Fire Department 2025-2030 Strategic PlanCity of Dubuque
City Council
ITEM TITLE:
SUMMARY:
SUGGUESTED
DISPOSITION:
ATTACHMENTS:
1. MVM Memo
Copyrighted
December 1, 2025
ACTION ITEMS # 7.
Fire Department 2025-2030 Strategic Plan
City Manager providing the Dubuque Fire Department's
2025-2030 Strategic Plan.
Receive and File
2. Staff Memo- Dubuque Fire Departments 2025-2030 Strategic Plan
3. Dubuque Fire Strategic Plan 2025 - 2030
Page 943 of 1214
THE CITY OF
DUBE
Masterpiece on the Mississippi
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Fire Department 2025-2030 Strategic Plan
DATE: November 24, 2025
Dubuque
AI WIN av
2007-2012.2013
2017*2019
Fire Chief Amy Scheller is providing the Dubuque Fire Department's 2025-2030
Strategic Plan.
The plan represents a significant collaborative effort and establishes a clear pathway for
achieving departmental and community goals while reinforcing Dubuque's position as a
forward -thinking, resilient, and community -centered fire department.
Mic ael C. Van Milligen
MCVM:sv
Attachment
cc: Crenna Brumwell, City Attorney
Cori Burbach, Assistant City Manager
Amy Scheller, Fire Chief
Randy Gehl, Public Information Officer
Kristin Hill, Communications Specilist
Page 944 of 1214
THE CITY OF
DUiB E
Masterpiece on the Mississippi
TO: Mike Van Milligen, City Manager
FROM: Amy Scheller, Fire Chief
SUBJECT: Fire Department 2025-2030 Strategic Plan
DATE: November 12, 2025
INTRODUCTION:
Dubuque
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2007*2012-2013
2017*2019
The Dubuque Fire Department is pleased to present its 2025-2030 Strategic Plan for
City Manager and City Council review. This plan serves as a roadmap to guide
departmental priorities, resource allocation, and continuous improvement efforts over
the next five years. The Strategic plan is updated every 3-5 years and replaces the
2019 strategic plan. It supports the fire department's continuous improvement process
as recognized by the Center for Public Safety Excellence, and the department's mission
to protect, assist, and educate with pride, skill, and compassion.
DISCUSSION:
Strategic planning is an essential process that ensures the Fire Department remains
responsive to community needs, industry standards, and future challenges. The
purpose of this plan is to establish a clear framework that defines the department's
vision, mission, values, goals, and measurable objectives. It helps identify opportunities
for improvement, ensures accountability, and strengthens organizational alignment with
both the City's strategic direction and the expectations of residents.
The 2025-2030 Strategic Plan was developed through a comprehensive and wide-
ranging process. The department conducted an environmental scan to understand
current conditions and future trends, performed a SWOT analysis (Strengths,
Weaknesses, Opportunities, Threats), and reviewed organizational assumptions to
ensure planning decisions were grounded in evidence.
Internal and external stakeholders played a critical role in shaping the plan. Input was
gathered through employee work sessions, leadership retreats, and community and
partner surveys, generating valuable insights from residents, City staff, and fire
department personnel. The result is a set of five strategic initiatives supported by
defined objectives that will guide implementation and measurement:
Page 945 of 1214
Strengthen Workforce, Leadership, and Resiliency — Strengthening recruitment,
retention, training, and succession planning.
2. Modernize Facilities, Fleet, and Technology for All -Hazards Readiness —
Investing in infrastructure, equipment, training, and innovation to support
operational efficiency.
3. Enhance Service Delivery, Response, Staffing, EMS Capacity, Community
Education, and Community Risk Reduction — Improving response performance,
clinical quality, and customer service.
4. Expand Prevention, Public Education, and Community Engagement — Advancing
fire prevention, fire code compliance, public education, and community risk
reduction initiatives.
5. Strengthen Communication, Accountability, and Regional Collaboration —
Building partnerships, reducing risk, improving transparency, and shared
solutions across agencies and jurisdictions.
The plan represents a significant collaborative effort and establishes a clear pathway for
achieving departmental and community goals while reinforcing Dubuque's position as a
forward -thinking, resilient, and community -centered fire department. The fire
department appreciates the support it received from the various city departments in
identifying community stakeholders, compiling and reviewing data and information, and
finalizing the plan. (Communications, Economic Mobility, Community Impact and
Neighborhood Support, Human Rights, Planning Services, and Information
Technology).
RECOMMENDATION:
It is respectfully requested that the City Council receive and file the Dubuque Fire
Department's 2025-2030 Strategic Plan.
Cc: Randy Gehl
Kristin Hill
2
Page 946 of 1214
U u
Ork"') T R A T E
2025-2030
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THE CITY OF
DUB E
Masterpiece on the Mississippi
TABLE OF CONTENTS
ExecutiveSummary...................................................................................................................................... 3
2025 - 2030 Priorities................................................................................................................................... 4
Methodology and Planning Process...................................................................................................5
Citywide Vision, Mission, and Goals....................................................................................................9
Department Vision, Mission, and Goals.......................................................................................... 11
Organizational Background.................................................................................................................. 13
CommunityProfile....................................................................................................................................... 16
Environmental Scan and SWOT Analysis..................................................................................... 19
AssumptionsStatement......................................................................................................................... 22
SummaryStatement................................................................................................................................. 23
Strategic Initiatives and Objectives................................................................................................ 24
References......................................................................................................................................................... 31
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EXECUTIVI
SUMMARY
The Dubuque Fire Department
is a professional, all -hazards
public safety emergency
response department with
more than 100 highly trained
and dedicated members.
When emergencies happen,
sometimes in the middle of
the night, it is our team that
responds first, delivering
lifesaving protection to the
residents and visitors of
Dubuque. We are the first to
enter danger, act decisively,
and stay on scene until the
community is safe. Our services
are called upon when seconds
matter and lives, property,
critical infrastructure, and the
environment are at risk.
Beyond responding to
emergencies, we work tirelessly
to prevent harm, safeguard the
local and national economy,
and protect our community's
infrastructure and natural
resources. Our mission is
to ensure that everyone in
Dubuque enjoys a high quality
of life with full confidence in
our capabilities, our resources,
and our commitment to public
safety. We hope our neighbors
never need our help, but when
they do, they will remember
the extraordinary impact of our
team.
We take pride in the dedication,
skill, and professionalism of
our firefighter paramedics,
officers, and support staff. They
embody the highest standards
of service and represent the
very best of Dubuque's values.
The Dubuque Fire Department
Strategic Plan 2025-2030
builds on the 2019 framework
and follows the Center for
Public Safety Excellence
(CPSE) model for continuous
improvement. Our planning
process combined internal
and external input. We
reviewed progress from
earlier plans, hosted an
external stakeholder session,
conducted a department -wide
internal survey, and gathered
community feedback through
F:3
a public survey (310 responses).
A leadership retreat and a final
wrap-up session helped us
refine our mission, vision, and
values. Working with the City's
data analyst, we performed
an environmental scan of
community risks, threats,
and assumptions to identify
priorities and gaps that will
guide our future.
This inclusive, data -driven
process produced five
strategic initiatives with clear
objectives and measures for
accountability, ensuring that
the Dubuque Fire Department
continues to protect lives,
property, critical infrastructure,
the economy, and the
environment well into the
future.
2025-2030
PRIORITIES
The Dubuque Fire Department Strategic Plan 2025-2030 focuses on five priorities for the next five years:
UWorkforce and leadership capacity
Modernize facilities, fleet, and technology for all -hazards readiness
Enhance service delivery, response, staffing, emergency medical services (EMS) capacity,
community education, and community risk reduction
Expand prevention, public education, and code compliance
Strengthen communication, accountability, and regional collaboration
These priorities acknowledge Dubuque's growth,
aging infrastructure, and evolving risks such as
hazardous materials, severe weather, large-scale
events, and hostile incidents. As the region's only
full-time career fire department, we remain uniquely
positioned to provide reliable, high-performance
public safety services.
Guided by the City's SPIRIT values (Service, People,
Integrity, Responsibility, Innovation, Teamwork)
and CPSE principles, the Dubuque Fire Department
will measure what matters, report progress, and
continually improve. We thank our community
partners, neighboring departments, city leadership,
and every member of Dubuque Fire for their candor
and dedication during the 2025-2026 community -
driven strategic planning process. Together, we will
keep Dubuque safe, prepared, and well -served, today
and into the future.
