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The COVID‐19 pandemic poses unprecedented challenges to public health care systems and demands intergovernmental coordination to cope with the resulting medical surge. This essay analyzes the operation of Paired Assistance Programs (PAPs) in China, offering a timely comparative case for researchers and practitioners to examine when reflecting on the classic debate over the hierarchical versus network approaches to coordination in emergency management. PAPs highlight the importance of network management and necessity of institutionalizing mechanisms of governance to facilitate coordination within multilevel response systems.

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Natural hazards pose an increasing challenge to public administrators, as the frequency, costs, and consequences of extreme events escalate in a complex, interdependent, world. This study examines organizational networks as instruments for mobilizing collective response to extreme events, but effective design has been elusive. Governments have focused on planned networks to anticipate risk before hazards occur; communities have formed emergent networks as voluntary efforts after the event. Using a framework of complex adaptive systems, we identify operational networks that adapt to their immediate context in real time, using technologies to support the search, exchange, and feedback of information to enable informed, collective action. Applying mixed research methods—documentary analysis of laws, policies, and procedures; content analysis of news articles; onsite observation; and semistructured interviews with experienced personnel—we document operational networks as a distinct form of multiorganizational response to urgent events that combines the structure of designated authority with the flexibility of information technologies. The integration of planned and emergent organizational forms into operational networks is measured through External/Internal (E/I) index analysis, based on empirical data collected on response systems that formed following the 2008 Wenchuan and 2013 Lushan earthquakes in the centralized administrative context of China. Findings show that planned networks provide the organizational structure and initial legitimacy essential for operational networks to form, but ready access to information technology—cell phones, short‐wave radio systems, internet access—enables rapid communication and exchange of information essential for flexible adaptation in real time to meet urgent needs.

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