Submission of Fire Department Strategic Plan Copyright 2014
City of Dubuque Action Items # 4.
ITEM TITLE: Submission of Fire Department Strategic Plan
SUMMARY: City Manager recommending approval of a strategic plan
for the Fire Department.
SUGGESTED DISPOSITION: Suggested Disposition: Receive and File; Approve
ATTACHMENTS:
Description Type
Fire Department Strategic Plan-MVM Memo City Manager Memo
Staff Memo Staff Memo
Strategic Plan Supporting Documentation
THE CITY OF Dubuque
UBE I
erica .i
Masterpiece on the Mississippi 2007-2012-2013
TO: The Honorable Mayor and City Council Members
FROM: Michael C. Van Milligen, City Manager
SUBJECT: Submission of Fire Department Strategic Plan
DATE: July 11, 2016
Fire Chief Rick Steines recommends City Council approval of a strategic plan for the
Fire Department. This plan was developed as part of the overall effort of continuous
improvement for the Fire Department, and specifically, as part of efforts to achieve
accreditation from the Center for Public Safety Excellence.
I concur with the recommendation and respectfully request Mayor and City Council
approval.
Micliael C. Van Milligen
MCVM:jh
Attachment
cc: Barry Lindahl, City Attorney
Cindy Steinhauser, Assistant City Manager
Teri Goodmann, Assistant City Manager
Rick Steines, Fire Chief
THE CITY OF Dubuque
AII11-America CiI.ty
UB E1
Masterpiece on the Mississippi 2007.2012.2013
TO: City Manager Michael C. Van Milligen
FROM: Fire Chief Rick Steines
DATE: May 25, 2016
RE: Submission of Fire Department Strategic Plan
INTRODUCTION
I am submitting a strategic plan for the fire department. This plan was developed
as part of the overall effort of continuous improvement for the fire department, and
specifically, as part of efforts to achieve accreditation from the Center for Public Safety
Excellence.
DISCUSSION
The strategic plan for the fire department was derived from the work of all
members with input from the community. A community stakeholder survey was
completed on seven different occasions involving neighborhood or service
organizations. Multiple meetings with employees were held to allow SWOT analysis,
and mission, vision, and values input. Department command staff used all this
information to create strategic initiatives (tied to the Dubuque Comprehensive Plan),
and a set of goals and objectives (stated in the strategic plan appendix).
While I realize this effort is not perfect, and will require continued work to
improve, I believe establishing this plan as a baseline is the best way to help us move
forward. By submitting a three-year plan I know we can use it as a "living document" to
guide our decisions, while also challenging the department to start work on a better
version in the future. My intent is to use this document along with budget performance
information to create improvements in the fire department that are meaningful to internal
and external stakeholders.
ACTION REQUESTED
The accreditation process requires that the fire department have a published
strategic plan that is approved by the fire department and submitted to the governing
body and/or administrative officer. I respectfully request that the plan submitted be
recognized by you, and presented at the next meeting of the City Council.
Table of Contents
Executive Summary......................................................3
Organizational Background............................................5
Department History........................................................6
Community Services Provided........................................8
Community Service Priorities.........................................12
Community Expectations...............................................13
Community Concerns...................................................14
Department Aspects the Community Views Positively......16
Department Mission Statement.......................................17
Department Values.......................................................17
Department Three-year Strategic Initiatives.....................18
Department Vision Statement.........................................19
Appendix 1 — Short-term Goals and Objectives.................20
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Executive Summary
In order for any organization to improve in the future there must be a clear path
outlined. A plan that helps direct future decisions and actions is seen as essential to
progress. Strategic planning as the name implies, develops that guidance while think-
ing about the long-term implications and needs of the community served.
Strategic planning provides a process for our organization to set goals for the fu-
ture and establish plans for decision-making that help us get to those goals. For the
process to be successful several steps must be taken. An assessment of the present
state of the organization must be completed. This assessment should be done using a
citizen input component that helps identity critical issues and gaps in the current deliv-
ery of service. Once these gaps are realized the process turns to devising plans that
close those gaps over time. The intent is to create better outcomes for those served. In
order to do that the expectations and concerns of the citizen/customer must be sought
at all levels.
