Leading Beyond the Moment: Why Fire Chiefs Must Think Institutionally

The views expressed are those of the author and do not necessarily reflect the views of ASPA as an organization.

By Derrick Phillips
April 14, 2025

Introduction

Fire service leadership is often consumed by the urgency of response—putting out literal and figurative fires. However, true leadership, which leaves a lasting impact, requires a shift in perspective from managing the immediate to stewarding the institution itself. In On Thinking Institutionally, Hugh Heclo argues that institutions are more than bureaucratic structures; they are living legacies that shape values, norms and identities over time. For Fire Chiefs, thinking institutionally means recognizing that their tenure is just a chapter in a longer story that should be written with the future in mind.

The Fire Service as an Institution

The fire service is one of the oldest and most trusted public institutions in the United States. Its traditions, values and expectations have been shaped by generations of firefighters and leaders who built the profession through sacrifice and service. However, many Chiefs fall into the trap of thinking about their role in short-term, operational terms—budgets, staffing levels and political navigation—without considering how their decisions shape the organization’s long-term health.

Heclo differentiates between “institutional thinking” and mere “organizational thinking.” Organizations operate within rules and structures, but institutions shape identities, culture, and purpose. A Fire Chief who merely thinks organizationally manages logistics; one who thinks institutionally safeguards and strengthens the fire service as a public trust.

Why Institutional Thinking Matters for Fire Chiefs

1. Institutional Thinking Provides Stability Amid Political Change

Fire Chiefs operate within a highly politicized environment. Elected officials come and go, budgets fluctuate and community priorities shift. Chiefs who think institutionally understand that while political winds may change, their duty is to uphold the fire service’s core mission and values.

Institutional thinking helps Chiefs resist the temptation to chase short-term wins that might undermine long-term stability. For example, accepting funding for a politically motivated program that does not align with the department’s mission may secure short-term political favor but weaken the department’s institutional credibility in the long run.

2. Institutional Thinking Balances Tradition and Adaptation

One of the fire service’s greatest strengths is its deep-rooted traditions. However, institutional thinking requires Chiefs to differentiate between traditions that serve the mission and those that hinder progress. Heclo warns against blind traditionalism—defending the past for its own sake—while critiquing short-term managerial thinking that discards valuable institutional wisdom.

For instance, the historical resistance to change in hiring and promotional practices has contributed to a lack of diversity in fire service leadership. Chiefs who think institutionally recognize that diversifying the fire service is about meeting contemporary expectations and strengthening the profession’s ability to serve an evolving public.

3. Institutional Thinking Fosters Trust and Legitimacy

Public trust in the fire service has been earned over the generations, not just through individual acts of heroism but also through a consistent commitment to public service values. Heclo emphasizes that institutions endure because people believe in their legitimacy. Fire Chiefs who prioritize institutional trust over short-term political expediency build resilient departments in times of crisis.

Consider the issue of firefighter mental health. In the past, the fire service culture often stigmatized mental health challenges, reinforcing the notion that seeking help was a sign of weakness. Chiefs who think institutionally recognize that breaking this stigma is not just a policy change but an institutional transformation that requires cultural leadership, policy alignment and long-term commitment.

4. Institutional Thinking Strengthens Organizational Resilience

An institutionally strong fire department can withstand leadership transitions, budget cuts, and external pressures without losing its core identity. Chiefs who think institutionally focus on developing future leaders, preserving institutional memory and embedding best practices that endure beyond their tenure.

A Chief who builds leadership capacity at all levels ensures that the department continues to thrive when they retire. Institutional thinking prioritizes mentorship, professional development and clear succession planning—elements that prevent the department from becoming overly dependent on any one leader’s charisma or political skills.

How Fire Chiefs Can Cultivate Institutional Thinking

1. Be a Steward, Not Just a Manager

Fire Chiefs must see themselves as stewards of an institution that existed before them and will exist long after they leave. Stewardship means making decisions prioritizing the department’s long-term integrity and effectiveness over short-term gains.

2. Embed Institutional Values in Decision-Making

Every policy decision should be tested against institutional values. Chiefs should ask:

• Does this decision align with our core mission and values?
• Will it strengthen or weaken trust in the fire service?
• Is it responsive to the present without compromising the future?

3. Institutionalize Leadership Development

A department that relies solely on one leader’s vision is vulnerable. Chiefs must embed leadership development into the organization’s DNA, ensuring institutional knowledge and values are passed down through mentorship, formal training and professional development programs.

4. Protect Institutional Integrity from Political Pressures

While Chiefs must navigate political realities, they should resist pressures that undermine institutional credibility. This means advocating for policies that serve the mission of the fire service, even when politically inconvenient.

5. Build a Culture of Reflection and Learning

Institutional thinking requires Chiefs to cultivate an organizational culture that values reflection, learning and adaptability. This means fostering open dialogue about departmental strengths and weaknesses, embracing constructive criticism and learning from past mistakes.

Conclusion

Fire Chiefs who think institutionally recognize that their legacy is not measured in immediate achievements but in the long-term strength of the department they leave behind. As Heclo argues, institutions endure not just because of rules and policies but because of the values and commitments of those who lead them. Chiefs who embrace institutional thinking ensure that the fire service remains a trusted, resilient and evolving institution that serves communities for generations.

Disclaimer

The opinions expressed in this article are my own and are not the official position of my agency. 

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Author: Derrick Phillips is a 30-year St. Louis Fire Department veteran, serving as Operations Chief for the A-Shift, Executive Officer, and the Office of Homeland Security Commander. He holds a Master of Arts in Security Studies from the Center for Homeland Defense & Security at the Naval Postgraduate School and a Master of Public Administration from Arkansas State University. Chief Phillips also holds the Chief Fire Officer designation through the Center for Public Safety Excellence and is a graduate of the IAFC Fire Service Executive Development Institute.

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