Operational challenges to community participation in post‐disaster damage assessments: observations from Fiji

Community participation is becoming increasingly popular within the field of disaster management. International disaster policies, frameworks and charters embrace the notion that communities should play an active role in initiatives to identify vulnerabilities and risks and to mitigate those dangers, and, in the event of a disaster, that they should play a proactive part in response and recovery (see, for example, UNISDR, 1994; The Sphere Project, 2004; United Nations, 2005). A number of studies have investigated the participation of communities in disaster preparedness and mitigation efforts (see, for instance, Scott‐Villiers, 2000; Andharia, 2002; Godschalk, Brody and Burby, 2003), There is, however, limited reflection on the challenges to ensuring participation in the operational context of disaster response. This paper draws on a study of the policy and practice of participatory damage assessment in Fiji to identify and discuss the barriers to formal implementation of community participation in a post‐disaster context.     

Attitude before method: disability in vulnerability and capacity assessment

Many agencies working on disaster risk reduction use vulnerability and capacity assessment (VCA) to identify vulnerable groups, to assess their needs and capacities, and to develop appropriate programmes and policies. In theory, VCA offers a good opportunity to incorporate disabled people's needs and resources in counter‐disaster programming. This paper seeks to establish and explain the extent to which disability is included in VCA in practice. It reviews VCA reports and findings, formal VCA guidance, and other methodological literature. The review indicates that disability is a neglected issue in VCA practice and that manuals and guidelines, while promoting the general ideal of inclusiveness, are insufficiently aware of the challenges to achieving this in practice and do not offer enough guidance on how to reach and include disabled people. Ways of overcoming these problems are suggested. However, the real challenge may be to change core attitudes and perceptions of disability within implementing organisations.     

Barriers to the long‐term recovery of individuals with disabilities following a disaster

This study examines how pre‐existing disabling conditions influenced the recovery process of survivors of Hurricane Katrina. It focuses specifically on the barriers that hindered the recovery process in these individuals. Focus groups were convened in four Gulf Coast states with 31 individuals with disabilities who lived in or around New Orleans, Louisiana, prior to Hurricane Katrina in August 2005. Qualitative data were analysed using grounded theory methodology. Five themes emerged as the most significant barriers to recovery: housing; transportation; employment; physical and mental health; and accessing recovery services. While these barriers to recovery were probably common to most survivors of the disaster, the research results suggest that disability status enhanced the challenges that participants experienced in negotiating the recovery process and in acquiring resources that accommodated their disabilities. The findings indicate that, when disaster recovery services and resources did not accommodate the needs of individuals with disabilities, recovery was hindered. Recovery efforts should include building accessible infrastructure and services that will allow for participation by all.     

New tools for emergency managers: an assessment of obstacles to use and implementation

This paper focuses on the role of the formal response community's use of social media and crowdsourcing for emergency managers (EMs) in disaster planning, response and recovery in the United States. In‐depth qualitative interviews with EMs on the Eastern seaboard at the local, state and federal level demonstrate that emergency management tools are in a state of transition—from formal, internally regulated tools for crisis response to an incorporation of new social media and crowdsourcing tools. The first set of findings provides insight into why many EMs are not using social media, and describes their concerns that result in fear, uncertainty and doubt. Second, this research demonstrates how internal functioning and staffing issues within these agencies present challenges. This research seeks to examine the dynamics of this transition and offer lessons for how to improve its outcomes—critical to millions of people across the United States.     

Microfinance institutions and a coastal community's disaster risk reduction,response, and recovery process: a case study of Hatiya,Bangladesh

Several researchers have examined the role of microfinance institutions (MFIs) in poverty alleviation, but the part that they play in disaster risk reduction remains unaddressed. Through an empirical study of Hatiya Island, one of the most vulnerable coastal communities of Bangladesh, this research evaluates perceptions of MFI support for the disaster risk reduction, response, and recovery process. The findings reveal no change in relation to risk reduction and income and occupation aspects for more than one‐half of the clients of MFIs. In addition, only 26 per cent of them have witnessed less damage as a result of being members of MFIs. One can argue, though, that the longer the membership time period the better the disaster preparedness, response, and recovery process. The outcomes of this study could help to guide the current efforts of MFIs to enhance the ability of coastal communities to prepare for and to recover from disasters efficiently and effectively.     

Probabilistic cost‐benefit analysis of disaster risk management in a development context

Limited studies have shown that disaster risk management (DRM) can be cost‐efficient in a development context. Cost–benefit analysis (CBA) is an evaluation tool to analyse economic efficiency. This research introduces quantitative, stochastic CBA frameworks and applies them in case studies of flood and drought risk reduction in India and Pakistan, while also incorporating projected climate change impacts. DRM interventions are shown to be economically efficient, with integrated approaches more cost‐effective and robust than singular interventions. The paper highlights that CBA can be a useful tool if certain issues are considered properly, including: complexities in estimating risk; data dependency of results; negative effects of interventions; and distributional aspects. The design and process of CBA must take into account specific objectives, available information, resources, and the perceptions and needs of stakeholders as transparently as possible. Intervention design and uncertainties should be qualified through dialogue, indicating that process is as important as numerical results.     

