COMMITTEE OF THE WHOLE - Packet 07142026CITY OF MUSKEGO
COMMITTEE OF THE WHOLE AGENDA
07/14/2026
6:10 PM
Muskego City Hall, W182 S8200 Racine Avenue
IMMEDIATELY FOLLOWING THE COMMON
COUNCIL MEETING
ROLL CALL
STATEMENT OF PUBLIC MEETING NOTICE
NEW BUSINESS
&e C21 of
SKEGO
Discussion Regarding Comprehensive Study of EMS and Fire Services Completed by Innovative
Public Advisors
Muskego-EMS-Fire-Study.pdf
Memo - CC Fire Study.pdf
Discussion and Possible Direction to Staff Regarding Funding Options of Public Safety
CLOSED SESSION
Following conclusion of consideration of the above portion of its regularly scheduled agenda, the
Common Council will meet to vote on a motion to convene in Closed Session for discussion/action
relative to the following:
Discussion of medical, social, or personal histories of an employee and/or dependent; And to take such
further action as may be appropriate with respect to such matters.
A Closed Session for the above purpose is authorized pursuant to the provisions of the following
Wisconsin Statutes:
(1) Wis. Stats. § 19.85(1)(f), Considering financial, medical, social or personal histories or disciplinary
data of specific persons, preliminary consideration of specific personnel problems or the investigation of
charges against specific persons except where par. (b) applies which, if discussed in public, would be
likely to have a substantial adverse effect upon the reputation of any person referred to in such histories
or data, or involved in such problems or investigations;
(2) Wis. Stats. § 19.85(1)(g), Conferring with legal counsel for the governmental body who is rendering
oral or written advice concerning strategy to be adopted by the body with respect to litigation in which it is
or is likely to become involved.
Upon conclusion of the Closed Session, the Common Council will reconvene in Open Session to
consider its public agenda, including motions to recommend approval or rejection of the above -listed
deliberations or any of the public agenda items that have not been acted upon.
ADJOURNMENT
NOTICE
IT IS POSSIBLE THAT MEMBERS OF AND POSSIBLY A QUORUM OF MEMBERS OF OTHER GOVERNMENTAL BODIES OF THE
MUNICIPALITY MAY BE IN ATTENDANCE AT THE ABOVE -STATED MEETING TO GATHER INFORMATION; NO ACTION WILL BE TAKEN
BY ANY GOVERNMENTAL BODY AT THE ABOVE -STATED MEETING OTHER THAN THE GOVERNMENTAL BODY SPECIFICALLY
REFERRED TO ABOVE IN THIS NOTICE.
ALSO, UPON REASONABLE NOTICE, EFFORTS WILL BE MADE TO ACCOMMODATE THE NEEDS OF DISABLED INDIVIDUALS
THROUGH APPROPRIATE AIDS AND SERVICES. FOR ADDITIONAL INFORMATION OR TO REQUEST THIS SERVICE, CONTACT
MUSKEGO CITY HALL, (262) 679-4100.
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1. Introduction
1.1 Purpose of the Study
For more than a century, theTess Corners Volunteer Fire Department (TCFD) has served the City of Muskego
and surrounding community through a longstanding tradition of volunteerism, public service, and
community commitment. Over time, the department evolved from a traditional volunteer fire organization
into a combination fire and emergency medical services (EMS) provider supported by volunteer -based paid -
on -call and paid -on -premise staffing components.
As EMS demand, workforce expectations, and operational complexity have continued to evolve, the City of
Muskego retained Innovative Public Advisors (IPA) to conduct a comprehensive study of current and future
fire and EMS operations serving the community. The purpose of the study was to evaluate the long-term
sustainability, operational effectiveness, organizational structure, staffing model, governance framework,
and future service needs associated with the City's current fire and EMS delivery system. The scope of the
study included evaluation of:
• Current operational capabilities.
• Staffing practices and workforce sustainability.
• Governance and organizational structure.
• Response data and deployment practices.
• Facilities, apparatus, and capital planning.
• Financial considerations.
• Future organizational and staffing structure options.
Particular emphasis was placed on evaluating long-term staffing sustainability, EMS demand growth, and the
operational implications of maintaining or modifying the current service model. The study was designed to
provide objective, data -driven recommendations that support reliable emergency response services while
recognizing the history, culture, and longstanding contributions of TCFD.
1.2 Guiding Principles
This study was developed to provide an objective, data -driven evaluation of the long-term sustainability
of fire and EMS service delivery within the City of Muskego. The analysis focused on operational reliability,
staffing sustainability, governance structure, financial realities, and future service expectations.
Throughout the process, stakeholders consistently expressed strong appreciation forthe history, culture, and
service legacy ofTCFD.The purpose of the study was not to evaluate past service quality, but rather to assess
whether the current organizational and staffing model remains viable and sustainable given increasing EMS
demand, changing workforce realities, and growing operational complexity. With ultimate focus placed on
the safety and security of residents, the study was guided by several core principles:
• Preserve and enhance reliable fire and EMS response capability.
• Support long-term staffing and operational sustainability.
• Utilize objective operational and financial analysis.
• Respect the history and contributions of TCFD.
• Promote transparent governance and accountability.
• Identify practical and phased implementation strategies.
The recommendations within this report are intended to support a gradual operational transition that
minimizes disruption while positioning the City to maintain reliable emergency services over the long term.
1.3 Study Methodology
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1. STAKEHOLDER 2.OPERATIONAL 3. DATA AND 4. FINANCIAL 5. COMPARATIVE 6. PLANNING
INTERVIEWS REVIEW DOCUMENT REVIEW REVIEW BENCHMARKING EVALUATION
The City of Muskego directed this study to evaluate the long-term sustainability, operational effectiveness,
governance structure, and future service needs associated with fire and EMS delivery within the community.
To ensure the study remained objective and comprehensive, the project team utilized a multi -faceted
methodology that included stakeholder engagement, operational review, financial analysis, comparative
benchmarking, and review of historical operational data. Analysis placed particular emphasis on:
• EMS demand growth.
• Staffing reliability.
• Governance structure.
• Leadership succession.
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• Operational sustainability.
• Future staffing expectations.
• Stakeholder Interviews and Meetings
The process included extensive engagement with stakeholders involved in emergency response operations,
municipal administration, governance, and regional public safety coordination. Interviews and meetings
were conducted with:
• City elected officials.
• City administration.
• TCFD command staff and board leadership.
• Firefighters and EMS personnel.
• Muskego Police Department leadership.
• Waukesha County Communications Center personnel.
• City Information Technology staff.
• Regional fire and EMS representatives.
Several themes emerged consistently throughout the interview process, including staffing sustainability
concerns, increasing EMS workload, leadership succession challenges, and growing dependence on paid
staffing support to maintain reliable operations.
Operational Review
The project team conducted station visits, operational observations, apparatus review, staffing evaluations,
and discussions regarding day-to-day response practices.The operational review focused on:
• Staffing reliability.
• Supervisory structure.
• EMS deployment practices.
• Simultaneous call management.
• Mutual aid coordination.
• Dispatch and communications systems.
The review also included evaluation of facilities, apparatus deployment, communications workflow, and
operational coordination between agencies.
Data and Document Review
The IPA team conducted extensive review of operational, financial, governance, and planning documents
associated with the current fire and EMS system. Documents reviewed included:
• Historical call and response data.
• EMS workload trends.
• Staffing and scheduling practices.
• Existing agreements.
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• Financial records and budgets.
• Capital budgets and planning documents.
• ISO documentation.
• Organizational materials.
• Prior planning studies, including the 2007TriData Master Plan.
