Hurricanes and wildfires: generic characteristics of community adaptive capacity

This paper explores the question: to what extent is human community adaptive capacity generic versus hazard-specific? To what extent does having adaptive capacity for one type of disturbance indicate that communities also have adaptive capacity for other types of disturbance that they currently or may someday face? We did in-depth case studies in two Lee County, Florida communities to explore the extent to which residents have adaptive capacity for both hurricanes and wildfires. Although wildfire risk has significantly less salience than hurricane risk for participants, our results suggest that case study communities have built generic elements of adaptive capacity that are generalizable to address both disturbances: (1) interactional and organizational capacities; (2) professional knowledge and extra-local networks; and (3) local knowledge, resources, and skills. We conclude by offering examples of what an ‘all-hazard’ community might look like based on the development of generic adaptive capacity.     

Climate change beliefs and hazard mitigation behaviors: homeowners and wildfire risk

Downscaled climate models provide projections of how climate change may exacerbate the local impacts of natural hazards. The extent to which people facing exacerbated hazard conditions understand or respond to climate-related changes to local hazards has been largely overlooked. In this article, we examine the relationships among climate change beliefs, environmental beliefs, and hazard mitigation actions in the context of wildfire, a natural hazard projected to be intensified by climate change. We find that survey respondents are situated across a continuum between being ‘believers’ and ‘deniers’ that is multidimensional. Placement on this believer–denier spectrum is related to general environmental attitudes. We fail, however, to find a relationship between climate change beliefs and wildfire risk-reduction actions in general. In contrast, we find a statistically significant positive relationship between level of wildfire risk mitigation and being a climate denier. Further, certain pro-environmental attitudes are found to have a statistically significant negative association with the level of wildfire risk mitigation.     

Predicting self-evacuation in Australian bushfire

Australian bushfire safety policy does not require mandatory evacuation from bushfire as practiced in North America and other jurisdictions. Australian householders confronted with a bushfire threat must decide whether they remain and defend their property or evacuate. A better understanding of factors that influence householders’ decisions to self-evacuate can inform bushfire safety policy. Studies have identified variables that motivate evacuation from various hazards, including wildfire, but factors shaping the decision processes are not well understood. The Protective Action Decision Model (PADM) provided a theoretical framework of factors influencing protective response to hazard to analyse the actions of householders affected by two bushfires. Three factors that predict self-evacuation were identified: the perception that evacuation is effective in protecting personal safety; the receipt of official warnings; and perceived threat to property. These findings reinforce the importance of increasing householder awareness and sensitivity to the danger posed by bushfire; the adequacy of people’s bushfire preparedness; the effectiveness of early evacuation in protecting personal safety; and the potential persuasiveness of accurate, relevant and timely official warning messages in influencing safe evacuation from bushfire.     

Community support for wildfire mitigation at Peavine Métis Settlement,Alberta, Canada

This paper presents the findings of a study that explored public support for wildfire mitigation programmes implemented in Peavine Métis Settlement, an Indigenous community located in Alberta, Canada. Data were collected in a community-based study using interviews, focus groups and participant observation over a 4-year period. Results showed that support for the wildfire mitigation programme was influenced by local leadership, economics, community capacity and land and home ownership. The communal nature of land and home ownership on the settlement influenced support for wildfire mitigation that was conducted by the settlement at both the residential and community levels. Employment opportunities available in the community for settlement members for wildfire mitigation activities also increased support for the local wildfire mitigation programme. A local Aboriginal leader skilled in wildfire mitigation and existing community capacity was also seen as vital to settlement member support for the programme.     

Bushfire simulators and analysis in Australia: insights into an emerging sociotechnical practice

The present context of escalating environmental risks places increased pressure and importance on our technical ability to predict and mitigate the potential consequences and occurrence of major natural hazards such as bushfire (or ‘wildfire’). Over the past decade, bushfire prediction in Australia, as in many other fire-prone countries, has increasingly come to involve both trained fire behaviour analysts and complex computer-based two-dimensional bushfire simulation models. During this transitional moment in bushfire management, there is a clear need to better understand the ways in which such predictive technologies and practitioners influence how we anticipate, encounter and manage this natural hazard and its effects. In this paper, the authors seek to prepare the ground for studies of the social dimensions of bushfire prediction by investigating how simulators and predictive practitioners have been mobilised and represented in Australia to date. The paper concludes by posing several questions that bushfire practitioners, policy-makers and researchers alike in Australia and elsewhere will need to address as our flammable future emerges.     

Gender,households, and decision‐making for wildfire safety

This paper considers the impact of gendered norms on decision‐making for wildfire preparation and response at the household level. Focusing on Australia, it provides a theoretical thematic analysis of data acquired in 107 interviews with residents of nine different localities. It builds on existing research on gender and disaster, as well as on decision‐making and wildfires, and analyses the narratives that centre on ‘split’ households plans (where a male partner plans to stay and a female partner plans to evacuate) and disagreements within heterosexual couples as to an appropriate wildfire safety plan. The study finds that gender inequality and differences in gendered expectations are likely to create difficult conditions for negotiation between members of a heterosexual couple when there is disagreement over a plan and that this may contribute to risky decision‐making practices and outcomes. The paper reiterates, therefore, the importance of taking into account the social construction of gender in wildfire research and policy.     