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.     

Efficacy of insurance for organisational disaster recovery: case study of the 2010 and 2011 Canterbury earthquakes

Insurance is widely acknowledged to be an important component of an organisation's disaster preparedness and resilience. Yet, little analysis exists of how well current commercial insurance policies and practices support organisational recovery in the wake of a major disaster. This exploratory qualitative research, supported by some quantitative survey data, evaluated the efficacy of commercial insurance following the sequence of earthquakes in Canterbury, New Zealand, in 2010 and 2011. The study found that, generally, the commercial insurance sector performed adequately, given the complexity of the events. However, there are a number of ways in which insurers could improve their operations to increase the efficacy of commercial insurance cover and to assist organisational recovery following a disaster. The most notable of these are: (i) better wording of policies; (ii) the availability of sector‐specific policies; (iii) the enhancement of claims assessment systems; and (iv) risk‐based policy pricing to incentivise risk reduction measures.     

Developing indicators to measure post‐disaster community recovery in the United States

Disaster recovery is a key capability of federal, state, and local government. To support this capability effectively practitioners need useful and validated metrics to document how well a community is recovering from a particular disaster. This study developed and categorised recovery indicators according to the Federal Emergency Management Agency (FEMA)'s Recovery Support Functions and Recovery Mission Area Core Capabilities through a literature review, an evaluation of the pre‐disaster recovery plans for 87 coastal jurisdictions, and a case study of two communities (New Hanover County, North Carolina, and the City of Hoboken, New Jersey). Metrics identified in the literature were validated through the recovery plan review and the case study. The research team also identified sources for both baseline and current status data. Based on these findings, a user‐friendly checklist for practitioners was established, which will be piloted with practice partners during a future disaster recovery initiative.     

Disaster journalism: fostering citizen and community disaster mitigation,preparedness, response,recovery, and resilience across the disaster cycle

Natural and human‐caused disasters pose a significant risk to the health and well‐being of people. Journalists and news organisations can fulfil multiple roles related to disasters, ranging from providing warnings, assessing disaster mitigation and preparedness, and reporting on what occurs, to aiding long‐term recovery and fostering disaster resilience. This paper considers these possible functions of disaster journalism and draws on semi‐structured interviews with 24 journalists in the United States to understand better their approach to the discipline. A thematic analysis was employed, which resulted in the identification of five main themes and accompanying subthemes: (i) examining disaster mitigation and preparedness; (ii) facilitating recovery; (iii) self‐care and care of journalists; (iv) continued spread of social media; and (v) disaster journalism ethics. The paper concludes that disaster journalism done poorly can result in harm, but done well, it can be an essential instrument with respect to public disaster planning, management, response, and recovery.     

Living with disasters: social capital for disaster governance

This paper explores how social networks and bonds within and across organisations shape disaster operations and strategies. Local government disaster training exercises serve as a window through which to view these relations, and ‘social capital’ is used as an analytic for making sense of the human relations at the core of disaster management operations. These elements help to expose and substantiate the often intangible relations that compose the culture that exists, and that is shaped by preparations for disasters. The study reveals how this social capital has been generated through personal interactions, which are shared among disaster managers across different organisations and across ‘levels’ within those organisations. Recognition of these ‘group resources’ has significant implications for disaster management in which conducive social relations have become paramount. The paper concludes that socio‐cultural relations, as well as a people‐centred approach to preparations, appear to be effective means of readying for, and ultimately responding to, disasters.     

Country logistics performance and disaster impact

The aim of this paper is to deepen the understanding of the relationship between country logistics performance and disaster impact. The relationship is analysed through correlation analysis and regression models for 117 countries for the years 2007 to 2012 with disaster impact variables from the International Disaster Database (EM‐DAT) and logistics performance indicators from the World Bank. The results show a significant relationship between country logistics performance and disaster impact overall and for five out of six specific logistic performance indicators. These specific indicators were further used to explore the relationship between country logistic performance and disaster impact for three specific disaster types (epidemic, flood and storm). The findings enhance the understanding of the role of logistics in a humanitarian context with empirical evidence of the importance of country logistics performance in disaster response operations.     

Of timelines and timeliness: lessons from Typhoon Haiyan in early disaster response

Typhoon Haiyan struck the Philippines on 8 November 2013 with maximum sustained winds of 235 kilometres per hour, adversely affecting at least 11 million people and displacing some 673,000 in the central regions of the country. The disaster clearly overwhelmed the Philippine government despite its seemingly well‐crafted disaster management plan. Using timelines of different organisations, this paper identifies gaps in the government's response, mainly due to its failure in coordinating and managing relief operations, which adversely affected its effectiveness and efficiency in the delivery of critical goods and services following the disaster. The paper also demonstrates how non‐governmental organisations (NGOs), the United Nations, foreign governments and other organisations provided assistance, mainly through aid niching, to cover the government's shortcomings. The paper recommends a paradigm shift in the government's disaster response by integrating collaborative arrangements between government agencies and NGOs, and giving local governments the lead role, with the national government as support, in disaster planning and response.     

