialized hose cleaner to effectively clean fire hoses of
diverse sizes.
Vehicle exhaust systems are used for all diesel-powered apparatus. NFPA 1500: Standard
on Fire Department Occupational Safety, Health, and Wellness Program indicates that fire
departments are obligated to protect firefighters from exposure to vehicle exhaust
emissions by using systems that capture the exhaust. This system also protects firefighter
turnout gear exposed to diesel exhaust in this apparatus bay.
Turnout gear is washed in an extractor dryer at the back of the station. The washer is
adequate for the size of the department. PPE is hung up in the station to be dried. In recent
years, more attention has been placed on the service life and condition of turnout gear.
23
Studies carried out over the past several years suggest that retained contamination in used
gear may be contributing to extended firefighter exposure to harmful substances that are
known or suspected to cause cancer. To meet the current recommendations from NFPA
1500 for PPE on turnout gear cleanliness, turnout gear should be washed after every fire
and if any medical contamination (blood, fluids, etc.) occurs on the gear.
NFPA 1851 also defines advanced cleaning as a form of PPE care. This type of cleaning
must be done at least once a year and whenever gear is exposed to soiling at a fire,
according to the manufacturer’s recommendations.
Figure 11: Equipment Room
The equipment, PPE, and EMS rooms are used to store
spare equipment, turnout gear, and EMS supplies. The
room is kept locked with only three personnel having
the ability to enter. The equipment room holds an
extensive amount of extra and possibly broken
equipment. Good organization of equipment and
storage areas is essential for quick access. Properly
labeled and organized storage areas can prevent
placing broken and retired equipment back on an
apparatus.
Figure 12: Flammable Lockers

in Equipment Room
Flammable lockers in the same room have a large

number of products on top of the lockers. The room has
not been inventoried and organized to work effectively.
24
Currently, the cascade/filling system for SCBA air Figure 13: Air Compressor Cylinders
cylinders is 28 years old and in critical need of
replacement from a life cycle standpoint (10–14
years) and from a mechanical perspective. There
is immediate concern that the system may be
damaged beyond mechanical repair, requiring
personnel to fill air cylinders in Brattleboro or
Dummerston Fire Departments.
Putney Fire Department is working towards an

environmentally friendly fire service, replacing gas-
powered small tools with battery-operated tools.
However, some chainsaws are still gas-powered, and a large generator is mounted to
Engine 1 and Ladder 1 to power electric positive-pressure fans. Older electric smoke
ejectors are still being carried on apparatus and should be removed as the ventilation
efforts provided by positive pressure fans are more effective.
PFD Apparatus Inventory

Fire apparatus and other emergency response vehicles must be sufficiently reliable to
transport firefighters and equipment rapidly and safely to an incident scene. In addition,
such vehicles must be properly equipped and function appropriately to ensure that the
delivery of emergency services is not compromised.
As a part of this study, Triton requested that PFD provide a complete inventory of fleet
(suppression apparatus, command and support vehicles, specialty units, etc.). For each
vehicle listed, the fire department was asked to rate its condition utilizing the criteria
described in the following figure.
25
Figure 14: Criteria Used to Determine Apparatus & Vehicle Condition

Components Points Assignment Criteria
One point for every year of chronological age, based on
Age:
the date the unit was originally placed into service.
Miles/Hours: One point for every 10,000 miles or 1,000 hours
1, 3, or 5 points are assigned based on the service type
Service: received (e.g., a pumper would be given a 5 since it is
classified as severe duty).
This category considers body condition, rust, interior
Condition: condition, accident history, anticipated repairs, etc. The
better the condition, the lower the assignment of points.
Points are assigned as 1, 3, or 5, depending on the
frequency a vehicle is in for repair (e.g., a 5 would be
Reliability: assigned to a vehicle in the shop two or more times per
month on average, while a 1 would be assigned if in the
shop on average once every three months or less.
Point Ranges Condition Rating Condition Description
Under 18 points Condition I Excellent
18–22 points Condition II Good
23–27 points Condition III Fair (consider replacement)
28 points or higher Condition IV Poor (immediate replacement)
The following figure lists the inventory of the Putney Fire Department’s current frontline
apparatus and other vehicles.
Figure 15: PFD Frontline Fleet Inventory (2023)

Unit Type Manufacturer Year Condition Features
Engine 1 Type 1 E-One 2006 Fair 1000 gal.,1500 gpm
Engine 2 Type 1 E-One 1994 Fair 1000 gal.,1250 gpm
Tanker 1 Tanker E-One 1998 Good 2000 gal.,1250 gpm
Ladder 1 Ladder E-One 1994 Good 110’ aerial; no pump
Brush 1 Brush Ford 2009 Good 275 gal., 200 gpm
Squad 1 Squad Chevrolet 2019 Good Primary EMS & Rescue
ATV 1 ATV Polaris 2016 Excellent 60 gal., pressure pump
Car 1 Command Chevrolet 2016 Fair Assigned to Chief
26
The preceding figure shows that PFD’s two frontline engines are in “Fair” condition with a
combined average age of 23 years. The remaining apparatus are in “Good” condition,
with the all-terrain vehicle (ATV) in “Excellent” condition.
Apparatus Maintenance & Replacement Planning

No piece of mechanical equipment or vehicle can be expected to last indefinitely. As
apparatus and vehicles age, repairs become more frequent and complex. Parts may
become more difficult to obtain, and downtime for repair and maintenance increases.
Since fire protection, EMS, and other emergencies prove critical to a community,
downtime is one of the most frequently identified reasons for apparatus replacement.
In Annex D of NFPA 1901: Standard for Automotive Fire Apparatus (now recognized as
NFPA 1900: Standard for Aircraft Rescue and Firefighting Vehicles, Automotive Fire
Apparatus, Wildland Fire Apparatus and Automotive Ambulances), there are
recommendations for the life cycle of frontline and reserve fire apparatus. It suggests that
the apparatus should serve on the frontline for 15 years before transitioning to reserve
status.
If fire apparatus exceeds this 15-year mark, a thorough evaluation to determine suitability
for refurbishment should be carried out in accordance with NFPA 1912: Standard for Fire
Apparatus Refurbishing. NFPA 1901’s Annex D recommends that apparatus over 25 years
old be retired from the vehicle fleet.6 The age of the PFD fleet is shown in the following
figure.
Figure 16: PFD Apparatus Ages

Unit Years of Age
Engine 1 17 years
Engine 2* 29 years
Tanker 1 25 years
Ladder 1 29 years
Brush 1 14 years
Squad 1 4 years
ATV 1 7 years
Car 1 7 years
Average Age 16.5 years
*Refurbished in 2014.
27
The ages of Engine 2, Tanker 1, and Ladder 1 are now over 25 years, while Engine 1
exceeds 15 years of age. It is necessary to either replace these vehicles or completely
remove them from the fleet.
With so many improvements in firefighter safety in the last 20 years, these vehicles are not
equipped with the safeguards available on current apparatus. These improvements
include, but are not limited to:
• Enhanced Siren Technology—Apparatus produce more focused and directional

sound, providing deep tones to penetrate other vehicles and alert drivers and
pedestrians of an approaching apparatus.7
• Advancement of Visual Cues—Manufacturers have produced more effective and

visible lighting and Chevron Striping for apparatus, allowing them to be seen more
easily at night.
• Safety Restraining Features in the Cab—Improved seat belt features for each
firefighter and provided cabinets and closed compartments to secure equipment
inside the cab to reduce injuries to firefighters in the event of a vehicle rollover.
• Aerial Safety Features—Manufacturers have improved master stream nozzle features

using fog nozzles mounted to the tip of the ladder or basket and the ability of the
turntable operator to take over ladder operations if the tip operator is injured or
overcome by smoke conditions.
Safety and Security Considerations

Safety extends beyond the age of the apparatus, and other maintenance and inspection
requirements must be considered regularly.
Fleet Maintenance
Some of the Putney Fire Department’s maintenance is done internally but is limited by the
capability of personnel. Most of the larger and more complex projects are outsourced. The
ladder on the 100-foot aerial is tested regularly, and pump testing recommended by NFPA
1911 is completed annually.8 However, preventative maintenance on most other
apparatus is not routinely performed, nor are daily vehicle checks completed.
The Putney Fire Department needs to develop a formal apparatus maintenance policy
and procedures and ensure they are followed. In addition, testing needs to be completed
regularly on its SCBAs, ground ladders, and hose.
28
Hose Inventory & Testing

PFD need to perform a comprehensive inventory of every fire hose section, documenting
crucial details such as their age, annual testing history, maintenance records, potential
contamination, and retirement status. Presently, there is a lack of a systematic approach to
label fire hoses for inventory or annual testing, and none of the hoses display visible test
markings. To address this, PFD should establish a set policies and procedures in
accordance with NFPA 1962 Standard for the Care, Use, Inspection, Service Testing, and
Replacement of Fire Hose, Couplings, Nozzles, and Fire Hose Appliances. This standard
outlines guidelines for care, use, inspection, service testing, and replacement of fire hoses,
couplings, nozzles, and fire hose appliances.
Annual Ladder Testing

To ensure the reliability and safety of fire ladders, regular testing is imperative. This involves
a thorough examination of various aspects such as structural integrity, stability, locking
mechanisms, and overall functionality. Routine testing should adhere to established
standards and guidelines, incorporating procedures outlined in relevant NFPA safety
protocols. This proactive approach not only verifies the operational effectiveness of fire
ladders, but also identifies any potential issues that might compromise their performance
during emergency situations. Regular testing is a fundamental aspect of maintaining a
robust and dependable fire response infrastructure.
Another proactive measure for enhancing fire safety are the heat sensors placed on
ladders. These sensors are designed to detect elevated temperatures, serving as an early
warning system for potential fire hazards. By incorporating heat sensors into ladder systems,
emergency responders can look for heat degradation hazards during periodic inspection
and cleaning of the ladders, as the heat sensor will turn from an orange color to a black
color if the ladder has been compromised.
At present, the essential testing and cleaning procedures for ground ladders are not being
implemented. The ladders exhibit significant direct accumulation, suggesting a lack of use
or cleaning. Additionally, during the apparatus inspection, it was noted that the heat
sensors on the ground ladders had reached their expiration in 2006. It is imperative that the
fire department’s ground ladders adhere to the current edition of NFPA 1932, The Standard
on Use, Maintenance, and Service Testing of In-Service Fire Department Ground Ladders.
These inspections play a vital role in upholding the utmost safety standards and protection
for firefighters.
29
Figure 17: Ground Ladders on Engine 2
Facility Access Security

Fire departments and other emergency services rely on Knox Box systems as a secure and
efficient means to access properties during emergencies Knox Box, a trusted provider of
key boxes for first responders, employs robust security measures to safeguard access keys
within these boxes. Each Knox Box is designed to be secured to a facilities building with
durable materials and a tamper-resistant construction, ensuring protection against
unauthorized access.
The keys stored in Knox Boxes are typically accessible only by authorized emergency
personnel who possess corresponding master keys in each apparatus. Additionally,
stringent key management protocols and authentication procedures contribute to
preventing misuse or unauthorized duplication of keys. Regular audits during building
inspections, monitoring, and adherence to best practices further reinforce the security of
Knox Box keys, underscoring their role in facilitating swift and secure access for first
responders when needed.
During Triton’s inspection of PFD’s facility and apparatus, facility keys were found hanging
from various locations, compromising the security of these keys and master entry cards.
30
Figure 18: Security of Facility Keys
Cleanliness & Maintenance of Compartments & Small Equipment

In today’s world, fire departments are cleaning and disinfecting the inside and outside of
fire units more frequently. Units must be cleaned to remove germs, dirt, and impurities from
surfaces, objects, and apparatus. Putney Fire Department’s apparatus, compartments,
and small equipment overall were clean and well-maintained.
Emission Control of Diesel Engine Exhaust

In 1994, the EPA began strengthening Figure 19: Diesel Engine Exhaust Eliminators
emission limits for diesel engine exhaust. The
International Agency for Research on
Cancer (IARC) identifies diesel engine
exhaust as “carcinogenic to humans,”
linked to an increased risk of lung cancer
and a possible association with bladder
cancer. PFD utilizes a diesel exhaust
removal system with quick release for safe
and effective extraction of fumes and
gases in the apparatus bay area.
31
Aerial Ladder Safety Issues & Maintenance

Ensuring the safety and optimal functionality of aerial ladders involves a comprehensive
approach to maintenance. Regular inspections are imperative, encompassing a thorough
examination of structural components, mechanical systems, and safety features. Routine
checks should include inspecting hydraulic systems, verifying the integrity of extension and
retraction mechanisms, and assessing the condition of stabilizing outriggers. Lubrication of
moving parts and addressing any signs of wear and damage are crucial for prolonging the
lifespan of the aerial ladder.
Furthermore, adherence to manufacturer guidelines and industry standards, including

those outlined in NFPA 1901 is essential. Regular training for personnel on proper operation
and safety protocols enhances overall performance and minimizes risks associated with
aerial ladder use.
During inspection of PFD’s aerial ladder the following was noted:
• The ladder of the apparatus is tested annually and has passed certification
consistently.
• The ladder and turntable base had a significant build-up of dirt. The ladder also
showed signs of a hydraulic leak near the base of the ladder.
• The ladder is not piped for water supply on the ladder Figure 20: Ladders
portion of the apparatus, requiring a firefighter to
manually attach a master stream device and large-
diameter supply line to the ladder. The firefighter must
stay on the tip of the ladder to operate the smooth-
bore nozzle.
• No water curtain is available under the ladder to

protect the firefighter from possible flame
impingement.
• The ladders and jacks of this ladder should be

exercised weekly and documented.
32
Personal Protective Equipment (PPE) Inspections

PPE, including firefighting protective coats, pants, hoods, helmets, gloves, and boots,
should be routinely inspected to ensure it is in good condition and functioning properly,
reducing the safety and health risks associated with these when they are poorly
maintained, contaminated, or damaged. Any damaged or worn-out PPE should be
replaced immediately. Proper inspection documentation should be kept on all pieces of
PPE assigned to each firefighter.
Protective equipment should be inspected for the following:
• Soiling
• Contamination
• Physical damage
• Rips, tears, and cuts
• Damaged or missing hardware and closures
• Thermal damage
• Damaged or missing trim
• Seams becoming un-sewn and missing or broken stitches.
• The Putney Fire Department should establish a policy in compliance with the current
edition of NFPA 1851, Standard on Selection, Care, and Maintenance of Protective
Ensembles for Structural Fire Fighting and Proximity Fire Fighting.
PFD Apparatus Replacement Discussion

Many fire departments use a 20-year (15 years frontline, five years in reserve) life
expectancy for Type 1 engines. NFPA Standard 1911 generally says that a 10 to 15-year life
expectancy may be normal for a frontline engine.9 This is also supported in a publication by
the Fire Underwriters Survey™ (FUS): Insurance Grading Recognition of Used and Rebuilt Fire
Apparatus.
The FUS publication says that, in some cases, a 15 to 20-year lifespan may be a more
realistic time frame for less frequently used fire apparatus—so long as the apparatus meets
the recommended annual service and acceptance level tests and has been deemed in
excellent mechanical condition.
33
Putney Engine 1 is 17 years old, Engine 2 is 29 years old, and Ladder 1 is 25 years old.
Considering the NFPA recommendations, the engines and ladder truck are likely beyond
their life expectancy as frontline apparatus.
At the time of this study, there were long delays in fire apparatus build times among the
manufacturers—ranging from 24 to 36 months for final delivery. Therefore, it is imperative for
fire departments that will need to replace apparatus to initiate the process as soon as
possible.
Other Capital Equipment

Medical & Rescue Equipment
PFD maintains one 2011 refurbished Physio-Control® (now Stryker®) Lifepak® 12 cardiac
monitor/defibrillator with 12-lead capabilities and measurement of oxygen saturation
(SpO2), end-tidal carbon dioxide (etCO2), and blood pressure. In addition, the department
has two 2009 Cardiac Science POWERHEART® G3 Automated External Defibrillators (AED).
In addition, the department utilizes an assortment of hydraulic rescue tools with a cutter,
spreader, RAM, and other tools. It also has a Res-Q-Jack stabilization strut package.
Other Capital Equipment

The Putney Fire Department maintains the following capital equipment:
• Bullard NXT Thermal Imaging Camera (TIC) (2020)
• Bullard Eclipse TIC (2014)
• Bullard T3 TIC 2017
• Scott SCBA Package—20 Units
• Scott RIT III (2020)
• SCBA 4-Bottle Cascade System (1982)
• Electric Hose Washer (1980)
• PPE Washer/Extractor (2018)
• Brush Skid Unit (2008)
34
Service Delivery & Performance

A measure of performance achievement lies in the equilibrium between resource
allocation and service utilization. The Town of Putney is tasked with the responsibility of
harmonizing fiscal prudence with performance expectations for the provision of
emergency services. This section presents a statistical examination of the fire and EMS
service delivery provided by the Putney Fire Department (PFD). During the site visit
conducted from November 14-16, 2023, PFD confirmed the accuracy of the following
statistical information.
Incident Data Issues

The figures representing service demand were primarily sourced from three channels: the
fire department's internal records management systems (RMS), CAD records, and call
volumes, as reported in the AP Triton survey tables. These primary data sources were limited
to three years, with certain specific data elements unavailable. A significant loss of data
occurred when Putney Fire Department transitioned from its previous records management
system (RMS) to ESO software. Collecting precise and reliable data is paramount in
assessing service delivery performance. Despite these limitations, there needed to be more
adequate data available for evaluating the efficiency and effectiveness of emergency
fire service delivery.
Service Demand
The following statistics illustrate the workload over the past four years. Typically, emergency
medical response calls constitute most of the call volume. From an amalgamated
perspective, fire-related responses increased by approximately 33% from 2019 to 2022.
There was a slight dip in call volume in 2020, attributed to the COVID-19 pandemic. For the
purposes of this evaluation, 2020 is considered an outlier. The implications of the COVID-19
pandemic on overall service demand remain unclear, but preliminary data suggests an
increase in service demand for 2023.
35
The following figure shows the breakdown of incident types for 2022.
Figure 21: Incident Breakdown by Percentage (2022)

Other 2-8-9
2.7% Fires
False Alarm/Calls
5.3%
14.8%
Good Intent
3.9%
Service Calls
11.1%
EMS & Rescues

55.8%
Hazardous
Conditions
6.5%
Temporal Variation
An analysis of incidents over time reveals when the highest demand for EMS services
occurs. The following figures depict how activity and demand fluctuate based on various
time parameters. This analysis was conducted using incident data from 2020 to 2022
provided by PFD.
Figure 22: Service Demand by Month (2020–2022)

14.00%
12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00%
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
2020 2021 2022 Average
36
PFD experiences consistent call volume throughout the year, with the lowest call volume
recorded in January and peak demand reaching 10.14% in July. There may be an
opportunity to increase staffing during the summer to accommodate the seasonal upswing
in demand. Additionally, the data indicates a slight dip in call volume on Saturdays and
Sundays, as shown in the following figure, which can affect the scheduling of training and
other essential duties throughout the week.
Figure 23: Service Demand by Day of the Week (2020–2022)

25.00%
20.00%
15.00%
10.00%
5.00%
0.00%
Sun Mon Tue Wed Thu Fri Sat
2020 2021 2022 Average
Moreover, a graphical representation illustrates the service demand by the hour of the
day, revealing a notable increase in service demand on Fridays, particularly around 10:00
am.
Figure 24: Service Demand by Hour of the Day (2020–2022)

12.00%
10.00%
8.00%
6.00%
4.00%
2.00%
0.00%
00 01 02 03 04 05 06 07 08 09 10 11 12 13 14 15 16 17 18 19 20 21 22 23
2020 2021 2022 Average
37
Spatial Analysis
In addition to temporal analysis, AP Triton examined the geographical distribution of
service demand, resource allocation assessment, measurement of Insurance Services
Office (ISO) response capabilities, and population distribution across the jurisdiction.
Geographic Service Demand

The density of incidents is visualized in the following figure, with varying colors representing
the number of incidents per square mile. The map in the following figure illustrates the
locations and the intensity of service demand.
Figure 25: EMS Service Demand Incident Density (2019–2022)
Service demand is dispersed widely throughout the response area, with higher incident
density concentrated in the south-central part of the Town. As expected, areas with higher
incident density tend to align with areas of higher population density.
38
Distribution Analysis
Two methods for evaluating the distribution of fire department resources within a jurisdiction
are employed. The first method adheres to the Insurance Services Office (ISO) criteria,
which determines compliance with the Fire Suppression Rating Schedule (FSRS). The
second method, used by the National Fire Protection Association (NFPA) and the Center
for Public Safety Excellence (CPSE), defines desired response time standards and measures
compliance with those standards. Geographic Information System (GIS) analysis is
instrumental in evaluating the effectiveness of station locations concerning response time.
ISO Criteria
The ISO is a national insurance industry organization responsible for assessing fire protection
in communities. ISO evaluates various aspects of fire protection, categorizing them into four
major categories: emergency communications, fire department, water supply, and
community risk reduction. Following an on-site evaluation, ISO assigns a Public Protection
Classification (PPC®) number to the community, ranging from 1 (excellent protection) to 10
(no protection). PFD currently holds an ISO rating of 5/9, fire suppression capabilities within
Putney's town limits.
A community's ISO rating has significant implications for fire insurance costs for residents
and businesses. To qualify for a PPC rating better than 10, a structure must be within five
road miles of a fire station. Areas beyond this radius typically receive a class 10 rating unless
the fire department can demonstrate that adequate fire flow is available. ISO also
evaluates the percentage of the community within specific distances of engine/pumper
companies (1.5 miles) and aerial/ladder apparatus (2.5 miles).
ISO also considers the availability of sufficient water supply for fire extinguishing. The
presence and distribution of fire hydrants are assessed, and structures located outside a
1,000-foot radius of a hydrant are subject to separate ratings. Demonstrating adequate fire
flow is essential for structures in such areas, regardless of the method used to achieve it.
39
The following figures depict the ISO travel capabilities and engine/truck capabilities.
Figure 26: ISO 1.5, 2.5, and 5-mile Engine/Truck Travel Capabilities
Travel Time Analysis

The second standard for assessing resource distribution employs travel time criteria. The
following figure displays a travel time model from current station locations over the existing
road network. Travel time calculations account for factors such as posted speed limits,
turns, intersections, and one-way streets.
NFPA Standards 1710 and 1720 recommend different travel times based on population
density. NFPA 1710 prescribes a travel time of 240 seconds (4 minutes) for an entirely urban
environment, while NFPA 1720 outlines response times for rural areas. The response times
vary depending on population density and the specific demands of the area.
40
Most departments, including those serving rural areas, find it impractical to apply the NFPA
1710 travel time universally. Instead, they adopt the 4-minute travel time for urban and
suburban zones and the NFPA 1720 response time for rural areas.
Figure 27: NFPA 1720 Response Time Recommendations

