If the city leaders would have a 3-5% pay "step" increase in place for promotions from one step to the other up the chain that would solve the problem. Fire & Police seem to have too many caveat in place to make lots of $$, in the position that they are in, so they do not want / need to move up the ladder. Dive rescue, K-9, Swat, Haz-Mat, education incentive. Why would they want to change. List those job openings that are not filled, to the public, someone would be happy to have that job!