LETTER FROM THE CHIEF
I am pleased to present the 2025-2030 Johnson City Fire Department Strategic Plan. The document will provide direction and guidance for our department over the next five years.
Developed through a collaborative effort of internal and external stakeholders, the Strategic Plan reflects the shared commitment to excellence within our department and the community. As a CPSE-accredited, ISO class I-rated fire department, the JCFD is dedicated to ensuring the safety and security of Johnson City’s citizens, businesses, and visitors.
The JCFD’s commitment to excellence, driven by the hard work of its members, has resulted in significant achievements. This dedication continues to benefit our community, as the JCFD remains a leader in delivering positive outcomes through emergency services.
Sincerely,
David Bell Fire Chief
DAVID BELL FIRE CHIEF
“The JCFD is dedicated to ensuring the safety and security of Johnson City’s citizens, businesses, and visitors.”
and opportunities. Participants actively contributed critical community issues and discussed potential services or programs that could benefit both their individual organizations and the broader community.
The comprehensive data collected has been instrumental in formulating the Johnson City Fire Department’s 2025-2030 Strategic Plan. This strategic blueprint will guide the department’s organizational trajectory and foster ongoing enhancements throughout the next five years.
INTRODUCTION
Since its founding in 1891, the Johnson City Fire Department (JCFD) has been an integral part of the community. Committed to protecting lives and property, the department actively engages with residents and visitors through public education, fire prevention initiatives, and community risk assessments. By implementing effective response strategies and continually refining operations, the JCFD ensures the safety and well-being of all.
The JCFD is a vital component of the community, responding to roughly 10,000 emergency calls annually. Nine strategically located fire stations, staffed by 123 dedicated uniformed personnel across three shifts, handle these calls. These stations house 12 engine and truck companies and two district chiefs. The department’s fleet includes nine engine companies and three truck companies.
Beyond the front-line responders, the JCFD boasts a robust support staff. This staff includes the fire chief, deputy chief, assistant fire chiefs, administrative district chief, administrative services manager, fire marshal, four fire prevention officers, an administrative assistant, and two fire equipment technicians. Together, the department’s 136 funded positions ensure the seamless delivery of emergency services and fire prevention initiatives.
MISSION
The Johnson City Fire Department’s mission is to be the all-hazards provider to the citizens and visitors through Prevention, Preparedness, and Emergency Response.
VISION
The Johnson City Fire Department’s Vision is to provide exceptional services to our community through our Core Values.
HONESTY
Truthful in all we do.
EMPATHY
Compassion for all in need.
LOYALTY
Devoted to serving the community.
PROFESSIONALISM
Through valued service.
CITY OF JOHNSON CITY
Johnson City, a major Appalachian city in Northeast Tennessee, boasts a population of approximately 74,075 and covers 43.43 square miles. As the eighth-largest city in Tennessee, it offers both urban and rural landscapes, with a population density of 1,538 people per square mile. Part of the TriCities region, Johnson City spans four counties: Washington, Sullivan, Unicoi, and Carter, with most of the land mass being in Washington County, TN.
East Tennessee State University (ETSU), near downtown Johnson City, provides a diverse range of programs to its approximately 14,317 students. ETSU boasts a competitive NCAA Division I athletic program that participates in the Southern Conference across multiple sports. These athletic events often draw significant local interest and attendance, necessitating effective crowd management strategies. The University’s campus also houses a performing arts center, a multipurpose convention arena, a state-of-theart football stadium, and a baseball stadium, further contributing to its dynamic role within the community.
Downtown Johnson City is undergoing a revitalization fueled by both public and private investments. This transformation has made it a regional hub for events like festivals and concerts, attracting residents and visitors alike. The city’s strategic investments have fostered a mutually beneficial relationship between the community and downtown. While the city has experienced some outward growth, including new retail, dining, and residential options, careful planning ensures that all areas continue to receive essential services.