0
METHODOLOGY
PLANNING PROS
SUMMARY
Key steps included:
• Review of the 2019 strategic plan and goals
accomplished
• An open community survey collected an
additional 310 responses in the first and
second quarter of 2025.
• A community (external stakeholder) session
and survey were held on February 26, 2025.
• Employee (internal stakeholder) sessions and
surveys took place July 14-16, 2025, with 55
internal survey participants across all stations,
shifts, ranks, and levels of experience.
• Data analysis and coding of survey responses
were conducted.
STAKEHOLDER FEEDBACK
Open Community Survey
To ensure the Dubuque Fire Department Strategic
Plan 2025-2030 reflected the needs and
expectations of our residents, the department
partnered with the Dubuque Fire Department's
Training Division and the City's Communications
Office to design and promote a community -
wide survey. This process aimed to collect and
evaluate candid feedback from community
• A community risk review and Standard of
Cover alignment were completed.
• The process also included a review
of development and growth and city
comprehensive plans.
• A leadership retreat and review took place on
July 22, 2025.
• A strategic planning wrap-up session was
held on August 20, 2025.
• The development of updated goals,
objectives, and measures followed.
members on how the fire department delivers
services today and where improvements are
most needed in the future.
The survey included questions and topics
designed to capture both quantitative and
qualitative feedback. Community members were
asked to:
5
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• Rank Dubuque Fire Department services in
Healthcare and Social Services
order of importance.
• Evaluate how well the department meets their
expectations.
• Identify which services they have personally
utilized.
• Indicate which services they would like to see
improved.
• Provide feedback on current response times
and their expectations.
• Offer open-ended input on what the
department does well, areas for improvement,
and general feedback or follow-up needs.
This comprehensive approach yielded 310
responses, which were analyzed for content and
themes to inform the department's strategic
priorities. The insights gained from this process
helped ensure that the Strategic Plan reflects
community values, service expectations, and
opportunities for continuous improvement.
External Stakeholder
"Community -Driven"
Strategic Planning Session
The one -day external stakeholders session
invitation was sent to 127 various stakeholders.
The department utilized the expertise and
community partnership knowledge of several
city departments to establish a master list of
community partners. This included support
and partnership from the City's Human Rights
Department, Office of Community Impact, and
the Office of Economic Mobility. Invitations were
distributed to the following stakeholder groups to
ensure representation:
Utilities and Industry
Alliant Energy, Black Hills, Hormel, Medline Industries,
Anderson Window and Door, Hodge Companies,
Rainbo Oil, Rite Hite Corporation, Sedgwick,
Simmons, Nordstrom Distribution Center
Alzheimer's Association, American Cancer Society,
American Red Cross, Catholic Charities, Crescent
Community Health Center, Dubuque Rescue
Mission, Fountain of Youth, Four Oaks, Good Will
Industries, Habitat for Humanity, Hillcrest Family
Services, Hope House Catholic Worker, Hospice of
Dubuque, Mary's Inn, Medical Associates, MercyOne
Dubuque, Unity Point Health - Finley, Visiting Nurse
Association, and Women, Infants and Children
(WIC).
Education
Clarke University, Loras College, University of
Dubuque, Emmaus University, Keystone Area
Education Agency, Northeast Iowa Community
College, Holy Family Catholic Schools, Dubuque
Community Schools
Youth Services
Boy Scouts, Girl Scouts, Boys/Girls Club, St. Mark's
Youth Enrichment, Four Mounds Foundation, March
of Dimes, Dream Center
Neighborhood and Community Development
Bluff Street Neighborhood Association, North End
Neighborhood Association, The Point Neighborhood
Association, Gronen, Greater Dubuque
Development, Convivium Urban Farmstead
Government and Public Services
Police Department, Communications, Public Works,
Iowa Workforce Development, Iowa Legal Aid, East
Central Intergovernmental Association
Faith -Based and Spiritual Services
Catholic Charities, Knights of Columbus, Sisters
of Charity BVM, Sister of Presentation PBVM,
Franciscan Sisters, Shalom Spirituality Center,
Opening Doors
Support and Advocacy Groups
Dubuque Chapter of NAACP, NAMI (National
Alliance on Mental Illness) Dubuque, Latino
Empowerment and Development (LEAD), Narcotics
Anonymous, Right to Life
Financial Institutions
Capra Bank, Dupaco Community Credit Union,
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Dutrac CommunityCredit Union, MidwestOne Bank,
Green State Credit Union, Collins Credit Union
Veteran and Military Organizations
American Legion, VFW, Dubuque County Veteran's
Affairs
Media and Communications
TH Media, TH Media/Woodward Community Media,
Voices Studio
Civic Organizations, Clubs, and Volunteerism
Rotary Club, Kiwanis Club, Lions Club, Dubuque
Jaycee's, Eagles Club, Chamber of Commerce,
United Way, United Therapy, Resources Unite
Miscellaneous/Other
Diamond Jo Casino, Q Casino, Du Ride, Dubuque
Area Labor Harvest, Dubuque Area Landlord
Association, Honkamp Krueger PC, Mt. Pleasant
Home, Dubuque Monsoon Asian and Pacific
Islanders in Solidarity, Cottingham & Butler
External Feedback Session
(February 2026)
Twenty-four individual stakeholders participated,
representing an impact of approximately 2,000
individuals throughout the participating groups:
• Alliant Energy
• Alzheimer's Association
• Bluff Street Neighborhood Association
• City of Dubuque Human Rights Department
• Conlon Construction
• Convivium Urban Farmstead
• Crescent Community Health Center
(Crescent CHC)
• Dubuque Area Chamber of Commerce
• Dubuque NAACP Chapter
• Goodwill Industries of Northeast Iowa, Inc.
• Hills & Dales
• Hospice of Dubuque
• MercyOne Dubuque - EMS Coordinator
• Multicultural Family Center
• Northeast Iowa Community College
• Progressive Processing, LLC
• Telegraph Herald
• The Salvation Army
• United Way of Dubuque Area Tri-States
• UnityPoint Health - Finley Hospital
Top Five External Stakeholder Priorities Identified
1. Improve response times and expand
coverage.
2. Enhance staffing capacity and workforce
reliability.
3. Modernize facilities, equipment, and
technology.
4. Expand public education, prevention/code
compliance and review, and outreach.
5. Build community confidence through
professionalism and service excellence.
14
Internal Feedback
Sessions and Survey
The department conducted a series of internal
stakeholder planning sessions designed to reach
all personnel across every shift. Fire station rounds
were held July 14-16, 2025, with two stations
gathering at a time at Fire Station 3, Fire Station
2, and Fire Headquarters. Each shift began with
the Battalion Chief providing an overview of the
strategic planning process during the morning
video briefs, followed by presentations from senior
staff at each location.
During these sessions, the Fire Chief reviewed the
accreditation process, strategic planning, and
fundamental fire department documents. Areas
discussed also included the role of commissioners,
including their representation areas, accreditation
strategic recommendations, and annual
compliance reporting. Personnel were guided
through the strategic planning process including
internal and external stakeholder processes, survey
questions, and a general review for understanding.
The discussions also highlighted how the strategic
plan aligns with departmental initiatives, long-term
effort, and budget requests for the next three to five
yea rs.
Each session concluded with an open question -
and -answer period to ensure all personnel had
an opportunity to contribute their ideas and gain
clarity on the planning process from members of
senior staff. Members were provided with survey
links and a timeline for completion.
Top Five Internal Stakeholder Priorities Identified
(55 Surveys)
1. Improve communication, transparency, and
accountability.
2. Strengthen staffing, recruitment, and retention.
3. Modernize facilities, equipment, and
technology.
4. Expand training, development, and career
growth.
5. Enhance leadership, morale, and inclusivity.
Artificial Intelligence (AI)
& Data Statement
To ensure transparency and accuracy in
interpreting stakeholder input, the City's Data
Analyst supported Dubuque Fire's analysis of
the internal and external survey results using
established, evidence -based methods (coding,
trend detection, cross -tabulation). This outside
analysis followed City data governance and
privacy practices and was performed to surface
clear, consensus priorities, so strategic goals,
objectives, and measures reflect what our
community and employees told us.
This approach aligns with CPSE's emphasis
on data -informed planning and continuous
improvement. All raw data and survey results
are incorporated within a companion reference
document to this plan. (Dubuque Fire Department
Strategic Planning Survey and Data Document).
