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.     

Disturbance regimes,resilience, and recovery of animal communities and habitats in lotic ecosystems

Disturbance regime is a critical organizing feature of stream communities and ecosystems. The position of a given reach in the river basin and the sediment type within that reach are two key determinants of the frequency and intensity of flow-induced disturbances. We distinguish between predictable and unpredictable events and suggest that predictable discharge events are not disturbances. We relate the dynamics of recovery from disturbance (i.e., resilience) to disturbance regime (i.e., the disturbance history of the site). The most frequently and predictably disturbed sites can be expected to demonstrate the highest resilience. Spatial scale is an important dimension of community structure, dynamics, and recovery from disturbance. We compare the effects on small patches (⩽1 m²) to the effects of large reaches at the river basin level. At small scales, sediment movements and scour are major factors affecting the distribution of populations of aquatic insects or algae. At larger scales, we must deal with channel formation, bank erosion, and interactions with the riparian zone that will affect all taxa and processes. Our understanding of stream ecosystem recovery rests on our grasp of the historical, spatial, and temporal background of contemporary disturbance events.     

“Housing for all” at the era of financialization; can (post-disaster) cities become truly socially resilient and egalitarian?

This paper examines the realism of the resilience ambition and process of the U.S. housing system, shedding light on its heterogeneity as well as the financialization currently acting as the driving force in real estate production. The resilience ambition leading to enhanced justice and egalitarianism is understood as the provision and maintenance of post-disaster housing for all within an institutionally diverse landscape of housing policy makers and implementers. Particular emphasis is given to the post-Katrina institutional transformations resulting from multifarious interactions between multilevel institutional structures and a diverse landscape of low-income housing policy implementers – referred as social resilience cells (SRCs) in this paper. The nature and level of these transformations determine the degree to which resilience in its heterogeneous form has been incubated in New Orleans. The paper concludes with a discussion on the macro conditions and bottom-linked governance structures under which all SRCs could be better bolstered in a post-financialization, radicalised neowelfare U.S., and which in turn create possibilities for materialising the resilience ambition.     

Towards metrics of sustainable food systems: a review of the resilience and vulnerability literature

Food and nutrition security is a persisting global issue and, in addition, food systems are now facing a new set of intersecting economic, social and environmental challenges. Recurrent socio-economic and biophysical changes put the sustainability of food systems at risk. There is an urgent need to develop knowledge-based tools to assess and monitor food sustainability and to identify pathways for food security and resource conservation. The systemic nature of these interactions calls for multidimensional approaches and integrated assessments for decision-making to guide change. This paper reviews social–ecological system frameworks with the view to conceptualize the sustainability issues that affect the food systems. It is argued that the understanding of the food systems as social–ecological systems, and inputs from the theories of vulnerability and resilience in particular, can provide the concepts necessary to understand and model the complex system dynamics involved in the multiple interactions between human and natural components.     

Valuing third sector sustainability organisations – qualitative contributions to systemic social transformation

The number and diversity of civil society or third sector sustainability organisations (TSSOs) have increased in recent decades. TSSOs play a prominent role in local approaches to sustainability. However, the contributions made by TSSOs are not fully understood, beyond a limited suite of quantifiable outputs and impacts. In this qualitative study, we examine how four TSSOs from two Australian regions, Tasmania and Queensland's Sunshine Coast, contribute to social transformation beyond discrete outputs. We examine the operation, ethos, scope and influence of these organisations over time. In so doing, we identify three common ways in which these organisations facilitate social change: by (i) enhancing social connectivity through boundary work; (ii) mobilising participatory citizenship and (iii) contributing to social learning. We conclude that TSSOs contribute significantly to the systemic social conditions that enable change for sustainability and the development of community resilience and well-being, but do so in ways undervalued by existing metrics, formal evaluation processes and funding models. Clearer recognition of, and strategic emphasis on, these qualitative contributions to social transformation is vital in ensuring that TSSOs remain viable and effective over the long term.     

Features of resilience

The National Academy of Sciences (NAS) definition of resilience is used here to organize common concepts and synthesize a set of key features of resilience that can be used across diverse application domains. The features in common include critical functions (services), thresholds, cross-scale (both space and time) interactions, and memory and adaptive management. We propose a framework for linking these features to the planning, absorbing, recovering, and adapting phases identified in the NAS definition. The proposed delineation of resilience can be important in understanding and communicating resilience concepts.     