The Dubuque Fire Department reached out to neighborhood and service organi-
zations for external feedback. A questionnaire format was used. Seven core services
were presented in the presentation and questionnaire: Emergency Medical Service
(EMS), Fire Investigation, Fire Prevention and Inspection, Fire Suppression, Hazardous
Materials Response, Public Education, and Technical Rescue. The results showed ex-
ternal customers overwhelmingly expect a quick response and well trained/capable re-
sponders. EMS was the most
important service listed by
most respondents, followed
closely by fire suppression.
The least important category 1 f
listed was public education.
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Many respondents were not
sureiftheirneedsinregards
—�
to public education were being ® E
met. Overall, those providing
feedback viewed the fire de- _
partment positively.
A Strengths, Weaknesses, Opportunities, Threats (SWOT) analysis was also
completed among the membership of the fire department. From this exercise goals and
objectives were created that are linked to the strategic initiatives of: Improving Service
Levels to Customers, Supporting a Quality Workforce, Managing and Responding to
Major Incidents, and Planning for City Growth. These goals are:
3
Standardized Training Program
Shift Consistency in Operations
Improved Employee Capabilities
Increasing Diversity in the Workforce
Increasing Focus on Community Risk Reduction
Review and Develop Response Plans
Support the Importance of EMS
Address Geographic and Population Growth of the City
The effort to create a strategic plan is of little value if the plan itself does not be-
come an operationally useful document. Daily use of strategic plan guidelines maintain
the path to stated goals. Direction and focus on established goals becomes a "way of
doing business". The importance of the strategic plan must become a natural part of the
organization's processes. Because the plan was developed using input from both exter-
nal and internal stakeholders, there will be a sense of buy-in that the plan shows a path
supported by the community.
i
Finally, the strategic plan offers a source of measurement of the performance achieved
toward the identified goals. Little doubt is present about the progress being made when
a strategic plan has been adopted. These performance measures will follow the path
suggested by the strategic plan and adjustments can be made along the way. Accom-
plishment of the goals within the strategic plan help focus efforts, create innovation and
produce "best practices". The organization must commit to the strategic plan, and in
turn, accept the community input that helps create the plan. This effort is never-ending,
meaning that the process is continuous and early successes will be the building block
for more success.
4
Organizational Background
The Dubuque Fire Department protects the oldest city in Iowa. The fire depart-
ment provides a full range of services including transport paramedic EMS. Our depart-
ment is comprised of 89 uniformed career firefighters. Personnel operate from six fire
stations distributed throughout the city, but clustered primarily on the Eastern half.
Dubuque Fire Department Organization Chart
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5
A Short History of the Dubuque Fire Department
The City of Dubuque organized a formal fire protection system for the community
in 1842, known as the Institution of the Independent (Volunteer) Fire Company, with
twenty-five members. In 1854, there was a reorganization of the Independent Fire Com-
pany along with an identity change known now as the Washington Fire Engine Co. No.
1 . Subsequently, three additional fire companies were established in the years following
- Protection Fire Engine Co. No. 2, Mechanics Fire Engine Co. No. 3 and the Key City
Hook & Ladder Co. No. 1 . The City Council adopted the first set of Rules and Regula-
tions governing the organization and operation of the fire department in 1858. This
placed the Chief Engineer in charge of the department with authority to manage and
create policy.
The department purchased modernized steam fire engines beginning in 1867. At
this time, the fire department had two paid men, both serving as engineers of the steam
fire engines. After the second steam engine was placed in service in 1868, Dubuque
once again reorganized the fire department. The department consisted of two catego-
ries of members- a combination part-paid (full time Engineers and Stokers) and on-call
(Minutemen). The Independent & Volunteer Fire Companies were officially disbanded
leaving the City of Dubuque Fire Department, which now consisted of two steam fire en-
gine companies and a hook & ladder.