Healthcare is a cornerstone of the community and regional economy. East Tennessee State University (ETSU) houses the James H. Quillen College of Medicine and the Gatton School of Pharmacy on the VA Mountain Home campus. The medical school specializes in rural healthcare, training future practitioners in primary care, surgery, pediatrics, geriatrics, and other specialties crucial for rural communities. In partnership with the V.A. Medical Center and Quillen College of Medicine, Ballad Healthcare provides healthcare services to the fourstate Appalachian Highlands region. These services include physician groups, surgery centers, and diagnostic centers throughout the city.
To enrich the quality of life in Johnson City.
We get EXCITED for the mission to serve through:
EXCELLENCE
CUSTOMER SERVICE
INTEGRITY
TEAMWORK
ENGAGEMENT
DEDICATION
JURISDICTION & ORGANIZATIONAL BACKGROUND
The Johnson City Fire Department has proudly served the community for 134 years. Incepted in 1891, the JCFD is an entirely career department comprised of 132 sworn and four civilian members.
The JCFD is equipped to handle various emergencies beyond fire suppression. All personnel are trained in emergency medical services (EMS) at the basic life support (BLS) level, contributing to a two-tier EMS response system. The department provides emergency medical responders, medical technicians, advanced medical technicians, and paramedics. While Washington County/Johnson City Emergency Medical Services handles emergency and non-emergency transport, the JCFD is prepared for special operations incidents such as technical rescue and hazardous material spills. All sworn personnel are trained to the operations level in these areas, with several individuals holding technician certifications.
The JCFD maintains a robust response system with nine strategically positioned stations across North and South Districts. These stations are carefully located within fire response zones (FRZ) to optimize response times and ensure that emergency services can reach any location within the city in five minutes or less. The department’s fleet is equipped to handle a wide range of emergencies, including nine fire engines, three ladder trucks, two command vehicles, a rehab unit, two air trucks, a swiftwater rescue boat, two trail ATVs, and specialized Hazmat and special operations trailers.
The Assistant Chief of Operations is responsible for the day-to-day management of 123 uniformed personnel, organized into three shifts of 41. This includes overseeing the delivery of emergent and nonemergent fire rescue services to the community, which averages nearly 10,000 calls annually. The Assistant Chief of Administration, in collaboration with the District Chief of Administration, is responsible for managing various administrative tasks, including accreditation, training, logistics, technology, facilities, and other essential resources.
Each shift is overseen by two geographically assigned District Chiefs, one for the South region and one for the North region. The South region encompasses five fire stations, while the North region covers four. The nine engine companies on each shift are staffed with at least three personnel: a Lieutenant, a Driver/Engineer, and a Firefighter. The three truck companies require a minimum of two personnel: a Driver/Engineer and a Firefighter. Each shift has nine Lieutenants assigned to the engine companies, twelve Drivers/ Engineers assigned to both engine and truck companies, and at least twelve Firefighters.
ORGANIZATIONAL CHART
INTERNAL STAKEHOLDER INPUT
A crucial component of our strategic planning process involved collaborative engagement with internal stakeholders to envision the department’s future. Their insightful contributions were essential in identifying and prioritizing the most impactful and critical departmental goals. The goals have been listed below by priority level and the group evaluating them:
