Making building codes an effective tool for earthquake hazard mitigation

Abstract

Investigators picking through the debris left by the Northridge earthquake in 1994 and Hurricane Andrew in 1992 found building codes had not provided the degree of protection against damage that many expected. We provide evidence that the problems of code enforcement in the United States that were uncovered for these events are not unique. We show the seismic provisions of codes receive low priority for enforcement by many local building departments, even in areas of moderate to high seismic hazard. Drawing lessons from experience in the United States with programs to foster greater energy efficiency in buildings, we discuss how the federal government and states can make building codes a more effective tool for earthquake hazard mitigation. Although the lessons we draw are specific to the United States, the broader implications of this research concern the role of higher-level governments in motivating local governments to address risks posed by natural hazards.     

Disasters as an ideological strategy for governing neoliberal urban transformation in Turkey: insights from Izmir/Kadifekale

Since the turn of the twenty‐first century, Turkish cities have undergone large‐scale change through a process referred to as urban transformation, involving, notably, the demolition of inner‐city low‐income settlements. The official authorities and business circles have resorted to various forms of discourse to justify these projects, which have led to the deportation of a significant number of people to peripheral areas. The discourse of ‘natural disasters’, for example, suggests that urban transformation is necessary to protect people from some pending event. Probably the most effective application of this discourse has occurred in Izmir, where the risk posed by ‘landslides’ has played a critical role in the settlement demolitions conducted in the huge inner‐city neighbourhood of Kadifekale. By examining the case of Kadifekale, this paper provide some insights into how ‘natural disasters’ serve as a discourse with which to legitimise the neoliberal logic entrenched in the urban transformation process in Turkey.     

Fire risk reduction through a community‐based risk assessment: reflections from Makola Market,Accra, Ghana

This paper explores the level of vulnerability to the hazard of fire that exists in Makola Market in Accra, Ghana, and assesses how this threat can be reduced through a community‐based risk assessment. It examines the perceptions of both market‐stall occupants and primary stakeholders regarding the hazard of fire, and analyses the availability of local assets (coping strategies) with which to address the challenge. Through an evaluation of past instances of fire, as well as in‐depth key stakeholder interviews, field visits, and observations, the study produces a detailed hazard map of the market. It goes on to recommend that policymakers consider short‐to‐long‐term interventions to reduce the degree of risk. By foregrounding the essence of holistic and integrated planning, the paper calls for the incorporation of disaster mitigation measures in the overall urban planning process and for the strict enforcement of relevant building and fire safety codes by responsible public agencies.     

Earthquake insurance pricing: a risk‐based approach

Flat earthquake premiums are ‘uniformly’ set for a variety of buildings in many countries, neglecting the fact that the risk of damage to buildings by earthquakes is based on a wide range of factors. How these factors influence the insurance premiums is worth being studied further. Proposed herein is a risk‐based approach to estimate the earthquake insurance rates of buildings. Examples of application of the approach to buildings located in Taipei city of Taiwan were examined. Then, the earthquake insurance rates for the buildings investigated were calculated and tabulated. To fulfil insurance rating, the buildings were classified into 15 model building types according to their construction materials and building height. Seismic design levels were also considered in insurance rating in response to the effect of seismic zone and construction years of buildings. This paper may be of interest to insurers, actuaries, and private and public sectors of insurance.     

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.     

Household self‐blame for disasters: responsibilisation and (un)accountability in decentralised participatory risk governance

The most important theoretical argument concerning decentralised participatory governance is that it can make a government more accountable for the needs of the governed. Key to this process are participatory spaces that act as mechanisms for dialogue between citizens and local government. However, within Cochabamba, a city in the centre of Bolivia, South America, ‘at‐risk’ citizens engage minimally with disaster risk issues in participatory spaces, despite high levels of civic participation. This is because ‘at‐risk’ populations view disasters as a private/household problem that is symptomatic of household error, rather than seeing them as a broader public problem due to wider structural inequalities. Consequently, they redistribute responsibility for disaster risk reduction towards households, which (re)produces the absolution of government authorities as guarantors of disaster risk reduction. This paper challenges the normative assumption that participatory spaces facilitate democratic deliberation of disaster risk reduction and the downward accountability of local government for disaster risk reduction.     