Disaster risk management: Pro-active financing to reduce vulnerability

This study explores the preparedness of residents livingin a rural community in Victoria, Australia, for wildfires, and the factors influencing their preparedness. Overall, participants were well aware of wildfire risks and appeared well prepared for the event of a fire. However, residents involved in agriculture and with a long-standing association with the area appeared better prepared than were those on small properties and newcomers. Their social networks, previous experiences with wildfires and grassfires, and involvement with the local fire brigade influenced preparedness of long-term residents. Characteristics of agricultural communities, including a culture of self-reliance, experience with fires as part of farming, and social cohesion, appeared to contribute to wildfire preparedness within this community. Included are recommendations encouraging preparedness for wildfires.     

Invisible institutions in emergencies: Evacuating the remote Indigenous community of Warruwi,Northern Territory Australia,from Cyclone Monica

Tropical Cyclone Monica is one of the most intense Australian cyclones in recorded history, and threatened several Indigenous communities in April 2006. It prompted the evacuation of the remote island community of Warruwi, and caused considerable damage to the mainland township of Maningrida. The evacuation of Warruwi went smoothly as emergency services personnel, the community and the airline cooperated to airlift some 350 people to designated safe areas on the mainland. We show that local institutions culturally embedded in Indigenous ways of understanding and responding to the world were important in providing essential but ‘unofficial’ services during the emergency. Recognizing and respecting the resilience of the local process involved in everyday Indigenous life is revealed as central to ensuring local cooperation and effective involvement of state and national institutions in delivering effective measures during emergencies. Ensuring that local, state and national authorities offer recognition and understanding of these Indigenous institutions, and develop strong relationships with them, should be a priority in developing approaches that limit conflict and trauma where emergency services risk overriding local protocol.     

Stay and defend or leave early: Policy problems and experiences during the 2003 Victorian bushfires

Australian state and territory fire authorities advise residents to make a decision to prepare, stay and defend their properties from bushfires or leave well before the fire arrives in their area. The ‘Stay and defend or leave early’ policy is underpinned by strong evidence that well-prepared houses can be successfully defended and that late evacuation is a dangerous strategy. This paper presents the results of a study of the policy's implementation during the 2003 bushfires in North East Victoria and East Gippsland. Results suggest that despite high levels of awareness and support for the policy, there is some confusion over what it means to ‘stay and defend’ and ‘leave early’.     

Looking forward: Disasters at 40

This paper reflects on contemporary studies of and responses to disasters, highlighting the importance of historical, spatial, and intersectional modes of analysis, and draws on the author's ongoing research on Southern‐led and local community responses to displacement in the Middle East. Acknowledging the plurality of ‘international communities of response’, it begins by critiquing the depiction of selected responses to disasters as ‘positive’ ‘paradigm shifts’, including in reference to the ‘localisation of aid, and the United Nations’ Regional Refugee and Resilience Plan for Syria. Next it turns to three key themes that are central to disasters studies: migration; forced displacement; and Southern‐led responses to disasters. Among other things, the paper argues that exploring the principles and modalities of South–South cooperation, rather than promoting the incorporation of Southern actors into the ‘international humanitarian system’ via the localisation agenda, presents a critical opportunity for studies of and responses to disasters.     

Understanding and enhancing future infrastructure resiliency: a socio‐ecological approach

The resilience of any system, human or natural, centres on its capacity to adapt its structure, but not necessarily its function, to a new configuration in response to long‐term socio‐ecological change. In the long term, therefore, enhancing resilience involves more than simply improving a system's ability to resist an immediate threat or to recover to a stable past state. However, despite the prevalence of adaptive notions of resilience in academic discourse, it is apparent that infrastructure planners and policies largely continue to struggle to comprehend longer‐term system adaptation in their understanding of resilience. Instead, a short‐term, stable system (STSS) perspective on resilience is prevalent. This paper seeks to identify and problematise this perspective, presenting research based on the development of a heuristic ‘scenario–episode’ tool to address, and challenge, it in the context of United Kingdom infrastructure resilience. The aim is to help resilience practitioners to understand better the capacities of future infrastructure systems to respond to natural, malicious threats.     

Build back better: implementation in Victorian bushfire reconstruction

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

Adapting to climate change in the coastal regions of Bangladesh: proposal for the formation of community-based adaptation committees

The paper outlines a concept and proposal for the formation of ‘community based adaptation committees’ (CBACs) at the micro-level, and it explains how such local committees would act with respect to the existing organisation of disaster management in Bangladesh. It examines how the CBACs would be sustained locally without colliding with the present system of government. The main objective of this is to identify how the CBACs could act independently as per local demands, without any conflict with the existing system, in order to ensure sustainable adaptation in future. To achieve these objectives the author conducted interviews with key informants at both local and national levels, and also conducted eight participatory rapid appraisal sessions at eight coastal communities. The author finds that severe corruption is impeding the existing system of relief and rehabilitation at community levels. The paper emphasises that the government of Bangladesh urgently needs to formulate a national adaptation policy, and that within that policy the concept of CBACs at community level should be prioritised. This would provide the government with guidelines for the use, at community level, of adaptation funds from developed countries in order to reduce future vulnerability in Bangladesh.     

