Cited by 940Disaster Management and ResiliencePublic Relations and Crisis CommunicationSafety and Risk Management

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Crisis Management in Hindsight: Cognition, Communication, Coordination, and Control

Comfort, Louise K.·2007·Public Administration Review

DOI 10.1111/j.1540-6210.2007.00827.x

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Abstract

This article argues that cognition is central to performance in emergency management. Cognition is defined as the capacity to recognize the degree of emerging risk to which a community is exposed and to act on that information. Using the case of Hurricane Katrina to illustrate the collapse of the standard model of emergency management without a clear focus on the role of cognition, the author reframes the concept of intergovernmental crisis management as a complex, adaptive system. That is, the system needs to adjust and adapt its performance to fit the demands of an ever‐changing physical, engineered, and social environment. The terms of cognition, communication, coordination, and control are redefined in ways that fit the reality of practice in extreme events. A reframed intergovernmental crisis management system may be conceived as a dynamic interorganizational system that is characterized by four primary decision points: (1) detection of risk, (2) recognition and interpretation of risk for the immediate context, (3) communication of risk to multiple organizations in a wider region, and (4) self‐organization and mobilization of a collective, community response system to reduce risk and respond to danger.

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“Communication becomes a major challenge when size and scope of the disaster increase and heterogeneous organizations from different sectors and cultural backgrounds engage in the aid network (Comfort, 2007).”
BackgroundInfluential
Learning From the Past: Distributed Cognition and Crisis Management Capabilities for Tackling COVID-19
Lee, S., Yeo, J., & Na, C. (2020) · The American Review of Public Administration · doi:10.1177/0275074020942412 · Cited by 61
“Shared experiences and common training based on comprehensive and granular manuals allowed multiple actors from different organizations to share a “common operating picture” (Comfort, 2007).”
Background
Operational Networks: Adaptation to Extreme Events in China
Comfort, L. K., & Zhang, H. (2020) · Risk Analysis · doi:10.1111/risa.13442 · Cited by 60
“Without sustained effort supported by continued information search and exchange, adaptation in collective performance to the emergency may revert to earlier, separate patterns of organizational action in the community after the crisis recedes (Comfort, 2007; Tong, 2008).”
BackgroundSelf-citation
Toward a Science of SustainabilityPreprint
Levin, S. A., & Clark, W. C. (2010) · RePEc: Research Papers in Economics · Cited by 59
Threat assessment, sense making, and critical decision-making in police, military, ambulance, and fire services
Penney, G., Launder, D., Cuthbertson, J. L., & Thompson, M. B. (2022) · Cognition Technology & Work · doi:10.1007/s10111-022-00694-3 · Cited by 73
“This subsequently poses additional challenges for decision-makers (Alison and Crego 2008; Comfort 2007; Flin 1996; House et al. 2013; Pollock 2013; Coskun and Ozceylan 2011).”
Background
The U nited S tates' Experience with the Incident Command System: What We Think We Know and What We Need to Know More About
Jensen, J., & Waugh, W. L. (2014) · Journal of Contingencies and Crisis Management · doi:10.1111/1468-5973.12034 · Cited by 58
A State of Emergency in Crisis Communication an Intercultural Crisis Communication Research Agenda
Diers-Lawson, A. R. (2016) · Journal of Intercultural Communication Research · doi:10.1080/17475759.2016.1262891 · Cited by 57
Collective action during the Covid-19 pandemic: The case of Germany’s fragmented authority
Hattke, F., & Martin, H. (2020) · Administrative Theory & Praxis · doi:10.1080/10841806.2020.1805273 · Cited by 64
Advancing E‐Governance: Comparing Taiwan and the United States
Chen, Y., & Hsieh, J.-Y. (2009) · Public Administration Review · doi:10.1111/j.1540-6210.2009.02103.x · Cited by 57
Not Too Much, Not Too Little: Centralization, Decentralization, and Organizational Change
Altamimi, H., Liu, Q., & Jimenez, B. S. (2022) · Journal of Public Administration Research and Theory · doi:10.1093/jopart/muac016 · Cited by 55
Modelling the inter-relationship between factors affecting coordination in a humanitarian supply chain: a case of Chennai flood relief
John, L., Gurumurthy, A., Soni, G., & Jain, V. (2018) · Annals of Operations Research · doi:10.1007/s10479-018-2963-3 · Cited by 55
“2014), Haitian earthquake (Yates and Paquette 2011), Hurricane Katrina (Comfort 2007), etc.”
A Systematic Review of Empirical Emergency Management Network Research: Formation and Development, Properties, and Performance
Hu, Q., Yeo, J., & Kapucu, N. (2022) · The American Review of Public Administration · doi:10.1177/02750740221077348 · Cited by 53
