Conceptualizing and explaining flexibility in administrative crisis management – a cross-district analysis in Germany

Abstract

Flexibility in administrative crisis management is a frequently reported determinant for a successful crisis response. But there is little agreement about how to conceptualize, measure and explain flexibility. We use a three-dimensional measure of administrative flexibility, capturing employees’ decision leeway, staff mobility, and organizational innovation in a crisis response. We then develop and test an explanation of variation in flexibility, focusing on the refugee crisis of 2015/16 in Germany and analyzing survey and socio-economic data from 235 districts using linear regression analysis. The main finding is that differences in flexibility cannot be explained by the scope of the crisis in a district, but by organizational factors: Agencies with politically unconstrained leadership, with higher financial resources and more crisis-related experience, respond more flexible. These findings contribute to theorizing and explaining administrative flexibility in and beyond crisis management and have practical implications for crisis learning and preparation.