Operational data was analyzed to identify service demand trends, staffing utilization patterns, response
reliability, and long-term sustainability concerns.
Financial Review
The financial review evaluated current and projected costs associated with fire and EMS delivery within the
City of Muskego. The analysis included review of:
• Annual operational funding. Apparatus and equipment expenses.
• EMS billing revenue. Facility -related maintenance costs.
• Staffing costs. Long-term capital planning needs.
Particular attention was given to identifying the true operational cost of the current system, including
direct contractual payments and broader municipal support associated with facilities, capital investment,
apparatus replacement, and operational infrastructure.The review also evaluated futurefunding mechanisms
and operational transition costs associated with expanded staffing, leadership transition, and phased
implementation of additional career personnel. Potential future funding sources reviewed included:
• City operational funding byway of referendum.
• SAFER Grant to temporarily fund future full-time firefighter personnel.
• Wisconsin Innovation Grant funding for shared services and regional collaboration initiatives.
The financial analysis was intended to provide realistic assumptions regarding both the cost of maintaining
the current model and the projected investment associated with phased organizational transition.
Comparative Benchmarking
The study team evaluated fire and EMS operational models in comparable Wisconsin communities, regional
staffing and service delivery trends, and industry best practices associated with EMS deployment, volunteer
recruitment, paid -on -premise staffing, and phased staffing transition models.The analysis identified broader
statewide and regional trends involving:
• Increasing EMS workload.
• Declining volunteer availability.
• Expanded scheduled staffing.
• Greater reliance on combination staffing models.
• Increasing administrative and operational expectations.
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Planning Evaluation
The planning evaluation synthesized findings from stakeholder interviews, operational observations,
financial analysis, comparative benchmarking, and historical service trends to evaluate future organizational
options and transition pathways. The analysis focused on:
• Staffing sustainability.
• Governance structure.
• Operational reliability.
• Leadership succession.
• EMS demand growth.
• Long-term financial sustainability.
Particular emphasis was placed on identifying practical and phased implementation strategies capable of
maintaining service continuity while positioning the City for long-term operational sustainability.
1.4 Historical Context
The history of fire and EMS services within the City of Muskego is closely connected to the evolution of
TCFD. Established in 1926, TCFD was founded as a community -based volunteer fire organization serving
the growing Tess Corners area and surrounding portions of Muskego. Over time, the department evolved
from a traditional volunteer fire organization into a combination agency providing EMS response, rescue
operations, mutual aid participation, and specialized emergency response services.
As the City continued to grow and EMS demand increased, the department increasingly relied on paid -
on -call and limited paid -on -premise staffing to maintain operational reliability and response capability.
The operational relationship between the City and TCFD also evolved significantly through annual funding
support, capital investment, facilities coordination, and contractual agreements. While TCFD remained an
independent nonprofit organization, the City is on the cusp of assuming an increasingly significant role in
supporting operational sustainability. Prior planning efforts also identified many of the same operational
and staffing concerns evaluated during this study. Most notably, the 2007 TriData Master Plan identified
long-term considerations related to staffing sustainability, governance structure, operational coordination,
and future service delivery expectations.
Manythemes identified during the current study process closely mirrorthose earlier observations, particularly
regarding EMS demand growth, staffing reliability, leadership succession, and organizational sustainability.
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2. Community Profile and Service Environment
2.1 Community Overview
The City of Muskego is a growing suburban community of 26,000 residents located in southeast Waukesha
County encompassing approximately 36 square miles. The community includes residential neighborhoods,
commercial corridors, agricultural areas, lake communities, and major transportation routes. Muskego's
geographic size and development patterns create a complex emergency response environment requiring
reliable multi -station fire and EMS deployment throughout the community.
The City also experiences seasonal and recreational activity associated with area lakes, parks, and community
events that increase EMS demand and public safety response activity during peak periods. Like many
suburban communities throughout Wisconsin, Muskego has experienced increasing EMS demand over
time. Operational data and stakeholder interviews consistently identified EMS workload growth as one of
the most significant operational trends affecting staffing reliability and long-term sustainability.
2.2 Community Risk Profile
The City of Muskego presents a diverse emergency response environment requiring fire and EMS
personnel to respond to incidents across residential, commercial, industrial, recreational, transportation, and
rural settings. The community includes residential subdivisions, commercial corridors, industrial properties,
schools, public facilities, lakefront development, and major roadway systems. These varying land uses
contribute to diverse and expansive response demands and operational risks throughout the City.
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Operational data identified EMS incidents as the dominant service demand within the community. Based
on the 2025 ambulance run report, the largest dispatch categories were emergency falls (482 incidents),
breathing problems (179), sick person calls (177), chest pain (90), and unknown problem/person down
(81). In addition to EMS demand, the department must maintain readiness for structure fires, hazardous
conditions, severe weather incidents, technical rescue situations, water rescue activity, and simultaneous
emergency events.
Although fire incidents occur less frequently than EMS incidents, the consequences associated with delayed
fire suppression response remain significant. Maintaining effective fire response capability therefore remains
a critical public safety responsibility.
2.3 Current Service Area and Facilities
Fire and EMS services within the City of Muskego are currently delivered through a four -station deployment
system operated byTCFD, with two stations owned by the City and two owned byTCFD. Each station serves
a distinct operational role within the overall response system, supporting a combination of ambulance
operations, apparatus deployment, staffing activity, equipment storage, and community -wide response
coverage. Certain stations support daily staffed operations and frontline response resources, while others
provide supplemental apparatus capacity, specialty equipment storage, volunteer and paid -on -call response
support, and geographic coverage throughout the community.
The current station distribution generally provides adequate geographic coverage across the City. However,
staffing availability and supervisory consistency were identified as having a greater impact on operational
reliability than station placement alone. The analysis also identified future considerations regarding station
utilization, apparatus deployment, facility maintenance responsibilities, and long-term capital planning.
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3. Current Fire and EMS Organizational Structure
3.1 Current Contractual Model
Fire and EMS services within the City of Muskego are currently provided through a contractual relationship
between the City and TCFD, which operates as an independent nonprofit organization. Historically, this
structure aligned with a traditional volunteer response model. Over time, however, population growth,
increasing EMS demand, staffing complexity, operational expectations, and municipal investment have
resulted in a significantly more interconnected operational relationship between the City and TCFD.
Underthe current agreement structure,the City provides quarterly contractual payments of$175,000,totaling
$700,000 annually in municipal operational support, in addition to other capital investment and facility -
related support. Recent agreements also include expanded financial reporting, operational transparency,
and accountability requirements.TCFD is required to provide operational reporting, financial documentation,
expenditure records, and ongoing coordination with the City regarding future service planning.
Comparison by County: Net Fire -EMS Spending in Waukesha County
Source: Wisconsin Policy Forum
This chart compares net fire -EMS spending per capita using the most recent data (2023) in Waukesha County.
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Operationally, the current structure increasingly functions as a municipaIfire and EMS system while continuing
to operate administratively through an independent nonprofit governance framework. Growing challenges
are associated with maintaining long-term operational sustainability, staffing oversight, CIP planning, facility
maintenance, administrative coordination, and organizational accountability under the current structure.
3.2 Current Staffing Model
TCFD currently operates through a combination staffing model consisting of volunteer personnel, paid -on -
call responders, paid -on -premise staff, and command staff leadership. The department has relied primarily
on volunteer responders responding from home or work following dispatch notification. While effective
for many years, increasing EMS demand, changing workforce availability, and the aging of the volunteer
workforce have made consistent staffing reliability more difficult to maintain.