Public participation in NGO-oriented communities for disaster prevention and mitigation (N-CDPM) in the Longmen Shan fault area during the Wenchuan and Lushan earthquake periods

ABSTRACT

The Longmen Shan fault area in southwest China is one of the world’s most active earthquake zones. The epicenters of the two most recent earthquakes, the 2008 Wenchuan earthquake (8.0?Ms) and the 2013 Lushan earthquake (7.0?Ms), both of which caused serious losses, were only 85?km apart. Community-based disaster risk reduction is the foundation of the disaster management system pyramid and is critical to the success of ‘sustainable hazard mitigation’. Based on multiple collaborative stakeholder perspectives, this paper examines public participation in an NGO-oriented Community for Disaster Prevention and Mitigation (N-CDPM) in the period between the two earthquakes as a multi-stage problem; N-CDPM establishment, normal operations, disaster testing, and continuous improvement. Multi-stage field research was conducted in the affected areas in the Longmen Shan fault area to examine the collaboration in each stage, after which the differences were compared across the four stages based on eight key indices; scales, core stakeholders, core network stability, mean number of lines, mean collaborative level, governments, and individual and public organization participation. The government participation, individual participation, and public organization participation are then discussed. This paper provides a novel research approach to CDPM in multiple earthquake regions and gives rich insights into the collaboration between the government and the public for N-CDPM.     

Stakeholder participation in building resilience to disasters in a changing climate

The resilience perspective has emerged as a plausible approach to confront the increasingly devastating impacts of disasters; and the challenges and uncertainty climate change poses through an expected rise in frequency and magnitude of hazards. Stakeholder participation is posited as pivotal for building resilience, and resilience is not passive; rather, stakeholders are actively involved in the process of building resilience. Who is involved and how they are involved are crucial aspects for developing resilience in practice. Nevertheless, there are few empirical studies available to inform theory or show how these issues are addressed. This study focuses on revealing how practitioners frame the issue of participation in relation to resilience, its relevance to a changing climate and how, in consequence, they construct practices. Using Hajer's [(1995). The politics of environmental discourse: Ecological modernization and the policy process. New York] ‘Social-interactive discourse theory’, in this interdisciplinary research, we study the frames and subsequent practices developed around a disaster management policy initiative in Australia: the Natural Disaster Resilience Program in Queensland. What emerges from the research findings as critical and requiring urgent attention is stakeholder and especially local government and community participation, and for this to become socially relevant, challenges such as meaningful communication and power structures need to be addressed. What is also critical is to move from experiential learning to social learning. Additionally, the results presented here offer empirical evidence on how broadening the pool of actors can be implemented, and the opportunities that this opens up for building resilience.     

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.     

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.     

The barriers impeding precautionary behaviours by undocumented immigrants in emergencies: The Hurricane Ike experience in Houston,Texas, USA

Emergency management tends to be planned for legal, resident populations that are responsive to mainstream channels of communication and enforcement. For many areas prone to extreme events and emergencies, populations are also composed of transitory tourists, temporary visitors and migrant workers. This latter group may be a large population and, while not completely invisible to residents, may prefer obscurity and concealment within the social landscape. Tending towards poverty, technologically disconnected and linguistically isolated, undocumented migrants seek employment and attempt to avoid local law enforcement and immigration officials for fear of imprisonment and deportation. In this context, the behaviours prompted by developing public emergencies will be different for undocumented migrants than for the population at large. We examine the experience of 135 Hispanic undocumented migrants in the coastal zone of Houston-Galveston, Texas to understand the factors and issues that influence decision making and behaviours under region-wide mandatory evacuation conditions. Undocumented migrants’ decisions to evacuate rest upon: the presence (or absence) of family and/or children, their access to risk information that they find meaningful and rational and is in harmony with their pre-conceptions about their circumstances, their openness to information that either confirms their experiences or confronts rumour-generated biases they carry, their familiarity with social groups and governmental agencies and the services they offer, and the outcome of their risk analyses that consider the dangers of remaining in situ against the danger of exposing themselves to discovery as ‘illegal aliens’. The results suggest that emergency management plans ought to promote the dispelling of rumours that weaken the effect of emergency communication, promote non-emergency outreach to peripheral populations through community groups, and promote better, basic, non-technical, Spanish-language media through mainstream conduits (i.e. the most commonly watched non-Spanish television channels) that do not require high-tech devices or advanced understanding of visual media tools.     