Minimum Staff Response Time Meets
Demand Zone Demographics
to Respond (minutes) Objective (%)
> 1,000
Urban Area 15 9 90
people/mi2
500–1,000
Suburban Area 10 10 80
people/mi2
Rural Area < 500 people/mi2 6 14 80
Travel distance ≥ Directly dependent
Remote Area 4 90
8 mi on travel distance
Determined by Determined by
Special risks Determined by AHJ 90
AHJ AHJ based on risk
Both standards recommend call processing time as one minute and turn out time for
staffed stations as one minute for EMS calls and 80 seconds for fire or special operations
calls. Call processing time is not reflected in the NFPA 1720 response time, so deducting
only the turnout time (1:20) from a 14-minute response time is 12 minutes, 40 seconds
(12:40). AP Triton has used a four and eight-minute travel time in the GIS analysis. An eight-
minute response is also shown with the four-minute travel time for comparison.
41
Figure 28: Travel Time Analysis 4 and 8 minutes
42
The maps in the preceding figures reveal that most of Putney Town limits can be reached
within a 4-minute or 8-minute travel time, indicating appropriate station locations.
However, it suggests the potential need for additional stations to achieve four-minute or
eight-minute response times in other areas of the jurisdiction.
Effective Response Force

Effective firefighting procedures necessitate the arrival of the complete initial assignment,
including sufficient personnel and equipment, within a reasonable timeframe. NFPA 1710
allows eight minutes to assemble the necessary firefighting team at the scene. For a
moderate-hazard fire in an urban environment, it is recommended to have 15 firefighters
on-site. Larger structures or commercial properties may require additional personnel. PFD
relies on mutual aid from neighboring departments to assemble an Effective Response
Force (ERF) within eight minutes of an initial alarm for most structure fires.
The following figure lists mutual aid organizations with response times of 10–20 minutes.
Figure 29: Mutual Aid Organizations with 10–20 Minutes Response Time
Department Station # No. of No. of
Station Address/City/State/Zip
Name (or name) Engines Aerials
Westminster Fire
1 Grout Avenue Westminster, VT 05158 3 2
Department
Brattleboro Fire
1/2 103 Elliot Street Brattleboro, VT 05301 4 1
Department
West Street West Dummerston, VT 05301
West
Dummerston 1/2 3 0
Fire Department East West Road, Dummerston Ctr, VT
05346
Guilford Fire
1 Guilford Center Road Guilford, VT 05301 2 0
Department
Bellows Falls Fire 170 Rockingham Street, Bellows Falls, VT
1 2 1
Department 05101
Vernon Fire
1 Fort Bridgeman Road Vernon, VT 05354 2 0
Department
NewBrook Fire
1 VT Route 30 Newfane, VT 05345 2 0
Department
Walpole Fire
1 278 Main Street Walpole, NH 03608 1 1
Department
Chesterfield Fire
1/2 492 Route 63 Chesterfield, NH 03443 3 1
Department
Hinsdale Fire
1 Depot Street Hinsdale, NH 03451 2 0
Department
Spofford Fire
1 9 Pontiac Drive Spofford, NH 03462 2 0
Department
43
The information provided demonstrates the reliance on neighboring agencies for

assembling an ERF. Future planning should consider cooperative services and potential
consolidation with neighboring agencies to enhance the ERF within the PFD system.
The following figure shows the mutual aid received and given from the neighboring
agencies over the past four years.
Figure 30: Fire and EMS Mutual Aid Received (2020–2022)

Mutual Aid/Automatic Aid Calls 2020 2021 2022
Mutual Aid Given 2 4 10
Mutual Aid Received 3 1 10
Automatic Aid Given 4 10 38
Automatic Aid Received — — 13
Net Total (Given - Received) 3 13 25
Reliability Study
This section focuses on unit utilization and comprises three types of analyses: unit utilization
based on call volume, concurrent service requests analysis, and unit hour utilization.
Unit Workload Analysis

Units that are very busy or already out when a second call occurs can result in increased
response times from remote units. The following process for evaluating apparatus response
determines the overall amount of time an apparatus is assigned to a specific incident. This
is a measurement from the initial dispatch time until the unit is available for another
incident.
Unit hour utilization (UHU) is one measure of workload calculated by dividing the total time
a unit is dedicated to all incidents by the total annual time. Expressed as a percentage, it
indicates the portion of time a unit is unavailable for a response.
44
The following figure presents call statistics for each apparatus within the PFD system in 2022.
Figure 31: Ambulance Utilization PFD Total Calls (2022)

Unit Count Total Average Utilization
38 Engine 1 77.00 12:47:23 0:47:22 0.69%
38 Engine 2 54.00 18:40:41 0:47:25 0.49%
38 Ladder 12.00 7:56:39 0:39:43 0.09%
38 Squad 1 215.00 20:52:12 0:32:37 1.33%
38 Truck 1 13.00 14:29:27 1:06:53 0.16%
The preceding figure shows limited utilization of apparatus and capacity for growth.
Concurrent Incidents
Another aspect of resource reliability is the frequency of multiple incidents occurring
simultaneously. The following figures illustrate the number of times multiple units are
assigned to incidents. The data from 2022 indicates numerous instances of concurrent
incidents, which can impact the Department's ERF during structure fires.
The following figure shows the number and percentage of concurrent calls for PFD.
Figure 32: Response Unit Concurrency Percentages (2023)

Incidents in Progress 2022
Single Incident 61%
Two Incidents 28%
Three Incidents or More 11%
Based on the information in the preceding figure, PFD has a 39% concurrency of two or
more incidents.
Response Performance
Response performance is a crucial aspect of emergency services delivery. Policymakers
and citizens seek assurance regarding the speed of emergency service delivery. AP Triton
recommends adopting national standards or establishing local response performance
benchmarks, considering the 90th percentile for comparison with NFPA standards.
45
In analyzing response performance, AP Triton employs percentile measurements to assess

response time performance. These measurements are derived from industry best practices
outlined by the Center for Public Safety Excellence (CPSE) and the National Fire Protection
Association (NFPA) standards 1710 and 1720. Percentile measurements offer a more
accurate representation of performance as they consider the performance of the majority
of data points, reducing the impact of outliers.
The “average” measure is a commonly used descriptive statistic called the mean of a data
set. The most important reason for not using the average for performance standards is that
it may not accurately reflect the performance for the entire data set and may be skewed
by outliers, especially in small data sets. One extremely good or bad value can skew the
average for the whole data set.
The “median” measure is another acceptable method of analyzing performance. This

method identifies the value in the middle of a data set and thus tends not to be as strongly
influenced by data outliers.
Percentile measurements are a better measure of performance because they show that
most of the data set has achieved a particular level of performance. The 90th percentile
means that 10% of the values are more significant than the value stated, and all other data
are at or below this level. This can be compared to the desired performance objective to
determine the degree of success in achieving the goal.
As this report progresses through the performance analysis, it is essential to remember that
each response performance component is not cumulative. Each is analyzed as an
individual component, and the point at which the fractile percentile is calculated exists in
a set of data unto itself.
The response time continuum—the time between when the caller dials 911 and when
assistance arrives—is comprised of several components:
• Alarm Processing Time: The time interval from receiving the alarm at the primary
PSAP until the beginning of the transmittal of the response information via voice or
electronic means to emergency response facilities or the emergency response units
(ERUs) in the field.
• Turnout Time: The time interval that begins when the emergency response facilities
and ERUs notification process starts by either an audible alarm, visual annunciation,
or both and ends at the beginning point of travel time.
46
• Travel Time: The time interval begins when a unit is enroute to the emergency
incident and ends when the unit arrives at the scene.
• Response Time: A combination of turnout time and travel time. This is the most
commonly utilized measure of fire department response performance.
• Total Response Time: The NFPA 1710/NFPA 1720 definition of Total Response Time is
the time interval from receiving the alarm at the dispatch center to when the first
emergency response unit initiates or intervenes to control the incident. For this
report, Total Response Time will be defined as receipt of the alarm at the dispatch
center until the arrival of the first fire department unit.
Figure 33: Response Time Continuum
Call Turnout Travel Time

Processi Time
Response Time
Total Response Time
The definitions for each population category follow the Center for Public Safety Excellence
(CPSE) standards for density: Urban (>2,000 persons per square mile), Suburban (> 1,000
persons per square mile), and Rural (<1,000 persons per square mile).
Incident data was limited due to inadequate computer-assisted data (CAD) from the
dispatch center. The Southwest Fire Mutual Aid of Keene Dispatch Center and State of
Vermont had a combined call processing time of 17 minutes and 14 seconds. The national
standard for call processing is one minute. Future planning should look for opportunities to
improve call processing time. The following figure shows response time excluding call
processing (90th percentile) for all service delivery categories 2019–2022.
47
Figure 34: PFD Response Time (2019–2022)
0:13:53
All Calls 0:13:20
0:14:52
05:20
Fires
05:00
0:13:36
EMS 0:12:31
0:12:36
0:13:45
MVC 0:13:45
0:13:21
0:15:00
0:13:16
Alarms 0:13:16
0:14:37
0:13:22
Other 0:12:33
0:14:44
0:15:00
0:00:00 0:03:00 0:06:00 0:09:00 0:12:00 0:15:00

NFPA Benchmark 2022 2019 2020 2021
Projected Population Growth & Future Service Demand

Population Growth Projections
According to the U.S. Census Bureau, the Town of Putney and the service response area
around the Town had a population of 2,609 in 2018. Over the past four years, there has
been minimal population growth, with the impact of the COVID-19 pandemic on future
growth yet to be fully understood. Projections are based on historical data and Esri
projection software, as shown in the following figure.
48
Figure 35: Town of Putney Population Projections (2018–2027)

2,800
2,750
2,746
2,700 2,719
2,632 2,692
2,650
2,609 2,609 2,616 2,614
2,640
2,600
2,614
2,550
2,500
2018 2019 2020 2021 2022 2023 2024 2025 2026 2027
ESRI Current ESRI Predicted at 0.99%
Based on the analysis in the preceding figure, the PFD response area will see a population
increase of 4.9% over the next five years. As previously mentioned, this is a conservative
estimate and does not account for future trends relating to the COVID-19 pandemic.
Service Demand Projections

To forecast future service demand, AP Triton utilized population projections for the Town of
Putney. Population tends to be a reliable indicator of service demand, with the current
service demand per 1,000 persons serving as a reference point for future service demand.
The following service demand projections are based on an estimated population of 2,756.
The following figures depict the projected EMS and overall service demand based on
population projections.
Figure 36: EMS Projected Service Demand (2027)

2,720 0.202
2,700 0.200
2,680 0.198
0.196
2,660
0.194
2,640 0.192
2,620 0.190
2,600 0.188
2023 2024 2025 2026 2027
Population Projection 2,639 2,654 2,671 2,686 2,703
Incident per Capita 0.201 0.199 0.197 0.195 0.193
49
Figure 37: Projected Service Demand (2018–2027)

2,720 580
2,703
2,700 558 559
2,686 560
2,671
2,680
530 2,654 540
2,660 530
2,640 509 527 520

2,639 525 521
2,632 523
2,620 494 500
2,616 2,614
2,600
2,609 2,609
480
2,580
2,560 460
2018 2019 2020 2021 2022 2023 2024 2025 2026 2027
Population* (ACS) 2,609 2,609 2,616 2,632 2,614 2,639 2,654 2,671 2,686 2,703
Total Incidents 558 494 509 559 530 530 527 525 523 521
Consistent with population growth, PFD anticipates minimal increase in incident volume
over the next five years.
50
Section II:
OPERATIONS & SUPPORT PROGRAMS
51
Emergency Medical Transport & System Oversight

This section delves into the provision of pre-hospital medical care, assessing the Emergency
Medical Services (EMS) offered by the Department. AP Triton conducted in-depth
interviews and analyzed departmental information to gain insights into the study area's
current and future EMS requirements. The primary objective is to evaluate the existing level
of pre-hospital care, anticipate future demands based on projected call volumes and
available resources, and address challenges within the EMS program while providing
recommendations and expected outcomes.
For over four decades, the fire service has played a pivotal role in delivering emergency
medical services. Pre-hospital medical care is a fundamental responsibility shared by 90%
of the 31,000 fire departments across the United States. While incidents related to
residential and commercial structure fires have decreased by 52% since 1980, EMS service
demand has consistently risen nationwide. The graph in the following figure, sourced from
the report's Service Delivery section, illustrates the shifting trends:
Figure 38: Town of Putney Percentage of Fire & EMS Calls (2022)
33%
67%
Fire EMS
The data aligns with national trends, with the majority of emergency responses being EMS-
related. Specifically, the service demand breakdown shows 67% for EMS and 33% for fire
incidents.
52
EMS Service Demand

Within the study area, approximately 291 EMS service calls were recorded for 2022. The
following figure provides a detailed breakdown of medical emergency incidents based on
available data:
Figure 39: PFD EMS Service Demand (2022)
Unconscious 1.0%
Nausea 1.0%
Laceration/Abrasion/Hematoma (minor… 1.0%
Heat Exhaustion 1.0%
Failure to Thrive (Adult) 1.0%
Extremity Pain 1.0%
Chest Pain, Other (Non-Cardiac) 1.0%
Cardiac arrest 1.0%
Transient Cerebral Ischemic Attack (TIA) 1.3%
Diabetic Hypoglycemia 1.3%
Suicidal Ideation 1.6%
Diabetic Hyperglycemia 1.6%
Behavioral/psychiatric episode 1.6%
Altered Mental Status 1.6%
Alcohol intoxication 1.6%
Pain (Non-Traumatic) 1.9%
Overdose - Unspecified 1.9%
Obvious Death 1.9%
Generalized Weakness 1.9%
Dehydration 2.3%
Cardiac arrhythmia/dysrhythmia 2.3%
Back Pain 2.3%
Dizziness 2.6%
Abdominal Pain 2.6%
Seizures with status epilepticus 2.9%
Overdose - Heroin 3.2%
Acute Respiratory Distress (Dyspnea) 3.9%
Chest Pain / Discomfort 4.2%
Syncope / Fainting 4.8%
Pain, acute due to trauma 5.2%
Injury 8.7%
Anxiety reaction/Emotional upset 8.7%
Other 20.3%
0.0% 5.0% 10.0% 15.0% 20.0% 25.0%
53
The criticality levels depicted in the figure underscore the importance of Advanced Life
Support (ALS) response in the EMS system.
The EMS System

PFD provides first responder, EMT, and AEMT first responder care for the Town of Putney.
Putney EMS utilizes one front-line engine and a squad staged at Fire/EMS Station One.
Rescue Inc., a private ambulance company, provides paramedic ALS response and
transport of patients to the hospital as needed.
Rescue Inc.
The current contract between the Town of Putney and Rescue Inc. outlines a fee-for-
service model amounting to $24.02 per resident, totaling $62,860 for 2022–2023. Under this
contract, Rescue Inc. submits individual service bills to patients based on local billing rates.
However, the contract lacks specific service requirements, including ambulance unit
availability, staffing levels, response time expectations, and financial repercussions for
service shortfalls. AP Triton suggests incorporating response standards in its renewal to
enhance the contract's effectiveness. It is also noted that the data provided by Rescue
Inc. lacked seconds for each timestamp, limiting statistical analysis. Future assessments
should include more granular data elements, including minutes and seconds.
Figure 40: Rescue Inc. 90th Percentile Response Performance (2022)

Turnout Time Travel Time Response Time On Scene Time
5:00 Minutes 19:00 Minutes 24:00 Minutes 27:00 Minutes
Based on the information in the preceding figure, there is an opportunity to improve overall
patient care with decreased time that care is provided on the scene. Most patient
criticality cannot be definitively managed until they arrive at an appropriate hospital and
are under physician care.
Dispatch and Mutual Aid

Both PFD and Rescue Inc. are dispatched by the Southwest Fire Mutual Aid of Keene. PFD
relies on EMS mutual aid from surrounding areas, with Golden Cross Ambulance, Walpole
FD/EMS, Keene FD, and Cheshire County EMS being the primary sources. The following
figure displays the EMS mutual aid resources available for the Town.
54
Figure 41: Town of Putney Fire/EMS Mutual Aid Resources

Department Name Station # Town EMS Mutual Aid
Golden Cross Amb. N/A Westminster VT Paramedic
West Dummerston Fire N/A Dummerston VT Basic
Walpole EMS N/A Walpole NH Paramedic
Brattleboro Fire N/A Brattleboro VT Paramedic
Air Medical Services

Dartmouth-Hitchcock Hospital provides emergency scene response and transport by
helicopter.
Hospitals & Tertiary Care Facilities

Brattleboro Memorial Hospital primarily serves patients from the Brattleboro area, while
those requiring a higher level of care are transported to Dartmouth-Hitchcock Hospital.
Figure 42: Hospital Facilities and Trauma Designation

Hospital Facility Trauma Designation
Brattleboro Memorial Hospital None
Dartmouth-Hitchcock Hospital Level 2
Central Vermont Medical Center None
University of Vermont Medical Center Level 1
Medical Community Demographics

Regional Medical Necessity Analysis
To understand and compare medical service demand within PFD's response area, it's
essential to analyze demographic data. The following figure highlights the leading causes
of death in Vermont compared to national rankings, aiding in identifying medical service
demand.
55
Figure 43: Leading Causes of Death in Vermont (2017)

Condition Deaths Rate State Rank U.S. Rate
1. Heart Disease 1,434 164.5 31st 165.0
2. Cancer 1,332 152.5 13th 152.5
3. Accidents 394 56.9 18th (tie) 49.4
4. Chronic Lower Respiratory Diseases 375 43.0 27th (tie) 40.9
5. Alzheimer’s disease 370 42.9 8th 31.0
6. Stroke 249 28.8 46th 37.6
7. Diabetes 163 19.2 38th (tie) 21.5
8. Suicide 112 18.3 19th 14.0
9. Hypertension 86 9.7 16th (tie) 9.0
10. Parkinson’s disease 81 9.7 8th 8.4
Vermont’s leading causes of death are heart disease, cancer, and trauma. Training
emphasis should be placed on EMS responses for these types of medical events.
Regional Medical Health Insurance Analysis

The community's demographics significantly influence the demand for emergency
medical services. Factors such as income, poverty levels, health status, population
demographics, and health insurance coverage are vital in driving service demand. The
PFD payor mix and available revenues for 2022 are as follows.
Figure 44: PFD Payor Mix and Transport Revenues

Payor Percentage
Medicare 50%
Medicaid 17%
Commercial Insurance 24%
Self-Pay 8%
Military 1%
56
Medical Control & Oversight

Emergency medical services extend beyond pre-hospital care, requiring seamless
coordination from the pre-hospital setting to the medical facility. EMTs and AEMTs operate
within a protocol-based system, occasionally seeking guidance from the Medical Program
Director when specific situations are not covered by established protocols. Traumatic
incidents may necessitate transportation to Level I or Level II trauma hospitals, potentially
involving helicopter or fixed-wing aircraft transportation. PFD operates under the protocol
and medical direction of the District 13 Medical Director.
Quality Management
PFD responds to a high percentage of EMS service requests but has limited quality
management measures in place. There's room for improvement in gathering
comprehensive patient care documentation, similar to other EMS organizations
nationwide. An opportunity exists for PFD to evaluate staffing, protocols, medications, and
procedures, balancing fiscal responsibility with the necessary service levels. Cost-benefit
analyses should be conducted for all resources not mandated by government regulations
or industry standards. The following two figures show the PFD system's utilization of
medications and procedures.
Figure 45: PFD Medication Utilization (2022)

Medication Utilization
ASA 19
Nitroglycerin 18
Albuterol 10
Duo-Neb 15
NaCl Administration 50
Narcan 17
Zofran 23
Epi 1:1000 2
Epi 1:10,000 6
D10 8
Acetaminophen 7
57
Figure 46: PFD Procedure Utilization (2022)

Procedure Utilization
IV/IO Access 80
OPA 5
NPA 0
Supraglottic Airway 4
ECG - 12 Lead 120
De-Fibrillation 9
BVM 15
Capnography 22
Tourniquet Application 2
The preceding procedures and medications should be evaluated based on a seven-step

analysis.
1. Measure utilization of procedure or medication—all other resources should be

based on the specific jurisdiction. The resources needed in a rural area frequently
differ from those needed in an urban area.
2. Identify the overall cost of supply or equipment.
3. Training (initial & continued)—The total cost of a resource is affected by the initial
and ongoing training needed for proficiency. The degree of training should be
considered in relation to a particular piece of equipment, medication taken, or
services rendered.
4. Reviewing a resource's perishability—medications have specific expiration dates,
and they can have financial implications if they are not used. Due to reliability or
technological advancements, technical equipment like cardiac monitors are also
prone to perishability.
5. Regional, state, and federal requirements can be a requirement regardless of other
factors.
6. Liability Analysis—evaluate the utilization of a medication or procedure compared
to the liability risk associated.
7. Measure efficacy—a statistical study must be carried out to ascertain the appraised
resource's overall effectiveness.
This analysis should involve the Medical Director, PFD leadership, and hospital emergency
department staff to inform decisions on resource utilization and purchasing.
58
Additionally, statistical data may support program expansion and budgetary increases. This
evaluation process indicated an opportunity for improvement regarding data collection
and analysis. Currently, PFD is using ESO for patient care reporting. The software will export
data to an Excel format if properly documented, and the data can be easily interrogated
to provide various evaluations. The following figure shows a minimal data set and potential
evaluation criteria that would be beneficial in making objective decisions.
Figure 47: Data Set & Quality Assurance Criteria
Time Study Efficacy Study Utilization Study
Data Sets Data Sets Data Sets

•Medication usage •Vital signs •Travel
•Procedures performed •Treatment success/failure •BLS On-Scene
•Expiration (waste) •ETCO2 •ALS On-Scene
•BLS Transport •ECG •Ambulance On-Scene
•ALS Transport •Pulse Ox •Enroute to Hospital
•Refusal •Advanced airway •Arrival Destination
•Treat and relaease •Outcomes •Medication and Procedure Times
•Average On-Scene Time
Evaluation (Quarterly) Evaluation (Quarterly) Evaluation (Quarterly)

•How quickly do patients receive •Were inadequate vitals managed •What medications/supplies are
ALS care? in a timely manner? being used and what volume
•What is the time delay between •What is the success/failure for all should be carried?
arrival of BLS and arrival of ALS? procedures performed? •Volume of medication and
•Is there a delay of transport for •Were respiratory emergencies procedures to determine
critical patients due to managed appropriately (ETCO2)? necessary inventory?
ambulance unavailability? •Was CPR effective (ETCO2)? •What is BLS vs. ALS transport?
•What is the average on-scene •Was current ACLS performed? •What volume/type of treat and
time for BLS, ALS, cardiac arrests, •What was the hospital disposition? release (indications for community
trauma? paramedic programs)?
•How quickly/how often are critical
medications administered?
•What is the average transport
time?
Logistical Support
Implementing an electronic inventory control system is recommended to enhance
inventory management. Utilizing bar code scanning, QR readers, or RFID technology, such
systems have proven cost-effective in minimizing expiration waste and lost supplies.
Additionally, they provide real-time inventories that assist crews in locating equipment and
supplies efficiently.
59
In conclusion, a comprehensive evaluation of the EMS system within the Town of Putney
highlights areas for potential improvement, emphasizing data collection, analysis, and
resource utilization. Strategic enhancements can result in more efficient and effective
emergency medical services delivery while optimizing resource allocation.
60
Fire Training & EMS Continuing Medical Education

