Public Participation in Local Government Review of Development Proposals in Hazardous Locations: Does it Matter, and What Do Local Government Planners Have to Do with It?

Natural hazard investigators recommend that local governments adopt mitigation plans to help reduce hazard losses. However, such plans are unlikely to be effective unless a wide range of public stakeholders is involved in their creation. Previous research shows that stakeholder participation levels in hazard mitigation planning tend to be low, though there may be particular choices that local government planners can make to foster participation. We examine the importance of planners’ choices and role orientations (i.e., beliefs regarding appropriate behavior in the workplace) for participation levels in site plan review, wherein local governments review site plans for proposed development projects to ensure compliance between project design and applicable plans and policies. Using a national sample of 65 development projects located in areas subject to natural hazards, and bivariate and multivariate analyses, we examine whether participation levels during site plan review depend upon planners’ choices and role orientations, and whether participation levels are correlated with the incorporation of hazard mitigation techniques into development projects. We find significant correlations between participation levels and planners’ choices, between participation levels and planner’s role orientations, and between participation levels and the incorporation of hazard mitigation techniques. We encourage local government planners to revisit their beliefs, choices, and behaviors regarding public participation in site plan review.     

Municipal hazard mitigation planning: a comparison of plans in British Columbia and the United States

This paper examines the extent to which 20 municipalities in the Greater Vancouver region of British Columbia have included provisions in their community plans for reducing natural hazard risk and vulnerability. Findings show that the plans are generally lacking in hazard related factual information, goals, and policies, and in mechanisms to promote plan implementation. The plans also do not compare favorably to municipal hazard mitigation plans in the United States. The authors provide recommendations for provincial/state and municipal governments with respect to improving the quality of municipal plans and their capacity to enhance public safety.     

Public Participation in Natural Hazard Mitigation Policy Formation: Challenges for Comprehensive Planning

Democratic theory holds that active participation in governmental planning and decision making is critical to furthering the public interest. As a result, public participation in urban planning in the US is arguably the most extensive and intensive in the world. Required by federal, state and local laws, citizen involvement is a staple of local plan making. However, as this paper shows, citizen interest in participating in the formulation of hazard mitigation policies in comprehensive plans is low, despite mounting evidence of perils to life and property from floods, hurricanes and earthquakes. Using evidence from case studies in Florida and Washington, the causes of disinterest are dissected and ways to increase public input to hazard mitigation policies in local comprehensive plans are recommended.     

Climate change adaptation planning for Global South megacities: the case of Dhaka

Megacities in low- and middle-income countries face unique threats from climate change as vulnerable populations and infrastructure are concentrated in high-risk areas. This paper develops a theoretical framework to characterize adaptation readiness in Global South cities and applies the framework to Dhaka, Bangladesh, a city with acute exposure and projected impacts from flooding and extreme heat. To gather case evidence from Dhaka we draw upon interviews with national and municipal government officials and a review of planning documents and peer-reviewed literature. We find: (1) national-level plans propose a number of adaptation strategies, but urban concerns compete with priorities such as protection of coastal assets and agricultural production; (2) municipal plans focus on identifying vulnerability and impacts rather than adaptation strategies; (3) interviewees suggest that lack of coordination among local government (LG) organizations and lack of transparency act as barriers for municipal adaptation planning, with national plans driving policy where LGs have limited human and financial resources; and (4) we found limited evidence that national urban adaptation directives trickle down to municipal government. The framework developed offers a systematic and standardized means to assess and monitor the status of adaptation planning in Global South cities, and identify adaptation constraints and opportunities.     

Adaptation planning for sea level rise: a study of US coastal cities

Sea level rise (SLR) is expected, even without greenhouse gas emissions. As SLR is inevitable, adapting to its impacts has received increasing attention, and local governments are the key actors in this emerging agenda. This study indicates that adaptation planning for SLR should be integrated into two local major planning mechanisms in the United States: the local comprehensive plans and hazard mitigation plans. By evaluating 36 plans from 15 US coastal cities that are considered at high risk and vulnerable to rising sea levels, the results demonstrate that SLR is widely identified, but the overall quality of the plans to address it requires significant improvement. A detailed table of selected plans' characteristics is also provided as a lens on how localities tackle this challenging issue. The paper concludes with planning suggestions for coastal communities to better adapt to SLR.     

