Abstract
Disasters are "social" happenings and planning to reduce the consequences of such occasions involve actions by a variety of social units. The ultimate success of such efforts depends on the adequacy in understanding that social base.
The focus is on the local community which universally provides the materials and human resources in developing an emergency response. Several inadequate planning models are examined. Particular attention is given to the military model which views emergencies as conditions of chaos which can be rectified by command and control. A more adequate model is presented, based on conditions of continuity, coordination and cooperation. This problem-solving model provides a more adequate set of assumptions as the basis for planning, since it considers social units as resources rather than problems.
