PPA 503 – The Public Policy Making Process Lecture 4b – Emergency Management and Problem Definition

Introduction  Problem definition is about more than finding someone to blame.  Competing definitions can vary by perceived social significance, meanings, implications, and urgency.  Problem definitions reflect the social construction of reality.  A problem is a problem because people say that it is.

Emergency Management  Disasters are calamitous natural or human-caused emergency events that suddenly result in extensive negative economic and social consequences for the populations they affect.  While disasters vary in scale, all threaten the general welfare of some populace; thus, government intervention to minimize the negative consequences of disaster is warranted and expected.

Emergency Management  In the United States, government involvement in emergency management has evolved through time into a complex policy subsystem.  Implementation of disaster policy is the province of a public administrative function known as emergency management.

Emergency Management  Emergency management is a multidimensional effort to reduce the threat of occurrence and the magnitude of disasters and to prepare for, respond to, and recover from those that do occur.  Emergency management presents a formidable challenge to public administration because disasters, by definition, exceed the administrative and resource capabilities of the affected political jurisdiction prompting assistance from higher levels of government.

The Nature of Disasters and Disaster Management  The paramount goal of disaster management is to moderate the degree to which a community’s condition is worsened by a disaster.  Governments take many actions to support that goal, both pre-disaster (to forestall potential damage) and post-disaster (to correct actual damage).

The Nature of Disasters and Disaster Management  The effort to take action is hampered by three characteristics of disasters: Disasters are large-scale, rapid-onset incidents relative to the size and resources of the affected jurisdiction.Disasters are large-scale, rapid-onset incidents relative to the size and resources of the affected jurisdiction. Disasters are uncertain with respect to both their occurrence and their outcome.Disasters are uncertain with respect to both their occurrence and their outcome. Disasters occur relatively infrequently.Disasters occur relatively infrequently.

The Nature of Disasters and Disaster Management  In short, disaster policy fails Mazmanian and Sabatier’s tests for successful policy implementation: Disasters are relatively intractable problems that cannot easily be addressed by statutes that assign necessary resources and clarify lines of responsibility and that are subject to powerful nonstatutory variables such as level of public support, available administrative and leadership skills, and reigning socioeconomic conditions.Disasters are relatively intractable problems that cannot easily be addressed by statutes that assign necessary resources and clarify lines of responsibility and that are subject to powerful nonstatutory variables such as level of public support, available administrative and leadership skills, and reigning socioeconomic conditions.

The Nature of Disasters and Disaster Management  The scale, uncertainty, dynamism, and infrequency of disasters constitute the preconditions for intergovernmental intervention.  Modern disaster response falls under four major categories: mitigation, preparedness, response, and recovery (National Governor’s Association 1979). The model known as comprehensive emergency management.

The Nature of Disasters and Disaster Management  Mitigation – activities undertaken in the long term, before disaster strikes, that are designed to prevent emergencies and reduce the damage that results from those that occur, including modifying the causes of hazards, reducing vulnerability to risk, and diffusing potential losses.

The Nature of Disasters and Disaster Management  Preparedness – activities undertaken in the shorter term, before disaster strikes, that enhance the readiness of organizations and communities to respond to disasters effectively.

The Nature of Disasters and Disaster Management  Response – activities undertaken immediately following a disaster to provide emergency assistance to victims and remove further threats.

The Nature of Disasters and Disaster Management  Recovery – short- and long-term activities undertaken after a disaster that are designed to return the people and property in an affected community to at least their pre- disaster condition of well-being.

Problem Definition and Emergency Management  Causality. Although human-caused disasters have received increasing attention, natural disasters still dominate problem definition. Often expressed as “acts of God.”Although human-caused disasters have received increasing attention, natural disasters still dominate problem definition. Often expressed as “acts of God.” Increasingly, analysts have focused on the social construction of natural disaster, i.e., the human causes.Increasingly, analysts have focused on the social construction of natural disaster, i.e., the human causes.

Problem Definition and Emergency Management  Severity. One critical element driving problem definition in emergency management is severity.One critical element driving problem definition in emergency management is severity. Emergency management has developed a range of instruments to measure severity.Emergency management has developed a range of instruments to measure severity.  Saffir-Simpson Hurricane Scale.  Fujita Scale of Tornado Intensity.  Moment Magnitude Scale.  Volcanic Explosivity Index.  Flood stage.  Palmer Drought Severity Index. All of these indexes create enormous pressure for government action.All of these indexes create enormous pressure for government action.

Problem Definition and Emergency Management  Incidence. In contrast to severity, the incidence (frequency) of disaster tends to reduce or minimize government response.In contrast to severity, the incidence (frequency) of disaster tends to reduce or minimize government response. At the national level, the incidence of natural and human-caused disasters is high.At the national level, the incidence of natural and human-caused disasters is high. At the local level, disasters are infrequent, prompting jurisdictions to limit mitigation and preparedness.At the local level, disasters are infrequent, prompting jurisdictions to limit mitigation and preparedness.

Problem Definition and Emergency Management  Novelty. Unexpected disasters can increase the likelihood that a disaster becomes a public problem.Unexpected disasters can increase the likelihood that a disaster becomes a public problem. On the other hand, many disasters are uncommon, but expected occurrences, in particular areas (earthquakes in California, tornadoes in the Midwest, hurricanes in the Gulf Coast), suggesting that routine planning is an important component.On the other hand, many disasters are uncommon, but expected occurrences, in particular areas (earthquakes in California, tornadoes in the Midwest, hurricanes in the Gulf Coast), suggesting that routine planning is an important component.

Problem Definition and Emergency Management  Proximity. Disaster proximity clearly influences problem definition.Disaster proximity clearly influences problem definition.  Crisis. Disasters often meet the standard political definition of crisis, providing political opportunities for symbolic and practical leadership.Disasters often meet the standard political definition of crisis, providing political opportunities for symbolic and practical leadership.

Problem Definition and Emergency Management  Problem populations. Disasters are usually not burdened with public perception of problem populations.Disasters are usually not burdened with public perception of problem populations. Most victims of disaster are assumed to be blameless.Most victims of disaster are assumed to be blameless. The opportunity for blame is present, however.The opportunity for blame is present, however.

Problem Definition and Emergency Management  Instrumental versus Expressive Orientations. Should the problem be expressed in terms of the ends of relief or the means of government expenditures?Should the problem be expressed in terms of the ends of relief or the means of government expenditures?  Solutions. Disaster solution consensus.Disaster solution consensus. Disaster solution availability.Disaster solution availability. Disaster solution acceptability.Disaster solution acceptability. Disaster solution affordability.Disaster solution affordability.