The department currently consists of 82 volunteer members with an average tenure of approximately
16 years. Several members have dedicated more than 40 years of service to the organization, including
individual tenures of 65 years, 50 years (two members), and nine members with 42-47 years of service. In
total, approximately 25 members have served 20 years or more, reflecting a significant depth of institutional
knowledge, operational experience, and long-term commitment within the organization. At the same time,
the tenure profile also reflects an aging volunteer workforce and underscores the importance of long-term
succession planning and recruitment sustainability.
EMS incidents represent the primary operational workload for the department. EMS operations require
reliable daily 24/7 staffing availability, rapid response capability, and consistent personnel coverage
throughout all hours of the day.To address these operational demands,TCFD has increasingly grown to rely
on paid -on -premise staffing practices to support ambulance response reliability, daytime coverage, and
simultaneous incident management.
Stakeholder interviews repeatedly raised concerns regarding workforce sustainability, responder fatigue,
leadership succession, staffing depth, and long-term operational reliability. The analysis also identified
increasing operational dependence on key personnel responsible for scheduling, EMS oversight, training
coordination, supervision, and administrative responsibilities. Staffing challenges identified during the study
closely mirror broader statewide and national fire and EMS workforce trends, particularly among volunteer
and combination departments experiencing increasing EMS demand and declining volunteer availability.
3.3 Current Operational Model
TCFD currently operates through a four -station combination fire and EMS deployment model serving the
City of Muskego. Operations are supported through a mix of volunteer responders, paid -on -call personnel,
paid -on -premise staffing, command staff oversight, and mutual aid coordination. EMS incidents now
represent the dominant operational workload and are the primary driver of staffing demand, scheduling
pressures, and daily operational activity.
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Station 1 functions as the department's primary operational hub and houses the majority of daily staffing
activity, ambulances, and command operations. Additional stations provide geographic response coverage,
apparatus deployment capability, and support for all -call response activity throughout the community.The
department maintains response capability for:
• EMS incidents.
• Structure fires.
• Vehicle crashes.
• Water and ice rescue incidents.
• Hazardous conditions.
• Severe weather response.
• Mutual aid operations.
Operational reliability increasingly depends on paid -on -premise staffing and scheduled coverage rather
than traditional volunteer response availability alone. Stakeholder interviews and operational observations
also identified simultaneous EMS incidents, staffing variability, and limited supervisory coverage as growing
operational pressures within the current model. Mutual aid relationships continue to play an important role
in maintaining operational capability during higher -demand periods and larger incidents.
3.4Technology and Communications
Fire and EMS operations within the City of Muskego rely on coordinated dispatching, communications
systems, operational reporting platforms, and inter -agency technology integration to support emergency
response operations. Emergency calls are processed through the Muskego Police Communications Center
which serves as the primary dispatch agency for fire and EMS incidents within the City. 24/7 dispatch
operations support call processing, unit assignment, mutual aid coordination, and operational
communications during emergency incidents. The department utilizes computer -aided dispatch and
reporting systems to support incident documentation, EMS reporting, operational tracking, and response
data analysis. Stakeholders generally identified regional communications coordination and interoperability
as operational strengths. However, there are increasing administrative and technology management
demands associated with maintaining reporting systems, communications infrastructure, and operational
data requirements. City IT and Police Department Communications Center personnel cited an opportunity
to improve decision -making and input on technology and software upgrades or additions. System security
and compatibility must always be considered prior to upgrading or purchasing new software or hardware.
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4. Service Demand and Operational Performance
4.1 Call Volume Trends
TCFD responded to 1,826 EMS incidents during 2025, with 99.56% of incidents occurring within the City
of Muskego. Operational data confirms that EMS response activity represents the dominant workload
within the department and serves as the primary driver of staffing demand, scheduling pressures, and daily
operational activity.
Call demand remains relatively consistent throughout the week, with Thursday representing the busiest
day at 16.16% of annual incidents. Monday, Friday, and Saturday also demonstrated elevated call activity.
Demand is concentrated during daytime and early evening hours. Peak activity occurs between
approximately 8:00 a.m. and 8:00 p.m., with the highest hourly call volume occurring between 9:00 a.m. and
11:59 a.m. This is also the time frame that is most difficult to staff with part-time or paid -on -call personnel
due to limited availability of staff during these hours.
Fire/EMS Runs by Time of Day and Day of Week (2025)
Time of Day
Sunday = Tuesday Thursday Saturday
Monday Wednesday Friday
Increasing EMS demand, simultaneous incidents, and extended unit commitment times continue to place
growing pressure on the current staffing model. The current system is fragile due to its heavy reliance on
a small number of individuals to absorb a disproportionate share of response coverage. For example, one
part-time employee alone worked approximately 2,924 additional staffing hours annually beyond their
regular full-time workload of 2,080 hours, illustrating the extent to which the current model depends on
extraordinary individual commitment to maintain operational reliability.
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4.2 EMS Demand Analysis
EMS operations function as the core operational responsibility of the department. Of the 1,826 incidents
reviewed in 2025, 99.18% were categorized as 911 emergency responses. The most common dispatch
categories included:
• Falls:482 incidents
• Breathing problems: 179 incidents
• Sick person calls: 177 incidents
• Chest pain calls: 90 incidents
• Unknown problem/person down: 81 incidents
The department routinely provides advanced life support interventions including cardiac monitoring, IV
access, airway management, medication administration, and cardiac care. Transport activity also creates
substantial operational commitment time. More than 57% of transport incidents involved greater than
15 minutes of transport time from scene to destination. This reduces ambulance and staff availability and
increases pressure for positive outcomes during simultaneous incidents.
Operational data further demonstrates the increasing medical complexity of the EMS system. Common
patient impressions included weakness, altered mental status, respiratory distress, cardiac -related incidents,
falls, and mobility -related emergencies. The current level of EMS demand increasingly requires reliable
scheduled staffing, supervisory coordination, and predictable ambulance availability throughout all hours of
operation.The department is currently licensed at the Intermediate EMT Ievel.There is increasing stakeholder
interest in upgrading the service to the higher regional standard of paramedic -level care.
4.3 Fire Demand Analysis
Although EMS incidents now represent the majority of department activity, the department continues
to maintain responsibility for higher profile, equally critical fire suppression, rescue operations, hazardous
conditions response, and all -hazards emergency response throughout the City. The department maintains
response capability for:
• Structure fires.
• Vehicle fires.
• Hazardous materials incidents.
• Severe weather response.
• Water and ice rescue incidents.
• Technical rescue operations.
• Mutual aid requests.
While fire incidents occur less frequently than EMS incidents, the consequences associated with delayed or
insufficient fire suppression response remain significant. Maintaining adequate firefighter staffing, apparatus
readiness, training, and command capability therefore remains essential.
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Stakeholder interviews identified ongoing concern regard ingfirefighteravailabiIityduring daytime hours and
simultaneous EMS incidents. Several participants noted that EMS workload can reduce available personnel
for fire response operations during periods of elevated demand. Future staffing models must balance both
increasing EMS workload and the continued need for effective fire suppression capability.
4.4 Response Time Analysis
Response time analysis demonstrates generally strong dispatch -to -en route performance, while also
reflecting increasing dependence on scheduled staffing and paid -on -premise personnel availability.
During 2025:
62.87% of incidents achieved en route status within one minute of dispatch notification
77.11 % were en route within two minutes
• 91.13% were en route within five minutes
Average response interval performance included:
• Average dispatch -to -en route time: 1.34 minutes
• Average en route -to -scene time: 4.89 minutes
• Average on -scene time: 19.65 minutes
Operational data also demonstrates extended unit commitment associated with EMS transport activity,
hospital turnaround, and simultaneous incidents. Stakeholder interviews noted that maintaining current
response expectations under a purely volunteer staffing model or current volunteer hybrid paid -on -premise
model would become increasingly difficult given current call demand and workforce trends. Stakeholder
interviews also noted that the data does not reflect the timeliness of subsequent fire unit responses during
critical incidents, where it is imperative that multiple units respond in a coordinated and timely manner.
