Seen in the Metro|
It does, but perhaps we can make sense of it as written.
Suppose that each community has a number of firefighters, who come in at the lowest grade. But some have a higher starting salary (because of their family situation, or experience, or something). So each community can calculate an "average starting salary".
Then, among all the communities, we take the minimum of those.
Given that there are lies, damn lies, and statistics, I wouldn't be surprised if the wording actually is painfully accurate, because this allowed them to get the most shockingly low number. After all, it would only take a single community to pull the minimum down, but the word "average" is still in there, to make it look as if it represents some broad trend.