Training forms the bedrock of all emergency services. The effective utilization of resources
and equipment hinges on the level of training provided to individuals within an
organization. This section offers an overview of the existing training program, encompassing
equipment, facilities, execution, and effectiveness.
Training Staff
Training is a pivotal component of a proficient department, yet, at present, the fire
department needs a dedicated training officer. Appointing a training officer can
consolidate training efforts and ensure that first responders receive comprehensive in-
house coordination.
General Training Competencies

The following summary outlines the general training topics and certification levels offered
by Putney Fire and EMS. The Department has limited Standard Operating Guidelines (SOGs)
with specified hour requirements for obtaining and maintaining various certification levels.
Figure 48: General Training Competencies by PFD/SEMS

Training Competencies PFD
Incident Command System NIMS ICS
Firefighter I/II 11/31
First Responder 8
EMT 3
AEMT 4
Paramedic 0
Accountability Procedures Yes (board)
Training SOGs Yes
Initial Training Academy (FF1, EMT) Yes (non-certification)
Special Rescue Training Internal
Minimal
HazMat Certifications
(Vermont State Hazmat)
Driving Program (EVOC) Internal
Wildland Certifications Minimal
61
PFD exhibits limited capacity to manage critical incidents with the available resources.
While the State of Vermont has minimal firefighter training and certification requirements,
PFD’s training program primarily focuses on recertification. The training requirements are
defined but appear inconsistent among individual members. The following figures illustrate
the total training hours received by EMTs and firefighters in 2022 and 11 months of 2023.
Figure 49: PFD Individual Training Analysis

450
400
350
300
250
200
150
100
50
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23
2022 2023 2 per. Mov. Avg. (2022) 2 per. Mov. Avg. (2023)
The analysis exposes inconsistencies in training hours for individuals between 2022 and 2023.
There has been a significant decrease in overall training, with most firefighters receiving
inadequate training to support safety during responses and fireground activities. Notably,
only five individuals received documented training of three hours on the 100' truck
apparatus over the past two years, which poses a risk to victims, bystanders, and
firefighters. AP Triton recommends evaluating the liability and efficacy of this truck in a
limited-capacity department.
62
Another area of concern is apparatus driver training. Driving heavy fire apparatus,
including engines and trucks, necessitates extensive training to prevent damage or injury to
the public. Of the 23 individuals listed in the training records, only 17 received driver training
in 2023, and half received one hour or less. This poses a substantial liability risk for the Town
of Putney. AP Triton recommends establishing a program with training topics and required
hours for individual responders, taking into account specific positions and minimal annual
training requirements.
Training Topics Discussion

The following figure outlines the general training topics and emphasis placed on each
discipline by PFD in 2022. While the analysis relies on provided data, incomplete training
records may affect its accuracy.
Figure 50: PFD Training Compared to Incident Analysis (2022)

Incident Type Training Incident
Fire 61.7% 7.3%
EMS 34.6% 50.8%
Hazmat 0.0% 5.8%
Rescue 18.6% 0.7%
Wildland 0.0% 0.7%
Other 12.1% 34.7%
This figure reveals an opportunity to enhance the department's annual training program.
Based on this information, additional training hours are recommended for low-incident,
high-risk events in the fire department, including Hazmat and Wildland scenarios. Despite
51% of all incidents being related to EMS, only 35% of training is allocated to patient care.
Given the limited call volume, the department could benefit from increased training hours.
Fire Training Program

PFD's hiring practice involves recruiting personnel and providing essential skills training
internally. Considering limited training resources, PFD should explore regional cooperative
services training programs to ensure volunteer firefighters acquire the necessary training for
safe and effective responses to fire emergencies.
63
Training Methodologies & Delivery

AP Triton suggests adopting a balanced EMS/Fire training program that includes focused,
required re-certification, immersion, and repetitive training.
Figure 51: Balanced Training Program
Re-
certification
Training
Training
Repetitive Focused
Training Program Training
Mobility
Immersion
Training
Immersion Training
Effective training often relies on immersion techniques that simulate real events, providing
participants with a high level of realism. This approach helps individuals become more
resilient to stress and better equipped to handle challenges. For example, active shooter
exercises involving volunteer victims wearing "cut suits" can simulate advanced procedures
while law enforcement secures the scene. Although such events can be labor-intensive
and cost-prohibitive due to overtime requirements, creating scaled-down, mobile
immersion training is a potential solution.
Training Repetition
Repetitive skills training has proven effective in improving skill mastery. King County,
Washington, has achieved a high success rate in advanced airway procedures through
repetitive skills training. While high-fidelity simulators are effective, they are expensive and
maintenance-intensive. Mid-fidelity manikins offer a cost-effective alternative, allowing for
repetitive skill practice and proper sequencing of interventions for EMTs and AEMTs.
64
Focused Training
A balanced training program should incorporate focused training based on retrospective
statistical data from actual incidents. This approach identifies areas for improvement
related to emergency responses. While regional and state certification requirements often
necessitate a disproportionate focus on high-risk/low-incident scenarios to maintain
fireground safety, there should be a concerted effort to focus on training related to service
demand when feasible.
Recertification Training
Recertification training should align with regional and state requirements, as non-
compliance is generally not an option. Organizations should conduct cost-benefit analyses
for various optional certifications when opportunities arise.
Training Delivery &/ Scheduling

PFD employs various training methodologies, but there is room for improvement in training
documentation.
Figure 52: Methodologies Utilized in Training

Training Methodologies PFD
Manipulative skills & tasks Minimal
Fire training hours requirements No
EMS training hours requirements No
Annual training hours tracked Yes
Use of lesson plans Limited
Night drills Limited
Multi-agency drills Limited
Disaster drills 4 years past
Pre-fire planning included Minimal
Considering the significant turnover within Putney Fire & EMS, which implies a level of
inexperience in providing service, future staffing challenges will necessitate a formalized
and consistent training program. AP Triton recommends developing a formal training
program with specific training operation guidelines, comprehensive lesson plans, and
detailed attendance documentation for each firefighter.
65
Training Facilities & Resources

Adequate training facilities and resources are essential to prepare for high-risk/low-
frequency events, such as structure fires. Current research underscores the importance of
focusing on these events. However, PFD has limited training resources. To promote fiscal
responsibility and efficiency, AP Triton suggests regionalizing training resources. Combining
training programs can enhance cost-effectiveness and foster interagency cooperation.
Figure 53: Training Facilities & Resources

Facilities & Resources PFD
Adequate training ground space Minimal
Training building/tower No
Burn room at the training building No
Live fire props Conex
Driver's course/rodeo No
SCBA obstacle course No
Adequate classroom facility Yes
Computers & simulations Yes
EMS equipment assigned to training Minimal
66
Support Programs—Special Teams

PFD provides services in a very dynamic environment, often requiring specialty response.
The county has numerous bodies of water, ranging from ponds to major rivers, which are
often susceptible to flooding. The region has rail services, including the New England
Central Railroad rail line, which also serves Amtrak’s Vermonter passenger rail lines. The
potential for hazardous materials incidents is high with extensive major roadways. Industrial
production, environmental events, and a suburban population contribute to the necessity
for technical rescue capabilities. Wildfire response is rare but may require a significant
requirement of resources.
Special Team Response Service Demand

Special team response is a staffing, apparatus, and equipment-intensive event. Moderate
to significant events generally require a coordinated regional response. The following figure
shows the breakdown of special team responses.
Figure 54: Special Team Response (2019–2022)

Incident Type Number
Hazmat 29
Wildland 9
Water Rescue 1
Technical Rescue 2
The following figure shows a graphic breakdown of special team responses by category in
2019-2021.
Figure 55: Special Team Response (2019–2021)
Water Rescue, 1 Tech Rescue, 2
Wildland, 9
Hazmat, 29
Hazmat Wildland Water Rescue Tech Rescue
67
The preceding figure supports that most special team responses are for hazardous
materials incidents. Currently, technical and water rescues are provided as part of the
ambulance contract with Rescue Inc. The following figure is a temporal perspective
showing the time of day when incidents requiring special teams' response occur.
Figure 56: Regional Special Team Response by Time of Day (2019–2022)

6
5
4
3
2
1
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23
Apparatus and Staffing for Special Teams

Incidents primarily occur from 8:00 am to 3:00 pm. As previously discussed, special team
response generally requires a large number of personnel and resources to mitigate the
specific event. The following figure shows the apparatus and staffing necessary for
moderate to high-risk events (hazmat, water rescue, technical rescue, or wildland).
Figure 57: Estimated Required Apparatus for Specific Special Team Response
Number of Apparatus
Incident Type Staffing Required
Required
Hazmat 27 10
Technical Rescue 14 6
Water Rescue 14 6
Wildland 40 11
Wildfire incidents require the highest number of apparatus and staffing. In addition to a
large number of personnel and apparatus necessary for special team responses, the
events were prolonged due to mitigation complexity. The increased requirement for
resources translates to increased concurrent incidents.
Special Team Resources

The following figure shows the location of specialty units within the Windham County
system.
68
Figure 58: PFD Special Team Units

Department Specialty Unit
Brattleboro Fire Heavy Rescue
Rescue Inc. Technical Rescue (High angle)
Rescue Inc. Swift Water/Ice Commander
State of Vermont Hazmat Haz-mat
As previously discussed, hazardous material incidents (Haz-mat)constitute the most

significant number of special team responses. The organization must continue focused
training and response to potentially significant Hazmat incidents. Wildland fires continue to
be a high-risk exposure and require substantial resources. The department must also
emphasize active killer events by increasing the number of individuals with appropriate
training.
69
Section III:
COMMUNITY RISK ASSESSMENT
70
All Hazards Risk Assessment

NFPA 1300, Standard on Community Risk Assessment and Community Risk Reduction Plan
Development (2020), defines community risk as the risk that pertains to the community,
including the aggregate potential of loss or damage to critical infrastructure, individual
properties, or stakeholders that could have a significant detrimental impact on the overall
community.
The all-hazards risk assessment for the Town of Putney will examine the greatest threats and
vulnerabilities within that community. Public safety departments must provide consistent
services and resources (personnel, equipment, and apparatus) to meet the demands of
the risk identified as having a potential community impact on lives and property.
Community resilience through a “whole community approach” occurs when the five
phases of emergency management—prevention, mitigation, preparedness, response, and
recovery—are considered to prevent, reduce, or eliminate identified risks, to reduce
consequences for first responders, residents, and visitors, and reducing property losses.
The fire service has identified risk factors for fire deaths over the last 50 years that continue
to challenge the concepts of community risk reduction regarding life safety, property
losses, and the environment. Fire investigations have proven that risk reduction
methodologies, including smoke alarms, self-closing fire doors, and automatic sprinkler
systems, continue to be compromised or non-existent. In fact, 60% of fatal residential fires
occur in homes without smoke detectors.10
Population and Demographics

Population and demographics are major influencers for the types of services provided in a
community. Social conditions such as poverty, the locations of high-risk areas, and housing
types can impact the service delivery provided by the Putney Fire Department.
71
Population
The Town of Putney is a combination of rural farming and a rural main village area with a
small amount of mixed manufacturing/warehouse businesses and small businesses. Putney
experienced steady growth between 1970 and 2000; however, there has been little
change in population in the last 20 years.11 In fact, the 2020 U.S. Census showed a
population of 2,617, a 3.15% decrease in population over the 2010 population of 2,702, the
first decline in a century. Like other small towns in Vermont, a natural demographic change
is occurring, causing an aging population for Putney—fewer people are moving to the
area, especially young people with children, and the median income will not support
rental or home ownership costs. Newcomers to the area are more likely older adults;
currently, there are more Putney residents over age 65 than under 18.12
The following figure shows the population estimates for each U.S. Census since 1980.
Figure 59: Putney Population (1970–2020)

3,000 30.00%
27.14%
2,500 2,702 25.00%
2,634
1,850 2,617
20.00%
Population
2,000 2,352
15.00%
1,500 1,727
11.99% 10.00%
1,000 7.12%
-3.15% 5.00%
2.58%
500 0.00%
0 -5.00%
1970 1980 1990 2000 2010 2020
Year
Population Percentage % Change
Population Density
The Town of Putney is a strong, supportive community with a 28 square miles (18,000 acres)
land area bordered by the Vermont towns of Westminster, Brookline, and Dummerston. The
Connecticut River is Putney’s eastern border. The majority of residential development is
considered to be very low-density residential development. Population density is 101
people per square mile (very low).13
72
In addition to population reductions, Putney sees very little new property development
annually. Zoning applications are increasing for change of use, especially for single-family
dwellings that are being changed to two-family and multi-family dwellings, subdivisions,
and additions to existing structures; however, few are requested for new construction.14
Putney Landing is an 18-unit townhouse constructed in 2018. There is a permit to build two
structures with 25 units in the Spring of 2024 in the Village which is mentioned in the CRR.
However, the March 2022 cost of living index in Putney is 98.4 (the U.S. average is 100).15
Over decades, the development of Putney has remained largely in the village. Some
development has expanded in recent years into the higher elevations of Putney, including
Bare Hill, Putney Mountain, and East Putney. Several land areas include open spaces and
agricultural lands (Connecticut River Valley, along Westminster and West Hill Road and
other pockets through Putney) that produce orchards and haying with a few dairy, cow,
and sheep operations. The following figure shows the population density for Putney,
Vermont.
73
Figure 60: Population Density for Putney, Vermont
At-Risk Populations
An area’s population has different residents at higher risk of fires and other unintentional
incidents. When an incident occurs, it affects service delivery for the department. The PFD
response area is considered rural, ranging from single-family homes, single-family homes
converted into multi-family dwellings, and multi-family apartments/condominiums to small
businesses and government buildings.
74
The National Fire Protection Association (NFPA) has identified groups with an increased risk
of injury or death from a fire or fire-related hazard, as indicated in the following:16
▪ Children under five years of age

▪ Older adults over 65 years of age
▪ People with disabilities
▪ Language barrier
▪ People in low-income communities
Data from the 2021 U.S. Census American Community Survey Data five-year estimates
identified several groups in these categories that are more likely to need emergency
services, specifically EMS, than other populations.17
Age
A person’s age is directly related to an increase in unintentional injuries or death from fire
and fire-related hazards. Older adults are 2.6 times more likely to die in a fire than the
overall U.S. population. The elderly or very old population increases service demand for a
fire department, mainly EMS services for medical care needs.18 Frequent calls involving
older people include medical incidents, accidents, service calls, and fires.
The Putney population over 65 is 19.2 percent (2020) in Putney, slightly lower than 19.4
percent (2020) in Vermont and higher than the United States' 16.0 percent. This high
percentage of an aging population will challenge Putney Fire Department.
In addition to the population over 65, the U.S. Census (2020) shows the old-age
dependency ratio at 29.6 in Putney compared to the old-age dependency ratio in
Vermont at 31.2. The old-age dependency ratio is derived by dividing the population 65
and over by the 18-to-64 population and multiplying by 100.
Children under five are at an even higher risk because this age group is unable to care for
themselves and needs additional assistance during an emergency. Recent trend data
(2018) from the U.S. Fire Administration indicates that this age group’s relative risk of dying in
a fire has dropped 30 percent in the last 10 years and is credited to increased fire
prevention education. The percentage of children under five in Putney is only 1.3 percent,
much less than the State of Vermont's 4.7 percent.
75
The following figure shows a comparison of these at-risk age groups.
Figure 61: High-Risk Age Groups (2020)

25.0%
20.0%
15.0% 19.2%
6.0% 19.4%
10.0%
4.7% 16.0%
5.0%
1.3%
0.0%
< 5 years > 65 years
Putney Vermont United States
An increasing median age can be a sign of an aging population, which can be an

indication of a declining population. The median age in Putney is 40.7 years compared to
the State of Vermont at 42.8 years and the United States at 38.2 years.
Persons with Disabilities and Others with Access and Functional Needs (AFN)
Access and functional needs (AFN) refer to individuals who are or have:
▪ Physical, developmental, or intellectual disabilities.

▪ Chronic conditions or injuries
▪ Limited English proficiency
▪ Older adults
▪ Children
▪ Low-income, homeless, or transportation disadvantaged (i.e., dependent on public
transit)
▪ Pregnant women
A person with a disability or access and functional needs (AFN) may create additional
demand for services, especially as age becomes a factor. Persons with disabilities or AFN
are at risk during a fire emergency for many reasons: Inability to self-evacuate, decreased
mobility, health, or sight and hearing limitations that may reduce a person’s ability to take
the quick action necessary to escape during a fire emergency. The following figure shows
the types of individual disabilities or AFN by town, county, and state.
76
In Putney, 20.7 percent of the population has a disability, which is slightly higher than
Windham County and substantially higher than the State of Vermont and the United States.
Figure 62: Disabilities or AFN by Town, County, State, and United States
25.0%
20.0%
15.0%
10.0% 20.7%
17.1%
14.2%
12.7%
5.0%
0.0%
Town of Putney Windham County Vermont United States
Low-Income Population
Residents living in low-income housing or rental properties often experience a series of high-
risk categories that include limited income and limited access to health care. Often,
homes do not have smoke detectors, have improper electrical wiring, and may not meet
current building codes. The Town of Putney’s poverty level of 11.7 percent is equivalent to
that of the United States (11.6 percent), lower than Windham County (13.4 percent), but
higher than the State of Vermont (10.3 percent). According to City-Data.com, taking into
account residents not living in families, 12.8 percent of high school graduates and 41.8
percent of non-high school graduates live in poverty.
The unemployment rate in Windham County is 2.0 percent (July 2023) compared to
Vermont’s unemployment rate of 1.8 percent (July 2023).
77
Figure 63: Low-Income Population
16.0%
14.0%
12.0%
10.0%
8.0%
13.4%
6.0% 11.7% 11.5%
10.4%
4.0%
2.0%
0.0%
Putney Windham County Vermont United States
Population without Health Insurance

The cost of health care for persons without insurance under 65 years of age includes lower
to middle-income families who have difficulty affording medical services. The town’s
emergency medical services are often requested to substitute for a primary caregiver and
the treatment of chronic illnesses.
Vermont is consistently ranked one of the healthiest states in the United States. Vermont
has ranked first for health behaviors that include physical activity, nutrition, and sleep (2020
and 2021 reports from the United Health Foundation). Vermont prioritizes public health
funding and has one of the highest ratios of primary care physicians to people.
For Putney’s population, persons without health insurance (4.9 percent) are equivalent to
the county and the state. In comparison, the United States shows 9.3 percent of the
population without health insurance; therefore, it is noted here for reference.
78
Figure 64: Population Without Health Insurance Under 65 Years of Age

10.0%
9.0%
9.3%
8.0%
7.0%
6.0%
5.0%
4.9% 5.1% 4.9%
4.0%
3.0%
2.0%
1.0%
0.0%
Putney Windham Vermont United States
County
Race & Ethnicity

Race is defined as a person’s identification with a social group, such as White, African
American, or Asian. However, ethnicity identifies some based on nationality, religion,
language, or culture. The following figure shows the race and ethnicity composition of
Putney and the State of Vermont.
Figure 65: Race & Ethnicity for Putney

Race & Ethnicity Putney Vermont
White alone 92.1% 90.9%
Black or African American alone 2.8% 1.0%
American Indian and Alaska Native alone 0% 0.2%
Asian alone 0.5% 1.8%
Native Hawaiian and Other Pacific Islander 0% 0%
Hispanic or Latino 1.4% 2.3%
Two or More Races 4.3% 5.5%
79
Other Demographics
Education Levels
Although education attainment is not an at-risk population, the level of education will most
likely determine whether a person will be regarded in other at-risk groups. For example,
people with no high school diploma are often in low-income and without health insurance
risk groups. A college degree is all but a prerequisite for social and economic mobility in
the United States. Adults with at least a bachelor’s degree earn more income throughout
their lives, have stronger protections against unemployment risk, are less likely to
experience poverty, and are more likely to afford health insurance.19 Putney has the same
risk as Vermont from education levels as 40.6 percent of the population possesses a
bachelor’s degree or higher compared to 40.9 percent in the State of Vermont.
Figure 66: Education Levels of the Population Over 25 Years of Age

35.0%
30.0%
25.0%
20.0%
15.0%
10.0%
5.0%
0.0%
9th to 12th Some Graduate or
Less than 9th High School Associate's Bachelor
Grade, No College, no Professional
Grade Diploma Degree Degree
Diploma degree Degree
Putney 1.3% 6.2% 28.8% 15.7% 7.4% 19.3% 21.3%
Vermont 1.8% 4.3% 28.0% 16.5% 8.6% 24.2% 16.7%
Putney Vermont
Median Household Income

Putney has a median household income of $59,751, which is on par with the median
income of $59,195 for Windham County but lower than the average income of $67,674 for
the state. Higher median income minimizes overall community risk, with health outcomes
particularly linked to income. The connection between income and health follows a step
gradient, as middle-class individuals tend to have better health than those in or near
poverty, although they may have slightly poorer health when compared to the upper
class.20
80
Figure 67: Median Household Income

$70,000
$68,000
$66,000
$64,000
$62,000
$67,674
$60,000
$58,000
$59,751 $59,195
$56,000
$54,000
Putney Windham County Vermont
Housing Types
Putney is primarily a residential community characterized by single-family dwellings.
However, there has been a recent increase in the conversion of single-family homes into
two-family/multi-family units. The housing in the area of Putney Village showcases a
moderate-density concentration. Single-family dwellings comprise the majority of housing
units in Putney, accounting for 71.8%, while multi-family units comprise 16.9%, and mobile
homes account for 11.2% of households. The higher proportion of owner-occupied housing
indicates a relatively stable population (albeit not growing), suggesting a lower potential
for life safety risks.
The following figure shows owner-occupied and renter-occupied housing percentages for
the Town of Putney, Windham County, Vermont, and the United States.
81
Figure 68: Owner/Renter-Occupied Housing Percentages

90.0%
80.0%
70.0%
60.0%
50.0%
40.0%
30.0%
20.0%
10.0%
0.0%
Windham
Putney Vermont United States
County
Owner-Occupied Housing Units% 76.3% 70.5% 72.1% 65.2%
Renter-Occupied Housing Units % 23.7% 29.5% 27.9% 34.8%
The Town of Putney has seen a limited increase in housing units over the past decade, with
only one unit created yearly. Throughout the past 30 years, from 1990 to 2020, the average
annual increase has been five homes. This low rate of housing creation, as indicated in the
town plan, has resulted in a decline in population as individuals and families in need of
housing are forced to search for options outside of Putney. Furthermore, the limited
availability of homes for sale or rent, combined with the median home price, which often
exceeds the income of households earning the median income in the region, further
contributes to this issue.
Further contributing to the housing issues, the average value of homes in Putney is currently
$378,665, reflecting a growth of more than 6.5% in the past year. This compares to an
average value of $368,629 in Windham County and $384,155 in the State of Vermont.
According to the Town Plan, there are 1,039 households in Putney as of 2020, with 1,159
homes within the town. The following figure compares average home values in 2023.
82
Figure 69: Average Home Values (2023)
United States $346,653
State of Vermont $384,155
Windham County $368,629
Putney $378,665
Age of Housing
As shown in the following figures, 55% of homes in Putney were built before 1979, with 25.2%
made before 1939. The State of Vermont did not adopt nationally recognized safety
standards to protect the public from fire and explosion hazards and established standards
for fire safety until 1972.
Figure 70: Age of Housing in Putney and Vermont

