Arthur (Andy) Felts

Resilience – additional feedback from the July 2010 Annual Hazards Workshop

          In my last blog, I commented on the Hazards Workshop in July. There is more news. One of the highlighted track plenary sessions —“Resilience—What’s That?”— featured our own Dr. Tom Wilbanks. It was moderated by, as Tom designated her, “the legendary” Clare Rubin. Clare has been doing recovery studies for longer than anyone I know. Dr. Michael Dunaway from DHS’s Science and Technology Directorate participated as did Dr. Lori Dengler from Humbolt State University.

            The panel was standing room only. The discussion was in keeping with the workshop and there were two practitioner and two more academic discussions. I should tell you here that the panelists don’t get to use PowerPoint and don’t give formal papers. They give a brief presentation and then it goes open the audience, a truly refreshing way to bring academics and practitioners together for discussion.

            Tom did a good job of summarizing what CARRI has been about all along, seeing mitigating, preparing and recovery from disasters as a continuous process that is interlinked. He acknowledged that defining resilience was still a work in progress.

            Clare’s approach was interesting and refreshing. Though she has long been recognized for her research in disaster recovery she spoke from her position as an elected official in Virginia. In her standard straightforward fashion she said, more or less, ‘I’m not sure what resilience is, but people are beginning to talk about it and I think means I need to find out more.’

            Dunaway offered some interesting comments, emphasizing resilience and the need to find funding for building our national deterrent capacity to meet the challenges we are facing. He argued we need to change our culture in the face of increasing populations and multiple threats. He saw becoming a more resilient nation as the path to accomplishing that. He concluded with a very nice quote that defined resilience to him—given to him by a private sector friend. Resilience, means finding a way to function normally in abnormal like conditions. As good start for thinking that everything is, in fact, getting back to normal (or a new normal).

            A tsunami researcher, Dengler, echoed Clare’s statement and talked a bit about being in Malaysia after the huge tsunami a few years back.

           One interesting thing she said was that one island tribe used the term “smong” when asked what happened. She actually found out that that meant a lot of things in one word when time was critical. Smong means “when the ground shakes and there’s a lot of things jumbled up and the sea starts to recede and you see gurgling out where the water is, head for the high ground.” So, this one tribe did just that, gathered up the kids, put grandmas in carts and trucked up about 90 meters–exactly where Dengler would have recommended they go–and they all survived. Not only did they do that, but they also had stockpiled critical materials, lumber, food, etc., up out of harm’s way as well. When was the last time a large tsunami hit the village? 1917.

           Another village escaped the tsunami, but evacuated anyway. She asked the chief if they were disappointed to have gone through all the effort of getting everyone to high ground and waiting it out. He replied no, “Each time offers us a chance to practice.”

             Dengler offered that she wasn’t sure, but thought those were two pretty good examples of resilience. I agree.

Arthur (Andy) Felts

How Far We’ve Not Come

           I teach a Capstone Seminar in the master of public administration program at the College of Charleston—it is designed to bridge the students’ academic experience with the practitioners’ world. One of the assignments for the seminar is for students to work in teams of three or four on a real policy issue/problem. I ask local governments and nonprofits if they have issues or problems and the students choose from the list I get in response.

            This semester, one group chose to examine and suggest updates for the City of Charleston’s policy addressing how employees will be expected to perform in the event of a disaster. While some employees, for example, those involved in public safety and health are clearly part of an emergency response plan others are not. Disaster or not, the city’s financial operations cannot shut down, public works crews need to be ready to quickly deploy for emergency repairs to critical infrastructure, and an orderly system of public communication needs to fall in place.

            In previous blogs, Dr. John Plodinec and I have hinted at this by suggesting that any recovery plan should factor the critical role that public employees will play. Many employees may be required to work several days straight and then be on-call for an extended period. It is unreasonable for a plan not to acknowledge this and provide assistance to them in meeting family needs. It is unreasonable to expect that an employee will work two or three straight days and not know if their family is safe and secure.

            A good plan for public employees would identify ”tiers,” from those that are deemed critical for the ongoing operations of the government, to those that may not be needed for several days. Employees should know in advance what is expected of them in a disaster, what they can expect in return, and, as best they can, make their own personal plans accordingly.

            As the students did their research, they naturally decided to contact other East coast communities to see what their employee plans were for disasters.