Social equity in urban resilience planning

ABSTRACT

A growing number of cities are incorporating resilience into their plans and policies to respond to shocks, stresses, and uncertainties. While some scholars advocate for the potential of resilience research and practice, others argue that it promotes an inherently conservative and neoliberal agenda, prevents systemic transformations, and pays insufficient attention to power, politics, and justice. Notably, critics of the urban resilience agenda argue that policies fail to adequately address social equity issues. This study seeks to inform these debates by providing a cross-sectional analysis of how issues of equity are incorporated into urban resilience planning. We develop a tripartite framework of equity that includes distributional, recognitional, and procedural dimensions and use it to analyse the goals, priorities, and strategies of formal resilience plans created by member cities of the Rockefeller Foundation’s 100 Resilient Cities programme. Our analysis reveals considerable variation in the extent to which cities focus on equity, implying that resilience may be more nuanced than some critics suggest. There are, however, clear areas for improvement. Dominant conceptions of equity are generally tied to a distributional orientation, with less focus on the recognitional and procedural dimensions. We hope our conceptual framework and lessons learned from this study can inform more just resilience planning and provide a foundation for future research on the equity implications of resilience.     

Measuring participation by socially vulnerable groups in hazard mitigation planning,Bertie County,North Carolina

In accordance with the Disaster Mitigation Act, most US counties have a hazard mitigation plan (HMP) to reduce future disaster losses. HMPs are important as they can be used to proactively assess risk, direct future development, raise awareness and build consensus. Using a population-based sample, we interviewed residents of Bertie County, NC, about their awareness of and participation in the HMP process to determine if demographics, social vulnerability or hazard vulnerability were associated with increased awareness or participation. We also assessed whether these factors were associated with knowledge of policy changes and investments that were adopted in the HMP. Overall, the unemployed were the only group less likely to report awareness of or participation in HMP development. African-Americans, mobile home residents, the poor, short-term residents and those with less disaster experience were less likely to be aware of policies and investments prioritised in the HMP. Targeted efforts to increase awareness could potentially improve disaster outcomes among vulnerable populations.     

Planning for cooler cities: a plan quality evaluation for Urban Heat Island consideration

ABSTRACT

City strategic plans and enabling policies provide a framework for and inform future development across multiple scales. An exemplar city strategic plan will be one based on evidence, enabled by complementary policy outcomes, and built on the knowledge of the existing landscape. This study evaluated the plan quality of eighteen metropolitan strategic plans for city members in the 100 Resilient Cities initiative. A protocol was developed containing thirty-two indicators to assess plans capacity to act as a strategic planning tool to develop, analyse and implement strategies for the Urban Heat Island (UHI) and climate change mitigation and adaptation. The evaluation indicated that strategies addressing the UHI are rarely included in metropolitan plans. Strategic plans showed a lack of evidence-base to inform the potential actions. Urban warming is often linked to extreme weather events anticipated under climate change, not the UHI as a systemic and increasing phenomenon. We recommend that the pathway to addressing UHI mitigation and adaptation may lie in its nexus to aspects of climate change that concurrently can serve to support liveable and resilient cities.     

PLANNING FOR DROUGHT: MOVING FROM CRISIS TO RISK MANAGEMENT1

ABSTRACT: Severe drought is a recurring problem for the United States, as illustrated by widespread economic, social, and environmental impacts. Recent drought episodes and the widespread drought conditions in 1996, 1998, and 1999 emphasized this vulnerability and the need for a more proactive, risk management approach to drought management that would place greater emphasis on preparedness planning and mitigation actions. Drought planning has become a principal tool of states and other levels of government to improve their response to droughts. For example, since 1982, the number of states with drought plans has increased from 3 to 29. Many local governments have also adopted drought or water shortage plans. Unfortunately, most state drought plans were established during the 1980s and early 1990s and emphasize emergency response or crisis management rather than risk management. This paper presents a substantive revision of a 10‐step drought planning process that has been applied widely in the United States and elsewhere. The revised planning process places more weight on risk assessment and the development and implementation of mitigation actions and programs. The goal of this paper is to encourage states to adopt this planning process in the revision of existing drought plans or, for states without plans, in the development of new plans.     

Natural disaster mitigation: Environmental approaches in Tonga and Algeria

Summary The mitigation of natural disasters essentially depends upon the identification and adjustment of human ecological processes contributing to conditions of vulnerability. The analysis of vulnerability requires the local study of political, social, and economic processes which have contributed, and are contributing, to a vulnerable condition in a hazardous environment. One of the few similarities between Tonga and Algeria is a continuing experience of natural disaster after independence from previous colonial administrations. In two very different but complementary projects, ways are identified for the adjustment of assumed or inherited priorities for development, to take practical account of continuing hazards. The high vulnerability of rural areas is a factor common to both countries, as well as to many others. The analysis of conditions and systems in two dissimilar countries may have begun a process of implementation, one which must necessarily follow theoretical analysis for the realisation of practical value. The degree and nature of disaster impact is conditioned as much by normally prevailing conditions and systems as by the manifestation of natural hazard. Direct experience of hazardous environments, and of problems caused by disaster, must be made to result in the creation of multi-disciplinary environmental policies for disaster mitigation, inclusive of small scale development and education and training programmes for continued implementation. Comprehensive and simultaneous strategies for disaster avoidance, disaster resistance, and disaster accomodation must be made integral components of local development planning.     