35.0%
30.0%
25.0%
20.0%
15.0%
10.0%
5.0%
0.0%
1939 or 1940- 1960- 1980- 2000- 2010- 2020 or
earlier 1959 1979 1999 2009 2019 later
Putney 25.2% 4% 25.9% 31.4% 7.5% 5.6% 0.0%
Vermont 26.1% 8.9% 23.2% 25.5% 10.6% 5.5% 0.0%
83
Electrical Risk in Older Homes

As buildings age, the expenses of maintaining their structures tend to increase. According
to the National Fire Protection Association (NFPA), electrical arcing is responsible for over
30,000 fires yearly.21 In many older homes and apartments, the electrical wiring was not
initially designed to handle the electrical demands of modern appliances. Additionally,
compared to homes constructed before 2008, older homes are not required to have
certain safety features that mitigate the risk of electrical fires, as well as the potential for
injury or fatality due to electrical shocks. These features encompass the inclusion of:
▪ Ground Fault Circuit Interrupters (GFCI) in areas where water and electrical power
could come in contact.
▪ Arc Fault Circuit Interrupters (AFCI) which detect electrical faults and automatically
shut down power to the affected circuit.
▪ Tamper-Resistant Outlets intended to safeguard children from inserting objects into
electrical receptacles.
Smoke Alarms (Detectors) in Older Homes

Over 80% of fire deaths occur in the home.22 Smoke Alarms, also known as smoke
detectors, are crucial lifesaving devices. Properly installed and well-maintained smoke
alarms significantly contribute to the reduction of fire-related fatalities and injuries.
Unfortunately, homes constructed before 1980 were not subject to smoke alarm installation
requirements, resulting in a heightened risk for occupants trying to escape from such
properties. In Putney, these older homes built before 1980 account for 55.1% of the housing
stock.
Between 1980 and 1994, regulations mandated the installation of a single smoke alarm in
the hallway of residential homes. However, starting in 1994, building codes were updated
to require the presence of smoke alarms on every level, in every hallway, and every
bedroom of single- and double-family residences, mobile homes, modular residences, and
sub-residences.
Smoke alarms are the most affordable device for alerting occupants quickly enough to
improve the chance of escaping a fire. National Fire Protection Association (NFPA) 101 Life
Safety Code and other codes now require smoke alarms in new construction to be
hardwired with battery backup. The NFPA best practice for smoke alarm replacement is 10
years. Installing a home fire sprinkler system increases the levels of fire protection.
84
Death rates are lower in homes with sprinklers and hardwired smoke alarms. Currently, 94%
of homes in Putney are over 10 years of age. The following figure is a safety poster from the
Electrical Safety Foundation about the placement of smoke alarms.
Figure 71: Smoke Alarm Safety Poster23
Source: Electrical Safety Foundation: https://www.esfi.org/smoke-alarms-save-lives/
In addition to the importance of having functional smoke alarms in residential buildings, it is

worth noting that the contents of modern buildings have shifted from natural fibers to
highly flammable synthetic materials like plastics and textiles. This change in materials
resulted in faster fire spread, significantly reducing the time occupants have to escape. In
2011, a United Laboratories (UL) publication noted that home fires have changed in the
last few decades, as shown in the following figure.
85
Figure 72: Changing Residential Fire Dynamics24

Changing Fire Dynamics Effects on Residential Homes
Larger homes ▪ Faster fire propagation
Decreased failure times for windows and doors ▪ Short time to flashover
Open floor plans (home geometry) ▪ Rapid changes in fire

dynamics
Increased fuel loads from the construction of contents
▪ Shorter escape times
New construction materials ▪ Shorter time to collapse
86
Physical Hazards
National Risk Index25
A community’s ability to prepare for natural hazards, adapt to changing conditions, and
withstand and recover rapidly from disruptions improves community resilience. The National
Risk Index is a dataset and online tool to help illustrate the United States communities most
at risk for 18 natural hazards. Measurements are calculated using average past conditions
but cannot be used to predict future outcomes for a community. The National Risk Index is
intended to fill gaps in available data and analyses to assist with risk reduction strategies.
The following figure shows a summary of the risk index for Windham County, Vermont.
Figure 73: National Risk Index for Windham County, Vermont
In Windham County, Vermont, the low-risk index is driven by lower loss due to natural
hazards and higher community resilience. Risk Index scores are calculated using the
following equation:
Risk Index = Expected Annual Loss x Social Vulnerability/Community Resilience
Strategies for risk reduction should be placed into the following categories:
▪ Avoid: eliminate the hazard

▪ Mitigate: reduce the probability of impact of the risk
▪ Accept: take no actions
▪ Transfer: transfer the risk to another party
87
Local governments are increasingly taking on various challenges, such as climate change,
affordable housing, homelessness, immigration, the opioid epidemic, and behavioral
health. Consequently, local fire and emergency services have become essential in
providing health and safety support for their communities. Fire departments now respond
to a wide range of incidents, aiming to assist in every situation. While fires have decreased
due to improved codes and enforcement, the demands for assistance have expanded
and now cover a broader spectrum of issues.26
The Center for Public Safety Excellence (CPSE) recognizes sustainability as a critical issue for
fire and emergency services in the 21st century. Sustainability is often defined as meeting
the needs of the present without compromising the ability of future generations to meet
their needs.
Social Vulnerability
Another indicator of the National Risk Index is social vulnerability. Social vulnerability
indicates the susceptibility to the adverse impacts of natural hazards when compared to
the rest of the United States. The following figure shows the social vulnerability of Windham
County, Vermont.
Figure 74: Social Vulnerability for Windham County, Vermont
88
Windham County Hazard Type Risk Index

As part of the National Risk Index, the following figure shows hazard types that are notable
for Windham County.
Figure 75: Hazard Type Risk Index for Windham County

Expected
Risk Index
Hazard Type Risk Index Rating Annual Loss
Score*
Value
Cold Wave Relatively Moderate $150,150 66.2
Hurricane Relatively Low $2,394,359 74.1
Ice Storm Relatively High $439,462 87.3
Landslide Relatively High $367,195 96.7
Lightning Relatively Moderate $327,174 82.5
Riverine Flooding Relatively Low $639,517 62.9
Tornado Relatively Low $814,596 45.8
Wildfire Very Low $25,325 43.4
Winter Weather Relatively Low $41,034 46.7
* Hazard type Risk Index scores are calculated using data for only a single
hazard type and reflect a community’s Expected Annual Loss value,
community risk factors, and the adjustment factor used to calculate the risk
value.
Natural and Human-Caused Hazards

The Town of Putney experiences a wide range of hazards caused by nature and human
activities—these hazards impact transportation systems, land use, geography and
topography, climate, and building structures. The duration, intensity, and severity of natural
disasters are enhanced by factors such as population density, land use practices, and
weather patterns, posing significant challenges for emergency management in the United
States.
The Federal Emergency Management Agency (FEMA) acknowledges the positive impact
of investing in pre-disaster prevention measures, including mitigation and planning. This
investments not only strengthens a community’s ability to withstand and recover from
natural disasters, but also enhances overall resilience. Within this framework, resilience
extends beyond physical aspects to encompass the stress and trauma individuals endure
during and after traumatic events. Unfortunately, marginalized communities often face
insufficient resources to address social and economic needs. Due to preexisting
challenges, achieving resiliency is challenging for populations, marked by difficulties in
communication and a slow return to normal operations.
89
According to the 2022–2027 Town of Putney Hazard Mitigation Plan, the following high
vulnerability rankings and significant hazards are considered:
▪ Flash Flood/Fluvial Erosion (Village brooks; Streams and brooks town-wide)

▪ Snow/Ice/Winter Storm (Residences, Businesses, Utilities, Roads and Infrastructure)
▪ Infectious Disease Outbreak (Town-wide; An after-action report has not been
completed for the recent COVID-19 Pandemic)
These hazards can potentially displace lives and cause significant loss of life, economic
impact, and significant property damage, especially during the winter months and mud
season. Major impacts include:
▪ Transportation challenges in inclement weather.

▪ Loss of power, which could significantly endanger health and safety and have
substantial economic consequences.
▪ Substantial economic consequences, as were seen during the 2019 COVID-19
Pandemic.
▪ Stress and severe inconvenience to the town’s residents and businesses.
▪ Short of energy and food supplies.
▪ Invasive species may damage Putney forests, leading to landslides and wildfires.
▪ Gradual bank erosion to catastrophic changes in river channel location and
dimension during flood events.
▪ Loss of capability to deliver a municipal or mobile water supply, resulting in a
delayed means of providing firefighting services.
Climate change may increase the severity of many of these hazards in the future. Altered
weather patterns may cause altered temperatures, precipitation level changes, and
increased threats of thunderstorms, tornadoes, and infectious diseases. Extreme rainfall and
flood events, stronger hurricanes and winter storms, and increased summer/winter
temperature differences are just part of the apparent impacts climate change has
brought to all areas of the United States. Putney is experiencing more large-scale ice storms
or heavy wet snow impacting the landscape, and infrastructure is not built for this type of
climate. Additionally, Putney is seeing a higher frequency of rain-on-snow events that can
increase flood risk.
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Climate in Putney
The climate in Putney, Vermont, has a humid continental climate (type Dfb) with four
distinct seasons and large seasonal temperature differences, with warm to hot (often
humid) summers and freezing cold (sometimes severely cold in the northern areas) winters.
In fact, precipitation is quite evenly spread out over the year. Extreme weather events take
the form of prolonged heavy snowstorms, flash floods, river floods (following snowmelt and
heavy rains), severe thunderstorms, droughts, tornadoes, and temperature extremes.
Winter (December to February) is long and cold, with temperatures ranging from the single
digits to the low 30s°F (-12 to 0°C). The state is known for its heavy snowfall, which makes it a
popular destination for winter sports such as skiing, snowboarding, and snowshoeing.
Summers are warm and sunny with an average temperature of around 80°F (27°C).
Serious fires are more likely to occur during periods of severe cold because of the use of
heating systems. Cold weather conditions will affect firefighters and EMS personnel,
especially their physiological processes. When working winter incidents operations,
rehabilitation areas must be provided to reduce the risk of hypothermia. The following
figures from City-Data.com show the average temperatures and snowfall for the area.
Figure 76: Average Temperatures and Snowfall in Putney
Flash Flooding/Fluvial Erosion

The Connecticut River in Putney is fed by significant streams, including East Putney Brook,
Sacketts Brook, and Canoe Brook. These waterways play crucial roles as supply for drinking
water, water for agriculture and manufacturing, offer opportunities for recreation, and
provide habitat to numerous plants and animals.
Four watersheds are located within Putney: Lower West River, Connecticut River-
Dummerston, Sacketts Brook, and the Connecticut River watershed.27 A watershed is an
area of land that drains rainwater or snow into one location, such as a stream, lake, or
wetland.
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Putney has a floodplain ordinance that also regulates river corridors. This ordinance makes
discounted flood insurance through the National Flood Insurance Program (NFIP) available
to residents. It enables the Town to regulate development within the Special Flood Hazard
Area (SFHA) and river corridors (50-foot buffer on all sides of a waterway). SFHAs are
subject to inundation by the 1% annual chance flood (100-year flood).
The following figure shows the flood zones for the Town of Putney.
Figure 77: Flood Zones for the Town of Putney
Triton notes that the 1% Annual Chance Flood Hazard (100-year floodplain), or SFHA, is
centrally located in the area where Putney Grammar School (Brooks Road) and Putney
Village (Westminster Road) are located. These SFHAs extend up Sackett’s Brook to the dam
in downtown Putney.
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As discussed in the Putney Hazard Mitigation Plan (2022–2027), flooding destruction in

Putney is mainly due to fluvial erosion rather than inundation. Fluvial erosion is the
destruction of riverbank materials and the sides caused by the movement of rivers and
streams. Erosion starts when the flow energy of the water exceeds the resistance of the
material of the bed and banks. Gradual bank erosion to catastrophic changes in river
channel location and dimension during flooding events can occur. Major erosion occurs
during periods of heavy rainfall or rapid snow melt. Factors that contribute to fluvial erosion
include:
▪ Precipitation events such as heavy rains, thunderstorms, tropical storms, hurricanes,

or Nor’easters that occur consistently throughout the year
▪ Steeper slopes caused by erosion and construction
▪ Gravity and waterpower drive fluvial erosion
▪ Saturation by water
▪ Alternate freezing or thawing
▪ Removal of trees and other vegetation
▪ Earthquake shaking
▪ Historical road networks that follow waterways creating vulnerabilities for the road
network, infrastructure, and development within and along river corridors
▪ With climate change increasing the severity of storms, many home and business
owners may be unaware that they are at risk of flooding
A 1.4-mile stretch of Brook Road between South Windmill Road and Tavern Hill Road is most
vulnerable to fluvial erosion as water can rush down the steep ravine, and Sackett’s Brook
is so close to the road that erosion occurs on the edges of the road.
The fire service provides a vital role during flood events; however, the disaster may delay or
hinder rescues and firefighting capabilities and cause additional vulnerabilities for safe
travel to incidents. These vulnerabilities include:
▪ Damage to roads, culverts, and bridges. Road cutting, bank erosion, and areas
where brooks flow near roadways and where roads have been built between steep
slopes on one side of the road and slopes to a river or brook on the opposite side
can cut off access to homes and businesses from the main roadways and are
dangerous for heavy apparatus to travel on during and after a flood event occurs.
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▪ Mud season. The period between winter and spring, where thawing occurs, is
informally referred to as Vermont’s fifth season. The featured trademark: MUD, all of
it causing additional impacts for PFD in relation to roadway and bridge access.
▪ River Corridors. River corridor flooding fluvial erosion impacts. The movement of area
streams can destroy riverbanks. The impacts can range from gradual bank erosion
to catastrophic realignments of the river channel during flood events. For example,
Brook Road is repeatedly impacted by fluvial erosion events because Sacketts Brook
is undercutting the roadbed. As the slope fails, tree fall is triggered on both walls of
the narrow valley, making roads impassable.
Although flooding/fluvial erosion is categorized as a high risk for Putney, the current Hazard
Mitigation Plan (2022–2027) notes only five active National Flood Insurance Program (NFIP)
policies in Putney and no repetitive loss properties. There are 16 structures in the Special
Flood Hazard Area (SFHA) but no critical public facilities or utilities. There are, however, 40
structures in the river corridor, and 11 structures in both SFHA and the river corridor.28
Also, due to the town's size, the Floodplain Administrator in Putney is within the duties of the
Town Manager, who also serves as the Zoning Administrator. The Putney Conservation
Commission and the Wilson Wetland Stewardship Committee provide additional
assistance. The Putney Conservation Commission conducts continuing studies of the
natural resources and maintains an inventory of land with historic, educational, cultural,
scientific, architectural, or archaeological values. The Wilson Wetland Stewardship
Committee maintains the Wilson Wetland Preserve Plan and coordinates invasive species
mitigation, flood mitigation projects, including beaver dam locations, and flood resiliency
studies within the Wilson Wetland Preserve.
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The following figures show the hydrology maps for the Town of Putney.
Figure 78: Hydrology Map of the Connecticut River Basin
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Figure 79: Putney Hydrology Map of West and Connecticut Rivers
Dam Failure
Sackett’s Dam, a 1,000,000-gallon earthen dam located in the Putney Village, was
originally constructed to provide water to the Putney papermill for manufacturing
processes and is now a critical water source for fire protection within the village. Biannually,
the dam is drained, dredged, inspected, and resurfaced. The dam is considered a low
vulnerability risk and is an unlikely occurrence consideration; however, a dam failure would
likely be catastrophic and be linked to another hazard, such as flooding.
Snow/Ice/Winter Storm
The Town of Putney is characterized by two north-south ridgelines, Bare Hill standing at
1,113 feet, in the middle of town, and Putney Mountain, at 1,660 feet, on the western
boundary. This mountainous topography exposes the area to severe ice, winter storms and
blizzards, and at least one to two Nor’easters each year with varying degrees of severity.
The worst ice storms are experienced at the start and end of winter.
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Winter storms and ice storms can create hazardous conditions and can cause damage to
properties:
▪ Sleet, ice, and snow can cause hazardous driving conditions. The most inaccessible
roads for ice are the higher elevations roads of Holland Hill Road and Putney
Mountain Road (higher elevation).
▪ Winter weather can down trees, resulting in power failures, impassable roads, and
damage to structures.
▪ Power outages may leave people without adequate heating capability.
▪ Structures may collapse due to the weight of snow accumulation on roofs.
▪ Fire Department personnel may encounter delayed response due to road
conditions and snow accumulation.
▪ Shelters may need to be opened in Windham County if the power is lost for
excessive amounts of time.
Rescue, Inc. Technical Rescue Team

In addition to EMS response service, the Rescue, Inc. technical rescue team provides
Putney with trained (and nationally certified) swift-water, high and low angle rescue, and
search and rescue technicians certified in swift water, ice, wilderness, and above/below
ground rescues. The team can also provide incident and search management. Some
Putney fire personnel also train and work for Rescue, Inc. Technical Rescue Team. PFD
Squad 38-1 has some technical rescue equipment for deployment and EMS capabilities.
Infectious Disease Outbreak

Pandemics are widespread outbreaks of infectious diseases that can significantly increase
illness and death rates across a broad geographical region, leading to substantial
economic, social, and political upheaval. The probability of pandemics has risen in the last
century due to greater global travel and interconnectedness, urbanization, changes in
land utilization, and increased exploitation of the natural environment.29
There will be ongoing importance placed on the necessity of identifying and controlling
emerging outbreaks, as well as maintaining investment in preparedness and healthcare
infrastructure. It is the responsibility of emergency managers, fire, EMS, and law
enforcement agencies to be prepared for and mitigate the effects of pandemics.
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They are also tasked with developing emergency response policies, procedures, and, if
needed, establishing vaccination clinic sites. The risks and consequences can be
summarized as follows:
▪ Influenza is the most probable pathogen to trigger a severe pandemic.

▪ Pandemics can result in substantial and widespread increases in both sickness and
loss of life, with a disproportionately higher impact on low- and middle-income
countries (LMICs) that have fragile healthcare systems.
▪ Pandemics can cause economic harm through various means, including immediate
financial challenges and long-term negative effects on economic growth.
▪ Certain measures implemented to mitigate pandemics can lead to significant social
and economic disruptions.
▪ Behavioral changes, such as individuals avoiding workplaces and public gatherings
out of fear, are a primary factor contributing to the adverse impact on economic
growth during pandemics.
▪ When a pandemic occurs, it is crucial to implement a coordinated response that
includes maintaining situation awareness, public health messaging, reduction of
transmission, and care for and treatment of affected individuals.
▪ An effective plan for handling and responding to emergencies necessitates the
ability to quickly increase the delivery of healthcare interventions in alignment with
the event's severity, the specific pathogen involved, and the at-risk population.
Hazardous Substances and Processes

Hazardous materials and petroleum storage sites are located within the town limits, with
some sites containing both types of products. Soundview Paper Mill, for example, contains
two compressed natural gas tractor-trailers on-site for manufacturing and heating
purposes. Another heating source, propane, is used in large quantities in residential homes,
requiring carbon monoxide monitors in all homes.
When responding to spills, leaks, or fires at a facility that contains hazardous materials, fire
personnel must utilize specialized protective clothing, air monitoring systems, and other
equipment to manage the situation effectively. These incidents often require significant
time and resources and involve state and federal resources to assist with fire
extinguishment, air monitoring, and cleanup. Additionally, the municipal water supply
system may be strained due to the high flow capacities required for an extended duration.
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PFD continues to develop pre-fire plans for these facilities, identifying all stationary
containers/buildings to ensure NFPA 704 Identification Placards are visible. If any hazardous
materials exceed the limits established by the Environmental Protection Agency (EPA), the
company must file a Tier II report per chemical. These reports are provided to local
jurisdictions, local emergency planning committees, and the State’s Emergency Response
Commission as required by the Emergency Planning and Community Right-to-Know Act of
1986, also known as SARA Title III. These thresholds require submission:
▪ Ten thousand pounds of hazardous chemicals.

▪ Lesser of 500 pounds or the threshold planning quantity for extremely hazardous
chemicals.
Local businesses such as garages, hardware stores, and agricultural facilities also contain
smaller amounts of hazardous substances. Minimal quantities do not require reporting.
Transportation of hazardous materials occurs daily in Putney as US 5 and Interstate 91 are

the primary routes that pass through the eastern portion of the Town. The following are
traffic counts from the Vermont Agency of Transportation for main roadways in Putney from
2016–2020.30
Figure 80: Traffic Counts in Putney

Annual Average Annual Average
Location
Daily Traffic Daily Traffic
Putney Landing Road at Interstate 91 2,210 (2021) 2,228 (2022)
Exit 4 NB off Ramp C 1,234 (2021) 1,325 (2022)
Calvin Coolidge Memorial Hwy between
3,245 (2021) 3,273 (2022)
Canoe Brook Road and Johnson’s Curve Road
Main Street at Kimball Hill (Spot Count—2016) 5,333 (2016) N/A
River Road S 100’ S of US 5 South 1,287 (2020) 1,458 (2021)
Spring Hill Road and Signal Pine Road 2,354 (2020) 2,780 (2022)
Hazardous Materials Team

Putney fire personnel are trained to hazardous materials operations level for hazardous
materials (hazmat) response, allowing fire personnel to mitigate an incident by diking,
damming, or diverting products to reduce catastrophic impacts. For hazardous materials
incidents, the State of Vermont and Keene Fire Department personnel are notified to
respond for additional assistance at the technician level.
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The Vermont hazmat response apparatus is housed at the Putney Fire Department;
however, the estimated response time for personnel to arrive for response is one to two
hours or more. Putney Fire Department personnel and Rescue, Inc. provide standby for EMS
and decontamination assistance.
Transportation Networks
Putney has a moderate risk of transportation incidents, including accidents involving a
large number of vehicles, boat or rail incidents, bus accidents, or road infrastructure failure.
Putney participates in the Transportation Advisory Committee (TAC), a liaison between
local communities and the Vermont Agency of Transportation that provides local and
regional input regarding transportation issues important to the region.
The potential for transportation (mobile) hazardous materials incidents from roadway,
railroad, and waterways such as State Highway 5, U.S. Interstate 91, the New England
Central Railroad rail line, also serving Amtrak’s Vermonter passenger rail lines, and the
Connecticut River could have a catastrophic impact as all four transportation systems run
parallel at staggered heights along the east side of Putney. The following figure shows a
picture of the proximity of the railroad to the Connecticut River.
Figure 81: Close Proximity of the Railroad & the Connecticut River
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Roadways
US 5 and I-91 serve as parallel direct routes between Putney and the communities of
Brattleboro and Bellows Falls. Both communities are commercial centers for the region.
Putney is located off Exit 4 of Interstate 91, just 18 miles from the Massachusetts border. US 5
is designated as part of the Connecticut River Byway; a National Scenic Byway designated
by the Federal Highway Administration and is maintained by the Vermont Agency of
Transportation (VTrans). The following figure shows the road class and total mileage of
each in Putney.
Figure 82: Road Class and Mileage

Road Class Total Mileage
Interstate 5.55
State 5.95
Town Class 1 0.00
Town Class 2 15.67
Town Class 3 38.98
Town Class 4 4.95
Legal Trail 4.11
According to the Town Plan, Putney has approximately 66 miles of “traveled highways”
(approximately 50 miles of unpaved and 16 miles of paved roads) and about four miles of
legal trails. Other vital road systems include:
▪ US 5 and Kimball Hill Road/Westminster Road— main roads through the Village of
Putney.
▪ Class 4 roads and trails that are not maintained by Putney. Instead, property owners
with frontage on the road share maintenance responsibility. Private or Class 4 roads
may not be readily accessible to emergency vehicles in all seasons; however, 25%
of homes are served by these roads.
▪ 30% of homes can only be accessed from one vehicular route, putting them at
higher risk of being cut off during a storm, disaster, or accident resulting in road
closure or damage.31
▪ An 82-vehicle Vermont Agency of Transportation (AoT) park and ride facility
adjacent to the Putney Fire Station and the intersection of US 5 and Exit 4.
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Maintaining all roads in Putney is crucial to ensure efficient response to emergencies.

