Re-framing risk: the changing context of disaster mitigation and preparedness

This issue of Disasters explores the roles of NGOs and other actors in disaster mitigation and preparedness and also reviews broad international trends in risk management and disaster prevention. The need to address risk, and with that the motivation to improve disaster mitigation and preparedness, has tended to fall between the cracks of grander frameworks of development co-operation and humanitarian assistance. Despite the seemingly glaring need to reduce the horrific impact of floods, droughts and wars, disaster mitigation and preparedness have neither the allure of directly 'saving lives', nor of providing an 'escape from poverty'. There are, however, signs that risk management is becoming a mainstream concern. Factors such as the need to address factors that do not fit into traditional slots on the relief-development continuum, the rising economic costs of disasters and a growing acknowledgement that aid will never cover more than a small fraction of the costs of disasters are all leading to new approaches, priorities and institutional configurations. A realisation that dealing with risk and insecurity is a central part of how poor people develop their livelihood strategies has begun to position disaster mitigation and preparedness within many poverty alleviation agendas. A number of long-standing challenges remain; most of all, the complexities of maintaining the political will that is needed to ensure that risk management becomes more than a passing fad.     

Disaster mitigation and preparedness on the Nicaraguan post-Mitch agenda

Nicaragua provides an example of how a major disaster, in this case Hurricane Mitch, can transform the national agenda for disaster mitigation and preparedness. Hurricane Mitch was a reminder of how extremely disaster prone Nicaragua is, and also how neoliberal reforms have weakened governmental response capacity. In the face of critiques of how governmental policies had affected preparedness and response, discussions of this transformation became a highly politicised process where the debate over alternative development models tended to overshadow the original calls to strengthen risk management. Progress can be seen in some areas, such as disaster mitigation through environmental management. This study of NGO roles, and their relations with other key actors, draws attention to the need to anchor improved risk management in local-level NGO-government collaboration. Structures are being put into place to achieve this aim, but dependence on donor financing raises questions regarding the longer-term sustainability of these efforts.     

Facilitating disaster preparedness through local radio broadcasting

The 2008 Disaster Mitigation Preparedness (DMP) study took place in Aceh province, Indonesia. It sought to help develop radio programmes and messages to increase resilience to disasters. The role of radio was evaluated during and after the 2004 Asian tsunami disaster. The study team interviewed 984 tsunami survivors from nine sub-districts of Banda Aceh, and local nongovernmental organisations convened eight focus groups around the area of Aceh Besar. Six key informant interviews were held with government disaster management agencies. The DMP survey is the first of its kind to interview a representative random sample of Banda Aceh residents. It reveals the importance of community and social networks, during disaster situations, when essential communications are down. A disaster warning information system based on a multi-media approach needs to be developed. The wider community should be involved in the planning, education and training of Banda Aceh and Aceh Besar residents to facilitate appropriate personal and community survival strategies.     

Collaborative emergency management: better community organising, better public preparedness and response

Community coordination requires communication and planning of precautions to take when faced with a severe threat of disaster. The unique case of the four Florida hurricanes of 2004--Charley, Frances, Ivan, and Jeanne--is used here to assess community responses to repeated threats of hurricanes. The paper examines how effectiveness in coordinating community disaster response efforts affects future public preparedness. The findings suggest that pre-season planning, open communication between emergency managers and elected officials, and the use of technology all had a significant impact on community responses. The repeated threat scenario indicates that emergency managers must work vigilantly to keep residents informed of the seriousness of a situation. The study describes how emergency managers in Florida countered public complacency during four hurricanes in six weeks. The strategies identified as useful by public managers in the context of hurricanes are applicable to other natural and man-made disasters.     

Disaster response preparedness coordination through social networks

Studies of coordination in human networks have typically presented models that require stable working relationships. These models cannot be applied to emergency response management, which demands distributed coordination in volatile situations. This paper argues that changes to interconnectedness of nodes in a network may have implications for the potential to coordinate. A social network‐based coordination model is proposed to explore an organizational actor's state of readiness in extreme conditions. To test this hypothesis, the study investigates survey data from state law enforcement, state emergency services and local law enforcement, presenting agency‐based (macro) and cross‐agency (micro) analysis on 224 completed questionnaires. The main findings are: (i) there is a positive correlation between network connectedness and the potential to coordinate; (ii) the concept of tiers within an emergency response network may exist and be characterized by the sub‐network with which an organization associates; (iii) a range or threshold characterizes how interconnected an organization at a given tier should be.     

A proposed framework of key activities and processes in the preparedness and recovery phases of disaster management

This paper proposes an empirically grounded framework for examining the preparedness and recovery phases of disaster management activities and processes pertaining to predictable disasters within a developed country. The two‐stage framework provides a single model composed of important preparedness and recovery initiatives, as well as activities and processes derived from empirical data collected for case studies from Australia: the ‘Black Saturday’ bushfires in the state of Victoria in February 2009; and Cyclone Larry in March 2006. The framework enables a variety of analyses, including the generation of insights into disaster management preparedness and recovery in the context of events in wealthy developed countries. The paper combines two empirical examples, a series of bushfires and a severe tropical cyclone, to enhance understanding of, and to contribute to better, disaster preparedness and recovery in the future. The paper contributes to the growing literature on disasters, preparedness, recovery and associated logistics, and other issues.     