Page 954 of 1214
CITYWIDE
VISION, MISSIO
AND GOALS
2040 Vision Statement
Dubuque 2040 is a sustainable and resilient city,
an inclusive and equitable community where
ALL are welcome. Dubuque 2040 has preserved
our Masterpiece on the Mississippi, has a strong,
diverse economy and expanding connectivity.
Our residents experience healthy living and active
lifestyles; have choices of quality, affordable, livable
neighborhoods; have an abundance of diverse,
fun things to do; and are successfully and actively
engaged in the community.
Mission Statement
Dubuque city government is progressive and
financially sound with residents receiving value
for their tax dollars and achieving goals through
partnerships. Dubuque city government's mission is
to deliver excellent municipal services that support
urban living; contribute to an equitable, sustainable
city; plan for the community's future; and facilitate
access to critical human services.
City Values
City of Dubuque Goals 2030
• Healthy and Safe Community
• Financially Responsible, High -Performance City
Organization: Sustainable and Effective Service
Delivery
• Robust Local Economy: Diverse Businesses and
Jobs with Economic Prosperity
• Livable Neighborhoods and Housing: Great
Place to Live
• Sustainable Environment: Preserving and
Enhancing Natural Resources
• Connected Community: Equitable
Transportation, Technology Infrastructure, and
Mobility
• Diverse Arts, Culture, Parks, and Recreation
Experiences and Activities
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Policy Agenda
Policy agenda items are issues that need direction
or a policy decision or a major funding decision
by the City Council, or issues that need City
Council leadership in the community or with other
governmental bodies. The policy agenda is divided
into top priorities and high priorities.
2025 - 2027 Top Priorities
(in alphabetical order)
• Commercial Air Service Future: Strategy and
Action Plan to Sustain and Expand
• Comprehensive Fire Station Location and
Facilities Study
• Fire Department Staffing Increases
• Police Department: Full Staffing and Hiring
• Sanitary Sewer Investments and
Implementation
• Sports Complex Development
• Stormwater Management Investments and
Implementation
• Street Maintenance/Rehabilitation Program
2025 - 2027 High Priorities
(in alphabetical order)
• Continued Implementation of Central Avenue
Revitalization Plan
• Downtown Master Plan Update
• Dubuque Law Enforcement Center (DLEC)
Short -Term Facility Enhancements and Future
Plan
• East-West Corridor/Roundabouts Projects
• Next Phases of Chaplain Schmitt Island
Development
• Parks and Recreation Master Plan Adoption and
Implementation
• Water Resource and Recovery Center Facility
and Process Improvements and Odor Reduction
m
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DEPARTMENT
VISION, MISSION,
AND GOALS
Vision
A safer, healthier, and more resilient Dubuque
served by a modern fire department that learns,
adapts, and leads. Our greatest investment is in
our people, the most important resource we have,
through continual education, skill development,
and leadership growth. We are committed to
building crew integrity, teamwork, trust, and
alignment across the department to ensure
excellence in every response.
We envision a future where services are right -
sized to meet evolving EMS and community
health needs; where prevention, inspection,
and risk reduction are central to protecting
lives and property; and where data, technology,
and innovation enhance decision -making and
accountability. Guided by national fire service best
practices, we will prepare for complex hazards
such as hazardous materials, severe weather,
active assailant threats, and the demands of an
aging community and infrastructure.
forward -looking leadership, the Dubuque Fire
Department will embody the vision of the modern
fire service: a people -centered, prevention -
focused, all -hazards organization committed to
protecting and serving our community into the
future.
Mission
As part of the strategic planning process, the
Dubuque Fire Department undertook a thoughtful
review of our mission, vision, and values.
Stakeholder feedback confirmed that our mission
continues to reflect the department's purpose
and direction. The department refined the mission
statement for clarity and broad application,
removing the specific reference to "community and
visitors" as Dubuque Fire provides a high level of
service to all.
Previous
"To protect, assist, and educate our community
and visitors with pride, skill, and compassion."
Together with our county partners, we will build
capacity for regional resiliency while honoring the Updated
trust placed in us today. By embracing continuous "To protect, assist, and educate
improvement, community connection, and with pride, skill, and compassion."
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Core Values
The Dubuque Fire Department's values are not
meant to replace the personal values of our
members. Instead, they focus and connect with us
around a shared purpose. They tie directly to our
mission and help ensure that our words are backed
by consistent action.
Our previous values: Integrity, Professionalism,
Dedication, Skill, Compassion, and Pride, have long
represented qualities that guided our department
with strength and credibility. As part of our strategic
planning process, we took time to review and refine
these values to make sure they still fit our direction
and future needs.
In August 2025, the department held a working
session with input from our members to identify
a clear and updated set of shared values. This
process helped us recommit to what is most
important and ensure our values provide clarity
and focus moving forward. The result is a refined
set of values that will guide the Dubuque Fire
Department:
PROFESSIONALISM
We demonstrate excellence in every action.
Professionalism means holding ourselves to the
highest standards of conduct, skill, and service. It
shows up in the way we present ourselves, how we
engage with the public, and the pride we take in
delivering quality outcomes every time.
RESPONSIBILITY
We are accountable to our mission, our team, and
our community. Responsibility reflects ownership
of our decisions and actions, whether on an
emergency scene, in training, or in daily operations.
It is demonstrated through reliability, preparedness,
and commitment to doing what is right.
INTEGRITY
We act with honesty, fairness, and transparency.
Integrity builds trust within our department and
with the public we serve. It shows up in keeping our
word, upholding ethical standards, and making
choices that reflect honor and respect for our
profession and to one another.
DUTY
We honor our calling to serve and protect. Duty
reflects our commitment to safeguarding lives,
property, and the well-being of our community.
It shows up in our readiness to respond, our
persistence in overcoming challenges, and our
willingness to put service above self.
EMPATHY
We serve with compassion and understanding.
Empathy guides how we interact with those
experiencing crisis and with each other as
colleagues. It shows up in listening with care,
treating others with dignity, and recognizing
the human element in every call, decision, and
interaction.
These values reflect not only who we are, but
who we strive to be each day. They confirm
our commitment to serve with pride, skill, and
compassion, while setting a standard for the
culture we continue to build together.
The Dubuque Fire Department's values,
Professionalism, Responsibility, Integrity,
Duty, and Empathy, closely align with the City
of Dubuque's SPIRIT framework. Both sets of
values emphasize service, accountability, ethical
conduct, and teamwork, while also recognizing the
importance of compassion and professionalism in
every action.
The City values provide broad direction for how
municipal services are delivered, while the fire
department's values apply these principles to the
unique responsibilities of emergency response,
community protection, and public safety. Together,
these values reinforce one another and ensure that
the fire department operates with consistency.
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ORGANIZATIONAL
BACKGROUND
Department Overview
The Dubuque Fire Department serves the city of Dubuque, home to approximately 60,000 residents across
32 square miles, with an ISO Class 2 fire rating. The department operates six fire stations with 94 career
firefighter/paramedics and 10 administrative support staff, providing a full spectrum of services from
emergency medical transport to technical rescue and prevention.
Shift 1 I Shift 2 ' � Shift 3
Medical I I Medical I I Medical
Officer Officer Officer
Fire Equipment Fire Equipment Fire Equipment
Operator Operator Operator
8 11 8 11 8
Firefighter Firefighter Firefighter
Paramedic Paramedic Paramedic
15 15 15
32 31 31
7Chief Bur2Chief
40 Hour Administrative 10
Approved FTE 104
13
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A Short History of the Dubuque Fire Department
The Dubuque Fire Department holds the distinction
of protecting Iowa's oldest city, with roots tracing
back nearly two centuries. What began as a small
group of citizen volunteers organized in 1842 as the
Independent Fire Company has steadily evolved
into a modern, full -service emergency response
organization.
By the mid-1800s, fire protection in Dubuque grew
in both size and sophistication. In 1854 the original
Independent Fire Company was reorganized
as the Washington Fire Engine Company No.
1, and within a few years additional volunteer
companies, including Protection Fire Engine Co. No.
2, Mechanics Fire Engine Co. No. 3, and the Key City
Hook & Ladder Co. were formed. Recognizing the
importance of structure, the Dubuque City Council
adopted the first official rules and regulations for
fire service in 1858, placing the Chief Engineer in
command and establishing the framework for what
would become a permanent city department.