An Aegean island earthquake protection strategy: an integrated analysis and policy methodology

Viewing an insular setting as a distinct risk environment, an effort is made here to develop a methodology for identifying core issues related to earthquake risk and disaster protection policy, adjusted to the 'specificities' of such a context. The methodology's point of departure is the inherent condition of the 'island operating as a closed system', requiring an attempt to assess and optimise local capacity (social, political, economic, institutional and technical) to deal with an earthquake emergency. The island is then treated as an 'open system', implying that in the event of a disaster, it should be able to maximise its ability to receive and distribute external aid and to manage effectively population evacuation and inflows/outflows of aid resources. Hence, an appropriate strategic policy approach could be developed by integrating the 'open' and 'closed' system components of an island setting. Three islands from the Aegean Archipelagos in Greece--Chios, Kos and Nissyros--serve as case study areas.     

Local‐level governance of risk and resilience in Nepal

This paper explores the circumstances in which communities may effectively reduce risks. It draws on the example of two ‘Risk and Resilience Committees’ (RRCs) that were established in Nepal as part of an action research project: one in Panchkhal in the central region, operating as a community‐based organisation (CBO); and the other in Dhankuta in the eastern region, embedded in municipal government. In‐depth interviews were conducted with RRC members. Wider community preferences for risk reduction were examined through a questionnaire survey. In Dhankuta, the RRC obtained further funding, developed strong upward and downward institutional links, and applied a ‘disaster risk reduction lens’ to existing local government responsibilities. In Panchkhal, RRC activities have been limited by funding and have focused on the strengthening of livelihoods. It may be concluded tentatively that community‐based disaster risk reduction activities are more successful when they are institutionally embedded in local government structures.     

Community resilience and urban planning in tsunami-prone settlements in Chile

Urban planning can serve to minimise the effects of a tsunami and enhance community resilience. This study explores to what extent urban planning has addressed tsunami resilience in four villages on Chile's South Pacific coast, each of which was struck by tsunamis in 1960, 2010, and 2015. Through a detailed policy review and semi-structured interviews with residents, this paper analyses whether tsunami mitigation policies were incorporated into regional and local planning tools. It finds that although the government proposed relocation to tsunami-safe areas after the tsunami of 1960, urban development continued mainly in tsunami inundation zones—in the context of weak local planning frameworks and in the absence of community participation. In only one of the four case studies did participatory planning bring about the relocation of an entire village to a safe location. This paper concludes that incorporating participatory risk zone planning into urban planning enhances tsunami resilience.     

Influences on stakeholder support for a wildfire early warning system in a UK protected area

Projected increases in wildfire risk and impacts to human populations in the UK have prompted the installation of expanded management approaches such as early warning systems (EWSs). Newer iterations of wildfire EWSs help mitigate risk through rapid detection, often using high-resolution monitoring technology and instantaneous information collection. While existing research suggests that local social context plays an important role in the effective application of EWSs, little is known about factors that contribute to stakeholder support for these technocratic systems and their successful implementation in protected areas. This study examines support for an EWS in Northumberland National Park, UK, using focus groups with a broad range of local stakeholders. We found that diverse stakeholder understandings of wildfire, different perceptions of wildfire risk, and varied identification of values at risk collectively help explain mixed support for the EWS. Mixed support also was an outgrowth of distrust between several stakeholder groups, indicating a need for improved communication regarding wildfire risk management across stakeholder groups. Results suggest that EWSs adopted in multi-use protected areas shared by a range of stakeholder are most likely to be successful when stakeholders have shared understandings of the hazard and opportunities for collective planning to address its risks. We conclude that EWSs are a viable approach to wildfire risk reduction, but there needs to be a critical consideration of pre-existing stakeholder dynamics for effective EWS implementation.     

At the intersection of disaster risk and religion: interpretations and responses to the threat of Tsho Rolpa glacial lake

Over the last several decades, the scientific community has replaced the ‘acts of god’ explanations for disasters with a view that disasters are actually ‘acts of nature,’ and more recently, ‘acts of human behavior and decision making.’ Despite the secular orientation of contemporary disaster research, religious beliefs still govern people’s interpretations of natural events across many continents and cultures. Using a case study of a rural Sherpa community in Nepal, this paper responds to the challenge of linking religion and disaster risk in the context of a climate change-induced glacial lake outburst flood hazard. Data collection employed ethnographic techniques including participant observation and 53 interviews with community members. Results indicate that the case study community’s religious belief system influences how they interpret and respond to the glacial lake hazard, although their beliefs co-exist with more scientific interpretations of risk. Rather than being immobilised by their belief system, we found that religious aspects like rituals and prayer can enhance social cohesion and contribute to capacities for coping with fear and uncertainty in this community. We assert that religion can yield valuable resources to glacial lake risk reduction strategies, which will benefit from incorporating social-cultural factors more profoundly.     

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

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