FOUR PHASES OF EMERGENCY MANAGEMENT 1
Four Phases of Emergency Management
Eia Richardson
Helms, School of Government Emergency Management
FOUR PHASES OF EMERGENCY MANAGEMENT 2
Abstract
Emergency management plays a pivotal role when it comes to handling disaster in
America. There are four phases in emergency management. Three of those are mitigation,
preparedness and recovery. Every phase has their own set of responsibilities and goals to help
reduce loss of life and property. By effectively doing their part, it can help manage if disaster
strikes.
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Four Phases of Emergency Management
Emergency Management in the U.S is highly decentralized and contextual in nature and
refers to activities related with avoiding and responding to natural and human-caused hazards
(Lindsay, 2012). The federal government plays an important role in emergency management
because the states ask for assistance when they are in need during a disaster (Lindsay, 2012). An
emergency management program examines possible emergencies and disasters based on the risk
posed by the likely hazard (FEMA). The emergency management department also has the task of
developing and implementing programs that are aimed toward reducing the impact of these
events on the community and help prepare for the risk that cannot be eliminated (FEMA).
Mitigation, preparedness, and recovery are three of the four primary phases of emergency
management. Each phase plays a special role and is assigned specific duties to help reduce the
loss of life and property and to protect the nation from all hazards.
Mitigation
Mitigation is the first phase of emergency management, and if done correctly, has the
ability to prevent illness, injury, death and help limit the loss of property (Gouglet, 2006).
Mitigation can be defined as sustained action that is taken to reduce or eliminate risk to people
and property from hazards and their effects (Bullock et al., 2013). The strategies of mitigation
can range from just focusing exclusively on “hardening” to focusing more on resiliency
(Gouglet, 2006). Mitigation activities can address either risk or consequence and mitigating
either one of these components can lessen the risk of a threat (Bullock et al., 2013). The national
emergency management system is built around an all-hazards approach so that they are adaptable
to a spectrum of potential disasters (Waugh, 2004). All-hazards does not mean a perfect plan for
every type of disaster, but it means there are adaptable plans that provide the basis for dealing
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with a variety of hazards and disasters including terrorism (Waugh, 2004). When it comes to
man-made disasters, there is more of an opportunity to minimize the probability and the
consequences of potential incidents (Bullock et al., 2013).
In order to create an all-hazard plan first a risk assessment needs to be done. Risk
constitutes what may happen or what is likely to happen given a certain set of circumstances
(Nemeth, 2018). Some risks are more preventable than others are and are less serious than others
are as well (Nemeth, 2018). The Department of Homeland Security defines risk by three
principle variables, which are threat, vulnerability and consequence (Nemeth, 2018). There are
also three questions that should be asked in reference to determining risk which are what can
happen? How likely is it? What are the consequences (Bullock et al., 2013)? The other
component of the risk assessment is a detailed examination of the total unwanted impact of the
disaster to the community, government, or the interested stakeholders (Bullock et al., 2013).
Mitigation programs have proved to demonstrate cost reductions following disasters due to
earlier mitigation investments (Nemeth, 2018).
Mitigation strategies have been put in place to help reduce the risk and damage.
Prevention activism may include heightened inspections, improving surveillance and security
operations, public health and agricultural surveillance and testing, immunizations, isolations or
quarantine, and a host of other methods (Bullock et al., 2013). When it comes to DHS and the
prevention activities to deter terrorism, prevention actions can include law enforcement activities
and protective activities (Bullock et al., 2013). This can include but is not limited to collecting,
analyzing, and applying intelligence and other information; conducting investigations to
determine the full nature and source of the threat; and implementing countermeasures such as
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surveillance and counterintelligence (Bullock et al., 2013). Mitigation is a very important step
and can help deter a lot of incidents and protect from injuries and loss of property.
Preparedness
Preparedness differs from mitigation because rather than focusing on eliminating or
reducing risks, the general focus of preparedness is to be able to enhance the ability to respond to
incidents (Lindsay, 2012). The National Response Framework (NRF), The National Incident
Management System (NIMS) and Incident Command System (ICS) play important roles in the
preparedness phase. NRF is a framework that is used as a guide for a national, all-hazards
response ranging from small incidents to the largest incidents (Nemeth, 2018). This framework
identifies the keep response principles, roles, and structures that organize national response
(Nemeth, 2018). Communities, states, the federal government, the private sector, and non-
governmental sectors all have to partner, communicate and apply these principles in order for the
national response to be effective. This framework stresses the importance of preparation not only
in the public sectors, but by the individuals and their households as well (Nemeth, 2018). NRF
promotes flexibility and that incidents must be managed at the lowest possible jurisdictional
level; and supported by the additional capabilities at a higher level if needed (Nemeth, 2018).
NIMS is another approach to preparedness and was created to help prevent, prepare for,
respond to and recover from terrorist attacks, major disasters and other emergencies (Nemeth,
2018). NIMS extends to every sector of government and mandates that every agency of
government has to plan and prepare for disaster and must do so internally as well as externally
(Nemeth, 2018). NIMS is also extended to those in the private sector like hospitals, power plants
and chemical industries. Providing a systematic approach, NIMS sets out to guide departments
and agencies on all levels of government on how to prepare for, prevent, respond to, recover
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from, and mitigate the effects of incidents regardless of its size or location in order to reduce loss
of life and property (Nemeth, 2018). NIMS has different components. Compliance as to
standards and practices in incident command and depending on a common command and
managerial structure to identify, respond to, and mitigate risk and harm (Nemeth, 2018). The
NIMS command and management has a home in the Incident Command System.
