Organisational challenges in the United Kingdom's post‐disaster ‘crisis support’ work

Local authorities in the United Kingdom are required to ‘lead’ multi‐agency humanitarian responses to major disasters. Concerns mounted in the late twentieth century that responses to people bereaved in the immediate aftermath of such events at best failed to meet their needs and at worst compounded their distress. Subsequent reviews and reforms reframed some victim needs as ‘rights’ and established legal, administrative, and practice frameworks to improve matters. Local authority ‘crisis support’, provided in partnership with other actors, lies at the heart of the UK's contemporary emergency response to the bereaved. Drawing on primary research on the development and the deployment of crisis support in a local authority, and while acknowledging both incident‐ and context‐related difficulties, this paper considers the significance of challenges with their origins in organisational factors. Recent developments within and between responders may exacerbate them. This paper argues, therefore, that further research into such developments is necessary.     

Rangeland Fire Protection Associations as disaster response organisations

Rangeland Fire Protection Associations (RFPAs) are volunteer-based groups of trained private landowners who are authorised to respond to events in partnership with governmental agencies. This study analysed the functioning and structure of RFPAs in Idaho and Oregon in the western United States to characterise this under-researched model of disaster response. RFPAs represent an expanding type of disaster response organisation that interfaces with established fire suppression entities, yet ‘emergent behaviour’ manifested in some RFPA response actions. This appeared to lessen and mediate with time, as well as due to recognition of the issues, increased experience of fires, and training that fostered new mutual understandings. There is a need for continued examination of the effect of repeat experience in developing the characteristics of disaster response organisations. In addition, it is crucial to know how the interface between established and other types of organisations may be enhanced to make cooperative disaster response more effective.     

The professional humanitarian and the downsides of professionalisation

Criticisms lodged at humanitarian relief often include the belief that professionalisation is needed. The problems associated with humanitarianism would end, it is assumed, if the delivery of aid, and relief workers themselves, were more professional and ‘business like’. To explore this further, the paper asks what comprises a profession, and offers four criteria: 1) specialisation of knowledge; 2) establishment of the profession as a livelihood; 3) organisation and institutionalisation; and 4) legitimacy and authority. A model for understanding professionalisation, as developed by the author, is then presented. The analysis compares six other professions against the same criteria to argue that the humanitarian community already constitutes a profession. Finally, three potential downsides of professionalisation are offered: the distance of the relief worker from the beneficiary, barriers to entry into the humanitarian sector, and adding to risk aversion and a decline in innovation. Based on these findings, professionalisation should be approached with some caution.     

Disasters and ‘conditions of possibility’: rethinking causation through an analysis of earthquakes in Nepal

What causes a disaster's aftermath? Scholars have increasingly turned to historical approaches that link outcomes to pre-disaster sociopolitical dynamics. Disasters lead to ‘critical junctures’ that ‘trigger’ events that unfold in the wake of the initial phenomenon. This paper argues that the ‘critical junctures’ paradigm shares limitations with ‘path dependency’ theory from which it is derived, namely a tendency towards historicism—a functionalist teleology better able to explain continuity than change. As an alternative, this analysis draws on Michel Foucault's understanding of ‘conditions of possibility’ as a way of rethinking agency/causation, moving away from individual subjects, events, or even historical conditions towards, instead, the new, radically destabilised ‘epistemological field’ emerging in the disaster's aftermath. This paper examines a series of devastating earthquakes in Nepal to consider how post-disaster ‘epistemological fields’ present new ‘conditions of possibility’ within which new ideas, actions, and outcomes become thinkable and possible in ways that pre-disaster historical conditions could not have predicted.     

Emergency preparedness consultants at the local government level: the Israeli experience

This study evaluates the effectiveness of the Municipal Emergency Consultation project in eight Israeli local authorities. The initiative centres on the appointment of independent emergency preparedness consultants entrusted with tailoring an emergency preparedness package to suit the specific needs of each locality. Regarding emergency preparedness improvements, in all of the municipalities examined, a concept of municipal emergency operation was consolidated and the derived emergency plan tested. Emergency work processes were structured and service‐level agreements reached between municipality departments. Where necessary, a‐linear patterns of municipal functioning in an emergency were established. Concerning a ‘spillover’ of emergency preparedness improvements into routine operations, and a ‘spillover’ of routine management improvements into local emergency preparedness, two municipalities near Gaza, which typically function in an emergency routine, saw a significant ‘spillover’ of emergency preparedness into routine functioning. In other localities, local managers chose to improve a number of municipal structures and procedures in times of routine functioning, which are also related to the functioning of the municipality during an emergency.     