Community social capital and individual functioning in the post‐disaster context

Disasters can have severe and long‐lasting consequences for individuals and communities. While scholarly evidence indicates that access to social support can ameliorate their negative impacts, less understood is whether or not neighbourhood social capital can facilitate recovery. This study uses two waves of survey data—collected before and after a significant flood in Brisbane, Australia, in 2011—to examine the relationship between the severity of the event at the individual and neighbourhood level, access to neighbourhood social capital and individual‐level social support, and functioning in the post‐disaster environment. In line with previous research, the results indicate that the severity of the flood is the most salient predictor of post‐disaster functioning. No evidence was unearthed to show that neighbourhood social capital amassed before the flood leads to better functioning subsequently, but the findings do suggest that individual‐level social support can moderate the effect of flood severity on functioning.     

Gender and Hurricane Mitch: reconstructing subjectivities after disaster

Much of the gender and disaster literature calls for more gender-sensitive disaster relief and research by focusing on the ways in which women are more vulnerable in a disaster or on their unique capabilities as community leaders or natural resource managers, which are often overlooked or underutilised in emergency management strategies. As well as seeking to overcome the (strategic) essentialism that is part of these calls and debates, this paper pays closer attention to gender identity and subjectivity as these are constructed and reworked through the disaster process to highlight the complexities and contradictions associated with women's responses to a disaster. This focus, while crucial to gaining a deeper understanding of the gendered dimensions of disaster, also complicates attempts to create more gender-sensitive frameworks for disaster response. It draws on qualitative research conducted with a number of women in the wake of Hurricane Mitch (1998) in Nicaragua.     

Towards a natural disaster intervention and recovery framework

Contemporary responses to facilitate long‐term recovery from large‐scale natural disasters juxtapose between those of humanitarian agencies and governments and those of the affected community. The extent to which these mechanisms articulate is crucial to the recovery propensity of the affected communities. This research examines such action by exploring the relationship between the scale of post‐disaster response interventions, the extent of community participation in them, and their impact on community recovery, using a community wealth capital framework. The investigation was applied to a study of the longer‐term community recovery of the island of Vilufushi, Republic of Maldives, which was almost completely destroyed by the Indian Ocean tsunami of 26 December 2004. Data were analysed through the employment of a pattern match technique and a holistic recovery network analysis. The research framework, informed by the case‐study results, other long‐term recovery evaluations, and existing resilience theory, is reconfigured as a testable roadmap for future post‐disaster interventions.     

Disaster warning and evacuation responses by private business employees

When people are advised that their place of employment is threatened with disaster, how do they respond? Interviews with employees (n=406) of 118 businesses affected by one of seven recent disasters provide the first answers to this question. Multivariate analyses document the key variables that best predict variation are: 1) emergent perceptions of risk; 2) time of evacuation from work; 3) time of evacuation from home; 4) multiple evacuations; and 5) tension between work and family commitments. When warned of impending disaster, most employees initially responded with denial. Gradually, however, emergent perceptions of risk intensified especially among those living in communities in which the least amount of disaster planning had occurred or who resided in a mobile home or apartment. Highest levels of work and family tensions during these evacuations were reported by racial minority employees who had children living at home. Policy implications for these and other findings are discussed so as to pin‐point changes business managers should make that will enable them to provide the leadership and compassion expected by employees.     

Disaster coordination preparedness of soft-target organisations

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

A critical analysis of the South African Disaster Management Act and Policy Framework

The promulgation of the South African Disaster Management Act No. 57 of 2002 and the National Disaster Management Policy Framework of 2005 placed South Africa at the international forefront by integrating disaster risk reduction into all spheres of government through a decentralised approach. Yet, good policy and legislation do not necessarily translate into good practice. This paper provides a critical analysis of the Act and Policy Framework. Using qualitative research methods, it analyses the attitudes and perceptions of senior public officials on all levels of government, the private sector and academia. The study finds that one of the weakest aspects of the Act and Framework is the absence of clear guidance to local municipalities. The placement of the disaster risk management function on all tiers of government remains problematic, funding is inadequate and overall knowledge and capacities for disaster risk reduction are insufficient.     

The humanitarian response costs of climate change

This research attempts to improve understanding of how climate change may affect international humanitarian spending, using existing international databases that track disaster occurrence and humanitarian costs. A range of potential impact scenarios is developed employing four distinct methodological approaches. The findings indicate that climate change will have a significant impact on humanitarian costs and the increase could range from a 32 per cent increase (taking into account only changes in frequency of disasters) to upwards of a 1,600 per cent increase when other criteria, such as intensity, are also taken into account. The paper further highlights that extreme weather events do not occur in isolation and the increasing interconnectedness of world economic and political systems has made disasters more complex and destructive. It makes a number of recommendations, including the need for more rigorous and systematic collection of disaster-related data and more constructive interaction between the humanitarian and climate change communities on future research, planning and action.