On January 1 , 1884, the Dubuque Fire Department officially transitioned to a ca-
reer organization with 31 men. They were separated into two engine companies and a
hook & ladder company. A steam engine and hose cart were located in the new engine
house at 18th & Clay (Central Avenue) Street; the second steam engine and hose cart
were located at Fourth and Locust Street. The hook & ladder truck was housed on Iowa
Street between 8th and 9th Streets.
Hose Company No. 4 was placed in service on Delhi Street in 1894. In 1903
Hose Company No. 5 was established on Grandview Avenue. Lastly in 1905, Hose
Company No. 6 entered into service on Rhomberg Avenue. In 1953, Truck Company
No. 2 was organized and placed in service at the new engine house on University Ave-
nue.
6
Staffing was provided with two platoons that worked alternating shifts. On Janu-
ary 1, 1966, a third shift was added to the department with each group managed by an
Assistant Chief. Fire station No. 2 was constructed on John F. Kennedy Road to provide
better fire protection for the westward growth of the City in 1967.
The evolution of the ambulance service in the City of Dubuque has been quite
interesting. In 1910, the City considered the purchase of a public ambulance after con-
cerns that individuals who provided the service at the time were overcharging patients.
Dubuque's first public ambulance entered into service in November 1914 and provided
coverage 24/7 at no charge to the community.
The ambulance was staffed with one man, but
service expanded through time to become a two-
man crew. The individuals who ran the ambu- -
PIE
,.
lance typically had first aid skills to treat major '
injuries, but emergency medical training still had
not been developed. '
Funeral homes provided transfer service as well, however, in 1969, the Dubuque
funeral home owners decided to get out of the busi-
ness. The City accepted the extra duty and expanded
s
training of dedicated personnel. This effort enabled
the Dubuque Fire Department to be one of the first
paramedic services in the state of Iowa. Beginning in
1996, the Department required all new hires to pos-
sess a valid paramedic certificate. This has enabled
the Department to have a high level of trained medical
service providers. In 2013 the department started
providing advanced life support using paramedic en- _
gine companies by providing equipment and at least
one paramedic on every staffed unit. The Department
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now is staffed with 76 paramedics.
Compiled and Written by William K. (Bill) Hamel DFD 1968-1976
7
Services Provided to the Community
The Dubuque Fire Department provides the following services
Emergency Medical Service (EMS) &Ambulance
Response to injuries and illnesses are the most common request for fire depart-
ment services. Fire department ambulances provide transport to local hospitals
and are supplemented by first-arriving engine units staffed with paramedics.
EMS service also provides non-emergency care and transport as well as event
stand by.
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Fire Investigation
The Fire Marshal staff investigate fires to determine the cause and origin. They
work closely with law enforcement and state arson investigators on suspicious
fires. This service also provides follow up to fire victims and works with insur-
ance and property owners concerning fire incidents.
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• Fire Prevention and Inspection
The fire department works diligently to inspect business properties and institu-
tional occupancies on a regular basis to prevent fires. Through the Fire Marshal
new construction plans are reviewed to assure code-compliance and maintain
fire safety.
4
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Fire Suppression
All types of fires are responded to including structures, vehicles, grass/wildland,
and fires occurring on the water. Fires are often the service that demands the
most staffing and equipment.
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9
Hazardous Materials Response
The response to spills or leaks of hazardous chemicals is critical to the safety of
the community. The fire department provides the highest level of hazardous ma-
terials response.
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Public Education (Fire and Life Safety)
The department presents fire and life safety education to schools, groups, busi-
nesses and special events. From smoke detector installation and fire extinguish-
er training to fire safety lessons for youth and seniors, we strive to protect the
community through prevention.
, � • F IFS •�S l
10
• Technical Rescue (Heights, Depths, Water)
Specialized rescue services are provided using specially equipped and trained
firefighter/paramedics to rescue people from heights, depths, and water hazards.
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Community Service Priorities
The seven core services listed previously, were used as part of an external
stakeholder survey. Participants were asked to rank the seven services by importance
to them.
