A Systematic Review of Empirical Emergency Management Network Research: Formation and Development, Properties, and Performance

• Published date: 01 May 2022
• Author: Naim Kapucu,Jungwon Yeo,Qian Hu
• Date: 01 May 2022
• DOI: 10.1177/02750740221077348
• Subject Matter: Articles

A Systematic Review of Empirical

Emergency Management Network

Research: Formation and Development,

Properties, and Performance

Qian Hu

1

, Jungwon Yeo

1

, and Naim Kapucu

1

Abstract

Although network analysis has gained much attention in emergency manageme nt studies, there are few systematic reviews of

emergency management network studies in public administration. After reviewing 44 journals, this article identified and

reviewed a total of 58 studies that conducted network analysis in the context of emergency management. Based on existing

literature, this article summarizes the common and unique factors driving network formation and development, describes the

structural characteristics of emergency management networks, and reports the performance measures that have been used to

evaluate network performance. It concludes by addressing research gaps, presenting propositions and recommendations for

future research, and highlighting implications for emergency management practice. The context of this review is emergency

management, but the three network research streams focused upon—network formation and development, network prop-

erties, and network performance—are relevant to all management and policy domains. This review also underscores the need

to further explore the dynamic process of network formation and outcomes of network relationships and structures.

Keywords

emergency management networks, network analysis, systematic review

Introduction

Over the past two decades, the number of network studies

and the use of network analysis have grown rapidly in the

fields of public administration and public policy (Berry

et al., 2004; Hu et al., 2016; Isett et al., 2011; Provan et al.,

2007; Siciliano et al., 2021). Public administration scholars

have conceptualized networks as collective interorganiza-

tional arrangements operating to achieve common manage-

ment or policy goals (Agranoff & McGuire, 2001; Isett

et al., 2011; Popp et al., 2014; Provan et al., 2007).

Networks have also been defined as a distinctive form of gov-

ernance that, when engaging in collective decision-making

and coordinated action, relies more on horizontal relation-

ships than hierarchical authorities and the chain of

command (Koliba et al., 2010; Nowell & Steelman, 2019;

O’Toole, 1997). A network approach to coordination encour-

ages organizations to strengthen existing relationships and

build new relationships with other organizations. Through

network arrangements, organizations can expand their

access to information, knowledge, and resources (Isett

et al., 2011; Provan & Lemaire, 2012). Interorganizational

networks can also contribute to the accumulation of social

capital and member organizations’commitment to shared

goals (Berardo & Scholz, 2010). Well-connected coordinated

networks are better able to integrate services and improve

service quality (Provan et al., 2005). Furthermore, such a

flexible network approach fosters learning across unit bound-

aries, encourages innovation, and prepares organizations for

emergent situations (Provan & Lemaire, 2012).

Network arrangements are used to address various man-

agement and public policy issues such as human and social

service delivery, environmental management, and regional

economic development (Milward & Provan, 2003; Lee

et al., 2012; Robins et al., 2011). Emergency management

is an area abundant with network applications and research

(Comfort et al., 2012). The number of empirical network

studies is ranked third among all service domains (Kapucu

et al., 2014). Emergencies demand that organizations work

across organizational, sector, and jurisdictional boundaries

to form emergency management networks. Emergencies

1

School of Public Administration, University of Central Florida, Orlando, FL,

USA

Corresponding Author:

Qian Hu, School of Public Administration, University of Central Florida,

Orlando, 528 W Livingston St, Orlando, FL 32801, USA.

Email: qian.hu@ucf.edu

Article

American Review of Public Administration

2022, Vol. 52(4) 280–297

© The Author(s) 2022

Article reuse guidelines:

sagepub.com/journals-permissions

DOI: 10.1177/02750740221077348

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provide an important context for addressing and studying

public organization management and performance issues

(Bryson, 2021; O’Toole & Meier, 2015). Recent catastrophic

natural hazards such as hurricanes, earthquakes, and wildfires

are constant reminders that emergency management

1

is “the

quintessential government role”(Waugh, 2000, p. 3) and

“a central activity of public administration”(Petak, 1985,

p. 3). How to improve interorganizational communication

and coordination in emergency management across sectors

and jurisdictions continues to be a fundamental question

for public administration (Waugh, 2007; Comfort et al.,

2012).