A pilot study of citizens' opinions on the Incident Command System in Taiwan

Local residents may have different views on disaster‐response modes depending on their cultural and socioeconomic background. The purpose of this study was to examine Taiwan residents' opinions on the Incident Command System (ICS). We performed a structured survey through face‐to‐face interviews in mudslide‐affected communities. Quantitative analysis showed that the residents exhibited a clear preference for the ICS core‐principle attributes of ‘integrated communications’, ‘transfer of command’ and ‘modular organisation’. By contrast, the residents tended towards a non‐ICS approach for ‘incident action plan’ and ‘manageable span of control’. Qualitative analysis revealed an uncertain attitude towards ‘transfer of command’ and ‘incident action plan’. Community acceptance is important in the promotion of the ICS. A better understanding of residents' preferences should be acquired through a broader community survey, allowing us to understand perspectives on the ICS among different societies and facilitate implementation of the ICS at the basic community level.     

Beyond performance and protocols: early responders' experiences of multiple accountability demands in the response to the 2015 Nepal earthquake

Critics have long questioned the push for professionalised and performance‐driven accountability in the humanitarian sector, yet the matter is largely treated as a ‘back office’ issue of standards, guidelines, and processes. Scant attention is paid to the accountability demands experienced by early responders to disasters. Set in the contested climate of the emergency response to the earthquake in Nepal on 25 April 2015, and drawing on interviews with 15 early responders, this paper reveals three forms of accountability demands: (i) accountability as compliance; (ii) accountability as the object of government regulation; and (iii) accountability as public opposition and interrogation. Beyond the performance‐centric, non‐governmental organisation‐driven understanding of accountability, early responders to the earthquake experienced multidirectional accountability demands, not only from donors and beneficiaries, but also from the national government and wider public. Engaging with public criticism is a significant feature of early responders' responsibility that warrants further consideration by the humanitarian community.     

‘The Ethiopian famine’ revisited: Band Aid and the antipolitics of celebrity humanitarian action

In many ways the Ethiopian famine of 1983–85 has served as a watershed with respect to humanitarian action. One of its lasting legacies has been the emergence of Band Aid and the subsequent increase in celebrity humanitarianism. A revisiting of the events of 1983–85 occurred in 2010 during a dispute in which it was alleged that a portion of the donations of Band Aid were spent on arms purchases. This paper takes this controversy as its starting point. It goes on to use the theoretical reflections of Giorgio Agamben to consider the dynamics that unfolded during the Ethiopian famine of 1983–85 and to analyse the underlying conceptualisation behind the emergence of Band Aid‐type celebrity humanitarianism. The paper concludes with some wider thoughts on how the in essence antipolitical agenda of celebrity humanitarian action is transported into the everyday understanding of ‘African disaster’, resulting ultimately in the perpetuation of hegemonic control by the global North.     

Sources of organisational resiliency during the Thailand floods of 2011: a test of the bonding and bridging hypotheses

Based on the Institutional Collective Action framework, this research tests the impact of two competing hypotheses—bonding and bridging—on enhancing organisational resiliency. The bonding hypothesis posits that organisational resiliency can be achieved if an organisation works closely with others, whereas the bridging hypothesis argues that such a structure places considerable stress on an organisation and advocates for an organisation to position itself as a central actor to gain access to novel resources from a diverse set of entities to achieve resiliency. The paper analyses data gathered from semi‐structured interviews with 44 public, private, and non‐profit organisations serving communities affected by the Great Floods of 2011 in the Thai capital, Bangkok (urban), and in Pathum Thani (suburban) and Ayutthaya (rural) provinces. The findings suggest that: organisational resiliency was associated with the bridging effect; organisations in the rural province were more resilient than those in the suburban and urban centres; and private and non‐governmental organisations generally were more resilient than public sector organisations. The findings highlight the importance of fostering multi‐sector partnerships to enhance organisational resiliency for disaster response.     