Relative Service Importance
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6
5 -
4
3
2 -
EMS Fire Prevention& Fire HAZ MAT Pudic Technical
Investigation Inspection Suppression Response Education Rescue
The seven fire department services by rank order of importance to the survey par-
ticipants are:
Most Important- Emergency Medical Service (Ambulance)
- Fire Suppression
- Fire Prevention and Inspection
- Fire Investigation (tie)
- Hazardous Materials Response (tie)
- Technical Rescue (heights and depths)
Least Important - Public Education (fire and life safety)
12
Community Expectations
The external stakeholder survey asked participants to express their expectations
of the Dubuque Fire Department.
The two most common responses were:
o Quick response (58%)
o Well trained or highly capable people (19%)
When asked to specifically note how well the department was meeting their per-
sonal expectations related to each core service, the responses were as follows:
Survey of Expectations by Core Service
70%
60%
50%
40%
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■Excellent ■Good ■Average ■Fair ■Poor ■Not Sure
13
Community Concerns
The survey resulted in written comments regarding concerns about the services
provided by the Dubuque Fire Department. They are listed in no particular order below.
General Concerns
• Quick response — Editor's note: this concern appears multiple times in survey re-
sponses for all emergency services.
• Have all you need to meet all the needs of the members of community from the best
equipment to the best trained people.
• To be there when needed on a timely basis- I feel we have a great fire department
here in Dubuque.
• Good at "people skills"- reassuring optimistic and kind treatment of those less capa-
ble of controlling their emotions in a tragic occurrence.
• State of the art training, equipment, and response protocols.
• To provide excellent service to our city.
• Ongoing openness with the citizens.
Specific Service Concerns:
EMS
• Getting to correct location when city changes address. Recently unable to find friend
with serious situation. Caregivers ran outside to flag down.
• Qualified responders
• Dispatch call handle time
• Enough personnel to respond
• There are too many ambulances & EMS at the sight. As I live alone I would not re-
quire more than 1 ambulance. Call for more if needed.
• People misusing the service
• Bee branch is slowing down our Fire Department.
• Needing an ambulance at #6 to provide service for the point area.
Investigation
• Keeping up to date with new materials, causes
• That it has the tools needed- resources needed- to be able to do the job
Find the reason for the fire and to educate the public to prevent this type of fire.
• Prevention/Inspection
• Is it being taught in school?
• Well trained personnel and enough of them.
• Many people don't know this service is available.
14
Fire Suppression
• Getting in call early
• They get there fast enough.
• Staffing levels
• Overhead wires could hamper the fire truck.
• Increased challenges from meth labs, etc.
Hazardous Materials Response
• Transit of hazardous materials through the community by rail, truck, etc.
• With all of the hazardous materials used today- do the firefighters have the appropri-
ate education and/or training?
• Toxins and poisons getting into the air.
Public Education
• More is needed in schools at all levels
• Kids need to know who to call.
• DFD has not done well at promoting ems vs privates
• More help smoke detectors
• Public education for the elderly, low income, persons with disabilities.
• Reaching and teaching seniors, esp those still living at home alone.
Technical Rescue
• No dive rescue
• Technical training and state of the art equipment
• People who can quickly evaluate the situation & put their plan in action with others
accepting the plan. (team work)
15
Department Aspects the Community Views Positively
Following are an example of comments received by survey respondents.
You do a great job
Excellent
Had a fire 20 years ago. The response was the best, they were the best. Did not
miss a beat. Thank you
Good job
What I have seen they are always willing and practicing their job.
Thank you!! Great job.
Very pleased with the capabilities and training excellence of DFD
A very professional organization that does an excellent job.
1 can't say enough good things about the great services that you perform.
My father fell trying to get into our house on Christmas Eve day. We called the Fire
Dept for help. The responding crew was excellent!! Professional, compassionate,
friendly, and respectful. Simply outstanding. Thank you.
1 am thankful not to have needed them so far, but thank you for your work & contin-
ued training to save people's lives.
Very good at their jobs.
Based on what I've heard, primarily ?, DBQ FD is very good
The paramedics that transported me from Grand Harbor to hospital Jan 2003 were
wonderful.
Highly capable personnel who are mature in the performance of their duties.
Only used services once & it was very positive experience. They came in minutes &
knew exactly what to do for my Brother-in-law, department always does great job.
Thanks for your service & dedication.
