1 Emergency Management: The American Experience Claire B. Rubin, Editor Claire B. Rubin & Associates, Arlington VA Public Entity Risk Institute

If we do not understand history, We are destined to repeat it.

3 Why This Book? History of emergency management--in the US is:  Complex  Often tragic  Always fascinating! The U.S. has always experienced disasters, but has not always had a public sector capability in emergency management.

4 Why 105 Years? A “century look” would have been tidier, but we covered First five years of the 21 st Century were highly dramatic in terms of disasters:  9/11: worst terrorism event in the U.S.  Hurricane Katrina/Rita/Wilma: largest impact and most costly natural disasters to date.

5 What Questions Does the Book Address? Why did the federal government get involved in emergency management? Why and how has the role of the federal government changed? What role should the federal government have in major disasters and catastrophes?

6 Research Approach Convened Expert Advisory Committee:  Helped guide the process  Participated in two focus group sessions  Carried out full review of draft Selected the author(s) for each chapter based on their extensive disaster research experience. Identified major “focusing” disaster events. Emphasized response and recovery processes. Identified changes in law, policies, response systems, and organizations.

7 Scope of the Study Focuses on response and recovery experiences and organizations. Highlights gradual public sector involvement. Disasters are discussed through case studies to illuminate:  Changes in public policies and public administration  Organizations formed in response to disasters Implications of changes made over time, for emergency management today, and in the future.

8 Types of Disaster Events Studied Natural  Floods, earthquakes, pandemic, hurricanes, storms, and the dust bowl Man-Made/Accidental  Urban fires, explosions, hazardous materials releases, oil spills Man-Made/Deliberate  Sabotage, terrorism.

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

10 Consequences of Focusing Events A few of the focusing events led to gradual changes at the national level including an increasing involvement by the federal government. More typically, polices, legislation, programs, systems, and organizations have been developed quickly in reaction to one or more focusing events.

11 Findings and Observations 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. No expectation of federal disaster assistance, to individuals and families, or for public infrastructure.  Disasters were dealt with locally, mostly. But, several large- scale events raised awareness of extensive, long-lasting devastation to victims, communities.

12 Findings and Observations From :  In early 1900s, some major disasters affected large areas and sizeable urban populations: Galveston and San Francisco  In first half of 1900s, limited attention given to developing local “formalized” government response systems.  Exceptions:  Quake: CA State and cities took steps regarding its earthquake threat;  Floods: Some major flood control projects in LA,MS OH; TVA (1933)  Federal government only marginally involved, but  It did charter the American National Red Cross (1905) to provide humanitarian assistance. (This was the one national organization that was in place for 100 years.)

13 Findings and Observations From , 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)

14 Findings and Observations From :  Sharp growth 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. (Waugh, 2000)

15 Findings and Observations The 21 st Century:  In first five years, largest man-made and natural disasters in United States history—9/11 and Hurricane Katrina.  Response and recovery for the two sets of events varied greatly. Attitudes about EM and emergency managers changed drastically.[+/-]  Many expectations for assistance during both response and recovery were not met.  Many issues are still unresolved. Nationally, both legislative and executive branches are still weighing changes

16 Observation: Evolving Role of Government The 20 th Century: 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. The 21 st Century: Government at all levels is heavily involved  Response, recovery, mitigation, and preparedness are incorporated into “Comprehensive Emergency Management” and EM becomes a quintessential government service.  Increasing but limited emphasis on mitigation and prevention.

17 Observation: Evolving Role of Government “A funny thing happened on the Way to the disaster---emergency and disaster response became an inherently federal responsibility.” George Foresman, former Undersecretary for Preparedness; DHS; May 21, 2007; Heritage Foundation seminar.

18 Emergency Management: The American Experience Claire B. Rubin, Editor Claire B. Rubin & Associates, Arlington VA Public Entity Risk Institute

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20 Table of Contents 1.Introduction to a Century of Disaster Response and Emergency Management: From Galveston to New Orleans 2. Focusing Events in the Early Twentieth Century 3. The Expanding Role of the Federal Government: The Formative Years: Federal Emergency Management Comes of Age: Emergency Management Restructured: Intended and Unintended Outcomes of Actions taken Since 9/ Events and Outcomes: Hurricane Katrina and Beyond 8.From a Painful Past to an Uncertain Future

21 Unique Aspects of This Book Uses primary material including rare and obscure sources rather than synthesizing secondary sources. Provides extensive bibliography of these sources. Developed by experienced disaster researchers and subject matter experts. Is “analytic” in nature and neutral in presentation. One-of-a-kind—no other book addresses a century+ of emergency management. Final Chapter looks at emergency management within a “Public Administration” context.

22 Emergency Management and the Classic Pinball Machine The path of federal EM response has been 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!

23 Additional Slides

24 Additional Slides