Enhancing Plan Quality: Evaluating the Role of State Planning Mandates for Natural Hazard Mitigation

Traditionally, responsibility for land planning in the United States lies with local governments. However, a growing number of states over the past several decades have attempted to exert more influence on how local governments plan for development. This paper uses empirical data from natural hazard elements of 139 community plans in five states to assess whether such state mandates actually result in better local plans. We find that a state mandate not only achieves plans from communities that otherwise would not make a plan, but in addition those plans are of higher quality than plans made voluntarily in communities not under a mandate to plan. W e find that a state mandate substitutes for the absence of any positive political forces for planning and overcomes local political, economic and physical obstacles to planning. Further, the form of the mandate and the state level implementation effort makes a difference, so that some states' mandates achieve local plans of higher quality than those created in other mandating states. Because the data on which these conclusions are based are limited to natural hazards elements of general plans, we feel most confident about their generalization to all elements of local plans.     

Using social network analysis to examine planner involvement in environmentally oriented planning processes led by non-planning professions

Broad stakeholder involvement cannot be assumed in all environmental planning and management processes that have critical land use dimensions. This paper illustrates how concepts and techniques from social network analysis (SNA) can be used to examine and better understand the roles of one type of stakeholders, planners, in environmentally oriented planning and management processes led by other professions. Two cases of natural hazard mitigation planning led by emergency managers illustrate the usefulness of three SNA concepts of network structural characteristics in understanding how differences in planner involvement may influence incorporation of land use approaches in local natural hazard mitigation plans aimed at reducing long term risks from natural hazards.     

Integration of biodiversity in urban planning instruments in developing countries: the case of Kumasi Metropolitan Assembly,Ghana

There is a growing concern about integrating biodiversity into urban planning, yet, discussions are concentrated on science-informed planning in general. Few have explored the integration of biodiversity in specific planning instruments, especially in African cities. This paper examines how and what components of biodiversity are integrated into master plans, medium-term plans, building codes, zoning codes and permits in Kumasi City, Ghana. There is limited integration of biodiversity in most planning instruments as they were mostly designed on the basis of health, safety and economy. Allied to lack of funding and public participation, biodiversity in Kumasi is under significant threat from rapid urban development. Creating an opportunity for popular participation and decentralizing the planning system could set the preconditions for local integration and revision of instruments. Simplifying the definition of biodiversity could increase local planners’ appreciation, understanding and their ability to make use of biodiversity data.     

A riparian wildlife habitat evaluation scheme developed using GIS

Recent Italian laws mandate the consideration of environmental factors in local plans, especially at the provincial level of government. The plan for the province of Cremona in northern Italy illustrates the integration of the environment in provincial-level planning. The Cremona plan was developed through an ecological planning approach that occurred from 1994 to 1998. As part of this process, the planning team designed an environmental sustainability index. This index was integrated with an environmental capability analysis. To improve the quality of the Cremona landscape, the planning team developed an ecological network. This network seeks to weave together the natural areas of the province, especially by connecting provincial parks to regional river parks throughout Lombardy. The experience of the Cremona provincial plan has implications for environmental management elsewhere in Italy, Europe, and abroad.     

Estimating the value of foresight: aggregate analysis of natural hazard mitigation benefits and costs

Hazard mitigation planners claim that foresighted present actions and investments produce significant future benefits. However, they have difficulty in supporting their claims, since previously their evidence typically was derived from individual case studies. Constituents and decision makers are often sceptical, believing that individual cases are either inapplicable to their situation or non-randomly selected to support a particular view. Planners need objective evidence based on a large body of experience to support the case for mitigation. Such is the unique contribution of a recent U.S. study that found that each dollar spent in three federal natural hazard mitigation grant programs (the Hazard Mitigation Grant Program, Project Impact, and the Flood Mitigation Assistance Program) saves society an average of $4 in future avoided losses. Complementing the aggregate benefit-cost analysis with community-based evaluations, the study yielded insights on how planners can improve long-term community resilience in the face of extreme events. Valuable lessons for mitigation planners and policy makers emerged: the need to consider a wide variety of losses, the importance of mixing qualitative with quantitative analysis, the value of averaging results over a large number of projects, and the need to more explicitly address social issues and data collection in order to reduce vulnerability and enhance resilience to cope with twenty-first century hazards.     