Risk and resilience lessons from Venice

In the history of disasters in Venice, there are implications for modern times in terms of complex systems management and emerging threats, in particular from examples of risk management and resilience achieved by the Venetian state during outbreaks of the plague. In fourteenth century Venice, risk assessment the way we practice it today would fail to provide meaningful recommendations to reduce the casualty rate of the plague epidemic because the cause and transmission of the disease was not understood. Instead, a set of systemic actions across the social, economic, and transportation networks of the city taken by officials and doctors eventually slowed and arguably stopped the spread of the disease. These latter actions are an early example of what is now considered resilience management. Resilience management improves a complex system’s ability to prepare, absorb, recover, and adapt to unexpected threats and does so by address the capabilities at a system, rather than component, level. Resilience management can be a guide to addressing current issues of population growth and rising sea level in modern day Venice and across the globe. This paper calls for integration of resilience assessment in comprehensive risk and resilience management framework.     

Options for National Parks and Reserves for Adapting to Climate Change

Past and present climate has shaped the valued ecosystems currently protected in parks and reserves, but future climate change will redefine these conditions. Continued conservation as climate changes will require thinking differently about resource management than we have in the past; we present some logical steps and tools for doing so. Three critical tenets underpin future management plans and activities: (1) climate patterns of the past will not be the climate patterns of the future; (2) climate defines the environment and influences future trajectories of the distributions of species and their habitats; (3) specific management actions may help increase the resilience of some natural resources, but fundamental changes in species and their environment may be inevitable. Science-based management will be necessary because past experience may not serve as a guide for novel future conditions. Identifying resources and processes at risk, defining thresholds and reference conditions, and establishing monitoring and assessment programs are among the types of scientific practices needed to support a broadened portfolio of management activities. In addition to the control and hedging management strategies commonly in use today, we recommend adaptive management wherever possible. Adaptive management increases our ability to address the multiple scales at which species and processes function, and increases the speed of knowledge transfer among scientists and managers. Scenario planning provides a broad forward-thinking framework from which the most appropriate management tools can be chosen. The scope of climate change effects will require a shared vision among regional partners. Preparing for and adapting to climate change is as much a cultural and intellectual challenge as an ecological challenge.     

Contributions of green infrastructure to enhancing urban resilience

After briefly reviewing key resilience engineering perspectives and summarising some green infrastructure (GI) tools, we present the contributions that GI can make to enhancing urban resilience and maintaining critical system functionality across complex integrated social–ecological and technical systems. We then examine five key challenges for the effective implementation of GI that include (1) standards; (2) regulation; (3) socio-economic factors; (4) financeability; and (5) innovation. We highlight ways in which these challenges are being dealt with around the world, particularly through the use of approaches that are both context appropriate and socially inclusive. Although progress surmounting these challenges has been made, more needs to be done to ensure that GI approaches are inclusive and appropriate and feature equally alongside more traditional ‘grey’ infrastructure in the future of urban resilience planning. This research was undertaken for the Resilience Shift initiative to shift the approach to resilience in practice for critical infrastructure sectors. The programme aims to help practitioners involved in critical infrastructure to make decisions differently, contributing to a safer and better world.     

A tool for building community resilience? A case study of the Lewes Pound

In the last decade, “resilience” has gained increasing recognition as a theoretical framework for understanding and managing change in complex social–ecological systems. Resilience assessments are increasingly used to inform sustainability initiatives, strategies, and policies. The Lewes Pound represents a new complementary currency model in the UK, aiming to build community resilience. However, there have been no empirical studies to date assessing the socio-economic impacts of this model. This article addresses the need to understand how such currencies function by measuring whether the Lewes Pound is capable of building resilience. This is done by developing a novel framework for estimating economic, social, and environmental outcomes, which uses a mixed-methods approach. Findings suggest that complementary currencies can enhance social-ecological resilience through awareness-raising and changes in consumption. Although economic localisation – a key indicator – is lacking, there is evidence that the Lewes Pound has developed social interactions and changed consumption patterns of its users.     

