Flexibility A Vital Principle in Emergency Management

The Importance of Proactive Emergency Management Rising disasters can not be reversed without it Rising disasters can not be reversed without it It helps to identify what might occur and how bad it could be It helps to identify what might occur and how bad it could be It helps to identify what needs to be done and by whom It helps to identify what needs to be done and by whom It increases effectiveness and efficiency It increases effectiveness and efficiency

However... It is impossible to eliminate all disasters It is impossible to eliminate all disasters The future promises more and worse events The future promises more and worse events Terrorism remains a threat Terrorism remains a threat People live in dangerous areas due to benefits People live in dangerous areas due to benefits There are no hazard free areas There are no hazard free areas Our best efforts sometimes fail Our best efforts sometimes fail Reversing risk will not be easy Reversing risk will not be easy We lack omniscience We lack omniscience

However... (cont.) It is impossible to eliminate disasters It is impossible to eliminate disasters Citizens are apathetic Citizens are apathetic There are many priorities in societies There are many priorities in societies Identifying correct balance among policy options is difficult Identifying correct balance among policy options is difficult There is a tension between experts and citizen preferences There is a tension between experts and citizen preferences Perceived solutions may exacerbate the disaster problem Perceived solutions may exacerbate the disaster problem

However... (cont.) Disasters unfold in unpredictable and dynamic ways Disasters unfold in unpredictable and dynamic ways Leaders may be killed Leaders may be killed Fire fighters may be victims Fire fighters may be victims Roads and bridges may be damaged Roads and bridges may be damaged Power outages may occur Power outages may occur Medical personnel may be overwhelmed Medical personnel may be overwhelmed The mass media may be unable to broadcast The mass media may be unable to broadcast

However... (cont.) Disaster unfold in unpredictable and dynamic ways Disaster unfold in unpredictable and dynamic ways Supplies will arrive without being requested Supplies will arrive without being requested Altruism of citizens will tap emergency management personnel Altruism of citizens will tap emergency management personnel The number of victims may generate new demands on federal disaster programs The number of victims may generate new demands on federal disaster programs

The Need for Flexibility “Under some circumstances... In dealing with less routine tasks, emergency organizations need to preserve an ability to respond flexibly, and, where necessary, an ability to improvise appropriate counter- measures for the special needs of an unanticipated situation which threatens to become a crisis.” (Turner 1994, 87). “Under some circumstances... In dealing with less routine tasks, emergency organizations need to preserve an ability to respond flexibly, and, where necessary, an ability to improvise appropriate counter- measures for the special needs of an unanticipated situation which threatens to become a crisis.” (Turner 1994, 87).

What is Flexibility? Dictionary.com defines flexibility as “susceptible of modification or adaptation; adaptable.” Dictionary.com defines flexibility as “susceptible of modification or adaptation; adaptable.” Synonyms include: pliable, elastic, supple Synonyms include: pliable, elastic, supple

What is Flexibility? (cont.) Flexibility is an attitude of accepting the need for adjustment. It is related to improvisation, innovation and creativity. Flexibility is an attitude of accepting the need for adjustment. It is related to improvisation, innovation and creativity.

Improvisation “To improvise is to organize for emergency response during an event” (Kreps 1991, 34). “To improvise is to organize for emergency response during an event” (Kreps 1991, 34).

Innovation Innovation refers “to any new and creative program, procedure, or technique that a community implements to meet the demands of their environment” (Kendra and Wachtendorf 2006, 323). Innovation refers “to any new and creative program, procedure, or technique that a community implements to meet the demands of their environment” (Kendra and Wachtendorf 2006, 323).

Creativity Creativity is the development of “new alternatives with elements that achieve fundamental objectives in ways previously unseen” (Kendra and Wachtendorf 2003, 123). Creativity is the development of “new alternatives with elements that achieve fundamental objectives in ways previously unseen” (Kendra and Wachtendorf 2003, 123).

Proactive Planning and Reactive Flexibility Lack of planning increases need for flexibility Lack of planning increases need for flexibility Planning does not prevent flexibility Planning does not prevent flexibility Plans should allow for flexibility Plans should allow for flexibility Planning often improves flexibility Planning often improves flexibility Flexibility should not eclipse planning Flexibility should not eclipse planning Planning and flexibility are required Planning and flexibility are required Both improve emergency management Both improve emergency management

Flexibility in Disasters Disasters generate special, and often unforeseen, problems due to their size, complexity, and dynamic nature Disasters generate special, and often unforeseen, problems due to their size, complexity, and dynamic nature

Inflexibility in Disasters “An inflexible response or an over-reliance on some pre-ordained recipe can increase danger rather than eliminating it. When staff fail to recognize that existing systems are inappropriate or breaking down, or [if they fail] to acknowledge that routines are being adopted are inadequate, a hazardous degree of inflexibility exists” (Turner 1994, 87). “An inflexible response or an over-reliance on some pre-ordained recipe can increase danger rather than eliminating it. When staff fail to recognize that existing systems are inappropriate or breaking down, or [if they fail] to acknowledge that routines are being adopted are inadequate, a hazardous degree of inflexibility exists” (Turner 1994, 87).

A Case in Point The ‘Catastrophe’ of Caporetto during World War I The ‘Catastrophe’ of Caporetto during World War I

A Better Approach “Emergency organizations need to preserve an ability to respond flexibly, and, where necessary, an ability to improvise appropriate counter-measures for the special needs of an unanticipated situation which threatens to become a crisis” (Turner 1994, 87). “Emergency organizations need to preserve an ability to respond flexibly, and, where necessary, an ability to improvise appropriate counter-measures for the special needs of an unanticipated situation which threatens to become a crisis” (Turner 1994, 87).

Examples from 9/11 Shutting down airspace Shutting down airspace Passenger sheltering Passenger sheltering Evacuation of Manhattan Evacuation of Manhattan Emergency response Emergency response Logistical support of USAR teams Logistical support of USAR teams Medical care Medical care Security Security Reconstitution of the EOC Reconstitution of the EOC Resource management Resource management Communications and infrastructure repair Communications and infrastructure repair Recovery of office space Recovery of office space

Major Lesson “The lesson here is that the response to the September 11 th tragedy was so effective because it was not centrally directed and controlled. Indeed, it was flexible, adaptive and focused on handling problems as they emerged” (Tierney in Dynes 2003, 20). “The lesson here is that the response to the September 11 th tragedy was so effective because it was not centrally directed and controlled. Indeed, it was flexible, adaptive and focused on handling problems as they emerged” (Tierney in Dynes 2003, 20).

Flexibility and the Phases of Disaster “The study of innovation [or flexibility] in communities is central to the study of disaster, and innovation in communities is itself central to mitigating hazard, responding to emergencies, and recovering afterward” (Kendra and Wachtendorf 2003, 316). “The study of innovation [or flexibility] in communities is central to the study of disaster, and innovation in communities is itself central to mitigating hazard, responding to emergencies, and recovering afterward” (Kendra and Wachtendorf 2003, 316).

Flexibility and the Phases of Disaster Examples from: Examples from: Mitigation Mitigation Preparedness Preparedness Response Response Recovery Recovery

Assignment Paper on the benefit of flexibility during disasters or the applicability of flexibility in each phase of emergency management Paper on the benefit of flexibility during disasters or the applicability of flexibility in each phase of emergency management