"Coordination is not possible without some system of overall control and distribution of authority. There must be people who have responsibilities, who are in charge, and whose authority is legitimated spheres of organized activity are relatively independent during normal periods. This lack of overall control will simply not suffice in disasters. A general tendency in disaster situations is for new authority patterns, to emerge. An individual's authority may be legitimated by his technical competence, his preparation, or his degree of information about the on-going situation. Likewise, organizations which are loci of communication, have a disaster technology, or are especially prepared in some way often exert considerable control and coordination. The authority of these individuals and organizations is accepted for these same reasons. the traditional or pre-disaster community contains coordination gaps which must be filled in disaster situations. In order to fill these coordination gaps, there must be an associated system of authority and control". (Dynes, et al, A Perspective on Disaster Planning, 1981, p. 12)