INTERNAL STAKEHOLDERS
HIGH PRIORITY
1. Addition of a dedicated Training Lieutenant.
2. Increased staffing on ladder trucks.
3. Addition of a bathroom to Fire Station 5.
4. New Fire Station 4.
5. Increase in minimum staffing.
6. Addition of a dedicated Medical Officer.
MEDIUM PRIORITY
1. Addition of Fire Station 10.
2. District Chief 2 being relocated to Fire Station 6.
3. Addition of a dedicated Community Risk Reduction position.
4. Addition of a Deputy Fire Marshal.
LOW PRIORITY
1. Expansion of Special Operations.
2. Reduction of overtime.
3. Addition of a heavy rescue vehicle.
4. Addition of a third District Chief position on each shift.
EXECUTIVE STAFF
HIGH PRIORITY
1. Increased staffing on the ladder trucks.
2. Addition of a dedicated Training Lieutenant.
3. District Chief 2 being relocated to Fire Station 6.
4. Addition of Fire Station 10.
5. Addition of a dedicated Community Risk Reduction position.
MEDIUM PRIORITY
1. Reduction of overtime.
2. Addition of the bathroom to Fire Station 5.
3. New Fire Station 4.
4. Increase in minimum staffing.
5. The addition of a Deputy Fire Marshal.
6. Expansion of Special Operations.
LOW PRIORITY
1. Addition of a dedicated Medical Officer.
2. Addition of a heavy rescue vehicle.
3. Addition of a third District Chief position on each shift.
EXTERNAL STAKEHOLDER INPUT
A community-driven strategic planning process was employed to develop the Johnson City Fire Department Strategic Plan, thereby guaranteeing the integration of community needs. External stakeholders participated in this process by offering the following input:
INTERNAL STAKEHOLDERS POSITIVE FEEDBACK
• Competency and professionalism.
• Highly trained personnel.
• Smoke detector installation program.
• Car seat installation program.
• Fast and efficient response.
• Resources and capabilities.
• Public education programs within the schools.
CONCERNS
• Departmental growth matching city growth.
• Active shooter events.
• Hazardous materials spills or releases.
• Lack of available, affordable housing.
SWOT ANALYSIS
A SWOT analysis was conducted to gain a comprehensive understanding of the agency’s strategic position. Internal stakeholders contributed to the identification of strengths and weaknesses, while external stakeholders provided valuable input on potential opportunities and threats. This collaborative approach ensured a well-rounded assessment of the agency’s current state and future prospects.
An assessment of the agencies current state & future prospects.
STRENGTHS
To ensure the delivery of high-quality community services, organizations must prioritize identifying and leveraging their strengths. Recognizing these strengths helps pinpoint programs that are both efficient and effective. Internal stakeholders identified the following key strengths within our organization:
• Support from the City Commission.
• Support from City Management.
• Strong working relationships with other external agencies.
• Strong working relationships with other City departments and divisions.
• Exceptional EMS skills and proficiency.
• High morale.
• High job satisfaction.
• Good professional development and training.
• Optimism in the direction the organization is heading.
• Good equipment and apparatus.
• Brand new state-of-the-art training complex.
• The ability for our staff to adapt to complex situations.
• Reputation within the region.
• Good career advancement opportunities.
• Exceptional data analysis.
• High success in grant allocation.
• Large applicant pool.
• Peer support group.
• Educational Reimbursement Program.
• Training Incentive Program.
• Opportunities for outside training.
WEAKNESSES
Continuous improvement involves identifying organizational weaknesses and taking steps to mitigate their impact. To maintain a high level of service delivery for internal and external stakeholders, addressing inefficiencies stemming from these weaknesses is crucial. The initial step in this process is to pinpoint these areas of concern. The internal stakeholders have identified the following weaknesses:
• Inadequate staffing on ladder trucks.
• Ladder trucks are frequently out-of-service for mechanical repairs.
• Inconsistent accountability.
• Shift leadership in opposition with executive leadership.
• Old stations in need of renovations or replacements.
• Elongated response times in the northwest corridor of the city.
• Disconnect between Administration and Suppression.
• Poor or insufficient fitness equipment.
• No women’s restrooms in Fire Stations 4 and 5.
• Poor compensation.
• Poor communication throughout the department.
• Opinions are not taken into consideration.
• Lack of real-world training.
• Inconsistent practices amongst the shifts.
• Insufficient staffing in Fire Prevention.
• Outdated and inadequate Preplanning program.