Excellent Fire Marshall Staff.
1 live across from Comisky park, neighbor next to us had a house fire, no damage to
our house due to timely & efficient response
Very good response.
The staff that have come have been wonderful.
1 am so happy that you practice all of these things so you are ready when needed.
16
Fire Department Mission Statement:
To protect, assist, and educate our community and
visitors with pride, skill, and compassion.
Our Shared Values are:
• INTEGRITY—We serve in an honest and trustworthy fashion. We respect
those we serve and are accountable to them.
• PROFESSIONAL — We serve with a hard-working positive attitude. We are
dedicated to consistently providing a high degree of excellence.
• COMPASSION —We serve with a sense of community and brotherhood. We
show empathy to those in need and seek ways to be helpful.
• SKILL —We serve with an understanding that our ability and competence is im-
portant in the lives of our neighbors. We maintain a high level of training.
• PRIDE —We serve with a sense of tradition in a job done well. We strive to be
prompt, safe, and fit for duty.
17
Fire Department Strategic Initiatives
The initiatives below were derived from the strategic planning process described
in this document. They serve as a guide for future decision making and a path to im-
provement of the Dubuque Fire Department. The corresponding goals and objectives
linked to each initiative can be found in Appendix 1 .
Strategic Initiative 1 : Improve Service Level to Customers
We work toward improvements to our delivery of service.
This initiative corresponds with the Dubuque Comprehensive Plan Public Safety Goal 2:
To maintain appropriate readiness response capabilities in all areas of public safety.
Strategic Initiative 2: Support Workforce Quality
We strive for employee excellence.
This initiative corresponds with the Dubuque Comprehensive Plan Economic Develop-
ment Goal 2: To build a highly skilled, flexible work force.
Strategic Initiative 3: Prepare for Management and Response to Major
Incidents
We prepare for events that may tax our local resources and work to mitigate the effects
of such events.
This initiative corresponds with the Dubuque Comprehensive Plan Public Safety Goal 6:
To prevent or minimize the impacts of natural or manmade disasters.
Strategic Initiative 4: Plan for City Growth
We look to the future needs of our community.
This initiative corresponds with the Dubuque Comprehensive Plan Land Use and Urban
Design Goals 9 and 10: To promote principles of good urban design as part of all devel-
opment and, To plan for the city's future and orderly development within a regional con-
text.
18
Dubuque Fire Department
Vision Statement
The Dubuque Fire Department offers services within the scope of our mis-
sion that help citizens and visitors enjoy a safe and healthy lifestyle. The fire depart-
ment is made up of a diverse and well-skilled team of accredited professionals who
work with pride, skill and compassion to serve our neighbors equitably.
The fire department responds quickly using best practices to assist people in
cases of fire, emergency medical, rescue, or other need. The city is preserved by a
quality fire inspection program that maintains a safe environment among historic and
contemporary buildings. All people in the community are provided opportunities to learn
and practice fire and life safety to help assure an excellent quality of life. The fire de-
partment seeks to preserve and enhance all the reasons that make Dubuque a great
place to live, work and play.
19
Appendix 1
Fire Department Goals and Objectives
Goals associated with Improving Service Levels to Customers
Goal 1: Standardized Training Program
Objective 1a. Uniform delivery of standards-based training
Task 1a.1 Develop and schedule strong EMS training for EMS meetings
and Tuesday training. Support state-required training at the company
level.
Task 1a.2 Coordinate the existing paramedic transition plan. Complete all
transitions as budgeted.
Objective 1b. Emphasize Officer Development
Task 1b.1 Establish process to assure ALL officers (Lt. and above) have
certifications as required: FFI & II, D/O Pumper, Inspector I, Instructor
I, and Officer I.
Task 1b.2 Provide leadership training to officers: Schedule classes and cer-
tificate-level training for officer corp.
Goal 2: Shift Consistency
Objective 2a. Identify what the inconsistencies are.
Task 2a.1 Collect data to better define gaps in response/performance.
Task 2a.2 Analyze SWOT analysis data to determine gaps.