Empirical Social-Ecological System Analysis: From Theoretical Framework to Latent Variable Structural Equation Model

The social-ecological system (SES) approach to natural resource management holds enormous promise towards achieving sustainability. Despite this promise, social-ecological interactions are complex and elusive; they require simplification to guide effective application of the SES approach. The complex, adaptive and place-specific nature of human-environment interactions impedes determination of state and trends in SES parameters of interest to managers and policy makers. Based on a rigorously developed systemic theoretical model, this paper integrates field observations, interviews, surveys, and latent variable modeling to illustrate the development of simplified and easily interpretable indicators of the state of, and trends in, relevant SES processes. Social-agricultural interactions in the Logone floodplain, in the Lake Chad basin, served as case study. This approach is found to generate simplified determinants of the state of SESs, easily communicable across the array of stakeholders common in human-environment interactions. The approach proves to be useful for monitoring SESs, guiding interventions, and assessing the effectiveness of interventions. It incorporates real time responses to biophysical change in understanding coarse scale processes within which finer scales are embedded. This paper emphasizes the importance of merging quantitative and qualitative methods for effective monitoring and assessment of SESs.     

Response of Three Plant Communities to Trampling in a Sand Dune System in Brittany (France)

Dunes that are protected because of their very rich and diverse plant communities are often exposed to excessive visitor pressure. The effects of trampling on the habitat must be known from a conservation viewpoint but also are important for management. To determine the response of plant assemblages to trampling by people, an experimental study was conducted on the state-owned dunes at Quiberon (Brittany, France). Indices of resistance and resilience were used to compare three typical plant communities belonging to the various landscape units: mobile dune, semifixed dune, and fixed dune. The strong contrasts between communities belonging to different successional stages reflect their ecological functioning. The mobile dune and semifixed dune with their low resistance contrasted with the fixed dune. Only the vegetation cover of the semifixed dune benefited from long-term trampling and had a very high resilience (134%). This response could be explained by a good balance of two opposite factors: soil compaction increasing soil stability and moisture content, and vegetation destruction. Because of their low resilience, trampling seems to be harmful for fixed dunes in the long term. The tourist pressure seems easier to integrate in to the mobile dunes and the semifixed dunes if periods of recovery are included in the management.     

Does community resilience mitigate loss and damage from climaterelated disasters? Evidence based on survey data

Policy-makers view community resilience as fundamental to mitigating loss and damage from climate-related disasters. Although energy has been devoted to defining resilience, less effort has been devoted to analysing the effects of resilience on loss and damage, which is critical in places with limited capacity for adaptation. We use survey data to develop a composite index of community resilience in Fiji and then evaluate the extent to which community resilience mitigates loss and damage. We find that community resilience is negatively correlated with damages over which human intervention may be effective, but not with damages over which intervention is less effective, suggesting that community resilience may limit impacts. We further find that this result holds for a cyclone (about which communities had substantial advance warning) but not for river flooding (for which communities had little advanced warning), suggesting that early warning is necessary for community resilience to become responsive.     

Environmental care in agricultural catchments: Toward the communicative catchment

Substantial land degradation of agricultural catchments in Australia has resulted from the importation of European farming methods and the large-scale clearing of land. Rural communities are now being encouraged by government to take responsibility for environmental care. The importance of community involvement is supported by the view that environmental problems are a function of interactions between people and their environment. It is suggested that the commonly held view that community groups cannot care for their resources is due to inappropriate social institutions rather that any inherent disability in people. The communicative catchment is developed as a vision for environmental care into the future. This concept emerges from a critique of resource management through the catchment metaphors of the reduced, mechanical, and the complex, evolving catchment, which reflect the development of systemic and people-centered approaches to environmental care. The communicative catchment is one where both community and resource managers participate collaboratively in environmental care. A methodology based on action research and systemic thinking (systemic action research) is proposed as a way of moving towards the communicative catchment of the future. Action research is a way of taking action in organizations and communities that is participative and informed by theory, while systemic thinking takes into account the interconnections and relationships between social and natural worlds. The proposed vision, methodology, and practical operating principles stem from involvement in an action research project looking at extension strategies for the implementation of total catchment management in the Hunter Valley, New South Wales.     