4.5 Operational Challenges
There are several recurring operational challenges affecting the long-term sustainability of the current model.
The most significant issue identified throughout stakeholder interviews involved staffing sustainability and
workforce availability. Participants consistently noted increasing difficulty maintaining reliable volunteer
response coverage, particularly during daytime hours and simultaneous incidents.
Increasing EMS demand was also identified as a major operational pressure. Unlike traditional volunteer fire
response systems, EMS operations require consistent staffing availability, and reliable ambulance coverage
throughout the day. Additional operational challenges identified during the study included:
Availability of paid -on -premise staffing.
Limited supervisory staffing depth.
Reliance on a relatively small number of highly active responders.
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• Workforce recruitment and retention challenges.
• Increasing administrative workload.
• Leadership succession concerns.
• Growing reporting and operational expectations.
Many of these challenges are consistent with statewide and national trends affecting combination and
volunteer fire and EMS departments.
5. Financial and Capital Analysis
5.1 Current Funding Structure
The current fire and EMS operational model within the City of Muskego is supported through a combination
of municipal funding, EMS billing revenue, department fundraising activity and grants. Under the current
agreement structure, the City of Muskego provides quarterly contractual payments of $175,000 to TCFD,
resulting in $700,000 in annual operational funding support in 2026.
The operational and financial relationship between the City and TCFD has become increasingly
interconnected over time. While TCFD remains an independent nonprofit organization, the City now plays
a substantial role in supporting operational sustainability, capital funding, and long-term service delivery.
The current funding structure also relies heavily on EMS billing revenue to support operational expenses.
As EMS incidents represent the dominant operational workload, ambulance revenue and transport
reimbursement have become increasingly important components of the department's financial revenue
structure.
Stakeholder interviews identified concern regarding long-term financial sustainability under the current
model, particularly as staffing costs, EMS demand, equipment expenses, and operational expectations
continue to increase.
5.2 Operational Cost Review
Staffing and EMS operations are the most significant long-term cost drivers affecting the sustainability of
the current fire and EMS model. Historically, the department operated primarily through a volunteer staffing
structure. However, increasing EMS demand, response expectations, workforce availability challenges, and
operational complexity have resulted in increasing reliance on paid -on -premise staffing and scheduled
coverage practices. Stakeholder interviews consistently identified that maintaining reliable ambulance
staffing and daytime response coverage now requires significantly greater operational investment than
under historical volunteer response models.
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Increasing operational costs are associated with:
• EMS equipment and medical supplies. Technology and reporting systems.
• Apparatus replacement and maintenance. Facility maintenance and utilities.
• Personnel training and certification requirements. Administrative and supervisory responsibilities.
• Ambulance operations, maintenance, and replacement.
The analysis determined that future operational expenses will likely continue increasing regardless of
ownership governance structure due to broader workforce, healthcare, equipment, and regulatory trends
affecting fire and EMS agencies nationally.
5.3 Capital Asset Review
TCFD currently operates a multi -station deployment system consisting of fire apparatus, ambulances,
rescue equipment, support vehicles, communications infrastructure, and operational facilities distributed
throughout the City.The current station network and apparatus deployment generally support community
response coverage needs. However, long-term capital planning remains an important future consideration.
Key capital planning considerations identified during the study included:
• Ambulance replacement cycles.
• Fire apparatus replacement planning.
• Facility maintenance and modernization.
• Equipment replacement schedules.
• Communications and technology upgrades.
• Long-term station utilization planning.
• Overall communication on all of the above topics between TCFD and the City.
Stakeholders also emphasized the importance of maintaining reserve apparatus and ambulance capacity
to support simultaneous incidents and operational continuity. Future organizational transition may
require reevaluation of apparatus deployment practices, station utilization, and long-term ownership and
maintenance responsibilities.
Looking at longer term sustainability and service delivery, continued exploration of more integrated
service delivery models, including consolidation or a regional governance structure, where supported by
collaborative municipalities, is recommended. These approaches offer the greatest opportunity to align
resources with demand. This phased strategy is intentionally designed to be both practical and forward -
looking. It allows communities to take meaningful, incremental steps now while building toward a more
efficient and resilient regional system. Moving forward collaboratively will be essential to maintaining service
levels, managing future costs, and positioning the region to take advantage of funding opportunities such
as the Innovation Grant Program.
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5.4 Comparative Cost Analysis
The IPA team reviewed broader regional and statewide fire and EMS operational trends to provide context
regarding future organizational planning considerations. The analysis identified that many communities
throughout Wisconsin are experiencing similar workforce and operational pressures, particularly related to
EMS demand growth, volunteer recruitment challenges, and increasing dependence on scheduled staffing
models. Communities operating combination fire and EMS systems increasingly rely on:
• Full-time leadership positions.
• 24/7 paid -on -premise staffing.
• Career EMS personnel.
• Structured staffing schedules.
• Expanded administrative oversight.
• Regional collaboration and mutual aid coordination.
Several Wisconsin communities are transitioning away from traditional volunteer staffing models to
structured combination models due to service demand and increasing operational costs associated with
staffing reliability, EMS deployment, and workforce sustainability. Recent examples near Muskego include
the City of Hartford, Village of Richfield, Village of Jackson, and City of New Berlin.
5.5 Financial Sustainability
The current fire and EMS operational model is becoming increasingly difficult to sustain long term without
continued operational investment and organizational evolution.The most significant sustainability pressure
identified during the study involves staffing reliability and workforce availability. Increasing EMS demand
now requires predictable daily staffing coverage that is increasingly difficult to maintain through traditional
volunteer response practices alone. Future sustainability will likely require phased operational transition
toward a more structured staffing model incorporating:
• A full-time Fire Chief.
• Expanded full-time command staffing.
• Increased scheduled paid -on -premise staffing coverage.
• Long-term, full-time firefighter and EMS staffing stabilization.
• Enhanced operational oversight and administrative coordination.
The analysis also identified several future funding opportunities that may assist with operational transition
and staffing implementation, including:
• SAFER grant opportunities.
• Wisconsin Innovation Grant opportunities.
• Regional collaboration initiatives.
• Public safety operational referendum funding.
• EMS revenue optimization strategies.
While grant opportunities may help offset portions of future transition costs, long-term sustainability will
ultimately require stable City funding support and operational alignment expectations.
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6. Governance and Organizational Sustainability
6.1 Governance Evaluation
The current fire and EMS organizational structure within the City of Muskego operates through a contractual
relationship between the City and TCFD, which functions as an independent nonprofit organization
responsible for fire and EMS service delivery. Historically, this structure aligned well with a traditional
volunteer response model and strong community -based service culture. Overtime, however,the relationship
between the City and TCFD has evolved significantly as EMS demand, staffing complexity, operational
expectations, and municipal financial investment have increased. The City currently provides substantial
operational support through annual contractual payments totaling $700,000 annually before additional
capital investment, facilities support, and operational coordination are considered.
Recent contractual agreements also include expanded financial reporting, operational transparency, and
accountability requirements. These provisions reflect increasing expectations for municipal involvement,
oversight, and operational coordination associated with modern fire and EMS service delivery. The current
structure increasingly functions operationallyas a municipal fire and EMS system while continuing to operate
administratively through an independent nonprofit governance framework.
