A framework for analyzing emergency management with an application to federal budgeting

Emergency management is a complex policy subsystem that involves an intergovernmental, multiphased effort to mitigate, prepare for, respond to, and recover from disasters. This article develops a framework for analyzing the fiscal and functional aspects of disaster policy. It uses established theories of intergovernmental relations to offer a rationale for examining the capabilities required to implement disaster policy and the behavioral incentives that drive policy formulation. In particular, the article identifies the extent to which the capabilities and political objectives characteristic of each level of government are aligned, and illustrates the interplay between incentives and competencies by reviewing the federal disaster funding process. The current rules for federal budgeting may inappropriately promote spending on disaster response and recovery, while de-emphasizing mitigation and preparedness. Various proposals for reform could establish more coherent incentives, making disaster spending more consistent with the relative functional capabilities of the various levels of government.