Emergency Management: The American Experience, _____________________ Claire B. Rubin & Associates, Arlington, VA

2 Introduction  Emergency Management (EM): application of “science, technology, planning and management to deal with extreme events that can injure or kill large numbers of people, do extensive damage to property, and disrupt community life.”  Emergency manager: prevents deaths, injuries, property loss, and social disruption during emergencies, disasters, or catastrophes.  Essential component of Homeland Security. More prominent in the past five years, because of 9/11 attacks and 2005 hurricanes.  History of disaster and EM in the United States – complex, often tragic, and always fascinating.  EM policies, legislation, programs, systems and organizations have been developed in reaction to major focusing events.  The sequence of events and outcomes are documented in the new book.

3 The American Experience:  First book to examine a century of U.S. disaster experience.  Builds on Time Line charts which graphically display events and outcomes for recent decades.  Focuses on response experience and organizations, highlights gradual public sector involvement.  Provides case examples and in-depth analysis of public policy and public administration for more than a century.

4 Why 105 Years?  A “century look” would have been “tidier, ” but--  First five years of 21 st Century were highly dramatic in terms of disasters: 9/11--worst terrorism event in U.S., Hurricane Katrina—largest impact and most costly natural disaster to date. Research is focused on EM, noting especially the gradual involvement of the public sector:  Investigations,  Studies, and  Public demand for change.

5 Research Approach  Convened an Expert Advisory Committee (20) who helped guide the effort.  Assembled a research and writing staff of 9 authors with extensive disaster research experience.  Identified major “focusing” disaster events.  Analysis emphasized response and recovery processes, organizations, and outcomes within the context of public policy and public administration.

6 Research Approach, cont’d  Three underlying research questions: Why did the federal government get involved in emergency management? Why and how has that role changed? What should the role of the federal government be for minor, major, and catastrophic disasters in the U.S

7 Selected Focusing Events To Study  Natural: floods, earthquakes, pandemics, hurricanes, storms, and the dust bowl.  Man Made – Technological/Accidental: fires, explosions, hazardous materials releases, oil spills.  Man Made-Technological/Deliberate: sabotage and terrorism.

8 Natural Disasters:  Floods, earthquakes, pandemics, hurricanes, storms, and the dust bowl: Galveston Hurricane (1900) San Francisco Earthquake and Fires (1906) Dust Bowl (1930s) Great MS Flood (1927) Alaska Earthquake (1964)

9 Man-Made Tech. Disasters/Accidental  Fires, explosions, hazardous materials releases, oil spills: Texas City Explosion (1947) Three Mile Island nuclear accident (1979) Exxon Valdez (1987)

10 Man-Made Tech Disasters/ Deliberate  Sabotage and terrorism :. Bombings: WTC in OK City (1995). Terrorist Attacks (9/11/01)

11 Characteristics of Focusing Events  Large Magnitude.  Unique Threat Agent.  High Visibility.  Unusual Location.  High Impact.  Surprise.  Received a Disaster Declaration (or eligible for one).

12 Historical Overview  During 19 th and early 20 th Centuries: Natural disasters viewed as “acts of God.” Response and recovery was done by the victims, helped by family, community, church, and sometimes local civic organizations Government only marginally involved. Disasters were dealt with locally, mostly. But, Several large-scale events raised awareness of potential devastation to victims, communities.

: Several large-scale disasters affecting large populations: Galveston and San Francisco Some attention given to developing local “formalized” response systems. Exceptions: ‘Quake: CA State and cities took steps re its earthquake threat; Floods: Some major flood control projects in LA,MS OH Federal government was only marginally involved; but it did charter the American National Red Cross (1905)

continued… Response to disasters viewed as a moral and ethical responsibility of neighbors, religious groups, and the civic community. Gradually, local and state governments became increasingly involved (re health and safety of citizens). Federal government’s role was limited to post-disaster assistance. Only supplemented local and state efforts. Beginnings of scientific knowledge that could be applied to minimize effects. (Seismic safety, weather science)

: Sharp rise in scientific knowledge (technical, social, behavioral sciences). Federal government became more involved in response and recovery from major disasters. State/local governments and citizens rapidly increased their expectations of the federal role. EM began to be regarded as the “quintessential” public service at all levels of government by citizens.

16 The 21 st Century: The 21 st Century : Largest man-made and natural disasters in United States history—9/11 and Hurricane Katrina. Response and recovery varied greatly between the two disasters. Attitudes about EM and managers changed drastically. Many expectations for assistance during recovery and response were not met. Many issues are still unresolved.

17 Evolving Role of Government  1900: Government at all levels had a marginal role in EM Response and recovery was conducted by disaster victims, their neighbors, religious groups, and civic communities. Little or no emphasis on mitigation, prevention, or preparedness.  2000: Government at all levels was heavily involved. Response, recovery, mitigation, and preparedness are incorporated into “Emergency Management” and EM becomes a quintessential government service. Increasing, but limited emphasis on mitigation and prevention.

18 The path of EM history is like that of the ball in a classic pinball machine.  Sometimes the ball goes straight ahead and reaches its desired destination with little or no interference;  More often the ball bounces from side to side as it ricochets from post to post;  Sometimes it hits a big obstacle and comes right back to the starting place. In all cases, the player spends lots of time and money trying to get a clear shot to the winning outcome!

19 Observations  “From a Painful Past to an Uncertain Future” Emergency Management in the Age of Terrorism The “Stream” of Policy Making Disasters Are Political Events The Presidential Conundrum The Network Context Political Accountability vs. Professionalism Civilian vs. Military Control Management of Knowledge

20 Emergency Management: The American Experience, Claire B. Rubin, Editor To be published by the Public Entity Risk Institute ( in March For details regarding Table of Contents, authors, and ordering information, go to

21 Value of History