Flood resilience: consolidating knowledge between and within critical infrastructure sectors

Flood resilience has been rising up the political, economic and social agendas. Taking an integrated systems approach, using the right design guidance and tools and ensuring that education is in place for all stakeholders are three themes which are intrinsically linked to delivering flood resilience. This paper reviews these themes across the academic research, policy landscape and practitioner approaches, drawing conclusions on the way forward to increase our societies resilience to floods. The term ‘flood resilience’ is being increasingly used, however, it remains to be clearly defined and implemented. The UK, USA and Australia are leading the way in considering what flood resilience really means, but our review has found few examples of action underpinned by an understanding of systems and complexity. This review investigates how performance objectives & indicators are currently interpreted in guidance documents. It provides an in-depth exploration of the methods, that although developed through European and US expertise, can be used for worldwide application. Our analysis highlights that resilience is often embedded in engineering education and frequently linked to risk. This may however, mask the importance of resilience and where it differs from risk. With £2.6 billion to be spent in the UK over the next 6 years on strengthening the country’s flood and coastal defences, this is the opportunity to rethink resilience from a systems approach, and embed that learning into education and professional development of engineers. Our conclusions indicate how consolidating flood resilience knowledge between and within critical infrastructure sectors is the way forward to deliver flood resilience engineering.     

Can We Manage for Resilience? The Integration of Resilience Thinking into Natural Resource Management in the United States

The concept of resilience is now frequently invoked by natural resource agencies in the US. This reflects growing trends within ecology, conservation biology, and other disciplines acknowledging that social–ecological systems require management approaches recognizing their complexity. In this paper, we examine the concept of resilience and the manner in which some legal and regulatory frameworks governing federal natural resource agencies have difficulty accommodating it. We then use the U.S. Forest Service’s employment of resilience as an illustration of the challenges ahead.     

Land-Use Systems and Resilience of Tropical Rain Forests in the Tehuantepec Isthmus,Mexico

Land-cover types were analyzed for 1970, 1990 and 2000 as the bases for determining land-use systems and their influence on the resilience of tropical rain forests in the Tehuantepec Isthmus, Mexico. Deforestation (DR) and mean annual transformation rates were calculated from land-cover change data; thus, the classification of land-use change processes was determined according to their impact on resilience: a) Modification, including land-cover conservation and intensification, and b) Conversion, including disturbance and regeneration processes. Regeneration processes, from secondary vegetation under extensive use, cultivated vegetation under intensive use, and cultivated or induced vegetation under extensive use to mature or secondary vegetation, have high resilience capacity. In contrast, cattle-raising is characterized by rapid expansion, long-lasting change, and intense damages; thus, recent disturbance processes, which include the conversion to cattle-raising, provoke the downfall of the traditional agricultural system, and nullify the capacity of resilience of tropical rain forest. The land-use cover change processes reveal a) the existence of four land-use systems (forestry, extensive agriculture, extensive cattle-raising, and intensive uses) and b) a trend towards the replacement of agricultural and forestry systems by extensive cattle-raising, which was consolidated during 1990–2000 (DR of evergreen tropical rain forest=4.6%). Only the forestry system, which is not subject to deforestation, but is affected by factors such as selective timber, extraction, firewood collection, grazing, or human-induced fire, is considered to have high resilience (2 years), compared to agriculture (2–10 years) or cattle-raising (nonresilient). It is concluded that the analysis of land-use systems is essential for understanding the implications of land-use cover dynamics on forest recovery and land degradation in tropical rain forests.     

