Application and Evaluation: What Approaches are Currently Being Used to Assess Resilience?

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1 Application and Evaluation: What Approaches are Currently Being Used to Assess Resilience? Gavin Smith, Ph.D., AICP University of North Carolina at Chapel Hill July 2009

2 U.S. Disaster Assistance Framework: Planning for Pre and Post-Disaster Resilience?

3 What Approaches are Being Used to Assess Resilience? Physical, social, environmental, economic dimensions. Common thematic elements adaptability, flexibility (versus brittle), ability to innovate (disaster as opportunity for whom?), diversity, redundancy, etc. Sustainable development principles applied to hazards and disaster management addresses the same dimensions as resilience economic, environmental, social, physical, and institutional.

4 Sustainable Development, Resilience, and Disaster Recovery How does resilience differ from the application of sustainable development principles to hazards and disaster management? Disaster recovery can be defined as the differential process of restoring, rebuilding, and reshaping the physical, social, economic, and natural environment through pre-event planning and post-event actions (Smith and Wenger 2006).

5 Institutional Resilience Institutional resilience has been alluded to today. Indicative of a dimension of resilience that is less studied or understood. Institutional resilience is the foundation on which other dimensions of resilience are based. Institutional resilience is manifest in land use planning. Problem discipline specific evaluation of resilience physical (engineering); social (social sciences); economic (economics); environmental (ecology). We need to do a better job of defining resilience across multiple dimensions; study their complimentary and contradictory relationships; and incorporate these lessons into practice. Problem Resilience is often framed as the length of time it takes to recover from a shock to the structure (i.e. hazard/disaster). Over emphasis on the speed of recovery versus the quality of recovery (Haas, Kates and Bowden 1977 / Olshansky 2008).

6 Themes of Institutional Resilience Institutional resilience is undergirded by four principal themes: 1) Capacity Building; 2) Self Reliance; 3) Accountability; and 4) Empowerment. Capacity building/self reliance less reliant on external assistance (current federal system engenders dependence through a top-down administration of federal grant programs rather than training programs) Accountability Poor linkage between defined outcomes/metrics to accreditation standards or policy incentives. Empowerment allows communities or organizations meeting established metrics of resilience to determine how they will achieve them. Provides the means to develop a sustained effort and not one driven by government programs.

7 Land Use Planning and Institutional Resilience Development of guiding mission (e.g. sustainable development, disaster resilience), goals, objectives and tasks tied to a fact base (hazard vulnerability, capability assessment administrative, fiscal, technical, political) Turning knowledge into action John Friedmann (1987) Tool to address horizontal and vertical integration/cooperation Standing in community (legal, political, technical) Land use themes (density, location, type of use) are a key aspect of hazard resilience that merits more attention.

8 Challenges Planners and land use are noticeably absent from hazards management planning activities and the scholarly discussions of integrating dimensions of resilience (particularly by academics outside of planning). The assessment of resilience is not widely recognized nor utilized by practitioners. Major institutional gap between what scholars think is important and that valued by practitioners. US disaster assistance policy creates dependence and remains largely top down following disasters does not foster resilience and / or sustainable development.

9 Challenges / Opportunities Develop Coalition of Support Review the progression of the hazard mitigation coalition, in which hazard scholars played an important role (i.e. Disasters by Design), coupled with a receptive federal administration. We now have an administration that is more receptive to the role of science in policymaking and the use of sustainable development / resilience themes. Advocacy Coalition Framework (Sabatier and Jenkins- Smith)

10 Evaluate the Effectiveness of Resilience Enhancing Strategies Certification programs (EMAP, CAR, planning mandates, capacity-building initiatives (training, education, funding), resource sharing initiatives (EMAC). I would suggest that we evaluate each of the resilience enhancing strategies by the degree to which they achieve 1) Capacity Building; 2) Self Reliance; 3) Accountability; and 4) Empowerment. Link to underlying element of institutional resilience, which is building the institutional capacity needed to address resilience and/or sustainable development themes as applied to hazards management. Very few examples exist that are institutionalized. State and local hazard mitigation planning represents one of the few tangible, large-scale examples. Yet this example remains isolated from other institutions and programs in the field of hazards management (Berke and Smith 2008).

11 Modify Existing Collaborative Venues (Smith 2009) National Response Framework (NRRF?) ESF-14 State and Local Plans (DMA, Recovery, Comprehensive) NVOAD EMAC EMAP/CAR Quasi-Governmental (regional planning, neighborhood associations) Universities (applied research in recovery) Private Sector (Developers, Insurance, Investors, Project Impact) CERT (CERRT?) International Aid Programs

12 Research Needs Need to assess planning as a means to achieve disaster resilient communities through an emphasis on building institutional resilience. Facilitators and impediments to a sustainable disaster recovery (Smith and Wenger 2006). Facilitators and Impediments highlight the importance of institutional resilience.

13 Suggested Elements for a Theory of Sustainable Community Recovery (Smith and Wenger 2006, p. 247) Facilitators of Sustainable Disaster Recovery Leveraging resources Self-reliance and self-determination Commitment to disaster resilience State and federal capability and commitment to sustainable disaster recovery Capacity-building approaches Multi-party recovery committees Pre- and post-disaster recovery planning Use of dispute resolution techniques Identification of local needs Program flexibility Impediments to Sustainable Disaster Recovery Viewing disaster recovery programs as an entitlement Over reliance on disaster programs that result in more vulnerable communities (moral hazard) Narrowly defined recovery programs Low capability and commitment Lack of federal, state and local recovery planning

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