Objective 2b. Standard Operating Guides/Rules and Regulations
Task 2b.1 Establish process to review current documents on a systematic
basis.
Task 2b.2 Establish updated fire attack procedures common across all
shifts.
Task 2b.3 Communicate new/revised rules with all members.
Task 2b.4 Provide training consistent with the SOGs/R&R.
20
Goals associated with Supporting Workforce Quality
Goal 3: Develop Improved Employee Capabilities
Objective 3a. Engage employees in personal development
Task 3a.1 Provide mentor opportunities.
Task 3a.2 Develop a plan for NFA training opportunities. Which classes
will we support? How many students? What criteria to attend?
Objective 3b. Reinforce pubic image of the department through engagement op-
portunities.
Task 3b.1 Establish a plan for public relations using community egagement
opportunities.
Task 3b.2 Research and prepare grant opportunities for public education.
Objective 3c. Improve the promotion process
Task 3c.1 Establish evaluation methods beyond written exam.
Task 3c.2 Involve Same-level personnel in promotion decisions.
Goal 4: Increase Diversity of the Department Workforce
Objective 4a. Develop programs that increase applicant pool diversity
Task 4a.1 Expand Junior Fire Academy and other youth programs.
Task 4a.2 Pursue Internship Program.
Task 4a.3 Partner with Northeast Iowa Community College to increase di-
versity in the local paramedic pool.
21
Goals associated with Management and Response to Major Incidents
Goal 6: Increase Focus on Community Risk Reduction
Objective 6a. Analyze staffing in prevention and training divisions.
Task 6a.1 Maximize line personnel use in FMO.
Objective 6b. Develop Programs to Reduce Fire Loss
Task 6b.1 Provide budget for prevention program materials.
Objective 6c. Establish Time and Priority Balance between Inspections and Hy-
drant Flushing
Task 6c.1 Incorporate hydrant program into FH Inspector on tablet comput-
ers.
Goal 6: Review and Develop Response Plans
Objective 6a. Create a Response Plan for Civil Unrest
Task 6a.1 Work within a larger city-wide effort to write a response to potential
civil unrest.
Objective 6b. Address Potential Hazardous Materials Release on Waterways
Task 6b.1 Serve as a lead agency in the Dubuque CAER group.
Objective 6c. Improve the Use and Deployment of Evacuation Plan
Task 6c.1 Incorporate evacuation plan into exercises and drills concerning
major incidents.
Objective 6d. Prepare for Train Derailment Response
Task 6d.1 Seek out sponsorship for training of personnel in train derail-
ment responses.
Task 6d.2 Provide regular training based on train derailment/hazardous ma-
terials situations.
22
Goals associated with Planning for City Growth
Goal 7: Support the Importance of EMS in the Response Area.
Objective 7.a Address service delivery changes relative to Mobile Integrated
Health Care and Community Paramedics
Task 7a.1 Follow and be involved in the state group development.
Task 7a.2 Develop a list of situational gaps in service that may be ad-
dressed with MIHC.
Objective 7.b Market and Educate regarding EMS in the Community
Task 7b.1 Establish/enhance positive relationships with healthcare facili-
ties.
Task 7b.2 Meet with Hospital and other care facilities to determine the role
the fire department will play in community health.
Objective 7c. Establish Guidelines and track performance of paramedic engines.
Task 7c.1 Develop a plan for improvement of ambulance scene times.
Task 7c.2 Establish the CQI committee, set objectives and timeline for im-
provement in the system. Tie improvements to future training.
Task 7c.3 Establish the criteria to measure cardiac survival rates consist-
ently. Evaluate procedures, training, and operations for improvement.
Goal 8: Address Geographic and Population Growth of the City
Objective 8a. Review and Monitor Annexation Plans
Task 8a.1 Fire Chief to serve on committees discussing annexation.
Objective 8b. Develop response plans for non-hydrant areas.
Task 8b.1 Update mutual-aid, 28E, and other written agreements.
Objective 8c. Develop Standards of Cover Plan
Task 8c.1 Establish data collection criteria.
Objective 8d. Address Station/Staffing Numbers for Future
Task 8d.1 Update information on station relocation and expansion study.
23