Changing tracks as situations change: humanitarian and health response along the Liberia–Côte d'Ivoire border

In recent years, protracted crises and fragile post‐conflict settings have challenged the co‐existence, and even the linear continuum, of relief and development aid. Forced migration has tested humanitarian and development paradigms where sudden‐onset emergencies, violence and displacement arise alongside ongoing development work. Drawing on Médecins Sans Frontières interventions in the region from December 2010 to May 2011, this paper examines aid and healthcare responses to displacement in Côte d'Ivoire and Liberia; it focuses on challenges to the maintenance of preparedness for such foreseeable emergencies and to adaptation in response to changing situations of displacement and insecurity. This ‘backsliding’ from development to emergency remains a substantial challenge to aid; yet, in exactly such cases, it also presents the opportunity to ensure access to medical care that is much more urgently needed in times of crisis, including the suspension of user fees for medical care.     

How prepared is prepared enough?

Decisions about disaster preparedness are rarely informed by cost‐benefit analyses. This paper presents an economic model to address the thorny question, ‘how prepared is prepared enough?’ Difficulties related to the use of cost‐benefit analysis in the field of disaster management concern the tension between the large number of high‐probability events that can be handled by a single emergency response unit and the small number of low‐probability events that must be handled by a large number of them. A further special feature of disaster management concerns the opportunity for cooperation between different emergency response units. To account for these issues, we introduce a portfolio approach. Our analysis shows that it would be useful to define disaster preparedness not in terms of capacities, but in terms of the frequency with which response capacity is expected to fall short.     

The role of the organisational psychologist in disasters and emergency situations

Interventions in extreme situations, such as natural or technological disasters, terrorist attacks or emergencies in general, take place in settings of great uncertainty and are always accompanied by extraordinary circumstances. For this reason, there are various processes related to implementing intervention protocols that must be carefully examined, including an evaluation of work scenarios, personnel selection, within-group relationships in work teams, decision-making processes, or certain peculiarities of burnout among emergency personnel. In the view of this author, an ad hoc review of the role of the organisational psychologist can highlight interesting analysis and performance possibilities that could make work in emergency and disasters contexts more effective. The aim of this paper is to provide an overview of the role of the organisational psychologist pre-and post-disaster. Furthermore, it supports the idea that professional profiles must be designed that take into account specific knowledge and skills, as well as certain aptitudes and values.     

Addressing challenges for future strategic‐level emergency management: reframing,networking, and capacity‐building

The mounting frequency and intensity of natural hazards, alongside growing interdependencies between social‐technical and ecological systems, are placing increased pressure on emergency management. This is particularly true at the strategic level of emergency management, which involves planning for and managing non‐routine, high‐consequence events. Drawing on the literature, a survey, and interviews and workshops with Australia's senior emergency managers, this paper presents an analysis of five core challenges that these pressures are creating for strategic‐level emergency management. It argues that emphasising ‘emergency management’ as a primary adaptation strategy is a retrograde step that ignores the importance of addressing socio‐political drivers of vulnerabilities. Three key suggestions are presented that could assist the country's strategic‐level emergency management in tackling these challenges: (i) reframe emergency management as a component of disaster risk reduction rather than them being one and the same; (ii) adopt a network governance approach; and (iii) further develop the capacities of strategic‐level emergency managers.     

关于城市应急供水系统建设的思考

从城市应急供水系统建设的紧迫性和重要性出发,分析了目前我国城市应急供水系统存在的问题和造成城市非常供水的原因。构建了城市应急供水系统的框架,将其分成工程措施和非工程措施两部分,并阐述了工程措施的类型和实施方法,以及非工程措施的各项应急机制,对建立、健全城市应急供水系统进行了探讨。     

Local‐level governance of risk and resilience in Nepal

This paper explores the circumstances in which communities may effectively reduce risks. It draws on the example of two ‘Risk and Resilience Committees’ (RRCs) that were established in Nepal as part of an action research project: one in Panchkhal in the central region, operating as a community‐based organisation (CBO); and the other in Dhankuta in the eastern region, embedded in municipal government. In‐depth interviews were conducted with RRC members. Wider community preferences for risk reduction were examined through a questionnaire survey. In Dhankuta, the RRC obtained further funding, developed strong upward and downward institutional links, and applied a ‘disaster risk reduction lens’ to existing local government responsibilities. In Panchkhal, RRC activities have been limited by funding and have focused on the strengthening of livelihoods. It may be concluded tentatively that community‐based disaster risk reduction activities are more successful when they are institutionally embedded in local government structures.     