ICS standardizes response operations by using similar terminology, communication
systems, and organizational structure to eliminate or reduce confusion during a unified response
(Lindsay, 2012). Before the creation of the ICS, when handling disaster, catastrophe, or terror,
there was no type of uniform on how the different agencies would communicate (Nemeth, 2018).
Each incident would be tackled differently depending on the jurisdiction in which it took place
and differences were obvious between personnel and chain of command (Nemeth, 2018). The
fact that the communication between agencies and departments were not effective, there was no
uniformity of practice, and multiagency coordination proved that there needed to be something
put in place and ICS is the answer. ICS promotes a uniform in practice, multiagency coordination
and a common language that everyone will be able to understand (Nemeth, 2018). ICS also
stresses preparedness in every context of homeland protection and involved integration in the
areas of planning, training, exercises, personnel qualification and certification standards and a
host of other areas (Nemeth, 2018).
Recovery
The recovery stage in emergency management is intended to restore essential services
and repair damages cause by the event (Lindsay, 2012). This includeds restoration of government
operations and services, schools, emergency services, housing and services for displaced
individuals and replenishing stockpiles (Lindsay, 2012). The recovery phase is meant to restore
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the critical parts to the community in hopes to get them operating again. Resilience is more than
mitigation practices but vigorous emergency response and effective recovery operations
(McCreight, 2010). Community resilience is the community’s ability to be able to respond and
recover from a disaster and change in response to a crisis through communal actions (Victoria &
Victoria, 2018). The citizens of the community have to understand what resilience is so that they
can reduce the vulnerability to disastrous events (Victoria & Victoria, 2018). Leadership has to
emerge within these communities to help guide the recovery efforts and to express the needs of
the community (Victoria & Victoria, 2018). Anytime disaster strikes, an evaluation of every
phase of the emergency management cycle will be able to help when it comes to determine what
needs adjusting to help prepare for and respond to incidents that may take place in the future.
This can build resiliency within a community because it will evaluate what was not done and can
prep on what operations should be modified. Resilience is not only about the ability of an
organization or community to rebound following a crisis or a disaster event but it is also about
the ability to absorb strain and withstand destructive disasters as well (McCreight, 2010).
Biblical Perspective
Proverbs 22:3 (NLT) states, “A prudent person foresees danger and takes precautions.
The simpleton goes blindly on and suffers the consequences.” This can hold true for the four
primary phases of emergency management. The story of Noah’s ark represents this. Genesis
chapter 6 starts to tell the story of how God instructed Noah that he was going to flood the earth
because so much evil filled the earth. This can be seen as the mitigation stage because God was
not pleased with what he saw on earth and had come to the determination that he was going to
destroy it. God instructed Noah to prepare by building an ark in which he was to bring his wife
and sons and their wives. Then God also instructed in Genesis 6:19 (NLT), “Bring a pair of every
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kind of animal-a male and a female- into the boat with you to keep them alive during the flood.”
Noah prepared for the flood as the lord instructed him. Noah did not wait until the flood came to
start preparing; he started immediately so that he and his family could survive. This is a
representation of the preparedness stage. Often times when it comes to disaster, the reason why
many people suffer injury or loss is because they do not prepare. We must take heed to the
warnings that are given to us in order to properly be able to prepare. Noah and his family stayed
on the boat until they received a sign that it was okay for them to exit. Once they did, God then
told Noah’s sons in Genesis 9:1 (NLT), “Be fruitful and multiply. Fill the earth.” While this may
not seem so compared to what we endure now, this was the recovery stage. God had already sent
the flood to destroy the evil in the earth and after they got off the ark, what God instructed them
to do was to recover the earth by filling it with people. God’s messages and stories in the bible
are always sent to warn and to guide his people and this story is just one of many examples. The
four phases of emergency management are also a guide to prepare for disaster that may be ahead.
Conclusion
The four phases of emergency management are very important and serves as a guide to
protect and limit the loss of life and property during any natural disaster. Each step has their own
set of functions and elements and serves a purpose for that phase. In order to ensure that the
primary phases can deter from property loss and loss of life during disasters, each phase plans
should be review frequently to make sure that it is effective. Preparing citizens for disaster is
important and should not be done as a last resort. The NRF, NIMS, and ICS have to make sure
that they are effectively executing their duties in order to reduce damage and effectively help
local communities that need it. Emergency management is an important part of Homeland
Security and the 4 primary phases can help in times of disaster.
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Gougelet, R. M., & ASSOCIATE EDITORS (2006). Disaster Mitigation. Disaster Medicine,
139–144. https://doi.org/10.1016/B978-0-323-03253-7.50028-5
Holy Bible
Lindsay, B. (2012) Federal Emergency Management: A Brief Introduction (CRS Report No.
R42845). Retrieved from Congressional Research Services website:
https://fas.org/sgp/crs/homesec/R42845.pdf
McCreight, R. (2010). Resilience as a Goal and Standard in Emergency Management. Journal of
Homeland Security and Emergency Management, 7(15), 1-10
Nemeth, C. (2018). Homeland Security: An introduction to Principles and Practice. Boca
Raton: CRC Press, Taylor & Francis Group.
Victoria, M., & Victoria, G. (2018). Disaster recovery towards resilience: Contributions of an
assets-based community development approach. Australian Journal of Emergency
Management, the, 33(1), 55-60.
Waugh, William. (2004). The All-Hazards Approach Must Be Continued. Journal of
Emergency Management, 2(1), 11-12.
