“…The many unforeseen, unprecedented, and often highly consequential ways in which COVID‐19 has affected our lives remind us once again how the fortunes of citizens can turn on events that were simply not on the radar of public organizations prior to their occurrence (Hall et al 2020). Nobel Laureate Herbert Simon and members of the Carnegie School recognized long ago that boundedly rational individuals and organizations routinely face such events (Simon 1997[1947], 1955), sometimes called “Black Swans” when they are significant, and which emanate from the broader category of what are often called “unknowns” (Phillips, Roehrich, and Kapletia 2021). These two terms have become familiar in the public administration literature (Kettl 2020; Termeer and van den Brink 2013; Van der Wal 2020), perhaps not least because of the link to government agencies' responsibility to maintain citizen safety and security and prevent crises from occurring (Boin and Lodge 2016; Christensen, Lægreid, and Rykkja 2016; Comfort 2002).…”