The late 1860s marked a turning point. Dubuque
acquired steam fire engines, requiring skilled
engineers and stokers who became some of the
department's first paid employees. The volunteer
system gradually gave way to a part -paid,
part -on -call model before transitioning fully to
a career department on January 1, 1884, when
31 professional firefighters were assigned to two
engine companies and a hook and ladder unit. As
Dubuque's population and footprint grew, so too
did its fire stations: Hose Company No. 4 opened on
7
N
Delhi Street in 1894, followed by Companies 5 and 6
on Grandview Avenue and Rhomberg Avenue in the
early 1900s. Truck Company No. 2 came online in
1953, housed at the new University Avenue station.
Staffing models also evolved. For decades, crews
worked in two shifts until 1966, when a third shift
was introduced, a system still in place today. New
stations were strategically built to keep pace with
westward city growth, including Station 2 on John F.
Kennedy Road in 1967.
Alongside fire suppression, the department
became a leader in emergency medical services
(EMS). Dubuque first considered a municipal
ambulance as early as 1910, and by 1914 placed a
city ambulance in service at no cost to residents.
After local funeral homes withdrew from providing
ambulance transport in 1969, the Fire Department
assumed full responsibility and rapidly expanded
training, eventually becoming one of Iowa's first
paramedic level services.
Since 1996, all new firefighters have been required
to hold paramedic certification, ensuring advanced
medical care on every response. In 2013, the
department introduced paramedic engine
companies with automated external defibrillators
(AEDs), advanced airway capabilities and some
introductory front-line medications, equipping
each front-line unit with life-saving technology and
trained personnel.
m
Page 960 of 1214
In 2024 the department enhanced its advanced life
support capabilities by including cardiac monitors
and the full complement of advanced airway
and pharmacology to begin lifesaving measures
on any EMS call prior to ambulance arrival. This
force multiplier ensures that every Dubuque
vehicle has the full complement of advanced life
support equipment to ensure immediate lifesaving
capabilities upon first unit arrival, regardless of
suppression vehicle or ambulance.
The Fire Department has consistently expanded its
specialized capabilities. In the 1990s, teams were
trained as Hazardous Materials Technicians, and
a countywide agreement formalized Dubuque's
role as the lead Dubuque County hazmat response
agency. Confined space and high -angle rescue
programs soon followed, supported by trench
rescue and rope systems. Given Dubuque's
location on the Mississippi River, water rescue
operations have long been essential. Today, the
department maintains three rescue boats, one
staged seasonally at the city marina for rapid
deployment on the Mississippi River.
From bucket brigades in the 1840s to a multi -
station, all -hazards department with paramedic
fire companies, the Dubuque Fire Department's
history reflects the city's resilience, innovation, and
commitment to protecting its people. That legacy
continues to guide the department's vision for the
future.
Services Provided to
the Community
EMERGENCY MEDICAL SERVICES AND AMBULANCE
TRANSPORT (ALS): Dubuque Fire Department
provides advanced life support care and transport
for medical emergencies, accidents, and sudden
illnesses. Paramedics respond rapidly, deliver
critical on -scene care, and ensure safe transport
to area hospitals from three front line ambulances
and one cross -staffed ambulance.
FIRE SUPPRESSION: Involves responding to and
extinguishing fires in homes, businesses, vehicles,
and natural settings. Crews use specialized
equipment and tactics to stop the spread of fire,
protect lives, and minimize property loss.
PUBLIC EDUCATION AND RISK REDUCTION:
The department offers community programs such
as fire safety presentations, CPR training, smoke
alarm installations, and outreach in schools. These
efforts aim to prevent emergencies before they
happen and empower residents to reduce risks.
FIRE INSPECTIONS AND CODE ENFORCEMENT:
Fire personnel conduct inspections of businesses,
schools, and public spaces to ensure compliance
with fire codes. This work identifies hazards,
enforces safety standards, and promotes safer
buildings for the community.
HAZARDOUS MATERIALS RESPONSE: Specially
trained teams respond to incidents involving
dangerous chemicals, gases, or other hazardous
substances. They work to contain spills, protect
the public and environment, and support regional
emergency management efforts.
TECHNICAL RESCUE (High/Low Angle, Trench,
Confined Space, Vehicle and Machinery, Water):
Dubuque Fire Department provides specialized
rescue services, including:
• High/Low Angle Rescue: Rope systems
for victims trapped on cliffs, slopes, or tall
structures.
• Trench Rescue: Stabilizing and rescuing
workers trapped in collapsed excavations.
• Confined Space Rescue: Accessing and
rescuing victims from tanks, tunnels, or
tight enclosures.
• Vehicle and Machinery Rescue: Extrication
of people trapped in crashes or equipment.
• Water Rescue: Surface water, swift water,
and ice rescue operations.
15
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COMM
PROFILE
• Population (city): 59,251
(American Community Survey
• Median Age: 38.3
• Households:25,800
• Average Commute:14.8 minutes
• Median Household Income: $64,985
• Poverty Rate:12.2%
• Homeownership:64.8%
• Median Home Value: $193,100
• Population Composition:
White 85.1%
Black 6.3%
Hispanic/Latino 3.7%
Asian 1.2%
• Land Area: 32.3 square miles
• Regional Non -farm Employment: 60,500
• Unemployment:3.6%
(June 2025)
City of Dubuque
Economic Profile
Top industries within Dubuque include Health
Care and Social Assistance, Manufacturing,
and Retail. Major employers include: John
Deere Dubuque Works, MercyOne Dubuque,
UnityPoint-Finley Hospital, Dubuque
Community Schools, Medical Associates,
Cottingham & Butler, Andersen Windows,
A.Y. McDonald, Hormel, and City of Dubuque.
Labor indicators:
Unemployment 3.6% (Jun 2025)
i
Population and Health Indicators
Dubuque's population is aging. Residents age 65+
increased from 16.5% in 2010 to 20.4% in 2023, with 21-22%
projected by 2030. This shift points to more EMS calls, fall
and injury risks, and greater need for prevention, home -
safety checks, and alternative response options. The
department is planning for simultaneous EMS incidents,
senior -focused public health and safety efforts, and
preparedness programs that support older adults.
Growth and Development Profile
Between 2010 and 2020, the city of Dubuque
experienced steady population growth, increasing
from 57,637 to 59,667, an overall gain of approximately
3.5%, or an average annual growth rate of 0.35%. If this
trajectory continues, Dubuque's population is projected
to reach approximately 62,807 by 2035, 65,061 by
2045, and 67,396 by 2055. These projections assume
consistent incremental growth but do not account
for major policy shifts or external changes that could
accelerate or decelerate the trend.
Regional forecasts from the Dubuque Metropolitan Area
Transportation Study (DMATS) anticipate the urbanized
region growing from about 89,300 in 2025 to roughly
96,100 by 2035,102,100 by 2045, and 108,000 by 2055.
11•
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HAZARD ANALYSIS
Dubuque's risk profile spans single and multi-
family residential (including vulnerable
populations), historic downtown and mixed -use
blocks, commercial/industrial corridors, healthcare
and education campuses, transportation (highway,
rail, river), and riverine/flood and ice hazards. These
drive priorities for prevention, inspection, training,
deployment, and capital investments.
SPECIAL CONSIDERATIONS: RESILIENCY & ACCESS
Continuity and Redundancy: Emphasis on
station/fleet resilience, backup power, and
interoperable communications for severe
weather, flooding, and long -duration incidents.
• Access Constraints: Bridges, rail crossings,
construction zones, seasonal river conditions,
and special events can impact travel times;
pre -plans, alternate routing, and deployment
adjustments (right size response) to mitigate
risk.
• Vulnerable/High-Life Hazard Sites: Senior
housing, healthcare/behavioral health, schools,
and high -occupancy venues require elevated
pre -planning, inspections, and coordinated risk
reduction efforts.
• Regional Interoperability: Mutual aid, marine
response coordination, and hospital surge
procedures expand surge capacity and
reliability during peak EMS demand and low-
frequency/high-consequence events.
MUTUAL AID CONTEXT (CAPACITY & DISTANCE)
Local First Ring (Volunteer/Combination
Partners): We rely on a strong network of
Dubuque County volunteer/combination
departments e.g., Asbury, Key West, Centralia-
Peosta, Epworth, Farley, Dyersville, Sherrill,
Bernard, Cascade, and cross -border partners
in East Dubuque (IL), Jo Daviess County (IL), and
Grant County (WI). These agencies are valued
teammates and routinely provide engines,
tenders, and personnel for initial surge, rural
water supply, brush incidents, and extended
operations. Volunteer availability and turnout
times can vary by time of day and incident
complexity can create limitations of support
resources, so pre -plans, certification/ training
levels, and common radio procedures are
critical to performance.