            One community representative, alarmingly, responded they would convene department heads and make a plan if a disaster was imminent. There are two pieces of news here. That is not a plan. Rather it is a plan to plan at what is probably not a very good time. Secondly, and more importantly, they should understand that a disaster is always imminent.

            As if that was not enough to set off alarms in my head, the students reported that many communities said they had no plan at all for use of employees during a disaster. The students said they didn’t feel comfortable in asking them ”why not” since they are, after all, still students.

            If you are reading this, alarm bells should be ringing loudly in your head as well. Governmental response outside emergency management both during a disaster and in the extended recovery period is crucial. Lack of a plan that employees know and understand will likely not only dramatically affect the time needed to recover, but human lives as well.

Warren Edwards

Community Resilience – What Federal Government Can Do

In a 2009 paper by the British Think Tank, Demos, titled, “Resilient Nation,” author Charlie Edwards suggests that for the UK, the role of central government in community resilience should be limited and mainly supportive of local and regional efforts. He recommends a central government role based on four “Es” – Engagement, Education, Empowerment and Encouragement. Although written for the UK, the paper has great relevance for the US and is well worth reading. The full paper can be found on the Demos web site at http://www.demos.co.uk/. These four Es may be useful in thinking about how DHS relates to other partners in the homeland security enterprise in the area of disaster preparedness and recovery.

The federal government (largely through the Department of Homeland Security, Federal Emergency Management Agency) plays two significant roles in community disaster resilience. In the first role, DHS is the leader of the federal response to incidents of national significance – the nation’s first responder at the federal level. As such, DHS acts in a top-down manner as a cabinet-level department within the federal government. In the second role, DHS is the leader of the nation’s “homeland security enterprise” and must coordinate many different types of efforts including disaster preparedness and recovery. In the past, DHS has fulfilled this role by acting as the approver of state and local plans, providing funding for preparedness planning and coordinating federal efforts to prepare for recovery.

DHS has steadily improved its ability to carry out the first role. But while the National Response Framework lays out an operational framework for response, the framework has not been fully effective in helping DHS carry out its second role – coordinating preparedness and recovery efforts across the Homeland Security Enterprise. In fact, the lessons of the past decade demonstrate inherent tensions in these two roles that produce expectations that often cannot be met within the constraints of traditional emergency management. read the entire article >

Warren Edwards

Community Resilience: Long-Term Recovery

FEMA has formed a working group to examine policies and practices for disaster recovery. The effort is welcome and long overdue. As a part of the input to the working group, there is an invitation to the public at large to comment by providing answers to a series of questions. (I have noted in the past that current FEMA leadership seems to be committed to listening. This is another welcome indication.) Thoughtful answers to FEMA’s recovery questions from across America will be helpful in shaping good recovery policies and programs.

A fundamental question is how to define a successful disaster recovery. CARRI believes that successful disaster recovery begins well before a disaster occurs with a deliberate and well thought out plan to achieve community recovery. Successful disaster recovery addresses all domains of community life – economic, social, ecological and physical systems – meeting the needs of the full fabric of the community in a sustainable and inclusive manner. While speed of recovery is important, thoughtful consideration to reduce vulnerabilities for future events is also required. Successful recovery includes adaptation where weaknesses can be identified and corrected as part of the recovery process in order to make the community more resilient to future incidents. Over time, successful disaster recovery should increase community functionality above pre-disaster levels so that recovery after the next disaster is less costly and more rapid. The ideal process for community recovery facilitates and is in harmony with long-term community goals.

We believe that there are three primary characteristics that influence the speed and quality of successful recoveries. First, resilient communities have deliberate plans for recovery in the same way that they have deliberate disaster response and emergency management plans. They plan in detail how the community will achieve a rapid return to normal. Second, successful disaster recoveries involve the full fabric of the community in every phase of their approach to recovery: planning, preparedness, response, and short- and long-term recovery. Third, successful recoveries involve broad-based use of formal and informal (official and unofficial) communication networks to facilitate recovery processes and involvement. These networks are identified and rehearsed before the disaster and thereby extend the reach and impact of formal, official communications. They also include all parts and domains of the community. The informal, unofficial networks are incorporated into official, long-term recovery communication networks.