Evaluating the effects of local floodplain management policies on property owner behavior

Floodplain management programs have been adopted by more than 85% of local governments in the nation with designated flood hazard areas. Yet, there has been little evaluation of the influence of floodplain policies on private sector decisions. This article examines the degree to which riverine floodplain management affects purchase and mitigation decisions made by owners of developed floodplain property in ten selected cities in the United States. We find that the stringency of such policies does not lessen floodplain property buying because of the overriding importance of site amenity factors. Indeed, flood protection measures incorporated into development projects appear to add to the attractiveness of floodplain location by increasing the perceived safety from the hazard. Property owner responses to the flood hazard after occupancy involve political action more often than individual on-site mitigation. Floodplain programs only minimally encourage on-site mitigation by the owner because most owners have not experienced a flood and many are unaware of the flood threat. It is suggested that floodplain programs will be more effective in meeting their objectives if they are directed at intervention points earlier in the land conversion process.     

What drives plan implementation? Plans,planning agencies and developers

This article investigates the determinants of plan implementation by applying a recently‐developed Plan Implementation Evaluation methodology. The lack of methodology to assess the implementation of plans has so far precluded any systematic analysis of the determinants of the implementation of local environmental plans. The article focuses on the implementation of plans in New Zealand. The key factors of implementation are: the quality of the plan; the capacity and commitment of land developers to implement plans; the capacity and commitment of the staff and leadership of planning agencies to implement plans; and the interactions between developers and the agency. The analysis is based on 353 permits implementing six local environmental plans in New Zealand, and on surveys of the developers who obtained the permits and of the planning agencies that granted the permits. The analysis finds that plan implementation is mainly driven by the resources of the planning agencies and by the quality of the plans, rather than by the characteristics of developers. Investments in plan writing and agency and staff capacity building thus improve the implementation of plans in the long‐run.     

The Value of Validated Vulnerability Data for Conservation Planning in Rapidly Changing Landscapes

Data needed for informed conservation prioritization are generally greater than the data available, and surrogates are often used. Although the need to anticipate threats is recognized, the effectiveness of surrogates for predicting habitat loss (or vulnerability) to land-use change is seldom tested. Here, we compared properties of two different vulnerability surrogates to validated vulnerability—validated prediction of habitat conversion based on a recent assessment of land-use change. We found that neither surrogate was a particularly effective predictor of vulnerability. Importantly, both surrogates performed poorly in places most imminently threatened with habitat conversion. We also show that the majority of areas protected over the last two decades have low vulnerability to the most active threatening process in this biome (habitat conversion). The contrary patterns of vulnerability and protection suggest that use of validated vulnerability would help to clarify protection needs, which might lead to the improvement of conservation decisions. Our study suggests the integration of validated vulnerability into conservation planning tools may be an important requirement for effective conservation planning in rapidly changing landscapes. We apply our results to discuss the practical considerations and potential value of incorporating validated vulnerability into conservation planning tools both generally and in the context of New Zealand’s indigenous grasslands.     

Vulnerability and resilience to climate change in Sorsogon City,the Philippines: learning from an ordinary city?

Sorsogon City is a rapidly urbanising coastal area in the Philippines. Its location, combined with a rapidly changing and growing urban fabric, leaves it vulnerable to both incremental climate change and associated extreme weather events. In this paper, UN-HABITAT data are used to draw out the climate change vulnerabilities and policy responses in Sorsogon City. Vulnerability “hotspots” highlight the spatial intersection of socio-economic justice concerns, particularly in terms of vulnerability to increased cyclone activity. We discuss vulnerabilities of Sorsogon City and its citizens to climate change and measures undertaken through various social, environmental and technical systems and interventions to increase resilience. The paper also attempts to unpick the relationship between the neat, concise reported city and the complexities of urban life using the Sorsogon experiment to consider the limitations of such approaches to governing climate change. We group these under four headings: social simplification in the absence of data; over-governance (and under-representation); quick wins versus strategic investment; and stretching the ecological and vulnerability footprints of the city. The experience of Sorsogon City is then extended to reflect on issues of governance and planning in other Asian coastal cities.     

Compliance of Australian threatened species recovery plans with legislative requirements

Recovery plans are the main documents supporting management decision-making for threatened species. We evaluated Australian recovery plans to assess their appropriateness as conservation and management planning instruments. Six legislative requirements (species information and general requirements, species distribution and location, known and potential threats, objectives, performance criteria and actions, duration of the plan, and estimated costs of plan implementation) were used to assess the degree of compliance of recovery plans with the relevant legislation. We assessed all 236 official recovery plans which had been adopted as at January 2006. The results showed that plans were most compliant regarding the setting of objectives, performance criteria, recovery actions, and duration of plan. Most plans included a single performance criterion that was generally related to the population status of target species. Improvement is required in relation to identification of current threats and critical habitats, and the establishment of basic elements of monitoring and evaluation for measuring recovery progress. Gaps in ecological information are the main factors affecting adequate compliance with legislative requirements as opposed to managerial information (e.g. clarity in establishing the implementation schedule, costs and resource allocation). Planning deficiencies could be addressed by improving the recovery planning guidelines and more carefully reviewing the drafting and adoption of new plans.