Stakeholder interviews identified broad respect for the history, culture, and service tradition of TCFD. At
the same time, many participants acknowledged growing challenges associated with maintaining long-
term operational accountability, staffing oversight, administrative coordination, leadership continuity,
and organizational sustainability under the current governance structure. Several stakeholders noted that
increasing operational complexity has created greater dependence on informal coordination between City
leadership and department leadership to maintain operational continuity and reliable service delivery. Both
entities would benefit from formalizing this relationship.
The National Fire Protection Association (NFPA) and national fire service organizations have identified similar
governance and staffing pressures occurring nationwide as departments adapt to increasing EMS demand,
declining volunteer participation, and expanding operational expectations. NFPA data indicates the number
of volunteer firefighters nationally declined from approximately 898,000 in 1984 to approximately 676,900
in 2020, while overall emergency response demand has continued increasing substantially. The current
governance structure has served the community well historically. However, increasing EMS workload,
staffing demands, operational expectations, and municipal investment are creating pressures that will likely
require a more formalized and sustainable organizational structure moving forward.
6.2 Organizational sustainability
Long-term organizational sustainability is one of the most significant issues affecting the future of fire and
EMS service delivery within the City of Muskego. Stakeholder interviews consistently identified workforce
availability and staffing reliability as the most significant operational concerns. Participants noted increasing
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difficulty maintaining dependable volunteer staffing coverage, particularly during daytime hours, periods of
elevated EMS activity, and simultaneous incidents.There is increasing operational dependence on a relatively
small number of highly active personnel responsible for staffing coverage, EMS response, scheduling
coordination, supervision, training, and administrative responsibilities.
As EMS demand has increased, the operational model has evolved away from a traditional volunteer fire
department structure and toward a more complex combination staffing environment requiring scheduled
coverage, greater administrative coordination, and increasing reliance on paid -on -premise staffing. Fire
service organizations nationwide are increasingly transitioning toward structured combination staffing
systems that include full-time leadership, scheduled staffing coverage, and expanded career staffing
support. EMS workload represents the dominant operational responsibility, creating staffing demands that
differ substantially from historical volunteerfire suppression models. Modern EMS operations require reliable
daily staffing availability, rapid response capability, increased training requirements, and ongoing operational
supervision. Stakeholders repeatedly expressed concern regarding:
• Workforce recruitment and retention.
• Leadership succession planning.
• Responder fatigue and burnout.
• Increasing administrative workload.
• EMS staffing reliability.
• Long-term operational continuity.
6.3 Industry and Regulatory Considerations
The fire and EMS industry continues to experience significant workforce and operational transformation
nationwide. Increasing EMS demand, changing workforce availability, rising training requirements, and
evolving public expectations have created growing pressure on traditional volunteer staffing models.
According to NFPA national fire service data, approximately 65% of firefighters in the United States remain
volunteers. However, volunteer participation continues declining nationally while EMS workload and overall
emergency response demand continue increasing. Communities throughout Wisconsin and nationally are
transitioning toward more structured combination staffing systems that incorporate:
• Full-time leadership positions.
• Scheduled staffing coverage.
• Paid -on -premise personnel.
• Career EMS staffing.
• Expanded administrative oversight.
• Regional collaboration models.
Operational expectations associated with EMS delivery, documentation, reporting, training, clinical
oversight, and response reliability also continue increasing. These trends create additional administrative
and operational responsibilities that are increasingly difficult to sustain within predominantly volunteer
organizational structures.
0+
NFPA standards and industry guidance also increasingly emphasize staffing reliability, response capability,
operational readiness, training compliance, and supervisory accountability. Volunteer response models
remain viable in many communities, but national trends demonstrate increasing reliance on scheduled
staffing systems to maintain consistent response reliability and operational continuity. Stakeholders
additionally identified increasing expectations and support for staffing consistency, supervisory availability,
response reliability, operational accountability, and long-term planning.
The operational challenges identified within Muskego are highly consistent with broader statewide and
national fire and EMS workforce trends rather than isolated organizational issues specific toTCFD. As a result,
it is recommended that long-term planning efforts should focus not only on addressing current operational
pressures, but also on positioning the City for continued adaptation to evolving workforce realities, EMS
demand growth, and changing public safety expectations over the coming decade.
7. Recommended Organizational Transition
7.1 Overview
Based on stakeholder interviews, operational analysis, staffing trends, financial evaluation, and industry best
practices, this study supports transitioning fire and EMS operations to a municipal department operating as
the City of Muskego Fire and Rescue Department beginning in 2027—while retaining TCFD branding and
apparatus logos during a phased transition period.
The current operational model increasingly functions as a municipal fire and EMS system due to the level of
Cityfinancial support, operational oversight, and CIP planning involvement already in place.Atthesametime,
increasing EMS demand, staffing complexity, workforce availability challenges, and operational expectations
have created growing pressure on the current nonprofit governance structure.
The recommended transition is intended to create a more sustainable organizational framework capable of
supporting reliable fire and EMS service delivery over the long term while preserving the history, culture, and
institutional knowledge associated with TCFD.
7.2 Basis for Recommendation
Several consistent themes emerged throughout the study process supporting transition to a municipal
department structure:
• EMS demand now represents the dominant operational workload within the organization. The
department responded to 1,826 EMS incidents during 2025, with operational demand concentrated
during daytime and early evening hours. EMS operations require reliable scheduled staffing availability,
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supervisory coordination, and predictable ambulance coverage that are increasingly difficult to sustain
through traditional volunteer response practices alone.
Increasing operational dependence on paid -on -premise staffing and a relatively small number of
highly active personnel to maintain response reliability and operational continuity. Stakeholders
repeatedly identified workforce sustainability, staffing reliability, responder fatigue, and leadership
succession as major long-term concerns.
• The City already provides substantial operational and financial support for fire and EMS services.
The current operational structure increasingly reflects the characteristics of a municipal fire and EMS
system despite operating administratively through a nonprofit governance structure.
National and statewide fire and EMS workforce trends continue moving toward more structured combination
staffing systems incorporating full-time leadership, scheduled staffing coverage, and expanded operational
oversight. NFPA data demonstrates continuing decline in volunteer firefighter participation nationally while
EMS demand and operational expectations continue increasing.
Collectively, these factors support transition toward a municipal organizational structure capable of providing
greater operational stability, accountability, staffing oversight, and long-term sustainability. Ultimately, the
purpose of this transition is to ensure the City of Muskego can provide consistent, reliable, and high -quality
fire and EMS service delivery to the community both today and into the future.
7.3 Recommended Organizational Structure
It is recommended to establish the City of Muskego Fire and Rescue Department as a municipal fire and EMS
department operating under direct City governance and administration beginning January 1, 2027. Under
the recommended structure:
• Fire and EMS operations would operate under direct City oversight.
• Operational budgeting and financial accountability would transition to the City.
• Staffing oversight and administrative coordination would be centralized.
• Long-term operational planning and capital improvement planning would be integrated into
municipal operations.
• Existing volunteer and paid -on -call personnel could continue serving within the organization during
phased transition.
Importantly, the recommendation is not intended to eliminate the history, rich culture, or identity associated
with TCFD. Rather, the proposed model is intended to preserve the organization's legacy while creating
a sustainable operational structure capable of adapting to future staffing and service demands. The
recommended department name intentionally reflects both the City and the long-standing community
identity associated with Tess Corners.
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7.4 Recommended Staffing Transition
Phased implementation of expanded staffing over time rather than immediate full-time operational
conversion is recommended. This approach is intended to allow the City to responsibly manage
organizational transition, operational continuity, staffing implementation, and long-term financial planning.