Remaking the world in our own image: vulnerability,resilience and adaptation as historical discourses

A warming climate and less predictable weather patterns, as well as an expanding urban infrastructure susceptible to geophysical hazards, make the world an increasingly dangerous place, even for those living in high‐income countries. It is an opportune moment, therefore, from the vantage point of the second decade of the twenty‐first century, to review the terms and concepts that have been employed regularly over the past 50 years to assess risk and to measure people's exposure to such events in the light of the wider geopolitical context. In particular, it is useful to examine ‘vulnerability’, ‘resilience’, and ‘adaptation’, the principal theoretical concepts that, from an historical perspective, have dominated disaster studies since the end of the Second World War. In addition, it is valuable to enquire as to the extent to which such discourses were ideological products of their time, which sought to explain societies and their environments from the stance of competing conceptual frameworks.     

Choice and Constraints in Floodplain Occupation: The Influence of Structural Factors on Residential Location in Peninsular Malaysia

In Peninsular Malaysia 'structural' factors are found to influence strongly people's persistent occupation of floodplains. Thus, despite a high level of flood hazard awareness, a high level of pessimism and a high level of expectation of future floods, poorer individuals seldom attempt to leave for more advantageous locations but are instead trapped in their present locations by structural factors such as poverty, low residential and occupational mobility, low educational attainment, traditional land inheritance, government aid, and government disaster preparedness, relief and rehabilitation programmes. These forces exert a strong influence upon individuals and largely control their choice of residential location in response to flood hazards, thereby reinforcing the persistent occupation of floodplains. Structural factors such as lawlessness, rural—urban migration, floodplain encroachment and squatting are also highly influential in leading people to move. Even for those who move, structural factors have largely confined their choice of residential location to urban floodplains.     

Disaster risk reduction and the evolution of physical development regulation

In 1984 the Mitigation Implementation Conference recognized the need for effective management of urban development in terms of building standards and land-use zonation. In the intervening 25 years, significant progress has been made in the development of building codes and hazard mapping for disaster risk reduction; however, the failure to promulgate, implement and enforce regulation of development has resulted in the dramatic expansion of exposure and risk. It is now necessary to re-assess regulatory policy and practice. New approaches to regulatory compliance must be explored, including participatory regulation and reliance on cultural and religious bases for individual commitment to community safety.     

上海市居民对城市暴雨内涝的风险感知与适应行为研究

气候变化背景下,适应城市极端天气风险不仅是政府的责任,也越来越需要公众参与。然而,对风险感知、适应感知和适应行为响应的影响因素,以及三者之间的内在联系还缺乏系统认识。通过问卷调研上海市居民发现：(1)风险感知可以促进适应感知,二者均与收入和教育水平等显著正相关。(2)与关注预警信息和使用防水防潮材料等个人适应行为相比,居民对集体行为的响应程度更高,如增加绿地面积和提高监测预警准确性等。(3)适应行为的影响因素可归纳为：信息通达性、社区归属感、适应意愿、适应激励、风险感知和适应感知,其中信息通达性和适应激励是显著提高个人适应行为的关键因素。     

Institutional challenges to robustness of delta and floodplain agricultural systems

The farming of natural coastal deltas and floodplains was in many parts of the world the cradle of civilization. Through history the transformation of risky floodplain systems into socially controlled environments was the result of an intricate interplay between ecology, demography, religion, social organization and technology of the time. After the harnessing of most large tropical rivers, there are in our time few natural deltas and floodplains left to study in the warm regions of the world. One such floodplain is the Rufiji coastal delta and floodplain in Tanzania. Here an artificial irrigation culture has not been developed, but a robust risk-minimizing system based on rice, maize, cotton and peas has evolved for delta and floodplain agriculture. Through the Arab, German and British colonization, attempts were made to ‘modernize’ this agricultural system, resulting in new crops and varieties being incorporated into the system in a way that made it even more robust. This study explains the genesis of this as a socio-ecological system, that is, an interaction of resource systems, resource units, governance and users. It analyses some fundamental challenges to this agricultural system during the last 100 years: the removal of the floodplain population to ‘safe ujamaa villages’, the recurring large infrastructure development initiatives and the modern institutional challenges such as individualized tenure, urban food market expansion, coastal and marine conservation, and the recent development of ‘land-grabbing’ practices.     