“Research has stressed building and sustaining relations and trust for better communication and coordination before disasters occur (e.g., Comfort, 2019; Kapucu & Garayev, 2013; Van Wart & Kapucu, 2011).”
Background
Learning effectiveness of discussion-based crisis management exercises
Borell, J., & Eriksson, K. (2013) · International Journal of Disaster Risk Reduction · doi:10.1016/j.ijdrr.2013.05.001 · Cited by 55
Team Leader Structuring for Team Effectiveness and Team Learning in Command-and-Control Teams
van der Haar, S., Koeslag‐Kreunen, M., Euwe, E., & Segers, M. S. R. (2017) · Small Group Research · doi:10.1177/1046496417689897 · Cited by 57
“They determine the required actions at the scene, assign them to the person or discipline responsible, and report on the actions (Comfort, 2007; Helsloot, Martens, & Scholtens, 2010).”
Background
An expected event, but unprecedented damage
Yeo, J., & Comfort, L. K. (2017) · Disaster Prevention and Management An International Journal · doi:10.1108/dpm-02-2017-0048 · Cited by 53
Self-citation
Appropriate Governance Responses to Infectious Disease Threats: Developing Working Hypotheses
Kenis, P., Schol, L. G. C., Kraaij‐Dirkzwager, M., & Timen, A. (2019) · Risk Hazards & Crisis in Public Policy · doi:10.1002/rhc3.12176 · Cited by 53
Ecological Governance: Organizing Principles for an Emerging Era
Robertson, P. J., & Choi, T. (2010) · Public Administration Review · doi:10.1111/j.1540-6210.2010.02250.x · Cited by 56
Exploring complex adaptive networks in the aftermath of the 2008 Wenchuan earthquake in China
Chen, W., Zhang, H., Comfort, L. K., & Tao, Z. (2020) · Safety Science · doi:10.1016/j.ssci.2020.104607 · Cited by 52
Self-citation
Beyond ICS: How Should We Govern Complex Disasters in the United States?
Nowell, B. L., & Steelman, T. A. (2019) · Journal of Homeland Security and Emergency Management · doi:10.1515/jhsem-2018-0067 · Cited by 52
The Use of Crisis Communication Strategies in Emergency Management
Haupt, B. “. (2021) · Journal of Homeland Security and Emergency Management · doi:10.1515/jhsem-2020-0039 · Cited by 51
“Essentially, results indicated effective communication hinges on the ability to learn and assess a community’s needs followed by adaptation and practically applying these lessons (Boin and McConnell 2007; Comfort 2007; Coombs 2014; Cutter et al. 2008; Cutter, Burton, and Emrich 2010; McEntire 2007; Sylves 2014; Waugh…”
BackgroundInfluential
The emergence of an adaptive response network: The April 20, 2013 Lushan, China Earthquake
Zhang, H., Zhang, X., Comfort, L. K., & Chen, M. (2015) · Safety Science · doi:10.1016/j.ssci.2015.11.012 · Cited by 51
Self-citation
An Assessment of Aggregate Focusing Events, Disaster Experience, and Policy Change
Taylor, K. N. (2017) · Risk Hazards & Crisis in Public Policy · doi:10.1002/rhc3.12116 · Cited by 50
Government communication effectiveness on local acceptance of nuclear power: Evidence from China
Guo, Y., & Wei, Y. (2019) · Journal of Cleaner Production · doi:10.1016/j.jclepro.2019.01.243 · Cited by 51
Urban resilience, digital technologies, and the economic recovery of a city from the pandemic
Zou, Y. (2023) · Public Administration Review · doi:10.1111/puar.13678 · Cited by 50
Examining collaborative disaster response in China: network perspectives
Guo, X., & Kapucu, N. (2015) · Natural Hazards · doi:10.1007/s11069-015-1925-1 · Cited by 51
Public perceptions of the response to the Deepwater Horizon oil spill: Personal experiences, information sources, and social context
Safford, T. G., Ulrich‐Schad, J. D., & Hamilton, L. C. (2012) · Journal of Environmental Management · doi:10.1016/j.jenvman.2012.08.022 · Cited by 50
“As high-tech development becomes more and more difficult to comprehend, society relies on governmental agencies and scientific experts to oversee these activities and ensure that they do not threaten human or environmental health (Beck, 1999; Comfort, 2007; Giddens, 1998).”
Background
Literature Review on Medical Incident Command
Rimstad, R., & Braut, G. S. (2015) · Prehospital and Disaster Medicine · doi:10.1017/s1049023x15000035 · Cited by 50
“Comfort criticizes the national ICS for being too rigid and rule-bound, and for not being capable of meeting requirements of flexibility and the ability to change.(5) Dynes goes as far as stating: ‘‘To create an artificial emergencyspecific authority structure is neither possible nor effective.”
Background
International Perspectives on COVID-19 Communication Ecologies: Public Health Agencies’ Online Communication in Italy, Sweden, and the United States
Tagliacozzo, S., Albrecht, F., & Ganapati, N. E. (2021) · American Behavioral Scientist · doi:10.1177/0002764221992832 · Cited by 50
“Focusing on interagency relationships (e.g., Comfort, 2007; Comfort et al., 2004; Kapucu, 2006), one stream of literature highlights the importance of effective communication and coordination with other relevant organizations to achieve common goals in the aftermath of a disaster.”
Background
Applications of Social Network Analysis for Building Community Disaster Resilience: Workshop Summary
Magsino, S. L. (2009) · Cited by 50