Phase 1
In Q3 of 2026, the City will begin formal transition planning —through the establishment of a Transition
Committee— including organizational preparation, operational planning, staffing analysis, and community
engagement efforts associated with long-term fire and EMS sustainability. Given the projected operational
and staffing costs associated with long-term transition, it is recommended the City pursue a public safety
referendum to support future staffing stabilization and implementation efforts, focusing on:
• Long-term staffing sustainability.
• EMS demand growth.
• Operational reliability.
• Workforce stabilization.
• Future fire and EMS service expectations.
• Long-term financial sustainability, both operationally and capital.
Proactive community engagement and public education will be critical components of the referendum
process. Identification of the proposed costs over the four-year period will be a critical component prior to
referendum.
Phase 2
On January 1, 2027, the City will formally establish the City of Muskego Fire and Rescue Department as a
municipal fire and EMS department operating under direct City governance and administration. Hiring a
full-time Fire Chief is a critical next step. This key leadership position will provide:
• Organizational leadership.
• Operational oversight.
• Staffing coordination.
• Administrative management.
• Strategic planning.
• Budget development.
• Long-term transition implementation.
The Fire Chief position will serve as the operational foundation for long-term organizational transition and
future staffing expansion. Volunteer, paid -on -call, and paid -on -premise staffing will continue operating
during this transition period to maintain operational continuity and preserve institutional knowledge.
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Phase 3
The City will continue phased staffing expansion through the addition of three full-time Captain or Battalion
Chief positions and the implementation of 24/7 paid -on -premise staffing coverage. This phase focuses on:
• Expanding operational leadership and incident supervision.
• Establishing consistent 24/7/365 paid -on -premise staffing availability.
• Improving emergency response reliability and response times.
• Enhancing EMS operational coverage and simultaneous incident capability.
• Reducing dependence on volunteer staffing availability during critical response periods.
• Supporting workforce development, coordination, and long-term operational sustainability.
Phase 4
The City will continue phased operational expansion through the addition of 12 full-time firefighter/
paramedic positions to support long-term staffing sustainability and operational readiness. During this
phase, the City will also pursue and work to secure a federal Staffing for Adequate Fire and Emergency
Response (SAFER) Grant to assist with personnel funding and implementation costs. This phase focuses on:
• Expanding full-time firefighter staffing capacity.
• Supporting long-term recruitment and retention efforts.
• Enhancing response capability and service reliability.
• Strengthening fire and EMS operational resilience.
• Reducing long-term staffing gaps and overtime pressures.
• Positioning the department for future service demand growth and organizational stability.
The City will implement staffing expansion gradually throughout this period rather than pursuing
immediate large-scale operational growth. A phased implementation strategy allows staffing increases
to align with operational demand, financial capacity, workforce availability, and organizational readiness
over time. The transition process will continue utilizing volunteer and paid -on -call personnel to maintain
operational flexibility, preserve institutional knowledge, and support community -based response capacity.
The recommended transition strategy strengthens and stabilizes Fire and EMS operations over time while
preserving the history, culture, and longstanding community involvement associated with TCFD.
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7.5 Financial Impact Analysis
The recommended phased transition to a municipal Fire and EMS department will require increased
operational investment over multiple years as staffing, supervision, and response coverage are expanded.
The estimated annual operational cost associated with full implementation of the recommended staffing
model by 2031 is approximately $3,800,000 and includes the following components:
Position/Service Estimated Annual Cost Phase
Fire Chief $200,000 Phase 2
Three (3) Battalion Chiefs/Captains $480,000 Phase 3
Five (5) Part -Time Paid -on -Premise Staff $876,000 Phase 3
Twelve (12) Full Time Firefighter/Paramedics $2,240,000 Phase 4
Total Estimated Annual Cost $3,796,000
After hiring all twelve Firefighter/Paramedics, part-time paid -on -premise staffing costs are projected to
decrease by approximately $525,600, resulting in on estimated annual operating cost of $3,270,400 in 2032.
Several operational and revenue offsets are anticipated to reduce the long-term financial impact associated
with the recommended transition. Most notably, the City currently allocates $700,000 annually under
contract with TCFD for fire and EMS services. In addition, EMS transport operations are anticipated to
generate approximately $800,000 annually in ambulance billing revenue based on current transport volume,
service demand, and estimated payer mix. While EMS revenue estimates remain preliminary and subject to
further financial validation, the estimate is considered conservative based on available operational data and
comparable municipal EMS systems.
The City may also realize additional annual revenue through Wisconsin's Fire Department Dues Program,
commonly referred to as the State "2% Fire Dues" program. As staffing levels, training activity, operational
expenditures, and qualifying fire protection services expand over time, the City may experience increased
distributions through the program to help offset eligible fire protection and operational costs.
After accounting for the existing contractual expenditure, anticipated EMS billing revenue, and potential
supplemental state fire dues revenue, the estimated long-term net annual operational increase associated
with full implementation of the recommended staffing model is projected at approximately $2.3 million
annually, subjecttofinal staffing structures, labor agreements, healthcare costs, reimbursement performance,
and operational deployment decisions.
The financial and operational recommendations outlined in this study are structured around a phased multi-
year implementation strategy intended to align operational growth with organizational readiness, workforce
availability, service demand, and long-term financial planning capacity. This approach allows the City to
gradually implement operational enhancements over time rather than requiring immediate large-scale
expansion.
4A
The operational improvements identified may also provide broader community and economic benefits
beyond staffing stabilization and emergency response reliability. The City of Muskego currently maintains a
favorable ISO Public Protection Classification (PPC) rating, supported in part bystrong municipal water supply
infrastructure and communications systems. However, ISO evaluation materials identified opportunities for
improvement within fire department staffing and training categories, which negatively impacted the City's
overall score through ISO's divergence calculation factor.
Incremental enhancements to staffing reliability, operational supervision, training capacity, and 24/7/365
response readiness may support future improvement to the City's ISO PPC rating over time. Improved ISO
classifications can contribute to lower fire insurance premiums for residential, commercial, and industrial
property owners —particularly commercial and industrial properties —while also strengthening firefighter
safety, emergency response effectiveness, and long-term community risk reduction capabilities.
8. Implementation Strategy
8.1 Transition Planning and Governance Actions
Transition planning activities begin during 2026 to support establishment of the City of Muskego Fire and
Rescue Department as a municipal fire and EMS department beginning in 2027. Implementation efforts
include:
• Immediately forming a Transition Committee consisting of the current Fire Chief, TCFD Board
Members, Mayor, City Council representative(s), Police Chief, volunteer firefighter, a paid -on -premise
representative, and an industry expert (such as a neighboring fire chief) with experience in fire
department transitions.
• Establishing the municipal departmental framework.
• Developing governance and administrative structures.
• Coordinating transition planning with TCFD leadership.
• Preserving operational continuity and institutional knowledge.
• Developing transition agreements, policies, and procedures.
• Establishing implementation timelines and operational benchmarks.
• Integrating long-term capital, staffing, and operational planning into municipal operations.
Throughout the transition process, continued collaboration between City leadership, TCFD leadership,
firefighters, EMS personnel, and stakeholders remains critical to maintaining operational continuity and
organizational stability.The implementation process also prioritizes preservation of the department's service
culture, institutional knowledge, and community relationships while transitioning toward a more sustainable
operational structure.
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8.2 Referendum Planning and Public Engagement
A public safety operational referendum is anticipated in November 2026 to support long-term staffing
stabilization and operational sustainability. Community engagement and public education efforts focus on:
• Long-term fire and EMS service expectations.