Roadway incidents can happen anywhere within the town, which may result in temporary
closures of roads and bridges. It is important to note that first responders face a high risk of
being struck by vehicles while addressing roadway incidents.
The following figure shows the main transportation routes in Putney.
Figure 83: Main Transportation Routes in the Town of Putney
Public Transit Service

The Southeast Vermont Transit, the Moover, operates a fixed transit service originating in
Bellows Falls to the North and terminating in Brattleboro to the South during the weekdays,
with two stops in Putney Village. Elderly and disabled transit service is available with this
service, allowing people to use the service for a variety of reasons.
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EV Charging Stations
As part of the town’s support for the growing use of electric vehicles (EVs) in Putney to
reduce carbon emissions and reliance on fossil fuels, Putney is increasing the number of EV
charging stations. Landmark College currently has 12 free outlets and two Level 2 (EV
Charger) user-pay stations. Future plans are to partner with retail establishments to locate
EV charging stations.
The following figure shows safety tips that are offered by the Federal Emergency
Management Agency.
Figure 84: FEMA Electric Vehicle Charging Tips
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Bridges
The Hazard Mitigation Plan and the Town Plan
Figure 85: Putney Bridge Over the
discuss the maintenance of five bridges funded by Railroad Tracks
the town, categorized as ‘Priority 4’ issues that can
be addressed through regular maintenance cycles.
However, the bridge on Stage Road has Priority 3
because of scouring. Of particular concern is the
East Putney Ferry Road Bridge, which is owned by
the railroad and serves as the only access for fire
apparatus to cross. This bridge is vital for accessing
large homes and barns across the area. It is worth
noting that the bridge is in very poor condition and
the current five-ton weight limit restricts vehicles to a maximum weight of 10,000 lbs.
However, the PFD tanker, which carries 1,800 gallons of water, exceeds this limit at over
14,000 lbs.
Railroad Systems
The New England Central Railroad runs parallel to State Highway Route 5, U.S. Interstate 91,
and the Connecticut River. Amtrak’s Vermonter passenger rail lines travel through Putney,
stopping only in Bellows Falls and Brattleboro.
In 2021, the Association of American Railroads reported that America’s railroads

transported 2.2 million carloads of chemicals. Railways are regarded as the safest means of
transporting significant quantities of hazardous materials. Nevertheless, incidents involving
derailments can result in more substantial spills (i.e., East Palestine, Ohio), thus posing severe
risks to human and environmental health.
Connecticut River
The Putney Landing is a Vermont Fish and Wildlife Access Area. The Putney Rowing Club
docks are privately owned but open to the public and used for boating, fishing, and
swimming.
PFD is accountable for handling water emergencies that occur along the river. For
response on the water, Rescue, Inc. supplies a life safety boat. PFD firefighters undergo
cross-training with Rescue, Inc.
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Tourism Industry
The Putney tourism industry offers beautiful natural sites, a lively artisan craft scene, and an
eclectic variety of specialty shops and attractions that create a small tourism industry.
There are a variety of enjoyable activities and sites:
▪ Hiking trails on Putney Mountain.

▪ Putney General Store, which has been operating since 1796, offers Vermont-brewed
craft beer, maple syrup, and Vermont Artisan Coffee & Tea.
▪ Putney Food Co-Op is a member-owned cooperative that strengthens relationships
with local farmers and food producers.
▪ The Putney Diner on Main Street.
▪ The Putney Mountain Winery.
▪ Farms, Orchards, Markets, and Crafts at Harlow’s Sugar House, Hidden Springs
Maple, Green Mountain Orchards, and the Putney Farmer’s Market.
▪ Putney is a cultural heritage destination for musicians, writers, artists, and
craftspeople that includes performance venues such as the Yellow Barn, Next Stage
Arts, and the Sandglass Theater.
▪ Outdoor activities—Putney is home to numerous trails, many of which are open to
the public for hiking, biking, and cross-country skiing. The Putney Mountain
Association Main Trail is the best-known in Putney.
Although not a primary source of income for Putney, economic challenges can potentially
create temporary disruptions. Events like a structure fire, pandemic, or local service
disruptions due to a disaster could lead to a decline in sales revenue, affecting both
Putney and the State of Vermont.
Land Use
Land use for a community is designed to assign a classification for properties within a
geographical area generally under governmental control. Land use classification of
properties within a geographical area maintains the direction of community growth,
providing attractive social and environmental outcomes to manage development
effectively. Zoning areas may vary from one portion of the service area to another with a
mixture of low-, moderate-, and high-risk properties.
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▪ Low Risk: Areas zoned for agricultural purposes, open spaces, low-density residential,
and other low-intensity use.
▪ Moderate Risk: Areas zoned for medium-density, single-family properties, small
commercial and office use, low-intensity retail sales, and similarly sized business
activities.
▪ High Risk: High-intensity business districts, mixed-use areas, high-density residential,
industrial, storage facilities, and large mercantile centers.
The Town Plan and land use development regulations strive to direct growth in an
economically feasible and environmentally acceptable manner. Zoning Districts are shown
in the following figure.
Figure 86: Putney Zoning Districts
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Putney is an incorporated town, with zoning districts created under the Town’s governing
jurisdiction. The town‘s landscape is characterized by tightly formed irregular ridges and
valleys, broad meadows along the shores of the Connecticut River, Wetlands, and the
further disconnect caused by Interstate 91 running north-south through the Connecticut
River valley floor. Unfortunately, this topographical form of steep slopes, flood-prone areas,
priority forest blocks, and wildlife connectors has produced a scattered settlement pattern
and has reduced the town’s development. These factors have contributed to diminished
land development in the past two decades:
▪ Agricultural Land—Agricultural soils are found in floodplains and terraces along the
Connecticut River, brooks, and the rolling hills.
▪ Forest And Tree Cover—Putney today is primarily forested, with about 80% of land
under tree cover.32 Land not under tree cover only accounts for about 360 acres.
▪ Concentrated Village Settlement—The Town is concentrated in the village and
immediately adjacent areas. Rural development began in the 1960s, primarily along
Route 5 and Westminster Road.
▪ Single-Family Dwellings—Single-family units on more than one acre account for 85%
of the 54 homestead properties, with 64% of the town’s land area meeting the
definition of residential property.
▪ Institutions and Cultural Facilities—Public and private schools, including Landmark
College, account for 4% of the land area.33
▪ Farms and Orchards—Two large-scale farms and orchard operations account for 6%
of the land area, as well as a dairy farm and small-scale agricultural enterprises,
including hay production.34
▪ Vermont River Management Program—An increased frequency and intensity of
fluvial flood events, especially after Tropical Storm Irene in 2011, prompted the
development of the River Corridor Program. However, Putney’s enrollment in it
further restricts development in designated areas.
Special tax considerations for property are deterring land that provides wood or
agricultural products from further development.
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▪ Current Use Program—Vermont’s Use Value (UVA) Program, known as “Current Use,”
allows landowners with parcels greater than 25 acres (forestry or agricultural
purposes only) to receive land appraisals based on the property’s value of
production of wood or agricultural products, much less than residential or
commercial development value. Approximately 45% of Putney land is in the
“Current Use” Program.
▪ Act 146 Vermont “Use Value Appraisal Program”— In May 2022, the enactment of a
subcategory within the Current Use Program, known as “Reserve Forestland,” aims to
oversee the functions and values of old forests. This provision enables approximately
15% of the Current Use parcels to also be eligible for enrollment in this specific
subcategory.35
The following figure shows the percentage of land use for the Town of Putney:
Figure 87: Land Use for the Town of Putney (Percentage)
Mixed Use 0.1%

Multi-Use Residential 0.3%
Commercial 0.5%
Seasonal Residential 0.9%
Acreage & Misc 3.0%
Public 3.4%
Transportation & Utilities 4.2%
Institutional 4.8%
Farm/Agriculture 6.0%
Vacant 16.0%
Single-Unit Residential 63.8%
0.0% 10.0% 20.0% 30.0% 40.0% 50.0% 60.0% 70.0%
While most properties in the area pose a low to moderate risk for land use, some contribute
a higher risk for potential life safety challenges and property loss due to fire and fire-related
hazards. These properties include, but are not limited to:
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▪ Soundview Paper Company in downtown Putney—Soundview Paper Company is a

leading manufacturer and distributor of finished paper products, including tissue,
towel, and napkin products to retailers, distributors, and other customers, and is
known for the core brand, Marcal®. Located in the center of Putney Village, the mill
turns waste or recycled paper and cardboard into other consumer products. The
paper company stores two mobile 18-wheeler compressed natural gas containers
and #2 heating oil on the property for heating and processing purposes.
In April 2023, a fire broke out at the Paper Company as caked-on paper dust
prevented the plant’s sprinkler system from activating.
In November 2023, the Paper Mill experienced a #2 heating oil spill of 15,000 gallons
into Sacketts Brook that eventually reached the Connecticut River, prompting a
containment and clean-up effort by the Putney Fire Department and environmental
officials from Vermont and New Hampshire.
▪ Two- and Multi-Family Rental Conversions—In Putney, there is an increasing trend of

renovating larger single-family dwellings into two- and multi-family rental conversions
and short-term rentals. However, it is important to note that the Town and Fire
Department do not track short- and long-term rentals. Additionally, annual fire
inspections are not mandated for these types of occupancies.
▪ Balloon Frame Construction—Balloon-frame construction was a prevalent method
used in buildings from the early 19th century until World War II. This type of
construction presents unique challenges for firefighters due to the absence of
horizontal fire stops between the studs inside the exterior walls. Most of these
buildings are two to three stories tall, making it possible for fires to rapidly spread
from the basement to the attic within minutes through the interior stud channels of
the exterior walls.36
▪ Cannabis Growing Houses—A cannabis grow house and processing facility was
permitted by the State of Vermont but not by local Town Zoning or Cannabis
Control Board. The operation received approval by the local Fire Safety Division.
Four hazards may be found in cannabis growing and processing operations:
• Improper electrical wiring—Electrical installation must follow the National
Electrical Code (NEC) provisions and be permitted, inspected, and
approved by the authority having jurisdiction (AHJ).
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• Poor/Loose Connections—The added electrical resistance can result in

localized heating if a connection is loose. Loose connections can lead to
a fire, especially when a high-wattage device is plugged in. Inspectors
should look for proper installation methods, good housekeeping practices,
UL-approved quality equipment, and proper maintenance procedures
during inspections.
• Light Fixture Issues—Grow operations use high-power, high-intensity
discharge (HID) lighting. Combustibles can burn if touching the hot lamp
glass, which can easily reach over 1000ºF. Hot particles can ignite plants,
plastic pots, and potting material if the glass breaks.
• Hash Oil Extractions—THC-containing hash oil is extracted from the
cannabis plant using butane as a solvent. The most hazardous part of the
process is the evaporation of the butane from the solvent/oil mixture, as
the evaporated butane fumes are highly flammable and explosive.
Butane is also heavier than air, sinking and collecting at the floor level.37
▪ Higher Elevation Residential Development in the Putney Mountain Area—The Putney
Mountain Area encompasses 3,724 acres, which includes 106 structures, including
single-, two-, and multi-family dwellings and commercial structures. Many of these
structures are over 2,000 square feet, non-sprinklered, and situated on unpaved,
narrow mountain roads. Forest land owned by the Putney Mountain Association and
Conte National Wildlife Refuge has a significant wildfire risk, and emergency
incidents in this area often include search and rescue functions on recreational use
areas used for hiking.
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The following figure shows the current land use in Putney.
Figure 88: Current Land Use
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Occupancy Types
Types of occupancies will vary from small businesses to mercantile and assembly buildings
to large manufacturing facilities. Each poses some type of risk for emergency responders
that must be identified and evaluated. Multi-story and large square-footage buildings
create additional challenges.
Assembly
A gathering place, such as an assembly occupancy, is considered to have high risk due to
the potential number of people coming together for worship, entertainment, or special
events at a particular location, whether indoors or for specific outdoor events and festivals.
In recent times, emergency responders have taken measures to prepare for not only fire
incidents but also active shooter situations in these venues. Managing an incident at an
assembly occupancy may necessitate a significant number of personnel and resources,
depending on the severity of the situation.
Three performing arts centers are located in Putney:
▪ The Yellow Barn—An international center for chamber music, encourages discovery
in the studio and classroom with an approach to lifelong education for musicians
and audiences. Yellow Barn also uses the Greenwood School campus for rehearsal
and practice studios in the summer.
▪ Next Stage Arts Project—A church that has been converted into an accessible
community resource and performance venue ($1.8 million renovation project). The
building holds just over 200 people and has a dance floor, green room, art gallery,
and community rooms.
▪ The Sandglass Theatre—A renowned theater company specializing in combining
puppets with music, actors, and visual imagery.
Arts centers are also located on Putney School and Landmark College campuses.
Another assembly location to note is The Putney Place. This facility, located near the
Putney Inn, offers daycare for young children, aftercare programming, a youth center, and
the Putney Playspace & Children’s Museum. The museum and café offer a coffee shop, an
indoor playspace for children.
The following figure shows the assembly occupancies.
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Figure 89: Assembly Occupancies in Putney
Educational
Schools pose a unique risk due to the concentration of students in a specific location. From
2017–2021, U.S. fire departments responded to an estimated annual average of 3,379
structure fires in dormitories, fraternities, sororities, and other related properties. These fires
caused annual averages of two civilian deaths, 23 civilian injuries, and $12 million in direct
property damage.38
In Putney, there is a strong focus on occupancies that prioritize life safety. Given the
presence of five educational facilities in the area, which collectively enroll over 1,000
students, some residing on campus in traditional and non-traditional dormitories, ensuring
their safety is paramount. This risk also shifts the fire department’s response from that of a
typical single-family dwelling or bedroom community to a high life-safety threat,
necessitating additional personnel trained from search rescue operations in addition to
firefighting tasks.
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These private and public schools include:
▪ The Greenwood School—formerly the site of the Experiment in International Living, is

now a school for boys in grades 6 through 12 who are diagnosed with dyslexia and
other learning differences. Greenwood School is home to approximately 200
students who stay on campus during the school year.
▪ The Grammar School—This elementary school provides a comprehensive liberal arts
education on two adjacent campuses. The campuses include a Pre-Kindergarten,
specifically designed for 4–5-year-olds, and an elementary school (K-8). Although
dormitories are not available, the school offers its students a wide range of
academic subjects and sports activities. Additionally, after-school care options are
available, and the school also hosts The Grammar School Summer Camp and
Preschool Camp during the summer months. There are approximately 92 students
between the two campuses.
▪ Putney Central School—Founded in 1957, Putney Central School is a public school
with an over 175-acre campus with a physical plant, playing fields, school and
community gardens, mountain bike pump track, and skills park, with an adjacent
School Forest (162 acres). The school offers academic and after-school programs,
including winter sports programs and mountain biking activities. The school is home
to 175 students, grades PK–8.
▪ The Putney School (Putney High School)—Founded in 1935 by Carmelita Hinton,
today the school is a coeducational boarding and day school for grades 9 through
12. It is a progressive school built on 500 acres, created for experiential education.
The Putney School is home to approximately 232 students, of which 170 are
boarding students. There are nine dorms and five cabins on the property. Dorms
house from 10 to 30 students.
▪ Landmark College—Landmark College offers Associate and Bachelor’s Degree
Programs, online college-level programs, and short-term summer programs for
neurodivergent students, offering a college for students who learn differently. The
campus supports 450 students from 38 states and 10 countries worldwide.
Dormitories and cafeteria services allow students to live on campus.
The Landmark College Institute for Research and Training conducts groundbreaking
research on learning disabilities (like dyslexia), ADHD, and autism and shares that
knowledge with educators worldwide through webinars, workshops, professional
training, and online courses.
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The following figure shows the educational facilities in Putney.
Figure 90: Educational Occupancies in Putney
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Hospitals and Medical Facilities

In Putney, there is a single-family healthcare clinic affiliated with the Brattleboro Memorial
Hospital network, as well as multiple independent healthcare providers. The following figure
shows the healthcare facilities in Putney.
Figure 91: Medical Facilities in Putney
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Brattleboro Memorial Hospital is the closest hospital to Putney, which is 9.2 miles away. The
following hospitals and medical centers outside of Putney include, but are not limited to:
Figure 92: Medical Clinics and Hospitals Near Putney

Miles from
Medical Clinic or Hospital City, State
Putney
Brattleboro Memorial Hospital Brattleboro, VT 9.2
Grace Cottage Family Health & Hospital Townshend, VT 9.2
Cheshire Medical Center Keene, NH 11
Springfield Hospital Springfield, VT 23
Baystate Franklin Medical Center Greenfield, MA 26
Valley Regional Hospital Claremont, NH 30
Monadnock Community Hospital Peterborough, NH 30
Athol Memorial Hospital Athol, MS 31
Southwestern Vermont Medical Center Bennington, VT 35
Mt. Ascutney Hospital and Health Center Windsor, VT 36
Heywood Hospital Gardner, MA 38
New London Hospital New London, NH 41
Cooley Dickinson Hospital Northampton, MA 45
Alice Peck Day Memorial Hospital Lebanon, NH 48
Rutland Regional Medical Center Rutland, VT 48
UMass Memorial HealthAlliance – Clinton
Leominster, MA 49
Hospital, Leominster Campus
Long-Term Care Facilities

The median age in Putney is 40.7 years compared to 38.8 years in the United States. As the
population ages, additional senior housing or long-term care facilities may be needed to
provide for residents, especially in the baby boomer population (1946 to 1964).
With few options for seniors in Putney, many stay in their original homes. These homes are in
remote locations, have poor design for handicapped accessibility, and are now very costly
to maintain and heat in the winter. The Town Plan shows that 38% of households have
someone aged 65 or older, and the plan states that the number of residents “aging in
place” will continue to grow over the next 20 years.
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Other seniors live in affordable-income rental housing or the mobile home park. Windham
& Windsor Housing Trust (WWHT) manages four affordable rental housing properties in
Putney. However, in total, there are only approximately 86 units that are restricted to
residents based on income, age (over 62) or disability.
Under development are 25 affordable housing units in Putney Village to be completed in

2024/2025. Although future development will assist some residents, more senior housing and
an assisted living center are needed in Putney.
Buildings 32 feet in Height or Greater

As the height of a building increases, additional firefighters and aerial ladder apparatus are
required to gain access to upper floors and rooftops, perform search and rescue
operations, and place safety officers in strategic locations. Fires of this magnitude require
additional personnel above those required under the National Fire Protection Association
(NFPA) 1710 and 1720 standards for a 2,000-square-foot single-family dwelling.
Commercial Development
Although Putney is predominately a rural residential community, past development for
business has occurred in the arts, education, and cultural sectors. Putney's future planning
is concentrated on promoting agri-tourism and outdoor recreation businesses as well as
services and activities that will meet the needs of residents and visitors.
Hotels/Motels/Short-Term Rentals
Very few short-term facilities are available in Putney except The Putney Inn, Bed & Breakfast
Inns, and other short-term rentals. Fires in these types of occupancies present unique
challenges for fire departments as they are occupied by people who likely have very little
knowledge of the building’s layout and egress paths, are unfamiliar with the building’s
emergency procedures and alarm indications, and may be delayed in exiting because
they are asleep, impaired, or simply ignoring the evacuation alarms.39 Fire departments
must be aware of the type of hotel/motel/short-term rental, what hazards are present, and
how to best respond to incidents in the building(s).
Multi-Family Housing
Multi-family housing properties create a high fire risk because each unit has a kitchen,
furnace, water heater, and other causes of residential fires. Occupants often have
difficulties evacuating the building. Life safety in multifamily housing is influenced by the
design of the building, its fire protection features, and the contents and building
maintenance.40
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Large Square Footage Buildings

Large buildings such as warehouses, strip malls, and large box stores are constructed of a
steel frame construction and large, open areas, placing firefighters in very dangerous
situations.
The most important factor to consider for these buildings is that this is not a house fire! The
type of construction and building features will pose different challenges, and the internal
spaces are much larger. Fire behaves differently in larger spaces, void spaces, and various
attic cockloft spaces. Firefighter death rates are two times greater in commercial fires, and
multiple firefighter deaths are much higher at a single incident in commercial
occupancies.41
When the building is exposed to fire, a significant volume of water is needed to extinguish
these fast-moving fires. More personnel are necessary to advance large-diameter hose
lines longer distances into the building, to assemble a rapid intervention crew, or to set up
defensive operations.
Fire officers must consider the following in these types of fires:
• Is the building constructed of lightweight truss or steel that can expand and collapse
in high heat situations?
• Is the survivability profile at zero during an ongoing size-up?
• If the fire continues to grow or fire personnel have been fighting the fire for an
extended timeframe with no progress, change to a defensive fire.
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Critical Infrastructure
Critical infrastructure and key resources are needed to provide essential services for the
economy and people in every community. Critical infrastructure is a structure “whose
assets, systems and networks, whether physical or virtual, are considered so vital to the
United States that their incapacitation or destruction would have a debilitating effect on
security, national economic security, national public health, and safety or any combination
thereof.” U.S. Homeland Security defines 16 critical infrastructure sectors as shown:
• Chemical • Financial Services
• Commercial Facilities • Food and Agriculture
• Communications • Government Facilities
• Critical Manufacturing • Healthcare and Public Health
• Dams • Information Technology
• Defensive Industrial Base • Nuclear Reactors, Materials & Waste
• Emergency Services • Transportation Systems
• Energy • Water & Wastewater Systems
Communication
As highlighted in the Town Plan and reiterated here, the vulnerabilities of communication
systems are being exposed due to the scattered and fragmented arrangement of low-
density settlements. Putney Fire Department depends on the communication infrastructure
for response and emergency management capabilities. Community partners capable of
supporting communications systems during a disaster or infrastructure outage should be
sought to build redundancy mechanisms and improve resilience capabilities. Future
communication systems will require reliable, affordable, high-speed internet and other
utility infrastructure upgrades.
Water System
Putney has a municipal water system serving most of the village, including parts of River
Road, Route 5 from River Road to the Dummerston border, and parts of Kimball Hill,
Christian Square, Sand Hill Road, and Old Depot Road including the town office, town
library, and the fire department.
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The water supply system consists of a well and pump house near Sand Hill Road and a
400,000-gallon storage tank near Landmark College Campus on River Road. There is also a
distribution system in place. A source protection plan has been implemented to protect
the well’s water supply. It is also recommended to have redundant power sources for the
pump system in case of electric system power failure, such as a diesel-powered generator
capable of pumping water and chlorine into the system as necessary.
If a large structure needs to be extinguished, the system might be unable to provide a

continuous water supply for several hours. In addition, in rural areas far from the municipal
water supply, it is necessary to establish a water shuttle with multiple water supply
apparatus to ensure an adequate water supply for firefighting operations. This shuttle
system may use the municipal water supply system to fill fire apparatus continuously as well.
Target Hazard Locations

