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8/9/2019 Helsinki Presentation May30-2010
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Social resilience in flood management
Disaster Risk Reduction or Disaster RiskDisplacement?
Jeroen Warner
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Quick onset disasters
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The great wave
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Some observations based on
Systematic work by Annelies Heijmans onCBDRR/CBDRM in Asia and other DS staff aftertsunami
Anecdotal evidence from my PhD field researchon flood politics in NL, UK Bangladesh
2010 Just started research with students in theNL
Nuwcren: Learning from UK and US.. Butespecially from the global South
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What is normal? W
hat is exceptional?
Normality (the everyday) can
be full ofhazard while complex
emergencies have pockets of
normality
An extra (climate-induced)
flood or drought may not make
all the difference when everyday disease, civil war, poverty,
traffic pose constant risks
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Risk landscape
Local perspective
Puts into question notions of vulnerability, resilience,
climate change
But they are adopted by the South because it brings inmoney (and awareness)
The North does not practice our own concepts for the
South- community, participatory, preparedness
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Role of local actors
In disaster:
First burden of disaster is on the affected
Cooperation rather than panic
Currently dominant article of faith: multi-
stakeholder involvement: proaction, preparedness
After disaster, stakeholders are supposed to takeownership of systems put in place by emergency
actors
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Local knowledge works if practiced a lot
Some Pacific islands: 15 minute lead time and
it works; Boulder, Col. has 45 mins for flash flood
Bangladesh: rodents means: The river is comingTsunami: Fishers were safer than tourist resorts
But what about : rare events; supralocal events;
modernising societies (alienation from directenvironment)?
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Flood adaptation in Bangladesh
Rapid-onset (flood) & creeping catastrophe (erosion): mutliple hazards- Sea level rise => mitigation?
- Riverbank and coastal erosion => hundreds of thousands
have to move into hazardous areas
Receiving areas not welcoming more people; what w
hen t
hey come back?Bangladesh impressive mutual aid e.g. joint use of riverboats
also land appropriation and violence from musclemen
(Ahsan): Some better off than before thanks to aid system: this
is present-day local knowledge
There is good money for NGOs in climate change
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Adaptation in the North
NL
Adaptation = technology
Decentralised river management: central govt. Setssafety standards, local actors can shape approach
Western Europe: Space for the River
Safety, Natural values, development
Whose safety, whose natural values, whodevelopments?
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Water boards
12th century: Monks started draining and reclaiming land
(and brewing beer)
Groups of farmers got together to protect land If one defaulted, collective safety was compromised
1421/3 200,000 died in St Elizabeth floods
Whole villages disappeared under the water
1953 1800 died in NL(and 300 in UK) in coastal floods
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For better or for worse?
Traditional risk reduction strategies reproduce powerrelations and inequalities
Modernist project: banning (or equalising) risk foreveryone with centralised food protectio n
New safety regime brings new inequalities Centralised dikes eroded local capacities: false sense of
security;
Risk displacement: Dikes create bathtubs: from highincidence, low consequence to low incidence, hig
h consequence Cntrol paradox: the better protected, the more people go
and live there
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Where are the people?
Disaster drills (VIKING, Floodex) only involve
authorities, not civic organisations
In practice, disasters are always dealt with bylocal people and they do
E.g. Enschede made a comparison between NL UK
and ITALY
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Dutch disaster preparedness and resilience is low
The 1953 coastal flood, 1992 Amsterdam plane crash and
2000Fireworks depot explosion in Enschede, were real
disasters.. A fire like in the town of Volendam was morelike a major accident even then we are dumbfounded
say Dutch security experts like Uri Rosenthal and Rob de
Wijk
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Some history.
Netherlands: until 1950s thousands of water boards
(sometimes just 4 farmers)
But rich landowners decided (interest => pay => say)
Religious divisions
Dike wars: shifting risk onto neighbours
1798: French occupation: centralisation
More safety, less resilience
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Back to the future
1995-2005 Movement from resistance to
resilience approach
From illusion of excluding risk to accepting and
reducing risk Reintroduction of time-honoured practice of
controlled flooding of sparsely inhabited areas
(calamity polders)
Accepted in expert community., not by
politicians and civil society!
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Flood management
approaches Resistance approach
Aims for zero risk:ignoring preparedness
Based on
solidarity
Technocraticmanagement
Resilience approach
Accepts residual risk=> Integrated chain
Differentiation of
protection standards
Depends on wideractor base and
awareness
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Knowledge
NL: Very little reliance on local knowledge
In participatory processes, people defer totechnological knowledge
Opposing groups find countervailing expert knowledge
(professors forhire)
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State-society collusion in non-preparedness
Who are the community?
In W Europe active civil society is town professionals and farmers -opposed to nonstructural flood measures e.g. flood detention, Spacefor the River, as it affects land value and housing prices
Netherlands allows building in floodplains and deep polders
- Corruption, no enforcement in housing standards:
- Allowing building in floodplains
- Illusion of risk free protection
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Observations in Wales, France, Limburg
(Southern NL)
Houses of long-term residents are flood-prepared
- powerpoints high up, no fitted carpet, escape toroof
Tourists and second-home owners are unaware; it
is not in local authorities inetrets to tell them..
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Risk profiling, cost cutting
Governments: risk reduction, worst case scenario
Fire services invest in prevention at the source, to
becomelean and mean
Violence against ambulance; no doctor in in no-go areas
Insurance companies: Actuarial data
Unobtrusive control
Human rights activists worry about civil rightsinfringements
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Resilience = bouncing back?
Coping and resilience does not mean people
survive unscathed whether for individuals andsocial systems, the pieces of the puzzle never fall
into place again
Resilience reinstates old vulnerabilities
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Disaster Risk Reduction cycle
Reconstruction
Prevention
Mitigation
Response
Recovery
DisasterDisaster Risk Reduction
Cycle
Preparedness
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Disasterhelix (Lee Bosher)Boundaries are blurred
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The safety chain
Proaction : the elimination of structural causes of danger, therebypreventing the development of dangerous situations.
Prevention: the minimization of risks and the restriction of the
consequences of any accidents that occur.
Preparation: the preparations for the control of accidents, disasters
and crises.
Response : the operational control of dangerous situations that have
occurred, inclusive of the provision of the necessary assistance.
Aftercare : the concluding link in the safety chain. Aftercare focuses
on the return to the normal situation, together with evaluations that
result in procedural improvements.
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Disaster Management Cycle
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Problems with Chain Approach
Expansion of security concept: Expansion of state
control or of stakeholder control?
Coopting stakeholders for others aims
Technocracy looms (e.g. Dutch water sector
approach to adaptivity).