• Increasing EMS demand.
• Workforce availability challenges.
• Staffing sustainability.
• Operational reliability.
• Financial transparency and accountability.
• Phased staffing implementation.
• Overall citywide public safety.
The referendum process centers on maintaining consistent, reliable, and high -quality fire and EMS service
delivery for the Muskego community over the long term. The City already provides substantial financial
support for Fire and EMS operations through approximately $700,000 in annual operational funding. Under
the long-term phased staffing and operational model outlined in this study, the City's net annual operational
investment is projected to increase by approximately $2.3 million at full implementation, after accounting
for existing operational funding, anticipated EMS transport billing revenue, and other potential offsetting
revenues.
Accordingly, the referendum process focuses on stabilizing, modernizing, and sustaining the operational
system over time rather than creating an entirely new service model. The recommended transition strategy
is intended to address increasing EMS demand, improve staffing reliability and operational readiness,
strengthen firefighter safety, and support long-term service sustainability for the community. The public
communication efforts will emphasize:
• The phased nature of implementation.
• Continued utilization of volunteer and paid -on -call personnel.
• Long-term staffing sustainability.
• Preservation of community service traditions.
• Reliable emergency response capability.
• Accountability and operational transparency.
Clear and consistent public communication remains essential throughout the implementation process.
8.3 Initial Organizational Implementation
Beginning in 2027, the City will formally establish the City of Muskego Fire and Rescue Department as a
municipal fire and EMS department operating under direct City governance and administration. The most
significant organizational action during this phase includes hiring a full-time Fire Chief responsible for:
29
• Operational leadership.
• Staffing oversight.
• Administrative coordination.
• Strategic planning.
• Budget development.
• Transition management.
• Organizational development.
Additional implementation activities include:
• Integrating departmental operations into municipal administration.
• Establishing departmental policies and operational procedures.
• Expanding operational reporting and performance monitoring.
• Continuing workforce recruitment and retention efforts.
• Maintaining operational continuity throughout the transition period.
Volunteer, paid -on -call, and paid -on -premise personnel continue serving critical operational roles during
this phase of implementation.
8.4 Phased Staffing Expansion
Between 2027 and 2031, phased staffing expansion focuses on strengthening operational supervision,
staffing reliability, EMS coverage, and long-term organizational sustainability. Implementation priorities
include:
• Expanding to three full-time Captain or Battalion Chiefs.
• Hiring five part-time 24/7 paid -on -premise personnel.
• Increasing scheduled staffing coverage by hiring twelve (12) full-time Firefighter/Paramedics.
• Strengthening EMS operational coordination.
• Pursuing an upgrade of the EMS State Service License to the paramedic level.
• Expanding training and supervisory capacity.
• Reducing long-term dependence on volunteer staffing availability alone.
• Continuing evaluation of firefighter staffing needs.
The phased approach allows staffing growth to align with operational demand, financial capacity, workforce
availability, and organizational readiness overtime. As full-time staffing positions are implemented, personnel
become eligible for municipal employee benefits, including participation in the Wisconsin Retirement
System (WRS), health insurance, and other City employment benefits consistent with municipal employment
practices. Access to stable compensation, benefits, and retirement programs improves workforce recruitment,
retention, leadership continuity, and long-term organizational sustainability. These employment structures
increasingly reflect broader statewide fire and EMS workforce trends as departments compete for qualified
personnel within a challenging labor environment. Operational performance, EMS workload trends, staffing
30
reliability, and response data continue informing future staffing decisions throughout the implementation
process.
8.5 Future Collaboration and Funding Opportunities
Several future funding and collaboration opportunities capable of supporting long-term fire and EMS
operational sustainability. Potential future funding opportunities include:
• SAFER Grant funding to supporting hiring 12 firefighters/paramedics.
• Wisconsin Innovation Grant opportunities for shared services with neighboring agencies.
• State and federal public safety funding programs.
• EMS revenue optimization initiatives.
Continued opportunity for regional collaboration involves:
• Shared training initiatives.
• Joint purchasing agreements.
• Specialty response coordination.
• Regional staffing coordination.
• Shared administrative services.
• Expanded mutual aid collaboration.
While regional collaboration does not independently resolve the operational and staffing challenges
identified during the study, continued partnership opportunities remain important components of long-
term operational planning and resource management. Future Innovation Grant opportunities may also
support operational efficiencies, regional coordination initiatives, or future shared -service opportunities as
statewide fire and EMS systems continue evolving.
9. Referendum Considerations
9.1 Referendum Overview
Long-term fire and EMS sustainability will require additional operational investment to support phased
staffing transition, expanded operational leadership, and long-term workforce stabilization. As a result,
the City is anticipated to pursue a public safety operational referendum during fall 2026 in support of the
recommended transition to the City of Muskego Fire and Rescue Department beginning in 2027.
Like many Wisconsin municipalities, the City of Muskego operates under state -imposed levy limit constraints
largely tied to net new construction growth. As a result, the City's ability to absorb significant new operational
costs within existing levy authority remains limited. A referendum will likely be necessary to support both
the immediate and long-term operational costs associated with staffing stabilization, expanded leadership
capacity, and phased implementation of the recommended municipal fire and EMS department structure.
The referendum process is focused on providing reliable fire and EMS service delivery, addressing increasing
EMS demand, and supporting long-term staffing stability and operational continuity.
9.2 Referendum Timeline Considerations
Because the 2026 spring and August elections have already passed, any operational referendum must occur
during either the November 3, 2026 General Election. Key statutory timeline considerations include:
November 3, 2026 1 General Election (recommended)
• Wisconsin Department of Revenue certification of values: August 15, 2026.
• Deadline to file referendum question with local clerk: August 24, 2026.
• Deadline to file referendum question with County Clerk: August 25, 2026.
• General Election date: November 3, 2026.
Questions appearing on the November General Election ballot are required to utilize certified net new
construction values rather than estimates. As a result, the City would have approximately nine days between
DOR certification of values and referendum filing deadlines to finalize calculations, draft ballot language,
adopt the required governing body resolution, and complete filing requirements. Early financial planning,
legal coordination, and public communication preparation will be important to support a successful
referendum implementation timeline.
9.3 Public Communication and Information
Public communication efforts associated with the referendum focus on operational sustainability, staffing
reliability, and long-term service continuity rather than the creation of an entirely new fire and EMS system.
There are several operational drivers supporting future referendum consideration, including:
32
• Increasing EMS demand.
• Workforce recruitment and retention challenges.
• Declining volunteer availability trends.
• Increasing reliance on paid staffing.
• Leadership succession considerations.
• Long-term operational sustainability.
To support public education and community engagement efforts, the City may consider partnering with
Innovative Public Advisors to assist with development and implementation of an informational outreach
campaign associated with the referendum process. As a Wisconsin -based municipal consulting firm, IPA
works directly with municipal leadership teams to identify cost -saving efficiencies while providing hands-on
referendum communications and community engagement support at a significantly lower cost than many
large public affairs or campaign consulting firms. Potential support efforts may include:
• Community informational meetings.
• Frequently asked questions materials.
• Financial impact communication.
• Operational data and service trend presentations.
• Educational mailers and digital communications.
• Public engagement facilitation.
• Website and social media informational content.
Messaging throughout the referendum process centers on maintaining and improving consistent,
reliable, and high -quality fire and EMS service delivery for the Muskego community over the long term.
Public communication efforts are intended to provide residents with clear, transparent, and fact -based
information regarding operational needs, staffing challenges, financial impacts, service expectations, and
long-term sustainability considerations associated with the proposed transition. All referendum -related
communications are intended to remain informational and educational in nature rather than persuasive or
advocacy -based.