• Next Municipal (Career) Reinforcements:
Outside the city, the nearest fully career
municipal departments are generally 60-90+
minutes away under normal conditions (e.g.,
Iowa City, Cedar Rapids, Waterloo, Quad Cities
metro). This distance means immediate depth
must be built locally through our own effective
response force (ERF), reserves, callback
procedures, and county mutual -aid partners,
while career municipal aid is planned as
second -wave or sustained -operations support
rather than first -due reinforcement. Resiliency
of response will be evaluated regularly to
ensure service delivery and the ability to
maintain services during surge (high call
volume) periods and multiple, complex, high -
risk incidents.
Implications for Strategy: Our deployment
model, staffing targets, reserve apparatus
posture, and specialty team capabilities
(marine/river, technical rescue, HazMat,
Tactical EMS, Rescue Task Force) continue to
be designed to achieve early incident control
understanding the limitations of immediate
assistance.
HISTORIC FIRES AND LOSS EXPERIENCE
Past multi -alarm events in historic/mixed-use
structures highlight vertical/horizontal spread risks
and concealed spaces; incidents in multi -family
and special -needs housing emphasize life -safety
and evacuation needs; commercial/industrial and
riverfront fires validate pre -plans, foam capability,
and coordinated marine/shore operations.
Seasonal brush/riverbank fires reinforce
Wildland Urban Interface WUI) pre -plans
and multi -agency coordination.
Note: Comprehensive risk analysis, data tables, GIS layers,
occupancy tiers, and methodology are provided in the Fire
Department's Standard of Response Coverage (SOC), which
serves as the technical basis for this Strategic Plan.
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ANTICIPATED IMPACTS ON FIRE DEPARTMENT RESPONSE AND STAFFING (10-20 YEARS)
The demand for fire and emergency medical
services in Dubuque is projected to grow faster
than population increase alone. While the city's
population is expected to expand at roughly 0.35%
annually, historical data show that emergency call
volume, especially EMS, rises 1.2 to 1.5 times faster
due to aging demographics, greater density, and
the increasing complexity of service needs. Over
the next 20 years, this trend could translate into
a 15-20% increase in total calls for service even
under conservative assumptions, with a potential
doubling of call volume if recent high -growth
patterns continue. This outlook highlights the need
for deliberate, phased investments in staffing,
apparatus, and infrastructure.
As the city expands and call volume increases, the
department's capacity to self -sustain operations
without immediate support or aid becomes more
critical. This reality requires Dubuque to plan for
complex, resource -intensive incidents assuming
delayed or minimal outside help. By building
sufficient in-house staffing, strengthening training
for cross -functional response, and strategically
locating resources, the department can enhance
its resiliency and ensure uninterrupted service to
the community even under high -demand or large-
scale emergency conditions.
Growth is expected to concentrate in areas already
identified in the City's 2017 comprehensive plan
(Imagine Dubuque 2037): Southwest Arterial/
North Cascade Road area, east of Key West near
Granger Creek, along US20 near Swiss Valley Road,
the airport/industrial corridors, and continued
infill and mixed -use intensity downtown (Port of
Dubuque, Historic Millwork District, Central Avenue
corridor). Inside the city, previously documented
land capacity includes approximately 2,490 acres
of vacant/developable land overall, including
880 acres of residential land with potential for
6,800 additional dwellings, an indicator that a
significant share of regional growth can still be
accommodated within city limits through a mix of
infill and edge development.
Employment in the metro is projected to rise from
roughly 53,500 (2022) to 65,000 by 2055, keeping
the employment to population ratio near 0.6. For
the Fire Department, that implies steady daytime
population and traffic along the Southwest Arterial/
US61/151/US20 corridors, continued demand
in downtown/event areas, and the need to
maintain coverage of the identified growth zones
while preparing for denser mixed use buildings,
inspections, and special event operations.
H
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ENVIRONMENTAL SCAN
SWOT ANALYST
STRENGTHS
Professionalism, compassion, and technical expertise.
WEAKNESSES
Staffing deficiencies, aging facilities, and communicatior
OPPORTUNITIES
Partnerships, grant funding, evolution of EMS service delivery, and city growth planning.
THREATS
Seventeen priority threats are outlined below, each accompanied by corresponding goals.
THREAT Leadership and Succession Planning
Threat: Generational leadership transition as senior officers retire and newer officers take on
greater responsibilities.
Goal: Ensure company officers are prepared, equipped, and supported to succeed in
leadership roles.
THREAT Reliable Funding and Infrastructure
Threat: Maintaining service levels requires reliable funding for buildings, apparatus,
equipment, and training.
Goal: Secure sustainable funding to modernize, maintain, and replace critical resources.
THREA Processes and Operational Efficiency
Threat: Multi -step approval and decentralized support may create inefficiencies.
Goal: Streamline processes and improve collaboration with city departments. Ensure proper
support systems for divisions (Administrative, Budget, Human Resource, etc.)
THREAT Talent Acquisition and Retention
Threat: Recruiting/retaining paramedic -capable firefighters amid competition and job
demands.
Goal: Reduce barriers and build career pathways; sustain a skilled, committed workforce.
Continue to build training division/ EMS division instructor cadre/ team. 19
Page 965 of 1214
THREAT Technology Changes and Implementation
Threat: Systems implemented with limited fire service input; uneven adoption; accountability
expectations with employees in process improvement and efficiency.
Goal: Ensure tech/software changes support department operations through inclusive
planning and tailored training. Maintain balanced subject matter expert (SME) development
and project implementation across all ranks and experience.
THREAT Legal and Litigious Environment
Threat: Increased litigation risk and public expectations for accountability.
0
Goal: Protect the City, department, and members via policy, training, and legal awareness.
THREAT Preparedness for Complex and Catastrophic Events
�J Threat: High expectations for readiness across CBRNE (chemical, biological, radiological,
nuclear, and explosive), cyber, weather, and large public events.
Goal: Enhance preparedness through training, planning, and partnerships.
THREAT Response Resiliency and County Reliance
Threat: Surrounding communities rely on volunteer departments; rising call volume strains
93 regional capacity, reliability, and consistency. Continually increasing call volumes impact
unit availability and department resilience. Limitations on large scale incident support.
Goal: Strengthen regional capacity via partnerships, training, and appropriately trained and
equipped mutual aid resources. Confirm appropriate risk/response through Standard of
Cover/ Community Risk Reduction, match response to appropriately categorized risk and
alarm elevation planning beyond the local response.
THREAT Changing Demographics, Community Expectations, and Service Delivery
Threat: Growth requires strategic/balanced deployment; current suppression staffing below
best practice; station locations and growth.
Goal: Align staffing/deployment (fire and EMS) with industry best practices, budget, and
community expectations.
THREAT Compliance and External Mandates
�O Threat: Rising OSHA/NFPA/IDPH/Federal, State, and Local requirements demand resources.
Goal: Maintain compliance while balancing operations.
THREAT Firefighter Health, Wellness, and Safety
UU Threat: Physical/mental demands, risk of injury and burnout, and cancer exposure. Support
for prevention measures and funding in reducing overall impact and improving job
satisfaction/connection.
Goal: Enhance health and safety through comprehensive programs and prevention efforts.
Page 966 of 1214
THREM Lithium -Ion Battery/EV Hybrid Vehicle Fires and Emerging Hazards
Threat: Li-ion/EV hybrid vehicle hazards are severe and evolving; tools/knowledge limited.
Goal: Build capability and public awareness. Establish response policies and protocols.
THREAT Changing Political Environments, Community Understanding, Clarity of Services and
U �3 Capabilities, Challenges and Expectations
Threat: Shifting priorities affect funding/policy/public safety visibility at federal, state, and
local levels.
Goal: Maintain focus on public safety with clear communication/education
THREAT Aging City Infrastructure and Community Risk/Code Compliance
Threat: Older/deteriorating buildings increase hazards and risk; gaps in business tracking
f� at the city and department level; fire inspection, and plan review process improvement
opportunities.
Goal: Strengthen inspection, code enforcement, pre -planning, and speed of AHJ review.
THREAT Community Risk Reduction (CRR) and Evolution of Service Delivery
Threat: Expectations for proactive risk reduction (Alternate EMS response, senior safety,
�J mental health support) can outpace resources/ response requirements. Ability to absorb
increased EMS support for low acuity calls and community support.
