A research agenda to explore the emergency operations center

Authors

  • Paolo Cavaliere, PhD
  • Zachary Cox, MA
  • James Kendra, PhD
  • Aimee Mankins, BA
  • Michael Michaud, MEd
  • Farah Nibbs, MA, MPS
  • Vasko Popovski, MA
  • Michelle Woody, BA

DOI:

https://doi.org/10.5055/jem.2020.0499

Keywords:

emergency operations center, research agenda, fragmentation, sensemaking, meaning making, decision making, space making, placemaking

Abstract

Objective: The emergency operations center (EOC) is an essential component of modern emergency management. Traditionally understood as a place where officials communicate with the public, support coordination, manage operations, craft policy, gather information, and host visitors; there has been little recent research on their structure, operations, or work procedures. EOCs may in fact be, as we argue here, places where emergency managers come to find workarounds, delegate tasks, and find new sources of expertise in order to make sense, make meaning, and make decisions. However, despite their status as a symbol of emergency management and recipients of large amounts of funding, there has been relatively little scientific research into the EOC. With this paper, we synthesize the existing research and propose a variety of research questions to accelerate the process of inquiry into the EOC.

Design: Informed by an extensive literature review, this article presents a comprehensive look at the existing state of knowledge surrounding EOCs.

Interventions: Research questions to support investigation of the EOC are suggested.

Conclusions: The EOC is an underexplored setting ripe for development and discovery by researchers and emergency managers seeking to influence the field of emergency management.

Author Biographies

Paolo Cavaliere, PhD

Disaster Research Center, University of Delaware, Newark, Deleware

Zachary Cox, MA

Disaster Research Center, University of Delaware, Newark, Deleware

James Kendra, PhD

Disaster Research Center, University of Delaware, Newark, Deleware

Aimee Mankins, BA

Disaster Research Center, University of Delaware, Newark, Deleware

Michael Michaud, MEd

Disaster Research Center, University of Delaware, Newark, Deleware

Farah Nibbs, MA, MPS

Disaster Research Center, University of Delaware, Newark, Deleware

Vasko Popovski, MA

Institute of Defence, Security and Peace, St Cyril and Methodius University, Skopje, Macedonia

Michelle Woody, BA

Disaster Research Center, University of Delaware, Newark, Deleware

References

Neal D: Design characteristics of emergency operating centers: What we know and don’t know. J Emerg Manage. 2005; 1(2): 35-38.

Perry RW: Managing disaster response operations. In: Drabek TE, Hoetmer G (eds.): Emergency Management: Principles and Practice for Local Government. Washington DC: International City Management Association; 1991.

Federal Emergency Management Agency: EOC management and operations. Available at https://training.fema.gov/is/courseoverview.aspx?code=IS-775. Accessed June 4, 2019.

Quarantelli E: Working paper #43: Problems and difficulties in the local use of EOCs in natural disasters. Columbus, Ohio: The Disaster Research Center, Ohio State University.

Perry RW: The structure and function of community emergency operations centers. Disaster Prev Manage: Int J. 1995; 4(5): 37-41.

Kendra JM, Wachtendorf T: Elements of resilience after the world trade center disaster: Reconstituting New York City’s emergency operations center. Disasters. 2003; 27(1): 37-53.

Scanlon TJ: Helping the other victims of September 11: Gander uses multiple EOCs to deal with 38 diverted flights. Int J Mass Emerg Disasters. 2002; 20(3): 369-398.

Majchrzak A, Jarvenpa SL, Hollingshead AB: Coordinating expertise among emergent groups responding to disasters. Organ Sci. 2007; 18(1): 147-161.

Drabek TE, McEntire DA: Emergent phenomena and the sociology of disaster: lessons, trends and opportunities from the research literature. Disaster Prev Manage: Int J. 2003; 12(20): 97-112.

Quarantelli E: Working paper #206: Emergent behaviors and groups in the crisis time periods of disasters. Newark, Delaware: The Disaster Research Center, University of Delaware.

Kendra JM, Wachtendorf T: American Dunkirk: The Waterborne evacuation of Manhattan on 9/11. Philadelphia, Pennsylvania: Temple University Press; 2016.

Smith WR, Robertson BW, Murthy D, et al.: Social media in citizen led-disaster response: Resuer roles, coordination challenges, and untapped potential. Proceedings of the 15th ISCRAM Conference. Rochester, NY, 2018.

Wolbers J, Boersma K, Groenewegen P: Introducing a fragmentation perspective on coordination in crisis management. Organ Stud. 2017; 39(11): 1521-1546.

Stern, E: Preparing: The sixth task of leadership. J Leadership Stud. 2017; 7(3): 51-56.

Kornberger, M, Leixnering, S, Meyer, R: The logic of tact: How decisions happen in situations of crisis. Organ Stud. 2018; 1(28): 239.

Robert T: Stafford Disaster Relief and Emergency Assistance Act, 42 U.S.C., Sec. 51221, et seq., as amended by the Disaster Mitigation Act of 2000, Pub L. No. 106-390, 114 Stat. 1552 (2000).