城市防震减灾及其对策

城市是一个区域政治、经济、文化中心、是交通、通讯的重要枢纽,随着城市化进程的加快,城市规模日益扩大,城市人口、财产、建筑物更加密集,一旦遭受强烈地震袭击或波及,灾害损失将十分严重,加之,许多城市都处在地震的易发多发地带,地震对许多城市的安全构成了严重的威胁,本文对防震减灾工作进行了探讨。     

Disaster mitigation and preparedness: the case of NGOs in the Philippines

The Philippines is very vulnerable to natural disasters because of its natural setting, as well as its socio-economic, political and environmental context--especially its widespread poverty. The Philippines has a well-established institutional and legal framework for disaster management, including built-in mechanisms for participation of the people and NGOs in decision-making and programme implementation. The nature and extent of collaboration with government in disaster preparedness and mitigation issues varies greatly according to their roots, either in past confrontation and political struggles or traditional charity activities. The growing NGO involvement in disaster management has been influenced by this history. Some agencies work well with local government and there is an increasing trend for collaborative work in disaster mitigation and preparedness. Some NGOs, however, retain critical positions. These organisations tend to engage more in advocacy and legal support for communities facing increased risk because of development projects and environmental destruction. Entry points into disaster mitigation and preparedness vary as well. Development-oriented agencies are drawn into these issues when the community members with whom they work face disaster. Relief organisations, too, realise the need for community mobilisation, and are thus drawn towards development roles.     

Disaster preparedness in a complex urban system: the case of Kathmandu Valley,Nepal

The city is a growing centre of humanitarian concern. Yet, aid agencies, governments and donors are only beginning to comprehend the scale and, importantly, the complexity of the humanitarian challenge in urban areas. Using the case study of the Kathmandu Valley, Nepal, this paper examines the analytical utility of recent research on complex urban systems in strengthening scholarly understanding of urban disaster risk management, and outlines its operational relevance to disaster preparedness. Drawing on a literature review and 26 interviews with actors from across the Government of Nepal, the International Red Cross and Red Crescent Movement, non‐governmental organisations, United Nations agencies, and at‐risk communities, the study argues that complexity can be seen as a defining feature of urban systems and the risks that confront them. To manage risk in these systems effectively, preparedness efforts must be based on adaptive and agile approaches, incorporating the use of network analysis, partnerships, and new technologies.     

Social media and disasters: a functional framework for social media use in disaster planning,response, and research

A comprehensive review of online, official, and scientific literature was carried out in 2012–13 to develop a framework of disaster social media. This framework can be used to facilitate the creation of disaster social media tools, the formulation of disaster social media implementation processes, and the scientific study of disaster social media effects. Disaster social media users in the framework include communities, government, individuals, organisations, and media outlets. Fifteen distinct disaster social media uses were identified, ranging from preparing and receiving disaster preparedness information and warnings and signalling and detecting disasters prior to an event to (re)connecting community members following a disaster. The framework illustrates that a variety of entities may utilise and produce disaster social media content. Consequently, disaster social media use can be conceptualised as occurring at a number of levels, even within the same disaster. Suggestions are provided on how the proposed framework can inform future disaster social media development and research.     

Insuring against earthquakes: simulating the cost‐effectiveness of disaster preparedness

Ex‐ante measures to improve risk preparedness for natural disasters are generally considered to be more effective than ex‐post measures. Nevertheless, most resources are allocated after an event in geographical areas that are vulnerable to natural disasters. This paper analyses the cost‐effectiveness of ex‐ante adaptation measures in the wake of earthquakes and provides an assessment of the future role of private and public agencies in disaster risk management. The study uses a simulation model approach to evaluate consumption losses after earthquakes under different scenarios of intervention. Particular attention is given to the role of activity diversification measures in enhancing disaster preparedness and the contributions of (targeted) microcredit and education programmes for reconstruction following a disaster. Whereas the former measures are far more cost‐effective, missing markets and perverse incentives tend to make ex‐post measures a preferred option, thus occasioning underinvestment in ex‐ante adaptation initiatives.     