The following figure shows the target hazard locations for Putney.
Figure 93: Putney Target Hazard Locations
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Emergency Management
The Town of Putney currently follows a 2023 Emergency Operations Plan. Although the EOP
covers the requirements set forth in the Federal Emergency Management Agency
Comprehensive Preparedness Guide (CPG) 101, September 2021, Version 3.0, additional
detail should be considered for:
• Mutual Aid Agreements—specific outlines should cover all mutual aid agreements
as the town resources are not capable of handling large disasters. Additional
resources will be required to respond and recover from a large event.
• Emergency Activation Levels—additional information should be provided for

emergency activation levels.
• EOC and Department Responsibilities—additional information should be provided for

the roles and responsibilities of each position in the EOC and how the department
responsibilities will interface with response and recovery.
• ADA Compliance—additional information should be considered to comply with the

requirements for persons with disabilities and others with access or functional needs
(AFN) before, during, and after disasters and to integrate them into all five phases of
emergency management.
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Implementing & Evaluating a Community Risk Strategy

Community Risk Reduction Program
A Community Risk Reduction (CRR) Program is “the identification and prioritization of risks
followed by the integrated application of resources to improve public safety and reduce
increasing call volumes.”42 The goal of a CRR program is to incorporate emergency
operations with prevention efforts. CRR examines problems and develops prevention or
mitigation strategies to reduce the impacts of those problems.
Data collected for this plan and continued future analysis creates an opportunity to
determine if prevention and mitigation strategies efforts are working to reduce community
risk. Additionally, risks may shift as new development and demographic changes occur in
Putney and the overall service area, impacting the Putney Fire Department.
Preparing a CRR plan involves aligning with PFD’s mission and strategic plan. Creating a
plan at the station level allows personnel to engage with the community they serve. The
plan empowers staff to interact, learn more about their community, and take ownership of
their CRR program. Station personnel will begin to understand the importance of collecting
accurate data during incident reporting to support the CRR plan, develop strategies using
partnerships, solicit feedback from the community, and decide what risks to target and
prioritize.
Vision 20/20 includes a coalition of national organizations and experts that exemplify how
collaboration, communication, and commitment to data-based solutions can save lives
and property. The following figure is one basic methodology offered by Vision 20/20 to
identify and analyze risks within a community.
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Figure 94: The Community Risk Assessment Process
1. Identify Risks
6. Monitoring,
Evaluation & 2. Prioritize Risks
Modification of
the CRR Plan
3. Develop
5. Implement the
Strategies &
Community Risk
Tactics to
Reduction Plan
Mitigate Risks
4. Prepare the
Community Risk
Reduction Plan
Community Risk Reduction is also discussed in the National Fire Protection Association
(NFPA) 1300, Standard on Community Risk Assessment and Community Risk Reduction Plan
Development.
Identify Risks
The initial component of a CRR plan is to identify risks in the community, which has been
completed in this current plan, allowing PFD to deliver prevention and mitigation strategies.
Resources include:
• Personnel in the Putney Fire Department—Firefighters are very familiar with risk in the
community.
• Review of Fire Incident Data over a three to five-year period to show trending and
response performance—part of community risk reduction is fire department
response performance that allows for a timely and effective response to incidents
that occur in the community.
• Local government information, including zoning and code enforcement.
• Community partners can play an essential role in risk reduction. These partners may
include the chamber of commerce, school systems, law enforcement, EMS,
nonprofit organizations, public health departments, and local businesses.
Community partners can be essential for risk reduction efforts through community
education and interaction. Often, these organizations have programs similar to what PFD
may offer, and understanding their missions may prevent duplication efforts.
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A community risk reduction plan looks at all risks, including at-risk populations, not just fires.
The fire department responds to many types of emergencies, including emergency
medical services (EMS), fire alarm activations, motor vehicle accidents, technical rescue,
hazardous materials, or natural disasters. Each incident that occurs presents a risk to the
community.
Prioritization of Risks
Putney Fire Department must continuously prioritize what identified risks should receive
prevention, mitigation, or operational efforts. Another essential component of risk
prioritization is soliciting input from personnel in the department (i.e., firefighters, company
officers, community risk reduction specialists, and inspectors) and building strong
relationships with community partners.
When developing programs to reduce risks, several factors should be considered:
▪ The probability of it occurring

▪ The consequences to the community
▪ The impact on the organization
Develop Strategies and Tactics to Mitigate Risks

Putney Fire Department currently provides risk reduction in many ways; however, more
attention must be paid to developing strategies and tactics to mitigate those risks
continuously. Although CRR uses a wide variety of tools to form a strategic and integrated
program, focusing on the “5 E’s” is a highly recommended concept used to combat local
fire and preventable injury issues. The “5 E’s” are defined as:
▪ Education—Will education help the public: who, where, when?

▪ Engineering—What engineering or technology is available to help?
▪ Enforcement—Is additional or more substantial enforcement needed?
▪ Economic Incentives—Could incentives increase compliance?
▪ Emergency Response—Would changes in response make a difference?
More than one of the “5 E’s” could be used to develop prevention, mitigation strategies,
and operational changes for many of the risks. Examples of potential programs may
include drowning prevention, pedestrian injuries or deaths, addressing campaigns for fire
safety in the dormitories, cooking safety for older community members, or bike helmet
safety.
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Many organizations and community partners may provide staff with a different perspective
and offer additional funding and resources to mitigate limitations within the fire
department.
For each risk reduction strategy, the department should consider the pros and cons:
▪ Financial ability
▪ Political influences
▪ Logistical concerns
▪ Organization, vision, and priorities
▪ Culture of the organization
Preparing the CRR Plan

A CRR plan can be in-depth or a simple document that provides a road map to prevent or
mitigate each identified risk. A complex plan may be short or long-term (three to five years)
and use GIS mapping, while another may use basic data from incident reports. The plan
allows personnel to follow a systematic process to begin developing a program for the
community that aligns with the organization’s vision and goals. It empowers staff and
engages them at the station level, ultimately allowing them to focus their efforts.
The plan identifies specific action items that reduce risks and integrates prevention and
mitigation strategies. It provides who participates in the plan and their roles and
responsibilities for accountability. A CRR plan should include the following, but the depth of
the information may vary based on the program.
▪ Outline the vision, mission, values, and priorities

▪ Describe the community and service area
▪ Identify and prioritize the risks
▪ Identify prevention and mitigation strategies
▪ Provide a basic implementation plan for the strategies
▪ Identify measures for monitoring and evaluation
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Implementing a CRR Plan

Implementation of a CRR plan may require assistance from internal and external partners.
Plan implementation typically consists of the following steps:
▪ Identify and allocate the resources needed for the plan

▪ Prepare a timeline for implementation
▪ Assign responsibilities
▪ Communicate the goals and expectations of each person involved with the plan
▪ Monitor the progress of the plan and program
▪ Make notifications when necessary
Every organization’s CRR plan looks different but is designed to meet its goals and
objectives. It is important to realize that a plan may use partnerships with outside agencies
or develop it with internal resources or a combination.
Monitoring, Evaluation, and Modification

The objective of monitoring and evaluating a CRR plan allows PFD to make adjustments if it
is not working. The adjustments could be simple or may require significant changes. As with
any program offered by PFD, the monitoring can determine if the plan accomplishes its
intended desires. In other circumstances, it provides information on unexpected benefits
and may uncover problems that need adjusting.
A significant component of this final portion of a CRR plan is to develop processes or

outcome performance measures to determine whether the program is working correctly.
Typically, formative measures are not used as part of a station-based CRR plan since it
involves research and more detailed analysis. Vision 20/20 has created a guide to help
develop outcome performance measures and explain why they are essential.
Many fire departments use process and impact evaluations for monthly or annual reports.
Process evaluations, also called output measures, quantify what an organization does
daily. These evaluations measure the number of activities we complete (i.e., incidents,
inspections, station tours). Impact evaluations help the organization measure programs to
determine if they are changing behavior or knowledge (fall hazards for seniors). Reasons
for developing outcome measures include the following:43
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▪ Identify effective practices

▪ Measure program effectiveness
▪ Identify any practices that need to be improved
▪ Build transparency and understanding of the program
Developing a CRR plan requires PFD to look at all risks, not just fires. Much like other fire
departments in the United States, most incidents are not fire-related and involve other
types of emergencies. Developing a Comprehensive Risk Reduction (CRR) plan that
thoroughly assesses all potential risks can significantly elevate the level of community
service and engagement.
Putney Community Risk Reduction Plan

Putney Fire Department currently performs various other activities for the community;
however, a formal plan for CRR is not in place. PFD checks on the homeless population
and assists them with obtaining services. PFD works with mental health practitioners and
local law enforcement to work with persons dealing with additional mental health issues.
PFD provides the following fire prevention activities and public education presentations:
▪ General Home and Fire Safety Inspections

▪ Installation of Smoke and CO Alarms within Private Dwellings
▪ Battery Replacement of Smoke and CO Alarms
▪ Fall and Injury Prevention
▪ Cooking Safety
▪ Protective System Maintenance
▪ Public Gathering Safety
▪ Emergency Preparedness
▪ Self-Preservation Considerations
▪ Mental Health & Loneliness
▪ Workplace Safety Considerations
▪ Emergency Planning—Local and Regional
When working with contractors and architects, activities include:
▪ Building Construction Requirements

▪ Life Safety Code Requirements
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Improved Concepts for a CRR Plan

PFD utilizes volunteer personnel who are often working during regular business hours. With
limited availability of volunteers to assist with education activity delivery during normal
business hours, it will be within the department’s best interest to prioritize and concentrate
on risk reduction methods that will provide the most “bang for the buck.”
State Adopted Codes

Since 1972, the State of Vermont Division of Fire Safety has adopted nationally recognized
safety standards to protect the public. The State of Vermont has adopted the current State
Rules and Primary State Adopted Codes:
State Rules
▪ Vermont Fire and Building Safety Code, 2015 edition
▪ Vermont Electrical Safety Rules, 2020 edition
▪ Vermont Plumbing Rules, 2021 edition
▪ Vermont Elevator Safety Rules, 2014 edition
▪ Vermont Access Rules (ADA), 2012 edition
▪ Residential Rental Housing Health & Safety Code, 2022 edition
Primary State Adopted Codes

▪ NFPA 1 Fire Code, 2015 edition
▪ NFPA 101 Life Safety Code, 2015 edition
▪ The International Building Code, IBC, 2015 edition
▪ NFPA 70 National Electrical Code, 2020 edition
▪ ICC International Plumbing Code, 2021 edition
▪ The National Board Inspection Code, National Board of Boiler and Pressure Vessel
Inspectors, 2015
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The following figure shows the Vermont Adopted Rules, Codes, and Standards.
Figure 95: Vermont Adopted Rules, Codes, and Standards
130
Code Enforcement Program

In May 2010, the Town of Putney and the Putney Fire Department entered into a Municipal
Inspection Agreement with the Vermont Department of Public Safety and the Vermont
Division of Fire Safety regarding fire prevention and life safety inspections within all existing
public occupancies. This agreement specifically allows for dedicated, certified personnel
within the fire department to perform inspections of existing public buildings, including
single-family rental dwellings.
Nevertheless, PFD does not routinely inspect both long and short-term rentals, as it is not
mandated by town ordinance. Inspections and plans review only become mandatory
when there is a permit request for renovation, change of use of a property (e.g.,
converting from a single-family to a multi-family dwelling), additions, or new construction
projects that require construction permits. The fire department utilizes specific forms for
conducting inspections, such as sprinkler inspections, boiler inspections, and other
necessary inspections. The forms presented to the Town Treasurer are for permits, which
demonstrate an accounting for the corresponding fee. The inspection fees received are
for the annual inspections performed at The Putney School and Greenwood School, as
these facilities are governed by the Vermont Department of Education. Inspection services
for these facilities are invoiced, with copies of these invoices provided to the Town
Treasurer. Additionally, neither town officials nor PFD keeps a matching master list of all
businesses, rental units, daycares, hotels, and motels.
Short- and Long-Term Rentals

There are limited state laws or regulations in effect regarding short-term rentals for Vermont,
rental operators must include their Vermont Meals and Room Tax account number with
any advertisement of a short-term rental. Vermont law only states that the short-term
operator must keep a State of Vermont rental operator information form on site.44
In the town of Putney, there is currently no requirement for a short-term permit in order to
operate. However, it is worth noting that some local governments in Vermont, such as
Burlington, Chester, Killington, and Woodstock, have implemented regulations specifically
for short-term rentals. In these cases, operators are obligated to register their rentals with
the Zoning Administrator.
Service Reimbursement Ordinance

The Town of Putney has adopted the Putney Fire Department Service Reimbursement
Ordinance (2003), which outlines the town's authority to carry out code enforcement
statutes defined by the State of Vermont and to invoice eligible incidents.
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The ordinance, the power to enforce code and investigations, invoicing, and application
of the ordinance is given to the Fire Chief of PFD as sole responsibility. Explicit specifications
for invoicing are given within the ordinance. The ordinance states that the invoices shall be
“issued by the chief” in Article VI, Ordinance Management B(1).
Within the same ordinance, Article V, Section J states reimbursement rates for invoicing.
These rates have not been revised since 2003.
Fire Prevention Education

Although programs in fire education are necessary and improve the resiliency of the
community, these education programs should be on point with community risk and
developed for specific audiences.
Life Safety Education in the Schools

Students with Disabilities, Neurodivergence, and Access and Functional Needs (AFN)
Because of the number of students in middle school, high school, and college with
disabilities and neurodivergent and functional needs, additional emphasis should be
placed on evacuation planning and teaching fire safety education. If possible, it is
important to include caregivers and faculty members in this training. These people should
know, just as much as the student, how to prevent a fire and what to do if one breaks out.
All students should be given fire safety education training and participate in active fire drills
at the beginning of the school year and when returning from holiday break in January.
NFPA 101® Life Safety Code, 2020 7th edition (29.7.3) Drills in Dormitories, states emergency
egress and relocation drills in accordance with Section 4.7, “shall be held with sufficient
frequency to familiarize occupants with all types of hazards and to establish conduct of
the drill as a matter of routine. Drills shall be conducted during peak occupancy periods
and shall include suitable procedures to ensure that all persons subject to the drill
participate.”
In order to improve evacuation planning and fire safety education, the fire department
should interact with faculty and students to ask:
▪ What are their concerns about fire safety in relation to their lifestyle?
▪ What provisions might need to be made for them in relation to their disability?
▪ How can they help you help them be fire-safe?45
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Developing dialogue with students is a critical step in developing a fire safety training
program and a fire safety plan. The National Fire Protection Association (NFPA) has created
the Emergency Evacuation Guide for People with Disabilities (3rd edition) to provide a
simple tool, based on NFPA codes and standards, to help people with disabilities plan for
an emergency evacuation and to help those who manage a building or organization with
planning considerations for emergency evacuation.46
Many residential and commercial buildings will have plans for emergencies or specific
hazards. NFPA 101® Life Safety Code, 2021 edition (4.8.2.1), requires that building
emergency plans include:
▪ Procedures for reporting of emergencies

▪ Occupant and staff response to emergencies
▪ Evacuation, relocation, and shelter-in-place procedures appropriate to the building,
its occupancy emergencies, and hazards
▪ Appropriateness of the use of elevators
▪ Design and conduct of fire drills
▪ Type and coverage of building fire protection systems
▪ Other items required by the authority having jurisdiction (AHJ)47
NFPA and The Center for Campus Fire Safety work together to help raise awareness about
the dangers of fires among college-aged students who live in on- and off-campus college
housing. Students living in a dormitory should know what to do if the fire alarm goes off.
Students should know the risks and the preventative actions that can save their lives:
▪ Unattended cooking
▪ Candles
▪ Disabling of smoke alarms in rooms
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The following figure shows downloadable NFPA College Campus Fire Safety information for
students.
Figure 96: NFPA College Campus Fire Safety Tips48
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Life Safety Education for Senior Adults

At age 65, older adults are twice as likely as the population at large to be killed or injured
by fires. By age 75, that risk increases to three times that of the general population. The
NFPA Program Steps to Safety™ is centered around 16 key safety messages—eight fire
prevention and eight fall prevention—developed by experts from national and local safety
organizations across the US and Canada.49 The program is designed to be implemented
by a coalition or community partnership comprising the local fire department, health and
social service agencies, service clubs, social and religious organizations, retirement
communities, and others to deliver key fire and fall messages and connect residents with
resources. Program materials are available for free download and distribution.
Emergency Management
Community Emergency Response Team (CERT) Program

For those in the community who wish to volunteer but prefer not to be part of the fire
department emergency response, FEMA provides a CERT program that educates
volunteers about disaster preparedness for the hazards that may occur in Putney.
CERT became a national program in 1993.50 The CERT Program offers a consistent,
nationwide approach to volunteer training and organization that professional responders
can rely on during disaster situations, allowing first responders to focus on more complex
tasks. Each CERT program is unique to its community and essential to building a culture of
preparedness in the United States.
An emergency manager or fire chief may create a CERT program to train volunteers in
basic response skills that are important to know in a disaster when emergency services are
not available. CERT programs can deliver public education as well as disaster response
capabilities. The CERT program trains volunteers in basic disaster response skills, such as:
▪ Fire Safety
▪ Light search and rescue
▪ Team organization
▪ Disaster medical operations
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The Emergency Management Institute (EMI) offers interactive web sources that are free
and available to anyone.
▪ FEMA Independent Study IS-317: Introduction to CERT

▪ FEMA Independent Study IS-315: CERT and the Incident Command System (ICS)
On-College Campuses CERT Program51

A Campus CERT program can support and enhance existing capabilities, and CERT
volunteers can participate in efforts to increase the preparedness and resilience of the on-
campus community.
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Section IV:
RECOMMENDATIONS & STRATEGIES
137
Recommendations
General Recommendations
Recommendation 1: Initiate a strategic planning process after completing the Operations
Analysis.
Description: This plan will set priorities, establish timelines, and delegate responsibilities,
ensuring the Operational Analysis translates into actionable steps.
Outcomes: Enhances service quality, community safety, and fiscal efficiency.
Estimated Cost: Depending on the level of internal/external facilitation, $18,000.
Recommendation 2: Develop an internal/external communication process and policy.

Description: Improve interactions among fire administration, line personnel, and the Town
of Putney to streamline operations.
Outcomes: Ensures continuity of government and service delivery.
Estimated Cost: Staffing cost.
Recommendation 3: Review and update current mission, vision, and value statements
reflecting the overall goals and purpose of the organization.
Description: Refresh the current mission statement during the strategic planning phase to
reflect evolving community needs and organizational goals.
Outcomes: Ensures clarity and alignment with the department’s objectives.
Estimated Cost: Minimal.
Recommendation 4: Implement a process for the periodic review of standard operating

guidelines (SOGs).
Description: Implement a yearly review system for these guidelines, ensuring all staff are
informed about changes.
Outcomes: Promotes efficient, consistent, and safe emergency responses.
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Recommendation 5: Establish localized response performance benchmarks.

Description: Assess national benchmarks, tailor them to Putney’s context, and integrate
them into resource management strategies.
Outcomes: Aligns with community expectations and improves resource allocation and
service delivery.
Estimated Cost: The cost of this recommendation will be staff time to evaluate national
performance standards, determine recommendations for performance standards for the
Town of Putney, and develop and make a presentation to Town management to identify
the performance benchmarks that are currently being achieved and seek authorization to
adopt the recommended benchmarks for improved service delivery.
139
Staffing Recommendations
Recommendation 6: Reallocate the job duties of the current Fire Chief.
Description: The Town has consolidated too many job functions onto one individual.
• Fire Chief
• Health Officer
• Fire Prevention Inspection Officer (State and local fire code enforcement)
• Emergency Management Director
• 911 Coordinator
These cumulative job duties are beyond the scope of what one person can effectively
manage and perform. A volunteer fire department's day-to-day oversight and leadership
that responds to less than 400 calls per year can be well served by a part-time or volunteer
Fire Chief not burdened by these other municipal responsibilities and job duties. The role of
911 Coordinator can still be associated with the Fire Chief’s assigned duties, given its direct
relationship to the provision of emergency services to the residents and businesses of
Putney.
Outcomes: This reallocation of the Fire Chief's job duties will enhance operational
efficiency and effectiveness by ensuring focused leadership and management,
particularly in emergency services, while addressing the overextension of responsibilities
currently impacting the role.
Estimated Cost: None.
Recommendation 7: Establish the position of Fire Training Officer.