Improving communication resilience for effective disaster relief operations

The objective of this paper is to identify strategies to improve the resilience of interagency communication between relief organizations and the community when dealing with an emergency. This research draws from frameworks including information theory, organization design, and how the private sector has learned and evolved from the challenges of information flow to provide guidance to disaster relief agencies. During times of emergency, private organizations as well as public authorities must coordinate in real time to create an effective response. When coordination is absent, failure results, as was seen after Hurricane Katrina and the Haiti Earthquake. Using data that the authors collected immediately after these disasters, two case studies of systemic failure are presented to extract lessons that might be used to improve communication resilience through coordination between parties in humanitarian relief operations. Recent emergency response trends are identified, and the paper argues that the persistence of response failures is not surprising, in part because response organizations normally operate independently, and their operations evolve at different rates. As a result, the organizational interfaces that enable rapid integration during a disaster naturally degrade and may be weak or absent. Integrating the literature on information processing theory and organization design with the data from the two case studies, the paper proposes that increasing the resilience of disaster response systems can be achieved by (1) improving the interoperability and information flow across organizational boundaries; (2) increasing the synergies between organizations on adapting new technology such as social media for the coordination of structured and unstructured data for use in decision-making, and (3) increasing the flexibility of relief organizations to use external resources from areas not affected by disasters on an opportunistic basis. The paper concludes by discussing resilience enhancing solutions including boundary spanning investments and argues that effective emergency response does not result from sporadic or intermittent efforts but rather requires sustained investment, continuous monitoring, and data collection.     

Interactions Between Spatially Explicit Conservation and Management Measures: Implications for the Governance of Marine Protected Areas

Marine protected areas are not established in an institutional and governance vacuum and managers should pay attention to the wider social–ecological system in which they are immersed. This article examines Islas Choros-Damas Marine Reserve, a small marine protected area located in a highly productive and biologically diverse coastal marine ecosystem in northern Chile, and the interactions between human, institutional, and ecological dimensions beyond those existing within its boundaries. Through documents analysis, surveys, and interviews, we described marine reserve implementation (governing system) and the social and natural ecosystem-to-be-governed. We analyzed the interactions and the connections between the marine reserve and other spatially explicit conservation and/or management measures existing in the area and influencing management outcomes and governance. A top-down approach with poor stakeholder involvement characterized the implementation process. The marine reserve is highly connected with other spatially explicit measures and with a wider social–ecological system through various ecological processes and socio-economic interactions. Current institutional interactions with positive effects on the management and governance are scarce, although several potential interactions may be developed. For the study area, any management action must recognize interferences from outside conditions and consider some of them (e.g., ecotourism management) as cross-cutting actions for the entire social–ecological system. We consider that institutional interactions and the development of social networks are opportunities to any collective effort aiming to improve governance of Islas Choros-Damas marine reserve. Communication of connections and interactions between marine protected areas and the wider social–ecological system (as described in this study) is proposed as a strategy to improve stakeholder participation in Chilean marine protected areas.     

Effects of knowledge,personal attribution and perception of ecosystem health on depreciative behaviors in the intertidal zone of Pacific Rim National Park and Reserve

Human activities levy a biological cost on ecosystems as resources are accessed and utilized at rates which are often incompatible with inherent ecosystem processes and structures. The recreational impact of humans upon intertidal zones and particularly fucoid algal assemblages is one major threat facing coastal ecosystems. The effect of human values, knowledge and perception in effecting biologically costly behaviors has rarely been examined. We hypothesize that with respect to intertidal zones: (1) Personal attribution and perception of ecosystem resiliency are more important than knowledge in determining the extent of depreciative behaviors individuals engage in, and; (2) Individuals who are uncertain about ecosystem resiliency will behave in a manner consistent with the 'precautionary principle'. We measured the depreciative behavior, and the attitudes and perceptions to ecosystem resilience, of visitors to Wick Headland in Pacific Rim National Park, British Columbia. Attitudes, knowledge, perceptions, and personal attribution were measured using questionnaire survey and structured interviews undertaken in situ. Depreciative behaviors of visitors were discreetly observed and correlated to the questionnaire survey and interview responses. We show that visitors who recorded greater knowledge of intertidal ecology engaged in more depreciative behaviors than visitors recording less knowledge. Visitors who perceived high ecosystem resilience in the intertidal zone engaged in significantly more behaviors eliciting biological cost than those who perceived low ecosystem resilience. Visitors who recorded uncertainty regarding ecosystem resilience engaged in significantly more depreciative behaviors than those who perceived low ecosystem resilience but slightly fewer depreciative behaviors than those who perceived high ecosystem resilience. Personal attribution was inversely correlated to the mean number of depreciative behaviors. We discuss the relevance of these results to the management of intertidal zones and marine protected areas, to multiple use management, the management of visitor impact, and natural resource use.