防震减灾网页设计要点及其日常维护——以山东省防震减灾信息网站为例

以山东省防震减灾信息网站为例 ,介绍了网页设计要点及日常维护的经验和体会 ,进而提出了网页进一步发展的新思路     

数字江苏中的防震减灾数字系统

为推进经济的可持续与跨越式发展，配合 “数字江苏” 的建设，最大限度地减轻地震灾害所造成的损失，在 “数字江苏” 中建设防震减灾数字系统势在必行。 本文从防震减灾在可持续与跨越式发展战略中的地位和作用、防震减灾数字系统的组成、 “数字江苏” 中如何包含防震减灾数字系统、防震减灾数字系统建设进程及展望等几方面进行了探讨。     

Building community resilience: business preparedness lessons in the case of Adapazarı, Turkey

The lack of attention paid to businesses in disaster management systems from the standpoint of state policies hampers efforts to build community resilience. This paper examines, therefore, the extent of business preparedness for disasters. Empirical research was conducted in Adapazarı, Turkey, 13 years after the İzmit earthquake, which struck the northwest of the country on 17 August 1999, claiming the lives of some 17,000 people. For the study, 232 firms were selected to inquire about their preparedness before and after the event. It is hypothesised that business preparedness is influenced by the following set of variables: business size; business sector; business age; financial condition prior to the disaster; occupancy tenure; market range; education level; and previous disaster experience. In line with the findings of the research, a policy framework is constructed to rationalise the allocation of resources for building resilience at the aggregate level by facilitating business preparedness.     

"We all knew that a cyclone was coming": disaster preparedness and the cyclone of 1999 in Orissa, India

Imagine that a cyclone is coming, but that those living in the affected areas do nothing or too little to protect themselves. This is precisely what happened in the coastal state of Orissa, India. Individuals and communities living in regions where natural hazards are a part of daily life develop strategies to cope with and adapt to the impacts of extreme events. In October 1999, a cyclone killed 10,000 people according to government statistics, however, the unofficial death toll is much higher. This article examines why such a large loss of life occurred and looks at measures taken since then to initiate comprehensive disaster-preparedness programmes and to construct more cyclone shelters. The role of both governmental organisations and NGOs in this is critically analysed. The good news is that, based on an assessment of disaster preparedness during a small cyclone in November 2002, it can be seen that at community-level awareness was high and that many of the lessons learnt in 1999 were put into practice. Less positive, however, is the finding that at the state level collaboration continues to be problematic.     

新世纪地震事业发展战略思考

面对 2 1世纪知识经济占主导地位的新时代 ,地震事业如何随之变革 ,以应对市场经济的挑战 ?本文对之进行了思考。列举了目前制约地震工作发展的诸项因素 ,提出了相应的应对措施。在深化改革方面 ,提出了稳定一支精干的日常地震工作队伍、组建一支高水平的地震科研精干队伍、强化一支具有竞争实力的市场开发队伍、优化一支复合型管理干部队伍等措施     

Digital disparities and vulnerability: mobile phone use,information behaviour,and disaster preparedness in Southeast Asia

This paper proposes an ecological view to investigate how disparities in mobile technology use reflect vulnerabilities in communities vis‐à‐vis disaster preparedness. Data (n=1,603) were collected through a multi‐country survey conducted equally in rural and urban areas of Indonesia, Myanmar, Philippines, and Vietnam, where mobile technology has become a dominant and ubiquitous communication and information medium. The findings show that smartphone users' routinised use of mobile technology and their risk perception are significantly associated with disaster preparedness behaviour indirectly through disaster‐related information sharing. In addition to disaster‐specific social support, smartphone users' disaster‐related information repertoires are another strong influencing factor. In contrast, non‐smartphone users are likely to rely solely on receipt of disaster‐specific social support as the motivator of disaster preparedness. The results also reveal demographic and rural–urban differences in disaster information behaviour and preparedness. Given the increasing shift from basic mobile phone models to smartphones, the theoretical and policy‐oriented implications of digital disparities and vulnerability are discussed.     

Disaster management in the Caribbean: Perspectives on institutional capacity reform and development

This paper is a reflective contribution on the issues and processes that have influenced and informed the development and institutionalization of disaster management practice and policy in the Caribbean over the last two and a half decades. It takes the viewpoint of a ‘participant observer’ and seeks to not only describe the events and triggers but also to raise some key questions necessary to chart the way forward.     

Analysing news media coverage of the 2015 Nepal earthquake using a community capitals lens: implications for disaster resilience

South Asia is one of the regions of the world most vulnerable to natural disasters. Although news media analyses of disasters have been conducted frequently in various settings globally, there is little research on populous South Asia. This paper begins to fill this gap by evaluating local and foreign news media coverage of the earthquake in Nepal on 25 April 2015. It broadens the examination of news media coverage of disaster response beyond traditional framing theory, utilising community capitals (built, cultural, financial, human, natural, political, and social) lens to perform a thematic content analysis of 405 news items. Overall, financial and natural capital received the most and the least emphasis respectively. Statistically significant differences between local and foreign news media were detected vis‐à‐vis built, financial, and political capital. The paper concludes with a discussion of the social utility of news media analysis using the community capitals framework to inform disaster resilience.     

基于GIS的城市防震减灾信息管理系统设计研究

本文通过基于GIS的城市防震减灾计算机信息管理系统设计的分析研究,描述了系统的总体思路,结构设计和功能等内容,该系统的建立既可用于城市防震减灾的日常工作,也可用于应急救灾的紧急情况。