Unlike conventional statistical analyses that focus on

actors’attributes, network analysis refers to a wide range of

methods and tools employed to analyze relationships

among actors and examine relational processes and outcomes

(Scott, 2013; Wasserman & Faust, 1994). Network analysis

allows researchers to investigate the formation, development,

and consequences of dynamic interactions among actors

(Kapucu & Hu, 2020). The relational focus is crucial to

understanding and assessing the structure and process of

interorganizational communication and coordination among

the many actors involved in emergency management.

Network analysis has been used to identify key actors in

emergency response systems, measure the strength and

quality of relationships among organizational actors, describe

the structural and procedural patterns of interorganizational

relationships, and evaluate the impacts of such relations

(e.g., Comfort & Haase, 2006). Research has stressed build-

ing and sustaining relations and trust for better communica-

tion and coordination before disasters occur (e.g., Comfort,

2019; Kapucu & Garayev, 2013; Van Wart & Kapucu,

2011). Through network analysis, public administration

scholars and practitioners have begun to investigate the

importance of networks in coping with emergencies and

crises.

Although the network approach to emergency manage-

ment and the use of network analysis have received

growing attention from scholars and practitioners (Comfort

et al., 2012), there are few systematic reviews of emergency

management network literature. Existing reviews of network

literature have reflected on the evolution of emergency man-

agement research in public administration (e.g., Comfort

et al., 2012) and examined broad research on collaborative

emergency management (e.g., Nohrstedt et al., 2018).

However, to our knowledge, there is a lack of systematic

review of empirical emergency management network

research applying network analysis to provide guidance for

scholars and practitioners in the field.

The goal of this article is to synthesize key findings from

the existing empirical emergency management network

research conducted via network analysis, identify potential

research gaps, and provide practical implications for emer-

gency management professionals to form and develop collab-

orative networks. This review summarizes findings from

three network research streams—network formation and

development, network properties, and network performance,

which are relevant for all management and policy domains.

Furthermore, the summary of findings in emergency manage-

ment can be compared with network research in other con-

texts to identify and discuss common and unique patterns

of network relations, structures, and consequences. In the fol-

lowing sections, this study discusses emergency management

networks and the methods used for selecting the most rele-

vant literature. This study also introduces a conceptual

framework to present findings, including: (a) how networks

are formed and developed, (b) what properties (attributes

and structures) characterize emergency management net-

works, and (c) how such networks are evaluated for

effectiveness. Finally, this article discusses the findings and

suggests future directions for emergency management

network scholarship and practice in the field of public

administration.

Emergency Management Networks

in Public Administration

Emergencies, especially large-scale disasters and extreme

events, require quick, well-coordinated responses across

jurisdictions, sectors, and organizational boundaries

(Waugh & Streib, 2006). Take the U.S. emergency manage-

ment as an example. The U.S. emergency management

system includes federal, state, regional, and local emergency

management agencies and other government agencies, as

well as nonprofit organizations, faith-based organizations,

other community organizations, and businesses (Waugh,

2000). The system is a multilevel network that includes a

wide range of organizations and their multiple types of rela-

tions. Cross-sector and interorganizational collaboration is a

necessity for coping with transboundary disasters, regardless

of differences in governance systems across countries (Ansell

et al., 2010).

Emergency management networks are interorganizational

arrangements operating to prevent, protect, mitigate, respond

to, and recover from emergencies. Emergency management

networks consist of organizational actors (i.e., nodes) and

the relationships (i.e., ties) that connect actors. Such relations

can include either vertical or horizontal interactions among

organizations to exchange information or resources and

joint efforts of organizations in completing a specific task

or emergency support function pertaining to emergencies.

In a network diagram in Figure 1, the circles represent differ-

ent actors and the lines represent a diverse range of interac-

tions that occurred among these actors.

Actors in emergency management networks include a

wide range of government agencies, nonprofits, and business

organizations. Examples of government agencies include

those responsible for emergency management, public

health, public safety, and emergency response. Examples of

Hu et al. 281