Goal: Expand CRR (community risk reduction) and evolve services; prepare for changes in
resources or shifts in current EMS response.
THREAT Public Education and Community Engagement
Threat: Limited outreach capacity; risks associated with gaps in awareness/resources.
Goal: Expand education and engagement to be targeted and measured.
THREAT Internal Communication and Organizational Cohesion
Threat: Communication gaps, accountability, and administrative workload cohesion.
Goal: Strengthen internal communication and streamline admin processes/support, align
projects and budget requests with strategic plan, balance workload across all positions,
morning video briefings, monthly staff meetings, and division meetings.
1 age 967 of 1214
DUBUQUE FIRE DEPARTMENT
ASSUMPTIONS STATEMENT
WORKFORCE AND PIPELINE
Recruitment challenges will continue, particularly for
paramedic -level candidates. Training new hires to
paramedic after appointment will remain essential;
local pipelines (job shadowing, explorer/ cadet,
internships) are needed.
WORKFORCE TRANSITION AND LEADERSHIP
Nearly one-third of personnel have been hired in the
past three years. A younger organization requires
aggressive officer development, leadership training,
and mentorship to offset loss of experience.
DEMAND, RISK, AND MISSION
Call volume will grow and become more complex.
EMS remains the majority of calls with more
overlaps; risks include hazmat, active assailant
incidents, severe weather, and special events.
Regional resilience requires DFD independence
given the distance to other career departments.
Continued exploration into technology solutions as
alternate response models.
EMS AND COMMUNITY CARE
Expect increases in lower -acuity and citizen -assist
calls; right -size responses to preserve ALS capacity.
Expand prevention (senior home inspections,
community advocate programs) and prepare for
more discharges/transfers from two local hospitals.
TRAINING, STANDARDS, AND PREPAREDNESS
Training demand will increase across Active
Shooter Hostile Environment Response (NFPA 3000),
ISO, hazmat, technical rescue, weather, and EMS
standards will continue to be challenging amongst
increasing mandatory training requirements
of the city/ state/ federal level. Accreditation
and continuous improvement remain central.
Technology and reporting systems will remain
challenging, members will continue to struggle with
adapting to changes.
TECHNOLOGY, DATA, AND FACILITIES
Data/analytics will be critical for deployment
modeling and accountability. Facilities and fleet
will require sustained investment matched to risk
and demand. Struggles will continue in maintaining
the appropriate level of training to maintain and
test specialty fire response fleet, expectations
of software and shortcomings in performance/
deliverables, speed of technology changes.
COMMUNITY GROWTH AND DEVELOPMENT
Growth and aging infrastructure will increase
service demand. Expand inspections, pre -plans,
and risk mitigation; collaborate with developers to
support growth without compromising safety.
WORKFORCE AND PIPELINE
Recruitment challenges will continue, particularly for
paramedic -level candidates. Training new hires to
paramedic after appointment will remain essential;
local pipelines (job shadowing, explorer/ cadet,
internships) are needed.
LARGE FLEET INVESTMENT PROTECTION
Sustained fleet stabilization and maintenance will
be critical in maintaining longevity, reliability, and
performance of large fleet. Mechanics should be
certified to the appropriate emergency vehicle
technician levels and participate in the vehicle
specification and acquisition process. Mechanics
should participate in the in-service training,
preventative maintenance program training and
engagement with vehicle operators on a regular
basis. Daily vehicle checks and regular preventative
maintenance should be completed. Annual
driver operator training should be completed and
documented.
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Page 968 of 1214
SUMMARY
STATEMEN
The Dubuque Fire Department's Strategic Plan 2025-2030 is grounded in a
comprehensive review of both internal and external expectations, an analysis of
identified threats, and an informed set of assumptions about the future of fire and
emergency medical services response.
Stakeholder Feedback
Internal and external engagement served as the
foundation for this process. Internal stakeholders
emphasized the need to improve communication,
accountability, staffing, recruitment, leadership
development, facilities, and morale. External
stakeholders reinforced these themes, while also
prioritizing response times, coverage expansion,
prevention and public education, and visible
professionalism. Together, these inputs provided a
clear picture of shared priorities between employees
and the community.
Evaluation of Threats
Seventeen threats were identified and analyzed
across workforce, infrastructure, service delivery,
compliance, health and wellness, emerging hazards,
and community risk reduction. These threats
were paired with goals and outcome measures
aligned with national standards such as NFPA, CPSE
accreditation guidance, and best practices from the
fire service. The threat analysis clarified both current
vulnerabilities —such as staffing shortages, aging
infrastructure, and regional reliance on volunteer
partners —and future challenges, including lithium -
ion battery hazards, special event demands, and
catastrophic preparedness.
Assessment of Assumptions
The department's assumptions reflect trends in
recruitment, service demand, and community
change. These include continued challenges in
hiring and retaining paramedic -level candidates, a
younger workforce requiring accelerated leadership
development, growing EMS call volume and
hospital transfer needs, and increased complexity
from hazardous materials, severe weather, and
active assailant risks. Assumptions also highlight
Dubuque's aging infrastructure, future development
pressures, and the city's unique role as the only
career department in the region. These assumptions
provide realistic guideposts for planning and
resource allocation.
From Issues to Priorities
By integrating stakeholder priorities, threat
evaluation, and planning assumptions, the
department established five Strategic Initiatives.
23
Page 969 of 1214
Each initiative is supported by specific,
measurable objectives that form the roadmap
for the next 3-5 years. These initiatives allow the
department to:
• Focus resources on the most pressing needs,
• Align daily operations with long-term
resilience, and
• Measure progress in a transparent and
accountable manner.
A Roadmap for Alignment
The strategic initiatives and objectives serve as
the department's roadmap. They direct effort
toward strengthening workforce and leadership,
modernizing facilities and technology, enhancing
service delivery and risk reduction, expanding
prevention and education, and reinforcing
communication and collaboration. This focus
ensures that investments are efficient, priorities
are aligned, and the department is prepared to
serve a growing and evolving community.
STRATEGIC INITIATIVES
AND OBJECTIVES
INITSTRTEGIIE Strengthen Workforce, Leadership, and Resiliency
Objective 1.1 - Build robust pipelines for firefighter -paramedics and future leaders
1.1.1 Evaluate options for an in house EMT Certification Academy (hire at EMT, sponsor to
Paramedic within 18-24 months; tuition/clinical support).
[Lead: EMS / Training * Support: HR, Finance]
1.1.2 Stand up an Explorer/Cadet program with monthly skills nights, summer camp, and
scholarship pathways. [Lead: Recruitment/ Prevention/Training * Support: PIO/Comms, HR]
1.1.3 Evaluate alternate EMS response resource to right -size basic life support and citizen
assist incidents, leverage technology options and partnerships.
[Lead: EMS / Training * Support: Hospitals/ Educational Institutions]
24
Page 970 of 1214
Objective 1.2 - Accelerate officer development, mentorship, and credentialing
1.2.1 Adopt a tiered Officer Development Curriculum (acting officer ® company officer ® chief
officer), mapped to State Fire Training/industry best practice.
[Lead: Training * Support: Command Staff]
1.2.2 Issue task books for acting roles with sign -off standards and simulation requirements;
maintain two -week officer orientation assignment
[Lead: Training * Support: Ops Battalion Chiefs]
1.2.3 Track And support credentialing (FO, CFO, CEMSO, CTO) with annual completion targets.
[Lead: Admin * Support: Training]
1.2.4 Conduct annual officer development for all lieutenants/captains.
[Lead: Training * Support: Ops]
Objective 1.3 - Retain talent through wellness, safety, and career growth
1.3.1 Target >90% five-year retention for new hires; track reasons for separation and corrective
actions. [Lead: Admin * Support: ]
1.3.2 Expand Peer Support and Peer Fitness Team, (24/7 line/ ap use, external clinicians;
supervisor training in recognition/referral).
[Lead: Peer Support/ Peer Fitness / Health and Safety]
1.3.3 Strengthen cancer reduction (Exposure tracking, fire gear replacement, on -scene decon
kits/ policy development, annual physicals).
[Lead: Safety/Training * Support: Labor/ city safety]
1.3.4 Add duty -injury case management and return -to -work pathways and support
meaningful alternate duty assignments, flexible but compliant schedule, work life balance.
Add accountability piece in department near miss program/ after action reviews of
accidents and injuries at employee and committee level.