Authors: Comfort, L. K.
Affiliations: University of Pittsburgh (US)
Corresponding author: Comfort, Louise K.
ORCID: Comfort, Louise K.
Venue: Public Administration Review
Publisher: Wiley
Published: 2007-12
Volume: 67
Issue: s1
Pages: 189-197
ISSN: 0033-3352 (ISSN-L)
1540-6210
DOI: 10.1111/j.1540-6210.2007.00827.x
OpenAlex: W2089773578
Cited by: 940
References: 18
Citations by year: 2026: 116 · 2025: 82 · 2024: 66 · 2023: 95 · 2022: 75 · 2021: 71 · 2020: 69 · 2019: 47 · 2018: 37 · 2017: 41 · 2016: 52 · 2015: 38 · 2014: 38 · 2013: 37 · 2012: 28
FWCI: 35.92
Type: journal article
Language: en
Open access: closed
Licence: onlinelibrary.wiley.com/termsAndConditions#vor (vor, 6 d)
Locations: Public Administration Review (publishedVersion)
Topics: Social Sciences › Sociology and Political Science › Disaster Management and Resilience
Social Sciences › Communication › Public Relations and Crisis Communication
Social Sciences › Safety Research › Safety and Risk Management
Keywords: crisis management, emergency management, cognition, Hurricane Katrina, complex adaptive systems, interorganizational systems, risk identification, risk communication, coordination, control, self-organization, community response, extreme events

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Crisis Management in Hindsight: Cognition, Communication, Coordination, and Control

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