OPPORTUNITIES
Identifying external opportunities provides avenues for leveraging favorable external conditions to impact the organization positively. These opportunities can serve as catalysts for continuous improvement, fostering organizational growth and a positive work environment. External stakeholders identified the following opportunities:
• Private industry collaboration with Fire Prevention.
• Medical network partnerships.
• Interagency interaction and training.
• Hands-only CPR courses for businesses and schools.
• Partnering with the school system to form fire department internship programs.
• Socioeconomic growth projections.
• Community Para Medicine program.
• CERT program training opportunities for the general public.
THREATS
Threats are external forces that can hinder an organization’s efficiency and effectiveness. By proactively identifying potential threats, organizations can significantly mitigate risks and losses. A crucial aspect of successful strategic planning is acknowledging that external threats are beyond an organization’s control. Based on input from external stakeholders, the following threats were identified:
• Rapid growth that is outpacing the resources of the department and the City.
• Budgetary constraints.
• Pending class action lawsuit.
• Active shooter events.
• Insufficient affordable housing.
• Potential of another catastrophic flood event.
• Insufficient City infrastructure for population growth.
• Re-emergence of epidemic diseases.
• A large population of financially vulnerable individuals within the community.
• Rising costs.
CRITICAL ISSUES
A comprehensive review of the Johnson City Fire Department’s core services, coupled with a SWOT analysis and stakeholder input, revealed critical issues that hinder optimal service delivery. Resolving these issues will significantly improve the department’s operational efficiency and effectiveness.
ACCOUNTABILITY
• Handling matters at the appropriate level through the proper channels.
• Members are not utilizing the chain of command properly.
• Inconsistent discipline.
• Shift leadership obstinate and defiant to Fire Department leadership.
• Personnel operating on personal agendas.
• Inconsistencies in the way each shift operates.
STAFFING
• Insufficient staffing on ladder trucks.
• Insufficient staffing in the Fire Prevention office.
CULTURE
• A fundamental disagreement exists within the organization. Some individuals favor a more agile, decentralized approach, which is characteristic of a small department. Others prefer a more centralized, bureaucratic structure like a large department.
• Generational differences.
• The department has grown large enough that past practices are no longer effective, but many still hold onto them.
COMMUNICATION
• Communication up and down the chain of command.
• Communication between and within divisions.
JOB PROFICIENCY
• Officer development.
• Succession issues at the Lieutenant level.
GOAL 1: INCREASED STAFFING
OBJECTIVE 1.1: COMPLETE A STAFFING STUDY OF THE DEPARTMENT
CRITICAL TASKS ASSIGNED TO
Identify, assess, and document local needs and circumstances, community risks, and response capabilities.
Conduct workload management assessment of the Fire Suppression Division.
Administrative District Chief 1 – 3 months
Develop a comprehensive analysis of the service gaps the community is experiencing.
PERFORMANCE MEASURE IF APPLICABLE
• % of incidents with response times outside of established benchmark.
• % of injuries by call and apparatus type.
Assistant Chief of Operations 1 – 3 months
Conduct workload management assessment of the Fire Prevention Division. Fire Marshal 1 – 3 months
Conduct workload management assessment of the Fire Administration Division.
Conduct workload management assessment of the Fire Training Division.
Assistant Chief of Administration 1 – 3 months
Develop a comprehensive analysis of the service gaps the Fire Suppression Division is experiencing.
Develop a comprehensive analysis of the service gaps the Fire Prevention Division is experiencing.
Develop a comprehensive analysis of the service gaps the Fire Administration Division is experiencing.
Number of responses where department would be able to meet NFPA 1710.
Number of inspections completed versus the number outstanding.
The number of tasks assigned to each individual and the time allotted.
Administrative District Chief 1 – 3 months
Develop a comprehensive analysis of the service gaps the Fire Training Division is experiencing.
The number of tasks assigned to each individual and the time allotted.