[Lead: Operations / Admin]
Objective 1.4 - Build a resilient, engaged culture that develops people
1.4.1 Conduct/ coordinate annual leadership workshops/ training for all personnel/ soft
skills, (identified and established at the fire department level) for impact and alignment
(communication, professionalism, resilience, emotional intelligence, conflict skills,
psychological safety). [Lead: Training * Support: HR]
1.4.2 Publish a clear promotion calendar/ timeline, process/ policy and study resources hub
(digital library). [Lead: Training/ Admin/ Labor * Support: City Clerk/ HR]
1.4.3 Align acting up assignments with promotional lists and "next up" concepts. Maintain
next up communications for preparation. [Lead: Training/ Admin/ Labor]
1.4.4 Recognize excellence with annual awards tied to values (Professionalism, Responsibility,
Integrity, Duty, Empathy) Create/ refine awards policy and recognition bar definition. Add
Class A coat to uniform requirements for employees
[Lead: Admin * Support: EMS]
25
Page 971 of 1214
IN ATE VIE Modernize Facilities, Fleet, & Technology for All -Hazards Readiness
Objective 2.1 - Execute a disciplined 20-year capital and lifecycle plan
2.1.1 Adopt/ maintain a 20-year capital replacement schedule (stations, apparatus, specialty
equipment) with funding windows. [Lead: Admin * Support: Finance]
2.1.2 Establish a funding mechanism for bringing current facilities to maintenance level
conditions. [Lead: Admin * Support: IT]
2.1.3 Identify a designated project manager for Fire to coordinate building modifications,
renovations, and updates to include alignment with other city buildings and facilities.
[Lead: Admin * Support: Engineering/ CMO] Position review for future FTE or partial FTE (25-
30% workload)
2.1.4 Establish a software and technology review process which prevents blind application
of software and technology and includes IT as the confirmation mechanism to ensure
alignment with policy and other department software and technology.
[Lead: Admin * Support: IT]
Objective 2.2 - Protect investments with aggressive fleet maintenance and driver
programs
2.2.1 Expand EVT certifications and prepare the shop for changes in specialty fire and EMS
vehicles/ testing and requirements. [Lead: Admin/ Operations * Support: Training]
2.2.2 Implement/ maintain a preventive maintenance program (daily/weekly/monthly/
annual checklists in e-platform; compliance dashboard). [Lead: Ops * Support: Fleet]
2.2.3 Standardize driver/operator annual training and accident review board (aligns with 5.2.1
to reduce city, department, member liability). [Lead: Training * Support: Safety]
Objective 2.3 — Modify/ build stations that are safe, efficient, and responder -centric
2.3.1 Integrate hot/warm/cold decontamination zones, gender -inclusive facilities, and turnout
gear ventilation. [Lead: Admin * Support: Safety]
2.3.2 Complete bunk room modifications for each fire station. [Lead: Admin * Support: Safety]
2.3.3 Install station alerting, zoned lighting, and noise mitigation in individual bunk areas to
reduce fatigue. [Lead: Admin/ IT]
2.3.4 Conduct annual facility life -safety inspections and track corrective actions.
[Lead: Safety * Support: Admin]
2.3.5 Select a specialized fire -station rep/design/construction expert in FY2027 to complete
feasibility study; target construction starts in FY2029.
[Lead: Admin * Support: City Engineering, Finance, Planning]
OR
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Objective 2.4 - Align technology to operations and data governance
2.4.1 Require fire department SME input for every tech acquisition (charter, use -cases, training,
post -go -live survey with >90% confidence target). [Lead: IT / Admin * Support: Ops, EMS]
2.4.2 Standardize MDTs to improve connection and AVL reliability and create uptime service -
level/ support agreements to ensure responsiveness. [Lead: IT * Support: EMS, Ops]
2.4.3 Implement new CAD system with system improvements, cross -department
collaboration, and department support in implementation and go live period support.
[Lead: IT * Support: EMS, Ops]
2.4.4 Identify an in-house fire department technology FTE to ensure technical support for
100 plus employees in an advanced technology resourced environment which includes the
highest priorities in vulnerability and continuity of operations. [Lead: Admin/ IT * Support: Ops]
2.4.5 Confirm appropriate training RMS system and implement for needs and end user use,
alignment with state training records. [Lead: Admin/ IT * Support: Ops]
2.4.6 Review and implement advanced scheduling modules to improve automated
timekeeping processes, appropriate overtime tracking and budget impact reporting and
ease of end user use. [Lead: Admin/ IT * Support: Ops]
2.4.7 Launch live in station DFD dashboards for awareness (turnout/travel time, unit hours,
inspection backlog). [Lead: Admin/ Ops * Support: IT/ Communications/ GIS]
Objective 2.5 - Equip for emerging hazards (Li -ion, river, ARFF interface)
2.5.1 Identify, budget, and procure Li -ion and Electric Vehicle response and mitigation tools
(immersion containers/blankets, monitoring meters) and write response SOGs to guide
personnel and response. [Lead: Ops / HazMat * Support: Training]
2.5.2 Sustain water rescue posture (seasonal boat placement, boat house, swift water/ice
kits, USCG/Iowa DNR exercises). [Lead: Ops * Support: Training]
2.5.3 Maintain ARFF coordination/ inventory/ response with DBQ airport (foam transition, joint
drills). [Lead: Ops * Support: Airport]
STRATEGIC Enhance Service Delivery, Response, Staffing, EMS Capacity,
INITIATIVE Community Education and Community Risk Reduction
Objective 3.1 - Right -size deployment and improve response using Standard of Cover
(SOC) data, improvement plans, and industry best practice
3.1.1 Complete/ update the SOC/deployment study and phase staffing toward benchmarks,
simplified response plans and effective response force definitions.
[Lead: Administration * Support: Ops]
3.1.2 Implement peak -load adjustments, elevation of alarm protocols and processes,
centralization/ move up process/ policy (response, staffing and training expectations).
[Lead: Admin/ Ops/ EMS Support: Dispatch]
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3.1.3 Publish annual progress/ quarterly reporting through forward facing city data portal.
[Lead: Admin * Support: Communications/ IT/ GIS]
3.1.4 Attain a 60 second turn out time performance 90% of the time. [Lead: Admin and Ops
Support: EMS and Training]
Objective 3.2 - Preserve AILS capacity with alternate responses
3.2.1 Stand up a Low -Acuity Response Unit (basic unit, training resource, telehealth/nurse
navigation, advocate) for basic life support or assist calls. [Lead: EMS * Support: Dispatch]
3.2.2 Add/ Maintain Paramedic Assessment capability on all engines/trucks (monitors, meds,
certifications). [Lead: EMS * Support: Ops]
Objective 3.3 - Address behavioral health and high -utilizer demand
3.3.1 Train Crisis Intervention Team/ de-escalation skills for field crews; develop co -responder
options where feasible. [Lead: EMS * Support: PD, MH partners]
3.3.2 Explore warm handoff systems, alternate care protocols/ systems, and referral scripts .
[Lead: EMS * Support: Admin]
3.3.3 Manage a Top-10% High -Utilizer list with case management; target 10% reduction in
repeat EMS calls over 5 years. [Lead: EMS / Admin * Support: Hospitals, Social Services]
Objective 3.4 - Strengthen Community Risk Reduction (CRR) and pre -incident
intelligence
3.4.1 Identify all occupancies (business license process) within the city for risk tracking, risk
reduction identification and support, appropriate response plan assignment, and community
risk reduction. [Lead: Prevention * Support: Community Development/ Code Enforcement/
Planning]
3.4.2 Build/ identify a risk -grading system aligned with response, budget, procure, and adopt
[Lead: Prevention/ Admin * Support: Ops]
3.4.3 Reach 90% current preplans in 5 years, prioritizing aging/historic stock and target
hazards. [Lead: Prevention * Support: Ops]
3.4.4 Launch Senior Safety/Fall-Prevention home visits and track fall -related EMS reductions.
[Lead: CRR/ EMS * Support: Community Partners]
3.4.5 Update river/bridge disruption SOGs (alternate routes, MCI boats, USCG coordination).
[Lead: Ops * Support: Dispatch, Police/ DEMA]
