Thomas A. Birkland - Lessons of Disaster: Policy Change After Catastrophic Events

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lessons of disaster

American Governance and Public Policy series

Series Editors: Gerald W. Boychuk, Karen Mossberger, and Mark C. Rom

After Disaster: Agenda Setting, Public Policy, and Focusing Events Thomas A. Birkland

Ambiguity and Choice in Public Policy: Political Decision Making in Modern Democracies Nikolaos Zahariadis

Branching Out, Digging In: Environmental Advocacy and Agenda Setting Sarah Pralle

Budgeting Entitlements: The Politics of Food Stamps Ronald F. King

Collaborative Public Management: New Strategies for Local Governments Robert Agranoff and Michael McGuire

Conflict Amid Consensus in American Trade Policy Martha L. Gibson

Controlling Technocracy: Citizen Rationality and the NIMBY Syndrome Gregory E. McAvoy

Dam Politics: Restoring Americas Rivers William R. Lowry

Expert Advice for Policy Choice: Analysis and Discourse Duncan MacRae, Jr. and Dale Whittington

Federalism and Environmental Policy: Trust and the Politics of Implementation, Second Edition, Revised and Updated Denise Scheberle

Federalism in the Forest: National versus State Natural Resource Policy Tomas M. Koontz

Fenced Off: The Suburbanization of American Politics Juliet F. Gainsborough

From Revenue Sharing to Deficit Sharing: General Revenue Sharing and the Cities Bruce A. Wallin

Globalization and the Politics of Pay: Policy Choices in the American States Susan B. Hansen

The Government Taketh Away: The Politics of Pain in the United States and Canada Leslie A. Pal and R. Kent Weaver, Editors

Green Politics and Global Trade: NAFTA and the Future of Environmental Politics John J. Audley

Hazardous Waste Siting and Democratic Choice Don Munton, Editor

How Governments Privatize the Politics of Divestment in the United States and Germany Mark Cassell

Improving Governance: A New Logic for Empirical Research Laurence E. Lynn Jr., Carolyn J. Heinrich, and Carolyn J. Hill

Justice and Nature: Kantian Philosophy, Environmental Policy, and the Law John Martin Gillroy

Lessons of Disaster: Policy Change after Catastrophic Events Thomas A. Birkland

Lobbying Together: Interest Group Coalitions in Legislative Politics Kevin W. Hula

Making Policy, Making Law: An Interbranch Perspective Mark C. Miller and Jeb Barnes, Editors

Metropolitan Governance: Conflict, Competition, and Cooperation Richard C. Feiock, Editor

Pluralism by the Rules: Conflict and Cooperation in Environmental Regulation Edward P. Weber

Policy Entrepreneurs and School Choice Michael Mintrom

The Political Economy of Special-Purpose Government Kathryn A. Foster

The Politics of Automobile Insurance Reform: Ideas, Institutions, and Public Policy in North America Edward L. Lascher Jr.

The Politics of Ideas and the Spread of Enterprise Zones Karen Mossberger

The Politics of Unfunded Mandates: Whither Federalism? Paul L. Posner

Power, Knowledge, and Politics: Policy Analysis in the States John A. Hird

Preserving Public Lands for the Future: The Politics of Intergenerational Goods William R. Lowry

Rethinking Health Care Policy: The New Politics of State Regulation Robert B. Hackey

Schools In: Federalism and the National Education Agenda Paul Manna

The Shadowlands of Conduct: Ethics and State Politics Beth A. Rosenson

Taking Aim: Target Populations and the Wars on AIDS and Drugs Mark C. Donovan

Taking the Initiative: Leadership Agendas in Congress and the Contract with America John B. Bader

Ten Thousand Democracies: Politics and Public Opinion in Americas School Districts Michael B. Berkman and Eric Plutzer

Terra Incognita: Vacant Land and Urban Strategies Ann OM. Bowman and Michael A. Pagano

Transatlantic Policymaking in an Age of Austerity: Diversity and Drift Martin A. Levin and Martin Shapiro, Editors

Virtual Inequality: Beyond the Digital Divide Karen Mossberger, Caroline J. Tolbert, and Mary Stansbury

Welfare Policymaking in the States: The Devil in Devolution Pamela Winston

lessons of disaster

POLICY CHANGE AFTER CATASTROPHIC EVENTS

THOMAS A. BIRKLAND

As of January 1, 2007, 13-digit ISBN numbers will replace the current 10-digit system.
Paperback: 978-1-58901-121-2
Cloth: 978-1-58901-120-5

Georgetown University Press, Washington, D.C.
2006 by Georgetown University Press. All rights reserved. No part of this
book may be reproduced or utilized in any form or by any means, electronic or
mechanical, including photocopying and recording, or by any information
storage and retrieval system, without permission in writing from the publisher.

Library of Congress Cataloging-in-Publication Data

Birkland, Thomas A.

Lessons of disaster : policy change after catastrophic events / Thomas
A. Birkland.

p. cm. (American governance and public policy series)
Includes bibliographical references and index.
ISBN 1-58901-120-1 (hardcover: alk. paper) ISBN 1-58901-121-X (pbk.: alk. paper)

1. Political planningUnited States. 2. Policy sciences. 3. Emergency managementGovernment policyUnited StatesCase studies. 4. Disaster reliefGovernment policyUnited StatesCase studies. 5. Natural disasters Government policyUnited StatesCase studies. 6. AeronauticsSafety measuresGovernment policyUnited StatesCase studies. I. Title.
II. Series: American governance and public policy.

JK468.P64B585 2006
363.345610973dc22

2006003282

This book is printed on acid-free paper meeting the requirements of the American National Standard for Permanence in Paper for Printed Library Materials.

13 12 11 10 09 08 07 06 9 8 7 6 5 4 3 2
First printing

Printed in the United States of America

contents

illustrations

tables

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preface

This book was conceived in the year following the September 11 terrorist attacks on the United States. In the weeks that followed the attacks I was asked by friends, colleagues, students, and occasionally by journalists to explain the attacks and to put them into some sort of political or policy context. I sketched my initial thoughts in an opinion item written for a local newspaper, in which I argued that no matter how profound or frightening the attacks, our political system would accommodate a range of policy responses. The system, I argued, would do its job. Certainly, terrorism and aviation security would be at the top of policymakers agendas for the near future, but eventually other issues would gain attention (Birkland 2001).

When Barry Rabe, then editor of the series in which this book is published, and Gail Grella approached me with the idea for writing a follow-up to After Disaster, it seemed a natural way to expand more systematically on the argument of the earlier book. I argued there that big events have important but variable influences on policy agendas; in this book, I address the question of whether big events have the same influence on policy change. My claim that there would probably be sweeping policy change was based primarily on a belief that something as big as the September 11 attacks had to trigger

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