Implementing Recommendations of the 9/11 Commission Act of 2007, 6 U.S.C., Chap 1, Sec et seq.

Department of Homeland Security: Grant programs directorate information bulletin No. 290, 2008. Available at https://www.fema.gov/media-library-data/20130726-1821-25045-7551/ib_290.pdf. Accessed June 4, 2019.

Department of Homeland Security: FY 2009 Emergency operations center guidance and application kit. Available at https://www.fema.gov/media-library-data/20130726-1822-25045-2163/fy_2009_eoc_grant_program_guidance_final.pdf. Accessed June 4, 2019.

Department of Homeland Security: FY 2010 Emergency Operations Center Grant Program. 2010. Available at https://www.fema.gov/media-library-data/20130726-1750-25045-0773/fy_2010_eoc_guidance_final.pdf. Accessed June 4, 2019.

Department of Homeland Security: FY 2011 Emergency management performance grant program: Guidance and application kit section I—application and review information. Available at https://www.fema.gov/pdf/government/grant/2011/fy11_empg_kit.pdf. Accessed June 4, 2019.

Department of Homeland Security: FY 2012 Emergency management performance grants program funding opportunity announcement. Available at https://www.fema.gov/media-librarydata/949c523469d774f8293872553158119b/FY_2012_EMPG_Program_FOA_07292013_Final.pdf. Accessed June 4, 2019.

Department of Homeland Security: FY 2013 Emergency management performance grants program (EMPG) program funding opportunity announcement. Available at https://www.fema.gov/media-library-data/20130726-1916-25045-8793/fy13_empg_foa_final.pdf. Accessed June 4, 2019.

Department of Homeland Security: FY 2014 Emergency management performance grant funding program announcement. Available at https://www.fema.gov/media-library-data/1398433298042-f8d5c17604fdb97c5ef5b49419a7cf01/FY2014_EMPG_FOA_Revised_508.pdf. Accessed June 4, 2019.

Department of Homeland Security: FY 2015 Emergency management performance grant program notice of funding announcement. Available at https://www.fema.gov/media-librarydata/1427284768817-b62b93d48b12617f423c0e8fbfde562b/FY2015EMPG_NOFO.pdf. Accessed June 4, 2019.

Department of Homeland Security: Notice of funding fiscal year 2016 emergency management performance grant program (EMPG). Available at https://www.fema.gov/media-librarydata/1455571902574-a84f5a1b2f450795a70cce1f5ee7b967/FY_2016_EMPG_NOFO_FINAL.pdf. Accessed June 4, 2019.

Department of Homeland Security: FY 2017 emergency management performance grant (EMPG). Available at https://www.fema.gov/media-library-data/1496322792825-14e183f5162625ef399f7b09aa0630ff/FY_2017_EMPG_NOFO_Final508.pdf. Accessed June 4, 2019.

Department of Homeland Security: Notice of funding opportunity: Fiscal year 2018 emergency management performance grant (EMPG). Available at https://www.fema.gov/media-librarydata/1526578379064-1a52c022786d147e1509a186a2764889/FY_2018_EMPG_REGULAR_NOFO_5_11_2018_FINAL_508.pdf. Accessed June 4, 2019.

Federal Emergency Management Agency: Preparedness grants manual. 2019. Available at https://www.fema.gov/media-librarydata/1555010612902-389f8b3351d06d759b01df2a8a851284/FEMA_PreparednessGrantsManual_Final_508.pdf. Accessed June 25, 2019.

Federal Emergency Management Agency: Preparedness grants manual. Available at https://www.fema.gov/media-library-data/1555010612902-389f8b3351d06d759b01df2a8a851284/FEMA_PreparednessGrantsManual_Final_508.pdf. Accessed June 25, 2019.

The Rehabilitation Act, 29 U.S.C., Sec. 701, et seq. 1973.

The Hotel and Motel Fire Safety Act, 15 U.S.C. Chap 49, Sec. 2201 et seq, an amendment of the Federal Fire Prevention and Control Act of 1974. 1990.

Federal Emergency Management Agency (2015): Emergency Operations Center Assessment Checklist. Available at https://www.fema.gov/emergency-operations-center-assessment-checklist#. Accessed June 5, 2019.

Neal D: A comparative analysis of emergency group behavior in disaster: a look at the United States and Sweden. PhD dissertation, Columbus, Ohio: Department of Sociology, Ohio State University; 1985.

Lutz L, Lindell M: Incident command system as a response model within emergency operation centers during Hurricane Rita. J Contingencies Crisis Manage. 2008; 16(3): 124.

Daniels S: Revitalizing emergency management after Katrina. Public Manager. 2007; 36(3): 16-20.

Federal Emergency Management Agency: National Incident Management System: Emergency Operations Center Skillsets User Guide. Available at https://www.fema.gov/media-library-data/1537787069093-33f58df52a992c566c62959208fcdd96/EOC_Skillset_Guide_20180918_FINAL.pdf. Accessed June 18, 2019.

OCI Engineering: Palm Beach Gardens emergency operations center. Available at http://ociassociates.com/projects/881/. Accessed June 4, 2019.