Objective 3.5 - Enhance specialty team support and capabilities, mass -casualty
incident (MCI) preparedness, and ASHER readiness
3.5.1 Conduct/ participate annual MCl/ASHER exercises with hospitals and law enforcement.
[Lead: Training * Support: EMS, PD]
3.5.2 Maintain a Tactical EMS Team in coordination with Dubuque PD. Include minimum
training, staffing, and policies. [Lead: EMS * Support: Ops Training]
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3.5.3 Develop and maintain a Hazardous Materials Specialty Team program to include
minimum training, staffing, and policies. [Lead: Ops * Support: Training]
3.5.4 Develop and maintain a Technical Rescue Specialty Team program to include minimum
training, staffing, and policies. [Lead: Ops * Support: Training]
3.5.5 Maintain operational surge plans (inbound regional and statewide resource plans) and
caches (radios, MCI trailer, PPE, etc.) [Lead: Ops, EMS * Support: Training]
STRATEGIC Expand Prevention, Public Education, and Community Engagement
INITIATIVE
Objective 4.1 - Increase capacity for code compliance and plan review
4.1.1 Add a Plan Review/Code Compliance position and publish turnaround targets to improve
processing time. [Lead: Prevention * Support: Housing/ Planning/ Community Development]
4.1.2 Review/ update developer pre -submittal process (fire code, access, water supply early).
[Lead: Community Development/ Prevention * Support: Planning/Zoning]
Objective 4.2 - Scale company -level inspections and hazard abatement
4.2.1 Assign and track risk -based inspection quotas to companies and track correction rates.
[Lead: Prevention * Support: Ops]
4.2.2 Modify inspections to identify high acuity violations for efficiency and impact.
[Lead: Prevention * Support: Ops]
4.2.3 Focus the prevention division efforts on target hazards (aging infrastructure, assembly,
and high -risk occupancies). [Lead: Prevention]
Objective 4.3 - Deliver a measured, annual public -education calendar
4.3.1 Publish an education calendar (schools, seniors, neighborhoods) and target a 10%
increase in events year over year. [Lead: CRR * Support: P101
4.3.2 Run hazard -specific campaigns (lithium -ion charging, fire safety, severe weather/river
safety, ASHER awareness) targeted for event attendees or location. [Lead: CRR * Support:
Communications]
4.3.3 Identify a dedicated community education program with a community education
specialist FTE to deliver consistent, targeted education.
[Lead: CRR, admin * Support: City departments]
Objective 4.4 - Deepen community partnerships and trust
4.4.1 Create a Community Advisory Group, Fire department advisory group for feedback on
services and response times. [Lead: Admin]
4.4.2 Expand smoke alarm installs support for at -risk residents, track outcomes.
[Lead: CRR * Support: Red Cross/United Way]
4.4.3 Provide multilingual materials and targeted outreach to underserved neighborhoods
(After the fire, prevention materials). [Lead: CRR * Support: Human Rights Department]
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STRATEGIC Strengthen Communication, Accountability,and Regional
INITIATIVE �
Collaboration (Reduce liability and risk to the City, the Department,
and Responders)
Objective 5.1 - Improve internal communication and participative leadership
5.1.1 Implement an Internal Communication Plan (daily video briefs, monthly division updates,
communications policy and expectations). [Lead: Admin * Support: Ops]
5.1.2 Maintain an up-to-date digital reference library (SOP library, training RMS, dept. policy,
accreditation reference library, fundamental department documents) with version control
and audit mechanisms for compliance. [Lead: Admin * Support: Training]
5.1.3 Maintain regular weekly strategy meetings for situational awareness; monthly staff
meetings to include agendas and published notes. [Lead: Admin * Support: Ops]
Objective 5.2 - Institutionalize performance management (metrics that matter)
5.2.1 Continue evaluations for members focused on employee goals, performance, and
feedback opportunities. Update format (electronic) [Lead: Admin and Ops * Support: HR]
5.2.2 Publish an Annual Report (lives saved, property protected, EMS impact, prevention
outcomes, division summary, vehicle and shift performance).
[Lead: Admin/ Support: Ops. Training, EMS, Prevention]
Objective 5.3 - Reduce liability through policy, training, and risk controls
5.3.1 Provide annual EVOC/driver training and implement an advanced collision investigation/
review process. [Lead: Training * Support: Safety]
5.3.2 Maintain a policy review cycle (OSHA/NFPA/IDPH/legal updates; attorney review of high -
risk SOPs). [Lead: Admin * Support: Legal, Safety]
5.3.3 Validate specialty team competencies annually (HazMat, Technical Rescue, Water).
[Lead: Training * Support: Team Leads] Specialty team training also referenced in 3.5.3-3.5.4
5.3.4 Conduct/ document annual EMS legal training to bring situational awareness to the
changes in legal protections to EMS providers. [Lead: EMS * Support: Training]
Objective 5.4 - Streamline city processes and strengthen regional resilience
5.4.1 Update mutual-aid/auto-aid agreements; codify box cards and reduce mutual -aid
response times by 10%. [Lead: Ops * Support: County Fire/EMS]
5.4.2 Conduct/ participate annual county exercises (river MCI, hazmat terminal, airport).
[Lead: Ops / Training * Support: EMA, Hospitals] (regional/ county training also identified in
3.5.1)
5.4.3 Plan for independent initial response (closest career backup over one hour away); set
ERF thresholds and escalation triggers. [Lead: Ops * Support: Admin] Also aligned with 3.5.5
Maintain operational surge plans and caches.
5.4.4 Continue to work department processes which decrease turnaround times and multiple
touch points/ decision trees/ delays in response/ depth of ownership to improve response
and limit delays but maintain proper oversight and accountability.
[Lead: Admin * Support: City management]
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Special Consideration
Maintain an understanding and alignment of billing and revenue. (GEMT, Cost Recovery, and
other revenue streams (alarm monitoring, EMS fees for service modifications and ordinances
with quarterly reporting). [Lead: Admin EMS * Support: Finance]
Research and verify/validate the Dubuque Fire Departments historical date to align with
the departments first known date of fire protection and not the formation of a full-time fire
department. [Lead: Admin * Support: Communications/ Library/ Retiree group]
Review the opportunity/need to create a technology master plan for changes in technology
and organizational impact. [Lead: Admin * Support: Communications/ Information
Technology]
REFERENCES
County Health Rankings (CHR&R) - Dubuque
County snapshot extracts.
MercyOne CHNA/Implementation (2024-27).
City of Dubuque. "Demographics" (2020
population and city area).
DMATS. LRTP 2055 Socioeconomic Projections
(population & employment series, 2025-2055).
City of Dubuque. Imagine Dubuque 2037:
Comprehensive Plan - Land Use (growth nodes;
city share, vacant/developable land).
University of Iowa IISC (for the City of Dubuque).
Dubuque Affordable Housing Action Plan (2024)
(residential capacity, potential dwelling units).
Center for Public Safety Excellence (CPSE).
(2023). Community -Driven Strategic Planning.
CPSE. Retrieved from https://www.cpse.org/
accreditation/community-driven-strategic-
planning/
Commission on Fire Accreditation International
(CFAI). (2022). Accreditation Model - 10th Edition.
CPSE. Retrieved from https://www.cpse.org/
accreditation/accreditation
National Fire Protection Association (NFPA).
(2022). NFPA 7710: Standard for the Organization
and Deployment of Fire Suppression Operations,
Emergency Medical Operations, and Special
Operations to the Public by Career Fire
Departments. NFPA.
Carr, B. G., et al. (2020). Temporal trends and
future predictions of regional EMS system
utilization using statistical modeling. Prehospital
and Disaster Medicine, 35(2), 133-140. doi:10.10171
S1049023X20000017
Raleigh Fire Department. (2022). Master Plan
- City of Raleigh Fire Department. Retrieved
from https://cityofroleigh0drupol.blob.core.
usgovcloudapi.net/drupal-prod/COR18/RFD-
Master-Plan-Full-Report.pdf
Salinas Fire Department. (2021). Long -Range
Master Plan / Community Risk Assessment.
Retrieved from https://www.solinas.gov/files/
sharedassets/city/v/1/fire/documents/salinas-
fd-master-plan-cra-study-final-report.pdf
Tacoma Fire Department. (2024). Fire Facilities
Master Plan. Retrieved from https://cros.
tocoma.go vl firel2025%20 web %20redesignI
re ports/2024%20tacom a%20fm p%20 final %20
report.pdf
National Volunteer Fire Council (NVFC). (2022).
Volunteer Fire Service Fact Sheet. Retrieved
from https://www.nvfc.org/wp-content/
uploodsl2022112INVFC-Volunteer-Fire-Service-
Fact-Sheet.pdf
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