Description: Firefighter training and education must be elevated to a level that ensures that
volunteer firefighters are being trained at minimum monthly and on all aspects of
firefighting operations, department equipment, and Federal and State requirements. This
focus will require either a credentialed/certified part-time contract fire instructor or a
shared services agreement with one or more of the surrounding fire departments for a fire
training officer. Suppose there are other options than these two options currently; in that
case, the Town and PFD should hire a credentialed/certified part-time employee to ensure
that PFD personnel are trained and ready to perform under emergency conditions.
Outcomes: Establishing the position of Fire Training Officer ensures regular, comprehensive
training for volunteer firefighters, enhancing the preparedness of the Town's fire
department personnel for emergency conditions.
140
Recommendation 8: Contract for a part-time Fire Prevention Inspector and Town Health
Officer.
Description: The current duties and responsibilities of the Town Health Officer and Fire
Prevention Inspector position should be either contracted out to a qualified fire-life safety
professional or shared contractually with a neighboring fire department that already has
fire prevention staff. At a minimum, the contract with the State of Vermont should be
discontinued, and the responsibility for the associated State inspections should be
relinquished back to the State agencies responsible for them.
Outcomes: Enhances local fire-life safety expertise and streamlines responsibilities, with
discontinuation of the State contract ensuring a more efficient and localized approach to
inspections.
Recommendation 9: Designate the Town Administrator as Emergency Management

Director.
Description: Understandably, the role of Emergency Management Director has been
assigned to the Fire Chief because of his emergency response experience and training.
The role and responsibilities associated with the Municipal Emergency Management
Director position may best reside with the Town Administrator while the PFD Fire Chief duties
are re-defined.
By State statute, the Emergency Management Director is tasked with providing leadership
and management of all aspects of the Municipal government’s emergency response
organization before and during a defined Federal, State, or Local emergency. Triton
believes that the Fire Chief should be more focused on their fire department management
and emergency incident operational duties rather than the overall management of the
Town’s Emergency Management system.
Outcomes: The community could be better served by moving this responsibility from the
Fire Chief to the Town Administrator or another member of the Town organization, thus
giving the Fire Chief more time to manage the Fire Department.
Estimated Cost: TBD.
141
Finance Recommendations
Recommendation 10: Conduct a forensic audit of the Town’s financial practices; prepare
and implement a purchasing policy.
Description: As noted in the report, the Fire Department needs to be more fiscally
accountable—the ambiguous relationship between the PFD and the town compounds
this. The Fire Chief and the PFD act independently of Town Administration and without
regard to Town policies.
This report only focuses on the Fire Department, but a forensic financial audit should be
conducted townwide. This will determine whether or not appropriate fiscal management is
occurring in all of the Town’s departments.
Triton was unable to locate a purchasing policy or a purchase order system. These are vital
components of sound fiscal management. The purchasing policy should outline how
purchases are made, various processes to be followed depending on the type of
expenditure, and levels of purchasing authority for staff.
Outcomes: Improved understanding of how fiscal matters are being handled townwide;
the ability to amend the Financial Procedures Manual and implement any requisite
changes to comply with best financial management practices, including the development
of a purchasing policy and purchase order system; discontinuance of improper vendor
payments and expense reimbursements, if those are currently occurring.
Estimated Cost: Staff time and consultant costs to be determined.
Recommendation 11: Prepare and execute an agreement between the Town and PFD
outlining each party's roles and responsibilities.
Description: It is highly unusual for an independent non-profit to collect and spend money
related to municipal operations, especially without the knowledge or authorization of the
municipality. The Association operates independently from the Town, which would be fine
if its activities did not impact Town assets or generate future/ongoing liabilities.
The most essential component in crafting this agreement will be outlining the fiscal
management of donations received on behalf of the Putney Fire Department. This includes
articulating how and to whom donations are made and stating that all expenditures
related to town assets or generating future liabilities are the sole responsibility and authority
of the town.
Outcomes: A clear delineation of the PFD's role(s) and responsibilities.
Estimated Cost: Staff time. Consultant costs if a third party is required to complete the task.
142
Recommendation 12: Prepare a Capital Improvement Plan (CIP).

Description: A CIP provides a short- and long-term vision for the development, construction,
maintenance, and improvement of infrastructure assets. It is a tool to prioritize, schedule,
and establish funding for associated projects. The CIP is a crucial component of prudent
project planning and financial management.
The Town’s FY 24 Financial Supplement speaks to this issue and the importance of initiating
this planning over the next few years. It is commendable that this issue has been
recognized and is planned to be addressed. It should be initiated sooner than later.
Outcomes: A multi-year plan for building, maintaining, and replacing capital assets; the
ability to predict and plan for the fiscal impacts of aging infrastructure.
Recommendation 13: Prepare an Asset Management Policy and implement an Asset

Management System.
Description: Like a CIP, an Asset Management Policy and System is a best practice tool
used to plan for the acquisition, maintenance, replacement, and disposition of equipment.
Outcomes: A multi-year plan for acquiring and replacing assets such as equipment and
tools; the ability to predict and plan for the fiscal impacts of aging equipment.
Recommendation 14: Review the Fire Department fee schedule and audit the inspection
fee revenue compared to the number of completed inspections.
Description: The inspection fee revenue should reflect the value of the number of
inspections multiplied by the associated fee. That needs to be reflected in the financial
documents reviewed for this report. Therefore, it needs to be clarified if revenue is being
collected and if it is, where it is being deposited.
Outcomes: An understanding of whether or not inspection fee revenue is being properly

collected; a possible improvement to revenue generation and accounting.
Estimated Cost: Staff time.
143
Recommendation 15: Prepare a long-range financial forecast.

Description: It is a common practice among municipalities to prepare long-range financial
forecasts. Although it is difficult to predict certain economic variables, a conservative
forecast model helps the Administration and the governing body prepare for upcoming
fiscal years and provides the public and employees with a picture of the anticipated
financial future. An appropriate forecast period is three to five years, updated with each
budget.
Outcomes: A tool for financial planning beyond the upcoming fiscal year.
Recommendation 16: Prepare and execute agreements with the schools making the
private school contributions.
Description: Authorization documents should be in place for all non-standard revenue
collected. In this case, it can be in the form of individual agreements with each school or a
master agreement signed by all parties.
Outcomes: A binding document outlining the terms of these contributions.
144
Capital Equipment Recommendations

Recommendation 17: Mount all battery bank chargers for battery-operated equipment into
the apparatus to ensure additional batteries are available on the emergency scene.
Description: Equipment used on an emergency scene should be readily available and
have the ability to operate for extended periods. Additional batteries for small equipment
are being stored in the apparatus bay area, away from the apparatus, making additional
power sources inaccessible on an extended emergency scene.
Outcomes: Improved continuity of operations.
Estimated Cost: A certified automotive electrician will be needed to mount the charger
banks to the apparatus properly in a well-ventilated area that can provide electrical
power for charging.
Recommendation 18: Eliminate the smoke ejector fans from all apparatus.
Description: Smoke ejector fans are recommended to be eliminated from use. These fans
must be hung from doorways—vital to firefighters for egress—and electricity is required to
power these fans. Extension cords on the fireground create an additional trip hazard.
Positive pressure ventilation (PPV) fans (gasoline or battery-powered) effectively remove

smoke from a structure, even in basements, by pressurizing the structure. PPV fans can be
placed a short distance from the door, eliminating the possibility of tripping on the unit and
reducing egress access. Smoke can be evacuated by purposefully opening and closing
doors and windows systematically. Firefighters should be trained on the proper use of
positive-pressure ventilation fans.
Outcomes: Will reduce safety hazards on a fire incident and improve smoke evacuation
procedures.
Estimated Cost: PFD already possesses PPV fans for fire scene usage, although some of
PFD’s PPV fans need to use a generator for an electrical source. The department should
work towards replacing all PPV fans with battery-powered ones.
145
Recommendation 19: Inventory and organize the Equipment, PPE, and EMS Room.
Description: The room stores spare cleaning supplies, equipment, spare turnout gear, and
EMS supplies. Remove all items from the top of the flammable lockers. Inventory the
equipment, removing unusable items from service.
Outcomes: Good organization of this room allows for continuity of operations. Properly
labeled and organized storage areas can prevent placing broken, expired, or retired
equipment, PPE, or EMS supplies on the apparatus.
Estimated Cost: Cost of personnel’s time to reorganize the room.
Recommendation 20: Immediately replace the air-filling system for SCBA air cylinders.
Description: The estimated life cycle for an air-filling system for SCBA air cylinders is only 10
to 14 years. A new compressor for a higher PSI rate is required for 4500 PSI SCBA cylinders.
The fill station simultaneously fills two to four bottles at the same time (depending on the
size of the unit purchased). Note: This system must be serviced regularly per the
manufacturer’s recommendation.
Outcomes: Enhanced firefighter safety and cleaner air filtration system for SCBA air
cylinders.
Estimated Cost: A two-cylinder system costs $45,000–$60,000.
Recommendation 21: Remove all master keys from the college and other facilities from the
apparatus and fire station. Establish a policy for the use of the Knox Box System.
Description: A Knox Box system is a secure key box used by PFD to provide emergency
access to a building. The box contains keys or access codes that allow firefighters and
emergency personnel to enter the building quickly without causing damage. This can be
especially important in situations where immediate access is needed.
Firefighters generally trust the system because it enhances efficiency and reduces the
need for forced entry. Building owners or managers can place keys or access information
inside the Knox Box, and only authorized emergency personnel can access the box. This
helps ensure that firefighters can gain entry swiftly and with minimal disruption.
Outcomes: Improved security access and safety for firefighters, occupants, and buildings.
Estimated Costs: None.
146
Recommendation 22: Evaluate the safety and efficacy of the ladder truck.
Description: Critical safety issues were identified with the operation of the ladder truck
based on the apparatus’s safety features, age, and operational effectiveness.
Additionally, training records indicate that only a few fire personnel are qualified to
operate the apparatus.
Other fire departments in the area have ladder trucks that can respond under current
mutual aid agreements:
Brattleboro Fire Department

16 South St.
West Brattleboro, VT
5 Ladder 1—Aerial Stick with Waterway—2018 Pierce Enforcer Ascendant 1500 GPM/500
Gallons/107’ Ladder
Chesterfield Fire Department

492 NH-63, Chesterfield, NH
Bucket Truck with Waterway—2022 Pierce Enforcer 107’ Ladder
Westminster Fire Department

Station 1
103 Grout Ave.
Westminster, VT
42 Tower 2—1988 E-One 95’ RM Tower
Bellow Falls Fire Department

Station 1
170 Rockingham Street
Rockingham, Vermont
52 Ladder 1—2008 Typhoon Side Stacker Aerial 1250 GPM/500 Gallons/75’ Ladder
147
Keene Fire Department

Central Station
31 Vernon Street
Keene, NH
Tower Ladder 1—2020 Rosenbauer Cobra 2000 GPM/300 Gallons/100’ MM Tower
Keene Fire Department

West Station
Hastings Avenue
Keene, NH
Ladder 2—2018 Pierce Ascendant 2000 GPM/500 Gallons/F/107’ RMA
Outcome: Improve safety for firefighters.
Recommendation 23: Perform an analysis of the current apparatus fleet to determine the
required quantity for efficient fire ground operations, retire aging apparatus, and maintain
fiscal responsibility.
Description: Presently, Engine 1 (17 years), Engine 2 (29 years), Tanker 1 (25 years), and
Ladder 1 (29 years) surpass the recommended 15-year frontline apparatus life cycle outline
in the new NFPA 1900 Standard. Additionally, Engine 2, Ladder 1, and Tanker 1 exceed the
NFPA 1901 Annex D recommendation to retire apparatus from the vehicle fleet at 25 years
old.
Exploring advancements in tanker design opens up the possibility of streamlining the

apparatus fleet. Consideration could be given to acquiring a pumper/tanker combination
apparatus, leveraging innovations that enhance water-carrying capacity for single-axle
and tandem-axle tankers by incorporating poly-built tanks. These tankers boast discharges
on all four sides and air-operated dump chutes on the sides and rear, facilitating faster and
more efficient water dumping capabilities. Furthermore, they can serve the dual purpose
of an engine when needed.
Aging apparatus are more prone to breakdowns and costly repairs. Safety features, such
as improved visibility and rollover protection, have seen significant advancements over the
past decade.
Outcomes: Improved continuity of operations.
148
Estimated Cost: Apparatus for engines and tankers may soar to $750,000 or more.
Regarding replacing ladder trucks, the cost can go up to $1.5 million, depending on the
chosen type. The Putney Fire Department is advised to engage with manufacturers to
obtain comprehensive details and pricing for these apparatus. It’s important to note that
supply and component delays could potentially lead to a delivery time of two to three
years.
Recommendation 24: Immediately perform thorough testing and inspection of ground

ladders according to the current NFPA 1932 Standard on Use, Maintenance, and Service
Testing of In-Service Fire Department Ground Ladders. Implement annual ground and aerial
ladder testing.
Description: The testing of ground ladders can minimize ladder failures due to abuse,
overloading, everyday wear, or heat. These inspections are essential in helping ensure the
utmost safety and security of firefighters. The inspection should include:
• Visual examination of the structural welds and components of the ground ladder
• Service strength testing of the ground ladder
• Roof hook test
• Ladder hardware test
Outcome: Improve safety for firefighters and confirm that in-service fire department ground
ladders comply with industry standards.
Cost: Cost is based on a third-party qualified testing company.
Recommendation 25: Consider replacing all 1.75” to 3” cotton-jacketed fire hoses with
newer technology—color-coded, light-weight fire hoses.
Description: A company officer should oversee the department's purchase, testing, and
replacement of fire hoses. The department may consider using a standardized color-
coding system for each apparatus.
Outcomes: Improve continuity of operations.
Estimated Cost: The estimated cost per section of fire hose averages $198 for a 50’ section
of a 1.75” attack line and $350 for a 50’ section of a 3” master stream/supply line.
149
Recommendation 26: Immediately remove all building materials from the station’s elevator.
Description: ADA compliance requires that the fire station be accessible for persons with
disabilities or functional needs. The fire department should remove all items from the
station’s elevator and keep it in good working order.
Outcomes: Enhance adherence to ADA guidelines.
Estimated Cost: Time cost for fire personnel to remove items from the elevator. Annual cost
of elevator inspection.
Recommendation 27: Establish a comprehensive inventory list encompassing all turnout

gear and equipment issued to personnel. These items include portable radios and turnout
gear ensembles (jackets, pants, boots, hoods, helmets, and gloves).
Description: The Putney Fire Department should keep track of every gear assigned to
specific firefighters and any spare items in station inventory. Tracking the gear and
equipment by user, type, serial number, manufacturer, expiration date, last inspection
date, and more is essential.
Outcomes: Keep reliable track of turnout gear and equipment.
Estimated Cost: Cost to design an inventory checklist for each firefighter or use an
available software system to track gear inventory.
Recommendation 28: Use a building contractor to complete the second floor of the fire
station.
Description: A fire station should be built to meet a community’s needs. The fire station is
large enough to hold community meetings, house fire, EMS, and law enforcement
personnel during disasters, and allow for future growth for the fire service, including kitchen
and sleeping accommodations.
Putney Town Officials and Putney Fire Department’s Fire Officers should work with an
architect and building contractor to complete the construction on the second floor of the
fire station, keeping in mind that additional offices are needed instead of storage areas.
Sleeping private quarters for each firefighter is necessary to house fire personnel in the
future or during a disaster. The station should be designed with transitional zones for
decontamination, resilience, and flexibility.
Outcomes: Enhance operational efficiency and address fire service and community
needs.
Estimated Cost: Completing the second floor will be determined by the type of features
needed and a bid/quote process that follows the current City purchasing guidelines.
150
Recommendation 29: Compile a comprehensive inventory of all equipment and apparatus

used at Putney Fire Department. Once completed, generate a database containing this
information and provide it to Putney’s Town Manager.
Description: The database should encompass all equipment and apparatus for the Putney
Fire Department. Each entry should contain details such as item name, quantity,
specifications, serial numbers, date of purchase, and any other pertinent information
relevant to the fire department’s assets.
Outcomes: This inventory ensures an organized and detailed record of the fire
department’s inventory for the Town of Putney.
Estimated Cost: Personnel time to compile such a database.
Recommendation 30: Consider making a checklist for equipment inspection on each

apparatus that is regularly performed (preferably daily).
Description: Creating a daily checklist for apparatus equipment checkoff in a fire
department is crucial for ensuring that all necessary equipment is accounted for and in
proper working order. A driver can also use this checklist on a fire scene to ensure all
equipment has been placed back on the apparatus after an incident.
The checklist should include a list of equipment stored in each compartment and a
medical kit. Additionally, an area on the checklist should consist of the condition of the
apparatus (visual inspection, exterior lights, tire condition, and fluid levels) and the air level
on SCBA air cylinders.
Outcomes: Regularly performing this checklist helps maintain the readiness of fire
department apparatus and ensures that equipment is in optimal condition for emergency
response.
Estimated Costs: Personnel time to develop a checklist and periodically complete a

checklist inspection.
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Service Delivery
Recommendation 31: AP Triton recommends improved data collection through the 911
CAD and department records management systems (RMS).
Description: The service demand figures were acquired primarily from two or three sources:
fire department internal RMS, CAD records, and call volumes, as reported on the AP Triton
survey tables. The primary data was limited to three years, and specific elements, including
turnout time, were unavailable. A significant data loss occurred when the Putney Fire
Department transitioned from its previous records management system (RMS) to ESO
software.
Outcomes: Gathering accurate data is critical to determining service delivery

performance.
Estimated Cost: Minimal expense utilizing Town staffing.
Recommendation 32: Work with Southwest Fire Mutual Aid to improve call processing time.
Description: Collaborate with Southwest Fire Mutual-Aid and Windham County to meet
NFPA 1710/1720 standards for call processing times. Analyze data and implement changes
to reduce delays in call processing, leading to quicker response times.
The following figure shows the national 911 call processing time standards.
Figure 97: National 911 Call Processing Time Standards

Call Processing Time Standards
• Within 60 seconds, 90% of the time, for high

acuity incidents.
Call Processing Time: Time from
acceptance at the dispatch center • Incidents requiring EMD or special assistance,
until notification of response unit. 90 seconds, 90% of the time.
• All incidents, 120 seconds, 99% of the time.
More than available data was needed to calculate the 90th percentile, but it appears to
be significantly higher than industry standards. A delay in call processing increases the total
response time for emergency services.
Outcomes: Enhanced call processing and reduced total response time, leading to
improved service delivery.
Estimated Cost: Dependent on factors causing call processing delays.
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Emergency Medical Services

Recommendation 33: AP Triton suggests incorporating response standards in renewing the
private ambulance contract to enhance its effectiveness.
Description: The contract lacks specific service requirements, including ambulance unit
availability, staffing levels, response time expectations, and financial repercussions for
service shortfalls.
Outcomes: Ensures level of pre-hospital EMS care and fiscal responsibility.
Recommendation 34: Perform a cost-benefit analysis for medications/procedures

performed/administered by PFD.
Description: All staffing, equipment, and supplies not mandated by the government or
industry norms should be subjected to a cost-benefit study by PFD.
Outcomes: A statistical study is required to determine the overall efficacy of the resource
under consideration.
Recommendation 35: Increase the use of a statistically-based quality management

program.
Description: The data may support program expansion and budgetary increases. This
evaluation process indicated an opportunity for improvement regarding data collection
and analysis. Currently, PFD is using ESO for patient care reporting. The program will export
data to an Excel format if adequately documented, and the data can be easily
interrogated to provide various evaluations.
Outcomes: Evidence-based data can offer objective information measuring the level of
care provided.
Recommendation 36: Implement a partially automated inventory control system.

Description: Shift from manual to electronic systems to optimize supply handling and
reduce waste.
Outcomes: Various systems have proven cost-effective in the long run, notably when
eliminating waste and lost supplies due to expiration.
Estimated Cost: Cost depends on the type of system/process selected. The actual cost
would be partially offset by eliminating waste and lost supplies.
153
Training Recommendations
Recommendation 37: Define Annual Training Requirements.
Description: Analysis showed inconsistency throughout the departments, indicating the
need for defined training hour requirements for individual firefighters/EMTs/paramedics. The
training requirements are defined but appear to lack consistency between staff. Develop
clear and consistent annual training requirements for individual firefighters and EMS
personnel. Ensure a balanced curriculum for all staff members.
Outcomes: Consistency in training across departments, leading to improved performance.
Estimated Cost: Staff/training time.

Recommendation 38: Enhance the Fire and EMS Training Program.
Description: Establish a comprehensive training program with focused, repetitive, and
immersive training, as well as mandatory re-certification. Align training content with
incident analysis.
The following diagram shows the percentage of training compared to the percentage of
service demand.
Figure 98: PFD Training Compared to Incident Analysis (2022)

Incident Type Training Incident
Fire 61.7% 7.3%
EMS 34.6% 50.8%
Hazmat 0.0% 5.8%
Rescue 18.6% 0.7%
Wildland 0.0% 0.7%
Other 12.1% 34.7%
Outcomes: A balanced training program and philosophy can result in a standardized

program that meets the community's needs.
Estimated Cost: Staff/training time.

Recommendation 39: Create a Training Officer Position.
Description: Assign a qualified individual to oversee training, addressing the need for
specialized focus and avoiding dual role conflicts.
Outcomes: Improves training efficiency and response capabilities.
Estimated Cost: Cost depending on selection of a staffing model.
154
Code Enforcement and Inspection Recommendations

Recommendation 40: Consider updating the Putney Fire Department Service
Reimbursement Ordinance.
Description: To increase fiscal checks and balances, town officials should consider
changing the Putney Fire Department Service Reimbursement Ordinance. Currently, the
ordinance states that invoicing shall be the responsibility of the Fire Chief. Consider that the
Fire Chief should give requests for invoicing. However, the invoicing responsibilities and
invoice collection should be given to the Town Treasurer.
Within the same ordinance, Article V, Section J reimbursement rates for invoicing should be
changed to reflect the current costs of apparatus, personnel, and other specific
equipment.
Outcomes: Ensures continuity of government.
Recommendation 41: Consider developing fire, health, and building inspection

requirements and inspection rates in a Town Ordinance.
Description: The inspection requirements in Putney should align with the regulations
enforced by the State of Vermont Code Enforcement, as well as any local requirements for
annual or bi-annual inspections for both long-term and short-term rentals. It is suggested
that the ordinance mandates the zoning administration and fire department to maintain
an electronic master list of all businesses, daycares, rental units, hotels, and motels. It may
also be worth considering implementing a fire department inspection schedule for all these
occupancies.
Additionally, State and Town forms, necessary permits, and inspections should originate
from the Zoning Department. Revenues for these permits should be collected by the Town
Treasurer only. Once collected, the request for a review of plans, permitting, or inspection
should be sent to either the fire department or the State of Vermont.
Outcomes: Ensures fiscal responsibilities of revenues and clear lines of communication with
the Town of Putney residents and contractors. Ensures continuity of operations for plan
review, permitting, and building inspection requirements.
155
Recommendation 42: Create a master list of all businesses and short- and long-term rentals
for the fire department and town officials.
Description: Create a master list that only the Town Zoning Administrator updates for
continuity purposes.
Outcomes: Creates a master list for scheduling inspections on a timely basis and familiarizes
short- and long-term rentals.
Estimated Cost: Use established software or spreadsheets to create a master list. Hold one
person accountable for the master list.
Recommendation 43: Develop a Fire Department Inspection Program.

