Florida State University Libraries Electronic Theses, Treatises and Dissertations The Graduate School 2017 Disaster Shelter Planning: Using a Social Domain Heuristic to Examine Organizational Behaviors of Policy Implementation during the 2004 Hurricane Season in Florida Susan Leslie Spice Follow this and additional works at the DigiNole: FSU's Digital Repository. For more information, please contact [email protected] FLORIDA STATE UNIVERSITY COLLEGE OF SOCIAL SCIENCES AND PUBLIC POLICY DISASTER SHELTER PLANNING: USING A SOCIAL DOMAIN HEURISTIC TO EXAMINE ORGANIZATIONAL BEHAVIORS OF POLICY IMPLEMENTATION DURING THE 2004 HURRICANE SEASON IN FLORIDA By SUSAN LESLIE SPICE A Dissertation submitted to the Askew School of Public Administration and Policy in partial fulfillment of the requirements for the degree of Doctor of Philosophy 2017 Susan Leslie Spice defended this dissertation on July 19, 2017. The members of the supervisory committee were: Ralph Brower Professor Directing Dissertation Petra Doan University Representative Kaifeng Yang Committee Member David Berlan Committee Member The Graduate School has verified and approved the above-named committee members, and certifies dissertation has been approved in accordance with university requirements. ii For Marjorie, Tibby, and Wilma, with love and gratitude; For Byron, Kathryn, Ron, and Becca with thanks; and For Howie - who was there through it all. iii ACKNOWLEDGMENTS This dissertation would not have been completed without the immense support and guidance of Dr. Ralph Brower, my Major Professor, and the members of my doctoral committee. I would especially like to thank my committee members for participating in my dissertation defense even though they were supposed to be either in another country (Dr. Keifang Yang), on vacation (Dr. Petra Doan), or on paternity leave (Dr. David Berlan). That is the level of dedication to students that I hope to carry forward. I thank Dr. Janet Dilling and Dr. Audrey Heffron-Casserleigh for inspiring my interest in emergency management. I thank Mr. Rob McDaniel for first introducing me to the concept of “plan for the 80 percent” that informed so much of this dissertation. I thank Dr. Clair Knox for her constant support, generosity, and gentle readership. I thank my family and friends for their love, encouragement, and support and for forgiving me whenever I had to miss an event because I was writing. I am grateful to the interview participants who helped inform this dissertation. While I cannot name them, they know who they are, and I am grateful for their willingness and generosity in sharing their experiences and information. Last, but not least, I thank the generous souls who actively participate in emergency management, especially disaster/evacuation sheltering, whether as a career, a vocation, or volunteer activity. Their service saves lives. iv TABLE OF CONTENTS List of Tables ........................................................................................................................... vii List of Figures .............................................................................................................................. viii Abstract .......................................................................................................................................... ix 1. INTRODUCTION.......................................................................................................................1 Background .................................................................................................................................3 2. LITERATURE REVIEW .........................................................................................................12 Background ...............................................................................................................................12 Literature Review......................................................................................................................29 3. METHODS ...............................................................................................................................42 Case Study Analysis .................................................................................................................43 Grounded Analysis ....................................................................................................................46 Coding .......................................................................................................................................47 Five Component Protocol .........................................................................................................50 Data Collection..........................................................................................................................53 4. ILLUMINATING SOCIAL DOMAIN BEHAVIOR IN DISASTER SHELTERING ............60 Evidence for Hilhorst’s Social Domains in Florida’s 2004 Hurricane Season .........................60 The Problematics of Interorganizational Joint Action in Florida’s 2004 Hurricane Season ....79 5. ILLUMINATIONS ...................................................................................................................88 Unpacking the Social Domain Silos of Emergency Management ............................................90 Domains as Joint Action in Interorganizational Collectives.....................................................94 Expanding Understanding of Social Domain and Interorganizational Joint Action Theories for Emergency Management ..........................................................................................................97 Theoretical and Practical Implications......................................................................................97 Revisiting the Research Questions............................................................................................99 Study Limitations ....................................................................................................................102 Future Research ......................................................................................................................103 APPENDICES .............................................................................................................................104 A. GENERAL INFORMATION ABOUT INTERVIEWEES ....................................................104 B. ELECTRONIC MAIL LETTER TO PARTICIPANTS .........................................................105 C. TELEPHONE MANUSCRIPT ...............................................................................................106 D. LETTER CONFIRMING INTERVIEW ................................................................................107 E. IRB APPROVAL MEMORANDUM .....................................................................................109 F. CONSENT FORM ..................................................................................................................111 v G. INTERVIEW QUESTIONNAIRE .........................................................................................112 H. LIST OF PRIMARY AND SUPPORTING AGENCIES .......................................................114 References ....................................................................................................................................115 Biographical Sketch .....................................................................................................................125 vi LIST OF TABLES Table 2.1 Florida demographics: Age ............................................................................................14 Table 2.2 Florida demographics: Race ..........................................................................................15 Table 2.3 Florida demographics: Educational Attainment ............................................................15 Table 2.4 Number of direct hurricane strikes by county since 1900 (National Oceanographic and Atmospheric Administration Historical Hurricane Tracks, n.d.) ............................................16 Table 2.5 Category hurricane by year (National Weather Service National Hurricane Center, n.d). ........................................................17 Table 2.6 Saffir-Simpson hurricane wind scale (National Weather Service National Hurricane Center, n.d.) ........................................................19 Table 2.7 FDEM coordinated county regions ................................................................................28 Table 5.1 Emergency response domains and Texas Hold ‘em (based on Hilhorst, 2004; *Brower et al., 2009) ............................................................................89 Table 5.2 Joint action in interorganizational collectives ...............................................................96 vii LIST OF FIGURES Figure 2.1: Map of Florida 2010 Population by County (U.S. Census) ........................................13 Figure 2.2: Image of Hurricane Donna’s 1960 path across the Florida Peninsula (National Oceanic and Atmospheric Agency (n.d.) .......................................................................................18 Figure 2.3: Montage of the 2004 Atlantic Hurricane Season Courtesy of University of Wisconsin-Madison Space Science and Engineering Center (http://www.ssec.wisc.edu/) ...........21 Figure 2.4: Map of the paths of Hurricanes Charley, Frances, and Jeanne 2004 (Bossak, 2005) .22 Figure 2.5: Projected Path of Hurricane Charley