At 2:00 a.m., a winter storm knocks out power across a small community. Roads are impassable, emergency calls are increasing, and residents are looking to local officials for answers. There is no emergency management department—only a handful of leaders doing their best to coordinate a response while managing their regular responsibilities.

This scenario is not unusual. Across the country, small municipalities are on the front lines of emergency response, often without dedicated staff, formal plans, or easily accessible tools to guide decision-making in high-pressure moments.

Local governments are responsible for responding to a wide range of emergencies, including severe weather, infrastructure failures, cyber incidents, and public safety crises. In many communities, particularly smaller ones, these responsibilities are shared across departments and layered onto existing roles. While this reflects operational realities, it can leave communities underprepared when emergencies occur.

Recognizing this challenge, our team developed “Emergency Management 101: A Toolkit for Small Communities,” as part of our Leadership ICMA program capstone project. The goal was to create a practical, accessible resource that helps small municipalities strengthen their ability to prepare for, respond to, and recover from emergencies.

Bridging the Gap Between Guidance and Practice

Emergency management has become increasingly complex. Local officials must coordinate across agencies, communicate with the public, and navigate state and federal systems for assistance and reimbursement, all while maintaining essential services.

At the same time, many small communities operate with limited staff capacity and competing priorities. A town administrator, IT director, or public works director may suddenly find themselves leading emergency response efforts without formal training or a clear operational framework.

Although federal systems like the National Incident Management System (NIMS) provide valuable structure, they can be difficult to translate into day-to-day operations for communities just beginning to formalize their planning efforts.

The result is a gap between available guidance and practical application. This toolkit was designed to help close that gap.

A Practical, Accessible Starting Point

The Emergency Management 101 Toolkit is intentionally designed as a starting point, not a technical manual or one-size-fits-all plan. It provides clear, actionable guidance that communities can adapt based on their size, capacity, and risks. The toolkit is organized around three core phases of emergency management: preparedness, response, and recovery.

Each section includes simplified guidance, templates, and links to trusted resources, helping local leaders take meaningful steps without becoming overwhelmed.

Preparedness: Building the Foundation

Preparedness is the cornerstone of effective emergency management. The toolkit encourages communities to begin by assembling a cross-functional planning team that includes public safety, public works, health officials, and administrative leadership. This approach ensures that planning reflects the full scope of municipal operations.

It also introduces practical approaches to hazard identification and risk assessment, helping communities focus on the events they are most likely to face. Additional guidance includes:

• Developing or updating emergency operations plans.
• Establishing mutual aid agreements.
• Creating continuity of operations strategies.
• Defining roles and responsibilities in advance.

By breaking preparedness into manageable steps, the toolkit helps communities build capacity over time rather than attempting to do everything at once.

Response: Creating Structure in Real Time

During an emergency, clarity and coordination are critical. The toolkit provides guidance on establishing incident command, activating emergency operations centers, and maintaining situational awareness. It also emphasizes prioritizing community lifelines such as public safety, utilities, and transportation systems.

Communication is a central focus. Clear, timely messaging helps reduce confusion, builds public trust, and supports more effective response efforts. The toolkit also highlights the importance of documentation. Accurate recordkeeping during an incident is essential for operational coordination and for accessing state and federal reimbursement programs.

Recovery: Planning Beyond the Immediate Crisis

Recovery is often the longest and most complex phase of emergency management. The toolkit encourages communities to begin planning for recovery early, including identifying leadership roles, setting priorities, and understanding available funding sources. Key considerations include:

• Coordinating short- and long-term recovery efforts.
• Navigating federal assistance programs.
• Supporting residents and businesses.
• Integrating mitigation strategies to reduce future risk.

By approaching recovery strategically, communities can rebuild in ways that strengthen long-term resilience.

A Resource Designed to Evolve

Emergency management is constantly changing. New technologies, emerging threats, and evolving best practices will continue to shape how communities prepare for and respond to emergencies. For that reason, this toolkit is intended to be a living resource. It reflects current guidance and tools, but it is designed to be updated, adapted, and expanded over time. Communities are encouraged to tailor the toolkit to their needs, incorporate lessons learned, and build upon the foundation it provides.

Why This Matters

Effective emergency management is fundamental to community well-being. It protects residents, preserves critical infrastructure, and supports faster, more equitable recovery. Small communities should not be at a disadvantage because of limited resources. With practical tools and clear guidance, they can build strong, resilient systems that support both daily operations and emergency response.

As local governments continue to face new and evolving challenges, the need for accessible, practical emergency management resources will only grow. Our hope is that this toolkit helps communities move from uncertainty to action—from asking “Where do we start?” to confidently saying, “We’re ready.”

Download the Emergency Management 101 Toolkit

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ASHLEY BERNAL is assistant town manager for Belleair, Florida.

JORGE CHAMORRO is director of public services for Salt Lake City, Utah.

MOLLY FITZPATRICK is deputy town administrator for Westwood, Massachusetts.

PATRICK JONES is deputy city administrator and director of public safety for Perrysburg, Ohio.