33
10. Conclusion
TCFD has served the City of Muskego with dedication, professionalism, and strong community commitment
for nearly a century. The organization's history, institutional knowledge, operational experience, and service
culture remain important community assets and continue to provide a strong foundation for future fire and
EMS operations. However, increasing EMS demand, changing workforce availability, growing operational
complexity, staffing reliability challenges, and expanding administrative expectations are placing increasing
pressure on traditional volunteer -based fire and EMS systems both regionally and nationally.
The analysis determined that the City already operates within a highly interconnected fire and EMS system
supported through substantial municipal investment, operational oversight, administrative coordination,
and approximately $700,000 in annual operational funding. Based on stakeholder interviews, operational
analysis, financial review, regional staffing trends, and increasing EMS demand, this study recommends a
phased transition toward establishment of the City of Muskego Fire and Rescue Department as a municipal
combination department beginning in 2027.
Given Wisconsin levy limit constraints and the long-term operational investment associated with the transition,
the study further recommends the City pursue a public safety operational referendum in November to
support phased implementation and long-term service sustainability.The recommended transition strategy
includes hiring a full-time Fire Chief in 2027, followed by expansion to three full-time Battalion Chiefs or
Captains, 24/7 paid -on -premise staffing, and the addition of 12 full-time firefighter/paramedic positions.
At full implementation, the estimated annual operational cost of the staffing model is approximately $3.8
million, representing a net annual operational increase of approximately $2.3 million after accounting for
existing City funding, anticipated EMS transport billing revenue, and other offsetting revenues.
The phased implementation model strengthens staffing reliability, operational supervision, firefighter safety,
training capacity, and long-term organizational sustainability while preserving the continued involvement of
volunteer and paid -on -call personnel. The recommendations also position the City to improve operational
readiness and potentially enhance future ISO Public Protection Classification ratings, which may contribute
to reduced fire insurance costs for property owners over time.
Ultimately, the recommendations are intended to preserve the legacy and community relationships
associated with TCFD while creating a more sustainable and adaptable organizational structure capable of
meeting future fire and EMS service demands and continuing to provide reliable, high -quality service to the
Muskego community.
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Innovative
Public Advisors
June 29, 2026
Dear Mayor Rick Petfalski,
Thank you for the opportunity to facilitate this study evaluating the long-term sustainability and future
organizational direction of Fire and EMS services within the City of Muskego and the Tess Corners Volunteer
Fire Department. This effort reflects the City's commitment to proactive planning and delivering reliable,
high -quality emergency services for the community.
This study was informed through extensive stakeholder engagement, operational review, staffing analysis,
financial evaluation, and review of service demand trends. We sincerely appreciate the time, collaboration,
and insight provided by City leadership, department leadership and personnel, and community stakeholders
throughout the process.
Our analysis confirms thatTCFD provides dedicated and reliable service to the community. At the same time,
it identified increasing operational pressures associated with EMS demand growth, staffing sustainability,
workforce availability, and long-term organizational complexity. Based on these findings, the study supports
phased transition toward establishment of the City of Muskego Fire and Rescue Department as a municipal
department beginning in 2027.
The recommended transition includes a public safety operational referendum in November 2026, hiring
a full-time Fire Chief in 2027, followed by a phased expansion to three full-time Captains or Battalion
Chiefs, 24/7/365 paid -on -premise personnel, and 12 full-time firefighter/paramedics—while retaining
current department members and preserving the organization's operational experience and community
relationships.
Thank you again for the opportunity to partner with the City of Muskego on this important initiative.
Innovative Public Advisors remains available to assist with implementation planning, as well as development
of a public communication and community engagement strategy associated with the proposed referendum
process. We look forward to continued collaboration and supporting the future success of the department!
Sincerely,
Jay Shambeau, ICMA-CM, MPA Jess Wildes, MPA, MS
Partner, Innovative Public Advisors Partner, Innovative Public Advisors
Paul Stephans
Fire/EMS Advisor
35
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USKEGO
OFFICE OF THE MAYOR
Rick Petfalski, Mayor
(262) 679-5675
rpetfalski(a)cityofmuskego. org
� N6M MEMO
To: Muskego Common Council
From: Rick Petfalski, Mayor
Date: July 9, 2026
Subject: Fire & EMS Services Study
Attached for your review is the Fire and EMS Study Report prepared by the consultant team
from IPA that was commissioned by the City to evaluate our current fire and emergency medical
service delivery system and provide recommendations for the future.
First and foremost, I want to reiterate that there was no predetermined outcome provided to IPA.
At no time was the consultant directed toward a specific recommendation, service model, or
preferred solution by the administration. The purpose of this study was to conduct an objective
and independent evaluation of our current service model, assess future community needs,
identify challenges, and review the options available to the City of Muskego moving forward.
The sole goal of this process is to identify a long-term, sustainable solution that ensures the
residents of Muskego continue to receive the level of Fire and EMS service they deserve and
expect.
As we review this report, it is important to recognize and acknowledge the tremendous service
that the Tess Corners Volunteer Fire Department has provided to this community for nearly a
century. Generations of volunteers have dedicated countless hours protecting the lives and
property of Muskego residents, and their commitment and sacrifice have helped shape the
community we enjoy today. Their service should be recognized, appreciated, and respected
throughout this discussion.
At the same time, we must also acknowledge the realities facing volunteer and paid -on -call
service models across Wisconsin and throughout the nation. Communities everywhere are
experiencing increasing difficulties recruiting and retaining volunteers, meeting training
requirements, and ensuring adequate staffing levels during daytime hours and other peak demand
periods. These challenges are not unique to Muskego and are becoming increasingly difficult to
overcome in communities of our size.
Muskego is a city of approximately 26,000 residents spread across 36 square miles. Providing
reliable Fire and EMS coverage to a community of this size and complexity while relying
primarily on volunteer and paid -on -call responders is becoming increasingly difficult to sustain
over the long term.
W182 S8200 Racine Avenue — Muskego, WI 53150 — www.cityofmuskego.org
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If there is one message that should be taken away from this study above all others, it is that
action is needed. Regardless of which service model is ultimately selected, maintaining the status
quo indefinitely is not a sustainable option if we intend to continue providing the level of Fire
and EMS service our residents expect and deserve.
While the report contains recommendations regarding potential paths forward, it is important to
remember that they are exactly that — recommendations. No decisions have been made
regarding implementation of any specific option or service model.
The next steps will involve thoughtful discussions among the Common Council, the Tess
Corners Volunteer Fire Department, city staff, residents, and other stakeholders. The direction
we ultimately choose will be the result of collaboration, planning, and community input.
Nothing is set in concrete, and I would encourage everyone to avoid drawing conclusions before
the Council has had the opportunity to fully review the report and engage in those discussions.
This study should be viewed as the beginning of an important community conversation, not the
conclusion of one.
We will begin this discussion in greater detail at Tuesday's meeting, starting with a presentation
of the study findings and recommendations by IPA. Following that presentation, the Council will
begin discussing funding options for public safety services moving forward, including Police,
Fire, EMS, and Public Works, and the resources necessary to ensure the City can continue
providing the high level of service our residents have come to expect.
I look forward to an engaging and productive discussion as we begin evaluating the options
available to the community and determining the best path forward for Muskego's long-term
public safety needs.
Our responsibility moving forward is to ensure that whatever decision is made positions
Muskego to provide reliable, effective, and sustainable Fire and EMS services not only for today,
but for the next generation of residents as well.
W182 S8200 Racine Avenue - Muskego, WI 53150 - www.cityofmuskego.org
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