Description: The fire department should establish a more robust inspection program that
includes scheduling rental inspections and businesses on a timely schedule to reinforce
essential inspection criteria:
• Smoke and Carbon Monoxide Detectors
• Doors
• Handrails
• Guards
• Means of Escape Requirements
• Secondary Means of Escape
• Building Services to include all electrical appliances, fixtures, equipment, or wiring

installed and maintained by NFPA 70, National Electrical Code® and permanent
wiring installed and maintained by NFPA 70, National Electrical Code®.
• Fire Extinguishers
• GFCI Outlets
• Bathroom Ventilation
• Heating Units
• Lead Law
• Premises Identification
• Barbeque Grills
156
• Present violations on an inspection form used in conjunction with ESO software from
the fire department
• Establish a reinspection schedule of at least 30 days
• Assess fines established in the town ordinance for failure to correct violations
Outcomes: Continuity of operations and code enforcement to improve the health and
safety of residents and visitors.
Estimated Cost: The fire department would benefit from integrating iPads with the ESO
software for inspections loaded into the computer for each person qualified to complete
these inspections. The initial cost will be the set-up of an inspection program and the
program's introduction to business owners.
157
Planning Recommendations
Recommendation 44: Consider a fire department strategic plan that discusses future
changes that may contribute to the high-density population, buildings higher than three
stories in Putney Village, and additional construction of structures in higher elevations.
Description: Although the population of Putney is not growing, fire department officials
should consider factors that may contribute to growth in tourism, short-term rental,
occupancies at higher elevations, and increased usage of outdoor recreational activities.
Outcomes: Consideration should be given to future planning in anticipation of population

growth, potential growth in the tourism industry, and the possibility of changes in zoning for
agricultural land use.
Estimated Cost: Cost of a third-party consultant to develop a strategic plan working with
town and fire department officials.
Recommendation 45: Consider improvements to the Emergency Operations Plan.

Description: Although the current EOP follows the FEMA Comprehensive Preparedness
Guide (CPG) 101, Version 3.0, additional detail is necessary within the plan for:
• Mutual Aid Agreements
• Emergency Activation Levels
• EOC Organization
• EOC and Department Roles and Responsibilities
• ADA Compliance
Outcomes: A comprehensive emergency operations plan that provides more detail for
plan effectiveness during a disaster or significant event.
Estimated Cost: A plan update costs between $30,000–$60,000. However, state emergency
management grant funding is often available for development and updates for
emergency operations planning.
158
Policy Recommendations
Recommendation 46: Consider response policies for fire department personnel during
conditions related to flooding and ice/winter storms.
Description: The fire department should designate a response policy that relates to natural
disaster situations that may endanger personnel while traveling to the fire station or
apparatus in response to an incident. With the types of roads in the area, concern should
be placed on the response of heavy apparatuses to higher elevations and unpaved roads
when these conditions are present.
Outcomes: Improve the health and safety of firefighters during natural disasters or less-than-
ideal conditions for response.
Recommendation 47: Develop a policy by NFPA 1962, Standard for Care, Use, Inspection,
Service Testing, and Replacement of Fire Hose, Couplings, Nozzles, and Fire Hose
Appliances. All fire hoses, nozzles, and appliances in use should be inventoried, inspected,
and tested. The policy should be specific about fire hoses—how to mark them for inventory
when purchased, how to clean and inspect each section, when it should be cleaned, and
how to test each section annually.
Description: PFD should develop a policy for fire hoses that includes:
• Each section of the hose should be individually tracked from purchase until it is
removed from service. Detailed inventory and maintenance information shall be
kept for each section of the hose.
• All hose inventory should be marked with an inventory number that includes the
year purchased and the inventory number (i.e., 23-01, 23-02). This number should be
permanently marked on both ends of the fire hose.
• Hose inventory should be pressure tested annually according to guidelines in NFPA

1962. The fire hose should be marked with a test date when completed each year:
T-2310, would mean the hose was tested in October 2023.
• Any hose that does not pass annual testing should immediately be taken out of
service.
• Inspection, cleaning, drying, and storage guidelines for fire hose.

Outcomes: Improve safety for users of fire hoses and provide a reasonable assurance that
the hose, coupling assemblies, appliances, and nozzles will perform as designed.
Estimated Cost: Cost of scheduled time for paid-on-call personnel to perform testing and
marking procedures or contract with a third party to perform annual inspection and
testing.
159
Recommendation 48: Establish a capital asset inventory system within the Town.
Description: Tangible capital assets include land, buildings, building improvements,
vehicles, machinery, equipment, and infrastructure. Capital assets are usually the largest
class of assets, by value, on a government’s financial statements. Therefore, ensuring that
capital assets are recorded and accounted for accurately is essential. The Town of Putney
must establish and maintain appropriate inventory systems for its tangible capital assets.
Many governments have installed “perpetual” inventory systems to control their tangible
capital assets effectively. Perpetual inventory systems are constantly updated to reflect
additions and deletions of tangible capital assets, thus providing managers with direct
access to reliable information on current balances in tangible capital asset accounts
throughout the year.
Well-designed and adequately maintained perpetual inventory systems still require

periodic verification by each department supervisor to ensure they continue functioning
correctly as designed.
Governments should follow state and federal grantor guidelines for inventory assets
purchased with grant funds. For example, capital assets purchased with federal monies are
subject to Title 2 U.S. Code of Federal Regulations Part 200, Uniform Administrative
Requirements, Cost Principles, and Audit Requirements for Federal Awards (Uniform
Guidance).
Outcomes: Enhance continuity of operations for the Town of Putney.
Estimate Costs: Inventory software system installation by a third-party contractor.
160
Grant Recommendations
Recommendation 49: Consider applying for various FEMA grants, including the Assistance
to Firefighter Grant Program, Flood Mitigation Assistance Grant Program (FMA), and the
Building Resilient Infrastructure and Communities (BRIC) Program.
Description: The Assistance to Firefighter Grant Program provides opportunities to apply for
equipment, vehicles, Staffing for Adequate Fire & Emergency Response (SAFER)—hiring
and, recruitment, and retention of volunteers, and Fire Prevention & Safety (FP&S) Grants
for fire inspectors, smoke alarm programs, and other FP&S Grant funding.
Flood Mitigation Assistance Grants and BRIC Grants assist communities with projects
designed to address high-level future risks to natural disasters, foster greater community
resilience, and reduce disaster suffering. Flood Mitigation Assistance focuses on reducing or
eliminating the risk of repetitive flood damage to buildings and structures insured by the
National Flood Insurance Program (NFIP).
Outcomes: Improve community resiliency.
Estimated Cost: AFG Grants are based on population size for 5–10% local share costs. FMA
and BRIC grants are based on a 25% local cost share. Additional costs may include grant
writer fees and engineering costs for project development.
161
Critical Infrastructure Recommendations

Recommendation 50: Consider other road access points and a second means of egress for
the East Putney Ferry Road Bridge area.
Description: The East Putney Ferry Road Bridge is a critical bridge access for homes and
farm structures in the area. The weight limit on the bridge is far below the necessary limit for
fire apparatus, and the bridge needs to be in better condition.
Outcomes: Improved access points for areas with elevated life safety and property loss risk.
Estimated Cost: Cost for preliminary engineering, planning, and construction of a new
road/bridge access.
Recommendation 51: Consider installing a diesel-powered generator in the healthy

pumping system capable of pumping water and adding chlorine when the electrical grid is
out of service.
Description: During an electrical power outage, the current water pumping system cannot
replenish water in the 400,000-gallon storage tank. Redundancies should be built into this
system to provide enough kilowatt (kW) power during these outages.
Outcomes: Continuity of operations and water system. The benefits of having a continuous,
piped supply of safe drinking water delivered to household premises are widely recognized
in community resilience.
Estimated Cost: Cost will depend on the size of the generator needed. This equipment can
range from $70,000 or more for the generator, transfer switch capabilities, and installation.
More costs will be realized if the generator must be placed above the 100-year floodplain
elevation.
Recommendation 52: Create a comprehensive computer system network that integrates

all municipal departments and systems within the town.
Description: The computer system of the Putney Fire Department lacks integration with the
Town’s network and adequate IT support, increasing the vulnerability to cybersecurity
breaches.
Outcomes: Enhance the infrastructure of the computer system network.
Estimated Cost: Cost will include an assessment of the current system deficiencies. A third-
party provider will consider the cost of equipment, software, and hardware to deliver
performance and security with a modern data center network.
162
Section V:
APPENDICES
163
Appendix A: Table of Figures

Figure 1: Administrative Staff Positions ............................................................................................ 4
Figure 2: Emergency Response Staffing ......................................................................................... 7
Figure 3: Putney Fire Department General Fund Revenues....................................................... 13
Figure 4: Putney Fire Department Expenditures .......................................................................... 14
Figure 5: Putney Fire Department Expenditures by Category ................................................... 14
Figure 6: Criteria Utilized to Determine Fire Station Condition ................................................... 20
Figure 7: Putney Fire Station ........................................................................................................... 21
Figure 8: Upstairs Workout Room ................................................................................................... 22
Figure 9: Boiler & Fire Pump Room ................................................................................................ 22
Figure 10: Gear Lockers in Apparatus Bay ................................................................................... 23
Figure 11: Equipment Room .......................................................................................................... 24
Figure 12: Flammable Lockers in Equipment Room .................................................................... 24
Figure 13: Air Compressor Cylinders.............................................................................................. 25
Figure 14: Criteria Used to Determine Apparatus & Vehicle Condition ................................... 26
Figure 15: PFD Frontline Fleet Inventory (2023) ............................................................................ 26
Figure 16: PFD Apparatus Ages ..................................................................................................... 27
Figure 17: Ground Ladders on Engine 2 ....................................................................................... 30
Figure 18: Security of Facility Keys ................................................................................................. 31
Figure 19: Diesel Engine Exhaust Eliminators ................................................................................ 31
Figure 20: Ladders ........................................................................................................................... 32
Figure 21: Incident Breakdown by Percentage (2022) ............................................................... 36
Figure 22: Service Demand by Month (2020–2022) .................................................................... 36
Figure 23: Service Demand by Day of the Week (2020–2022)................................................... 37
Figure 24: Service Demand by Hour of the Day (2020–2022) .................................................... 37
Figure 25: EMS Service Demand Incident Density (2019–2022) ................................................. 38
Figure 26: ISO 1.5, 2.5, and 5-mile Engine/Truck Travel Capabilities ......................................... 40
Figure 27: NFPA 1720 Response Time Recommendations.......................................................... 41
Figure 28: Travel Time Analysis 4 and 8 minutes........................................................................... 42
Figure 29: Mutual Aid Organizations with 10–20 Minutes Response Time ................................. 43
Figure 30: Fire and EMS Mutual Aid Received (2020–2022)........................................................ 44
Figure 31: Ambulance Utilization PFD Total Calls (2022) ............................................................. 45
Figure 32: Response Unit Concurrency Percentages (2023) ...................................................... 45
Figure 33: Response Time Continuum ........................................................................................... 47
164
Figure 34: PFD Response Time (2019–2022) .................................................................................. 48

Figure 35: Town of Putney Population Projections (2018–2027) ................................................. 49
Figure 36: EMS Projected Service Demand (2027) ...................................................................... 49
Figure 37: Projected Service Demand (2018–2027) .................................................................... 50
Figure 38: Town of Putney Percentage of Fire & EMS Calls (2022) ............................................ 52
Figure 39: PFD EMS Service Demand (2022) ................................................................................ 53
Figure 40: Rescue Inc. 90th Percentile Response Performance (2022) ...................................... 54
Figure 41: Town of Putney Fire/EMS Mutual Aid Resources ........................................................ 55
Figure 42: Hospital Facilities and Trauma Designation ................................................................ 55
Figure 43: Leading Causes of Death in Vermont (2017) ............................................................. 56
Figure 44: PFD Payor Mix and Transport Revenues ..................................................................... 56
Figure 45: PFD Medication Utilization (2022) ................................................................................ 57
Figure 46: PFD Procedure Utilization (2022) .................................................................................. 58
Figure 47: Data Set & Quality Assurance Criteria ........................................................................ 59
Figure 48: General Training Competencies by PFD/SEMS .......................................................... 61
Figure 49: PFD Individual Training Analysis ................................................................................... 62
Figure 50: PFD Training Compared to Incident Analysis (2022) ................................................. 63
Figure 51: Balanced Training Program ......................................................................................... 64
Figure 52: Methodologies Utilized in Training ............................................................................... 65
Figure 53: Training Facilities & Resources...................................................................................... 66
Figure 54: Special Team Response (2019–2022) .......................................................................... 67
Figure 55: Special Team Response (2019–2021) .......................................................................... 67
Figure 56: Regional Special Team Response by Time of Day (2019–2022) ............................... 68
Figure 57: Estimated Required Apparatus for Specific Special Team Response ..................... 68
Figure 58: PFD Special Team Units ................................................................................................. 69
Figure 59: Putney Population (1970–2020) ................................................................................... 72
Figure 60: Population Density for Putney, Vermont ..................................................................... 74
Figure 61: High-Risk Age Groups (2020) ........................................................................................ 76
Figure 62: Disabilities or AFN by Town, County, State, and United States ................................ 77
Figure 63: Low-Income Population ............................................................................................... 78
Figure 64: Population Without Health Insurance Under 65 Years of Age ................................. 79
Figure 65: Race & Ethnicity for Putney.......................................................................................... 79
Figure 66: Education Levels of the Population Over 25 Years of Age ...................................... 80
Figure 67: Median Household Income ......................................................................................... 81
Figure 68: Owner/Renter-Occupied Housing Percentages ....................................................... 82
165
Figure 69: Average Home Values (2023)...................................................................................... 83

Figure 70: Age of Housing in Putney and Vermont ..................................................................... 83
Figure 71: Smoke Alarm Safety Poster .......................................................................................... 85
Figure 72: Changing Residential Fire Dynamics .......................................................................... 86
Figure 73: National Risk Index for Windham County, Vermont .................................................. 87
Figure 74: Social Vulnerability for Windham County, Vermont .................................................. 88
Figure 75: Hazard Type Risk Index for Windham County ............................................................ 89
Figure 76: Average Temperatures and Snowfall in Putney ........................................................ 91
Figure 77: Flood Zones for the Town of Putney ............................................................................ 92
Figure 78: Hydrology Map of the Connecticut River Basin ........................................................ 95
Figure 79: Putney Hydrology Map of West and Connecticut Rivers ......................................... 96
Figure 80: Traffic Counts in Putney ................................................................................................ 99
Figure 81: Close Proximity of the Railroad & the Connecticut River ....................................... 100
Figure 82: Road Class and Mileage ............................................................................................ 101
Figure 83: Main Transportation Routes in the Town of Putney ................................................. 102
Figure 84: FEMA Electric Vehicle Charging Tips ......................................................................... 103
Figure 85: Putney Bridge Over the Railroad Tracks ................................................................... 104
Figure 86: Putney Zoning Districts ................................................................................................ 106
Figure 87: Land Use for the Town of Putney (Percentage) ...................................................... 108
Figure 88: Current Land Use ......................................................................................................... 111
Figure 89: Assembly Occupancies in Putney............................................................................. 113
Figure 90: Educational Occupancies in Putney ........................................................................ 115
Figure 91: Medical Facilities in Putney ........................................................................................ 116
Figure 92: Medical Clinics and Hospitals Near Putney ............................................................. 117
Figure 93: Putney Target Hazard Locations ............................................................................... 121
Figure 94: The Community Risk Assessment Process ................................................................. 124
Figure 95: Vermont Adopted Rules, Codes, and Standards .................................................... 130
Figure 96: NFPA College Campus Fire Safety Tips ..................................................................... 134
Figure 97: National 911 Call Processing Time Standards .......................................................... 152
Figure 98: PFD Training Compared to Incident Analysis (2022) ............................................... 154
166
Appendix B: References
1 Respiratory Protection Standard 29 CFR 1910.134; Occupational Health & Safety Administration.
2NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations,
Emergency Medical Operations, to the Public by Career Fire Departments; National Fire Protection
Association.
3Volunteer Retention Research Report, National Volunteer Fire Council, August 2020 Retrieved
online: https://www.nvfc.org/wp-content/uploads/2020/08/20Aug-NVFC-Retention-Research-
Report-FINAL.pdf
4 These values are pending issuance of the final audit report.
5The Fire Department Fee Schedule was requested in order to attempt to verify these numbers, but
was not received.
6Wilbur, Michael and Tom Shand. January 9, 2023. The Apparatus Architect: Analyzing Spare and
Reserve Apparatus. Firehouse.com.
7 Guertin, Sarah. September 18, 2023. Analog Meets Digital: Revolutionizing Emergency Scene Safety
for Firefighters. Fireapparatusmagazine.com.
8 Ibid.
9NFPA 1911: Standard for the Inspection, Maintenance, Testing, and Retirement of In- Service
Automotive Fire Apparatus
10Graham, Gordon. August 2022. Protecting Vulnerable Communities in the Fire Service. Lexipol
Company. https://www.lexipol.com/resources/todays-tips/protecting-vulnerable-communities-in-
the-fire-service/.
11 Putney Town Plan 2023-2031.
12 Ibid.
City-Data.com information for Putney, Vermont. Found online at: https://www.city-
13
data.com/city/Putney-Vermont.html.
14 Local Hazard Mitigation Plan for the Town of Putney, Vermont 2022-2027
City-Data.com information for Putney, Vermont. Found online at: https://www.city-
15
data.com/city/Putney-Vermont.html.
16 National Fire Protection Association, 2007; Urban Fire Safety Project, Emmitsburg, MD.
17 U.S. Census Bureau.
18 U.S. Fire Administration website.
19Vasquez, Ph.D., Bricio. College Degrees Are Worth It – People with Bachelor’s Degrees Have Lower
Poverty Rates. October 2020. Found online: https://www.idra.org/resource-center/college-
degrees-are-worth-it-people-with-bachelors-degrees-have-lower-poverty-rates/.
20Woolf, Steven, et.al., How Are Income and Wealth Linked to Health and Longevity?, April 2015.
Found online: https://www.urban.org/sites/default/files/publication/49116/2000178-How-are-
Income-and-Wealth-Linked-to-Health-and-Longevity.pdf.
167
21 Know the Dangers in Your Older Homes. ESFI Publication.

22 Home Fire Sprinklers Safety Tip Sheet. National Fire Protection Association (NFPA).
23 Source: Electrical Safety Foundation: https://www.esfi.org/smoke-alarms-save-lives/
24Analysis of Changing Residential Fire Dynamics and Its Implications on Firefighter Operational
Timeframes. Kerber, Stephen. August 2011.
25 FEMA National Risk Index https://hazards.fema.gov/nri/.
26 21st Century – Fire and Emergency Services. Center for Public Safety Excellence.
27 Ibid.
28 Local Hazard Mitigation Plan for the Town of Putney, Vermont 2022-2027.
29Disease Control Priorities: Improving Health and Reducing Poverty. 3rd edition.
https://www.ncbi.nlm.nih.gov/books/NBK525302/.
30 Vermont Agency of Transportation. Transportation Data Management System.
https://vtrans.public.ms2soft.com/tcds/tsearch.asp?loc=Vtrans&mod.
31 Putney Town Plan, 2023-2031.
32 Ibid.
33 Ibid.
34 Ibid.
35 Ibid.
36 Bowker, Gary. Fighting The Balloon-Frame Construction Fire. February 11, 2015. Firerescue1.com.
Paris, Drew, PE, CFEI. Four Common Fire Hazards In Cannabis Operations. August 27, 2020.
37
www.Jensenhughes.com.
38Campus Housing. https://www.nfpa.org/education-and-research/building-and-life-
safety/campus-and-dorm-fires.
39 Hotel Fires Require Quick, Effective Action.
https://www.firefighternation.com/firerescue/hotel-fires-require-quick-effective-
action/#gref.
40 Balanced Design Fire Protection for Multifamily Housing.
Ridenhour, Katherine. Size-Up and Risk Benefit for Small Commercial Structures. Fire Engineering.
41
November 2018.
42 Vision 20/20, Community Risk Assessment Guide. Found online at:
https://riskassessment.strategicfire.org
43 Vision 20/20, Outcome Measures Guide.
44 Vermont Department of Taxes, Short Term Renal Safety, Health and Financial Obligations Form.
https://firesafety.vermont.gov/sites/firesafety/files/documents/Short%20Term%20Rental%20
healthand%20safety.pdf.
168
45Guide to Teaching Fire Safety to Students with Disabilities. Michael H. Minger Foundation,
September 2011.
46 Emergency Evacuation Planning Guide for People with Disabilities. November 2022.
47 Emergency Evacuation Planning Guide for People with Disabilities. November 2022.
48Campus Housing. www.nfpa.org. https://www.nfpa.org/education-and-
research/building-and-life-safety/campus-and-dorm-fires.
Steps to Safety. https://www.nfpa.org/education-and-research/home-fire-safety/older-
49
adults/steps-to-safety.
50What is CERT Training? https://community.fema.gov/PreparednessCommunity/s/cert-
trainings?language=en_US.
Community Emergency Response Team (CERT). https://www.fema.gov/emergency-
51
managers/individuals-communities/preparedness-activities-webinars/community-
emergency-response-team.
169

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Town of Putney

SECTION II: OPERATIONS & SUPPORT PROGRAMS .......................................................... 51

Fire Training & EMS Continuing Medical Education ................................................................. 61

SECTION III: COMMUNITY RISK ASSESSMENT .................................................................. 70

SECTION IV: RECOMMENDATIONS & STRATEGIES......................................................... 137

Planning Recommendations ............................................................................................... 158

SECTION V: APPENDICES ................................................................................................ 163

Our sincere appreciation is extended to each of you…

Putney Fire Department

Aileen Chute Peg Alden

Charles Raubicheck Eric McGowan

Nate Snell Town of Putney

Putney Diner Putney General Store

…and each of the EMTs, Firefighters, officers,

Putney Fire Department

Staffing & Personnel Management

Several national organizations recommend standards to address staffing issues related to

Figure 1: Administrative Staff Positions

Administrative Staff Discussion

• Emergency Management Director

Municipal Health Officer

Town Health Officers are responsible for:

• Taking action to prevent, remove, or destroy any public health hazards

• Taking action to lessen significant public health risks

Town Emergency Management Director

Operational/Emergency Response Staffing

Figure 2: Emergency Response Staffing

Fire & EMS Staffing Discussion

Maintaining an effective, adequately staffed, and dependable fire department is critical

In today’s environment, emergency response organizations that depend on volunteers

• Department leadership that doesn’t focus on or support the needs of members.

• Department atmosphere where members of different generations don’t get along.

• Lack of camaraderie or sense of community among everyone in the department.

• Department atmosphere is full of cliques and groups that exclude others.

“While flexibility in training requirements and volunteering schedules remain

Policies, Rules & Regulations

For presentation purposes, we have classified revenues and expenditures as either

Figure 3: Putney Fire Department General Fund Revenues

2020 2021 2022 2023 2024

Figure 4: Putney Fire Department Expenditures

Figure 5: Putney Fire Department Expenditures by Category

The 2024 Financial Supplement speaks to the need to achieve GFOA-recommended

Long-range financial forecasting is a best practice utilized by many public agencies. In

• No agreements are in place formalizing the private school contributions.

Capital Facilities & Apparatus

Fire Station Features

• Kitchen facilities, appliances, and storage

• Bathrooms and showers (all genders)

• Training, classroom, and library areas

• Firefighter fitness area

• The housing and cleaning of apparatus and equipment, including decontamination

• Administrative and management offices, computer stations, and office facilities

• Public meeting space

Figure 6: Criteria Utilized to Determine Fire Station Condition

The exterior has a good appearance with minor or no defects. Clean

The building appears structurally sound with a weathered appearance

The building appears cosmetically weathered and worn with potential

Putney Fire Station

Figure 7: Putney Fire Station