These systematic examinations by FEMA of federal policies and programs that will ultimately influence community resilience are very welcome. We should support them fully and thoughtfully.

Warren Edwards

National Resilience – Who is leading?

I spent most of last week in DC. Some of my time was consumed in trying to determine how the concept of resilience is progressing at the national level. There are lots of indicators that meaningful conversations are occurring and that resilience is taking root as a more comprehensive way to organize the nation’s thoughts on natural and man-made disasters. For instance, the National Security Council has an office of National Resilience Policy. Significant thought on national resilience seems to have gone into the Quadrennial Homeland Security Review and it may emerge as one of the goals of the Department of Homeland Security. Virtually every federal department and many federal agencies have included the word resilience in their solicitations for studies or in their seminars, industry events, workshops and conferences.

While all of this is positive, I sense a void – a wide disparity in what is meant by resilience. We lack a thought leader or perhaps a number of thought leaders for national resilience. CARRI has spent the last two years working hard to figure out what resilience means in America’s communities and we think we have made significant progress. But if resilient communities can help build a resilient nation, someone needs to begin to organize resilience thought from a national perspective. And while studies in this area will be extremely helpful, we can’t wait a couple of years to determine a pathway.

CARRI will continue to do what we have been doing – trying to sort through the extremely complex issues of resilience in the nation’s communities. We are ready to help at the national level by convening and mobilizing the community effort and working to link it to national thought and national policy. It is interesting that foreign policy can claim a number of thought leaders in academia and in think tanks but domestic policy has very few and resilience has, as yet, no champion. CARRI is looking for partners at the national level.

Warren Edwards

Community Resilience: Informing Policy

As I may have stated earlier in this blog, one of the tensions in the Community and Regional Resilience Institute work from the very beginning has been between what I call “getting it right” and “getting it now.” By that I mean that it is critical for the nation that the solutions we adopt to increase our resilience work in practice because they are grounded in knowledge gained from research and from practical experience. That’s getting it right. But we also have to realize that the nation needs solutions now. The next hurricane or tornado or terrorist won’t wait until we get it exactly right.

I’m not sure that this tension is recognized at the national level. I don’t claim to have great insight into or knowledge of all that is going on nationally on the resilience front but from my limited view of current processes and deliberations two things seem apparent. First, there is limited interaction between those scholars and researchers who have studied the various aspects of resilience for years and the policy community that is seeking to frame policies and processes for a more resilient nation. Second, virtually every federal agency is embracing a fairly parochial view of resilience with very little understanding of what other agencies (often in the same department) are doing.

I have been told that the first observation is not surprising. It has taken 25 years for the scientific community to begin to influence and have an actual impact on policy surrounding climate change. It seems to me that we should be trying to accelerate this interaction in the current resilience discussion. read the entire article >

Warren Edwards

The CARRInstitute — Components Defined

In order to take full advantage of the practice and research linkage and to move our effort to the next level, CARRI created the Community and Regional Resilience Institute in 2009. Establishment of this new Institute is an important step in furthering CARRI’s initial work in the Southeast and realizing the full potential of the expanding community practice and growing body of research. The new Institute has five divisions:

Community Resilience Practice
The Community Resilience Practice works directly with communities who desire to increase their resilience across all community domains using the CARRI process. In 2009 we will continue the community partnerships with our three original partner communities while reaching out to other regional partners and communities with tailored programs designed to launch them onto a resilience pathway. Additionally, CARRI will finalize a community implementation package that will provide the basic materials to enable a community to understand and take ownership of the CARRI process with ongoing Institute guidance and mentoring.

Community Resilience Research
Building on the research work already accomplished, the Community and Resilience Institute will become recognized in the area of resilience research as a center of community-based resilience study. We will act as a facilitator to promote linkages among the larger family of resilience centers in the nation in matters relating to communities. CARRI has had significant success in fully integrating its research efforts into the community practice as well as assembling an outstanding group of university, laboratory and independent scholars from across the US. The Institute will continue its publication of community-based research, academic papers and case studies to provide support to organizations and agencies working in the community resilience field. Additionally, we want to focus this year to identify the gaps in community resilience knowledge to be better able to provide advice on national research requirements. The Institute will also sponsor workshops and seminars to assemble those working in the area of community resilience and promote cooperation and collaboration on this nationally vital research area. read the entire article >