OBJECTIVE 1.2: PRIORITIZE STAFFING NEEDS
Establish an objective baseline number for the number of personnel needed for the city's population and call base.
Create a prioritization list by division.
Create a prioritization list for the department.
Deputy Chief
Deputy
Deputy Chief
Identify where our staffing levels should be.
Identify the priority of positions needed through each division.
Identify the priority of positions needed for the department.
OBJECTIVE 1.3: DEVELOP TIMELINE AND BUDGET PROJECTIONS
Comparing the assessed gaps to the industry standards to a community of Johnson City's size.
Evaluating the results gathered by each division.
Evaluating the overall results based on the most pressing needs of the community and department.
OBJECTIVE 2.3: DEVELOP AND IMPLEMENT A PHASED EXPANSION PLAN TO ACCOMMODATE GROWTH CRITICAL
Establish financial funding for a specific project as it becomes available.
accomplished Develop detailed project plans, including timelines and budgets.
Provide a station build blueprint that can be utilized for upcoming fire stations.
Provide guidance and oversee projects as they occur.
accomplished Total Project Time Frame: 3 – 5 Years
OBJECTIVE 3.2: ENHANCE COMMUNITY RISK REDUCTION
CRITICAL TASKS ASSIGNED TO TIME FRAME DESIRED OUTCOME PERFORMANCE MEASURE IF APPLICABLE
Increase public education and outreach efforts to promote fire safety awareness. Fire Marshal 1 – 2 years
Enhance pre-incident planning efforts to identify potential hazards and develop effective response strategies.
Partner with local organizations to develop communitybased risk reduction programs.
Assistant Chief of Administration 1 – 2 years
To enhance the public awareness of dangerous situations and preventative measures.
To enhance the internal awareness and familiarity of high-hazard locations within the city.
% increase in public education hours, distributable materials, and safety events conducted annually.
% of significantrisk locations with accurate and accessible preplans.
Fire Marshal 1 – 2 years
Enhance external relationships with community partners and reduce the city's overall risk profile.
OBJECTIVE 3.3: IDENTIFY, UPGRADE, AND IMPLEMENT TECHNOLOGY SOLUTIONS
CRITICAL TASKS ASSIGNED TO TIME FRAME DESIRED OUTCOME
Invest in advanced technology and communication systems to improve emergency situational awareness and decision-making.
Explore artificial intelligence (AI) solutions for streamlining processes.
Explore using drones and other emerging technologies to enhance response capabilities and gather critical information.
Utilize data analytics to identify trends, assess performance, and identify new and emerging threats.
Assistant Chief of Administration 1 – 3 years
Assistant Chief of Administration 1 – 3 years
Assistant Chief of Operations 1 – 3 years
An improvement to the capability of the department to leverage technology more effectively in daily operations.
To identify areas where AI may provide solutions to manually demanding tasks.
To increase the organizational ability to conduct largescale operations in which wide-area reconnaissance is needed.
The number of meetings conducted annually with identified external stakeholders.
Administrative District Chief 12 – 18 months
Total Project Time Frame: 3 – 5 Years
To further guide organizational decisions and enhance proactive operational readiness.
When accomplished
When accomplished
When accomplished
When accomplished
GOAL 4: IMPROVE DEPARTMENT COMMUNICATIONS
OBJECTIVE 4.1: IDENTIFY INTERNAL COMMUNICATION OBSTACLES
Identify the obstacles that have been plaguing the department.
Develop SOGs that address the identified issues and establish an order of implementation.
Developed SOGs are implemented and disseminated among all personnel.
OBJECTIVE 4.2: IDENTIFY EXTERNAL COMMUNICATION OBSTACLES CRITICAL
Establishing stronger external relationships with outside agencies.
Establishing the areas of weakness.
Development of a targeted strategy for improvement.
Number of SOGs created.
Number of SOGs implemented and qualitative survey of effectiveness.
Total Project Time Frame: 1-2 Years
When
When accomplished