Deconstruction of destruction stories: narrative,inequality, and disasters

A commonly‐held belief is that natural disasters do not discriminate. This paper, though, poses the following theoretical question: what does the elision of race, class, and gender in the news media say about disasters in the neoliberal era? It draws on the author's analysis of two prominent newspapers—The New York Times and USA Today—and their coverage of the recovery process after devastating tornadoes in two towns in the United States (Tuscaloosa, Alabama, and Joplin, Missouri) in 2011. The study asserts that the narrative of the news media is one with which people are familiar and that it fits into larger ‘formula stories’. It utilises theoretical treatments of narrative to demonstrate how differences are erased and how they lead to complicity in hegemonic representations. Critical theory is used to elucidate why this occurs, and the paper sources Goldberg (2002) in suggesting that the news media employs ‘fantasies of homogenisation’ when representing post‐disaster communities.     

区域综合公共安全管理模式及中国综合公共安全管理对策

中国政府将公共安全事件分为4大类,即自然灾害、事故灾难、公众卫生和社会安全。中国的公共安全管理体制包括在中央一级成立国务院应急管理办公室,以及针对上述4类公共安全问题相应组建的以管理自然灾害为主的国家减灾委员会;以管理事故灾难为主的国家安全生产委员会;以管理公共卫生为主的中国爱卫会和以管理社会治安为主的中央综合治理委员会。在地方政府一级,一般与中央有关公共安全管理体制的机构相对应,也相应组建了地方政府的应急管理办公室和上述4类的公共安全管理的委员会。此外,国家出台了各类公共安全管理的应急预案,并针对一些主要的公共安全因素,相继制定了一系列法律、规定和决定。由此可以认为,中国公共安全的管理体制是“以中央为主,中央与地方政府相互配合”。中国公共安全管理机制是中央与地方政府的相关部门,在灾前、灾中与灾后分别承担相应的责任,至今还没有一个政府部门就某一种公共安全因素承担全部的备灾、应急与恢复和重建任务。国家的公共安全管理战略一直是以“预防为主,防抗救相结合”,2003年SARS事件后,各级政府重视公共安全管理工作中应急管理体系的建设。文章提出了区域综合公共安全管理模式,即灾区政府、企业、社区在灾前备灾、灾中应急、灾后恢复与重建的减灾全过程中,形成一个有机的整体。在此模式的指导下,针对中国公共安全管理体制与机制中存在的问题,提出了进一步改进中国各级政府综合公共安全管理的对策：一是加大公共安全信息的及时公开力度,建立国家和地方公共安全信息共享体系;二是建立公共安全管理的纵向、横向与综合协调机制,全面提高各级政府的综合公共安全管理能力;三是从源头上降低公共安全事件的发生频率,建立发展规划的“风险”评价制度;四是鼓励非政府组织在综合公共安全管理中发挥作用,建立社区综合公共安全管理体系;五是大力提高减灾资源的利用效率与效益,建设区域综合风险防范关键技术示范基地。     

Build back better: implementation in Victorian bushfire reconstruction

The ‘build back better’ (BBB) concept signals an opportunity to decrease the vulnerability of communities to future disasters during post‐disaster reconstruction and recovery. The 2009 Victorian bushfires in Australia serve as a case study for this assessment of the application of core BBB principles and their outcomes. The results show that several BBB measures were successfully implemented in Victoria and are relevant for any post‐disaster reconstruction effort. The BBB initiatives taken in Victoria include: land‐use planning determined by hazard risk‐based zoning; enforcement of structural design improvements; facilitated permit procedures; regular consultations with stakeholders; and programmes conducted for social and economic recovery. Lessons from the Victorian recovery urge the avoidance of construction in high‐risk zones; fairness and representativeness in community consultations; adequate support for economic recovery; the advance establishment of recovery frameworks; and empowerment of local councils.     

How violence against women and girls undermines resilience to climate risks in Chad

What consequences does ‘everyday violence’ have on the abilities of survivors to protect themselves from further risks? This paper seeks to establish the linkages between violence and people's resilience capacities to survive and adapt to environmental changes, particularly those living in fragile economic and political contexts such as Chad. It investigates not only how the adverse consequences of violence against women and girls affect the health status and livelihoods of survivors, but also their capacities, and those of their household and community members, to further protect themselves from other risks. Empirical evidence collected in Chad as part of the BRACED (Building Resilience and Adaptation to Climate Extremes and Disasters) programme shows that ‘everyday violence’ undermines resilience‐building at the individual, household, and community level. These results have serious implications for development programmes and the role they need to play to better promote both gender equality and resilience to shocks and stresses.