Disaster coordination preparedness of soft-target organisations

This paper introduces a network‐enabled model to examine the disaster coordination preparedness of soft‐target organisations (STOs). Little attention is devoted to this matter in recent research. This study places emphasis on such organisations and the proposed model tests hypotheses related to network relation and coordination preparedness. It analyses the data set entitled ‘Preparedness of large retail malls to prevent and respond to terrorist attack, 2004′, which contains 120 completed surveys of security directors of retail malls in the United States. ¹ 1 See http://www.icpsr.umich.edu/icpsrweb/TPDRC/studies/21140 .
The following questions form the basis of this study: ‘What do STOs need to be better prepared to respond to a disaster?’; ‘How does network relationship between STOs and emergency agencies affect the coordination preparedness of STOs for disaster recovery?’; and ‘Which centrality measure needs to be followed to measure network variables in order to analyse coordination preparedness?’ The results show that STOs with a high level of connectedness and strong ties to other emergency agencies are better prepared for disaster response.     

Insiders and outsiders: local government and NGO engagement in disaster response in Guimaras,Philippines

This paper examines local government and non‐governmental organisation (NGO) engagement in disaster response in the wake of the M/T Solar 1 oil spill in Guimaras, Western Visayas, Philippines, on 11 August 2006. It assesses the response activities of these two entities as well as the institutional factors that affected their interaction on the ground. Local government and NGO engagement was shaped by multi‐layered, overlapping, and oftentimes contending government‐designed response frameworks. Within these frameworks, government actors played the role of primary implementer and provider of relief, allowing them to determine who could be involved and the extent of their involvement. The absence of formal roles for NGOs in these frameworks not only undermines their ability to work in a setting where such institutional set‐ups are operational but also it reaffirms their ‘outsider’ status. This study of the Guimaras oil spill illustrates the complexity and the institutional difficulties inherent in disaster response and coordination in the Philippines.     

Understanding and enhancing future infrastructure resiliency: a socio‐ecological approach

The resilience of any system, human or natural, centres on its capacity to adapt its structure, but not necessarily its function, to a new configuration in response to long‐term socio‐ecological change. In the long term, therefore, enhancing resilience involves more than simply improving a system's ability to resist an immediate threat or to recover to a stable past state. However, despite the prevalence of adaptive notions of resilience in academic discourse, it is apparent that infrastructure planners and policies largely continue to struggle to comprehend longer‐term system adaptation in their understanding of resilience. Instead, a short‐term, stable system (STSS) perspective on resilience is prevalent. This paper seeks to identify and problematise this perspective, presenting research based on the development of a heuristic ‘scenario–episode’ tool to address, and challenge, it in the context of United Kingdom infrastructure resilience. The aim is to help resilience practitioners to understand better the capacities of future infrastructure systems to respond to natural, malicious threats.     

Looking forward: Disasters at 40

This paper reflects on contemporary studies of and responses to disasters, highlighting the importance of historical, spatial, and intersectional modes of analysis, and draws on the author's ongoing research on Southern‐led and local community responses to displacement in the Middle East. Acknowledging the plurality of ‘international communities of response’, it begins by critiquing the depiction of selected responses to disasters as ‘positive’ ‘paradigm shifts’, including in reference to the ‘localisation of aid, and the United Nations’ Regional Refugee and Resilience Plan for Syria. Next it turns to three key themes that are central to disasters studies: migration; forced displacement; and Southern‐led responses to disasters. Among other things, the paper argues that exploring the principles and modalities of South–South cooperation, rather than promoting the incorporation of Southern actors into the ‘international humanitarian system’ via the localisation agenda, presents a critical opportunity for studies of and responses to disasters.