Drabek TE: The evolution of emergency management. Emerg Manage. 1991; 3(29).

Boyer EF, Cohen WJ: Federal civil defense act of 1950: Summary and legislative history. Soc. Sec. Bull. 1951; 14(11): 14.

Department of Urban Studies, American Municipal Association: Organizing Municipal Governments for Civil Defence. Washington, DC: American Municipal Association.

Petty MD, Slepow MP, Horsely M: Plowshares: An emergency management training simulation. Simulation. 1996; 66(6): 357-373.

Louka, MN, Balducelli, C: Virtual reality tools for emergency operation support and training. Proceedings of TIEMS (The International Emergency Management Society). 2001.

Davis, SC: Virtual emergency operations centers. Risk Management. 2002; 49(7): 46-52.

Chan E, Anslow C, Seved T, et al.: Envisioning the emergency operations center of the future. In: Anslow C, Campos P, Jorge J (eds.): Collaboration Meets Interactive Spaces. New York: Springer, 2016, pp. 349-372.

Muhren WJ, Van Den Ede GM, Van de Walle BL: Making sense of media synchronicity in humanitarian cases. IEEE Transactions on Professional Communications. 2009; 52(4): 377-397.

Howe J: The rise of crowdsourcing. Available at www.wired.com/2006/06/crowds. Accessed May 13, 2019.

Murphy RR: Emergency informatics: Using computing to improve disaster management. Computer. 2016; 49(5): 19-27.

Cooper R, Zmud R: Information technology implementation research: A technological diffusion approach. Manage Sci. 1990; 36(2): 123-139.

Johnson KA, Rosin K: Global virtual teams and how to manage them. 2011 International Conference on Computer and Management (CAMAN). 2011: 1-4.

Gallup: State of the American Workplace. Available at https://news.gallup.com/reports/199961/7.aspx. Accessed August 16, 2019.

Knowles MS: The modern practice of adult education: From andragogy to pedagogy. New York: Follett, 1980.

Knowles MS, Holton EF, Swantson RA (eds.): The Adult Learner. Houstan, Texas: Gulf, 1998.

Simonsen E: A comparison of human factors evaluation approaches for nuclear power plant control room assessment and their relation to levels of design decision specificity. Nordic Ergonomic Society 2017 “Joy of Work” Conference Proceedings. 2017: 405-114.

Kim H: Learning from UK disaster exercises: policy implications for effective emergency preparedness. Disasters. 2004; 38(4): 846-857.

UNOCHA: United Nations disaster assessment and coordination—UNDAC Field Handbook. Available at https://www.unocha.org/sites/unocha/files/1823826E_web_pages.pdf. Accessed June 28, 2019.

ASTM: Standard guide for emergency operations center (EOC) development (Withdrawn 2019). Available at https://compass.astm.org/Standards/WITHDRAWN/E2668.htm. Accessed November 19, 2019.

U.S. Army Corps of Engineers: Unified facilities criteria: emergency operations center planning and design. Available at https://www.wbdg.org/FFC/DOD/UFC/ufc_4_141_04_2008_c1.pdf. Accessed November 19, 2019.

Staples DS, Zhao L: The effects of cultural diversity in virtual teams versus face-to-face teams. Group Decision Negotiation. 2006; 15(4), 389-406.

Springer G: Emergency managers as change agents. In: Hubbard JH (ed.): Public Entity Risk Institute. Fairfax, Virginia: Public Entity Risk Institute; 2009.

World Bank: Sharing Japanese expertise in emergency preparedness and response systems in regional and local levels. Available at http://www.worldbank.org/en/news/feature/2017/10/12/sharingjapanese-expertise-in-emergency-preparedness-and-response-systems-at-national-and-local-levels. Accessed May 20, 2019.

Elron E, Shamir B, Ben-Ari, E: Why don’t they fight each other. Cultural diversity and operational unity in multinational forces. Armed Forces Society. 1999; 26(1): 73-98.

Banks S, Armstrong A, Carter K, et al.: Everyday ethics in community- based participatory research. Contemporary Soc Sci. 2013; 8(3): 263-277.

Van Niekerk D, Nemakonde D, Kruger L, et al.: Community based disaster management. In: Rodriguez H, Donner, W and Trainor J (eds.): Handbook of Disaster Research 2nd Edition: New York: Springer Publishing, 2018.

Trainor J, Stern E, Subbio T: On bridging research and practice in disaster science and management: unified system or impossible mission. In Rodriguez H, Donner W, Trainor J (eds.): Handbook of Disaster Research 2nd Edition. New York; Springer Publishing, 2018.

Published

11/01/2020

How to Cite

Cavaliere, PhD, P., Z. Cox, MA, J. Kendra, PhD, A. Mankins, BA, M. Michaud, MEd, F. Nibbs, MA, MPS, V. Popovski, MA, and M. Woody, BA. “A Research Agenda to Explore the Emergency Operations Center”. Journal of Emergency Management, vol. 18, no. 6, Nov. 2020, pp. 525-34, doi:10.5055/jem.2020.0499.