Skip to main content

Advertisement

Log in

Post-disaster social recovery: disaster governance lessons learnt from Tropical Cyclone Yasi

  • Original Paper
  • Published:
Natural Hazards Aims and scope Submit manuscript

Abstract

Post-disaster social recovery remains the least understood of the disaster phases despite increased risks of extreme events leading to disasters due to climate change. This paper contributes to advance this knowledge by focusing on the disaster recovery process of the Australian coastal town of Cardwell which was affected by category 4/5 Tropical Cyclone Yasi in 2011. Drawing on empirical data collected through semi-structured interviews with Cardwell residents post-Yasi, it examines issues related to social recovery in the first year of the disaster and 2 years later. Key findings discuss the role played by community members, volunteers and state actors in Cardwell’s post-disaster social recovery, especially with respect to how current disaster risk management trends based on self-reliance and shared responsibility unfolded in the recovery phase. Lessons learnt concerning disaster recovery governance are then extracted to inform policy implementation for disaster risk management to support social recovery and enhance disaster resilience in the light of climate change.

This is a preview of subscription content, log in via an institution to check access.

Access this article

Price excludes VAT (USA)
Tax calculation will be finalised during checkout.

Instant access to the full article PDF.

Fig. 1

Similar content being viewed by others

References

  • Albright EA, Crow DA (2015) Learning processes, public and stakeholder engagement: analyzing responses to Colorado’s extreme flood events of 2013. Urban Clim 14(Part 1):79–93. https://doi.org/10.1016/j.uclim.2015.06.008

    Article  Google Scholar 

  • Aldrich DP, Meyer MA (2015) Social capital and community resilience. Am Behav Sci 59:254–269. https://doi.org/10.1177/0002764214550299

    Article  Google Scholar 

  • Aldunce P, Beilin R, Handmer J, Howden M (2014) Framing disaster resilience: the implications of the diverse conceptualisations of “bouncing back”. Disaster Prev Manag Int J 23:252–270. https://doi.org/10.1108/dpm-07-2013-0130

    Article  Google Scholar 

  • Aldunce P, Beilin R, Howden M, Handmer J (2015) Resilience for disaster risk management in a changing climate: practitioners’ frames and practices. Glob Environ Change 30:1–11. https://doi.org/10.1016/j.gloenvcha.2014.10.010

    Article  Google Scholar 

  • Aldunce P, Beilin R, Handmer J, Howden M (2016) Stakeholder participation in building resilience to disasters in a changing climate. Environ Hazards 15:58–73

    Article  Google Scholar 

  • Australian Bureau of Meteorology (2011) Tropical Cyclone Yasi. Commonwealth of Australia

  • Australian Bureau of Meteorology (2016) Tropical cyclones in Queensland. Commonwealth of Australia

  • Australian Government (2011) Natural Disaster Relief and Recovery Arrangements (NADRRA). Commonwealth of Australia

  • Berke PR, Kartez J, Wenger D (1993) Recovery after disaster: achieving sustainable development, mitigation and equity. Disasters 17:93–109. https://doi.org/10.1111/j.1467-7717.1993.tb01137.x

    Article  Google Scholar 

  • Blanchi R, Leonard J, Haynes K, Opie K, James M, Oliveira FD (2014) Environmental circumstances surrounding bushfire fatalities in Australia 1901–2011. Environ Sci Policy 37:192–203. https://doi.org/10.1016/j.envsci.2013.09.013

    Article  Google Scholar 

  • Bowen C-C, Bowen WM (2008) Content analysis. In: Yang K, Miller GJ (eds) Handbook of research methods in public administration. Taylor & Francis, Boca Raton, FL, pp 689–704

    Google Scholar 

  • Camilleri P, Healy C, Winkworth G, Woodward M (2009) Community capacity building: learning from the 2003 Canberra bushfires. Aust J Emerg Manag 24:5–12

    Google Scholar 

  • COAG (n.d.) National Climate Change Adaptation Framework. Council of Australian Governments. Report commissioned on 10 February 2006

  • Colten C, Kates R, Laska S (2008) Three years after Katrina: lessons for community resilience. Environ Sci Policy Sustain Dev 50:36–47

    Article  Google Scholar 

  • Community and Disability Services & Minister’s Advisory Council (n.d.) National Principles for Disaster Recovery Australian Government

  • Council of Australian Governments (2011) National Strategy for Disaster Resilience. Building the resilience of our nation to disasters. Commonwealth of Australia, ACT, Canberra

    Google Scholar 

  • Cretney R (2014) Resilience for whom? Emerging critical geographies of socio-ecological resilience. Geogr Compass 8:627–640. https://doi.org/10.1111/gec3.12154

    Article  Google Scholar 

  • Cutter SL (2016) Resilience to what? Resilience for whom? Geogr J 182:110–113. https://doi.org/10.1111/geoj.12174

    Article  Google Scholar 

  • Davidson JL, Jacobson C, Lyth A, Dedekorkut-Howes A, Baldwin CL, Ellison JC, Holbrook NJ, Howes MJ, Serrao-Neumann S, Singh-Peterson L, Smith TF (2016) Interrogating resilience: toward a typology to improve its operationalization. Ecol Soc. https://doi.org/10.5751/es-08450-210227

    Google Scholar 

  • Department of Climate Change (2009) Climate change risks to Australia’s Coast. A first pass national assessment. Commonwealth Government of Australia

  • Eburn M, Dovers S (2015) Learning lessons from disasters: alternatives to royal commissions and other quasi-judicial inquiries. Aust J Public Adm 74:495–508. https://doi.org/10.1111/1467-8500.12115

    Article  Google Scholar 

  • Finch C, Emrich CT, Cutter SL (2010) Disaster disparities and differential recovery in New Orleans. Popul Environ 31:179–202. https://doi.org/10.1007/s11111-009-0099-8

    Article  Google Scholar 

  • Glavovic B, Smith G (2014) Conclusions: integrating natural hazards risk management and climate change adaptation through natural hazards planning. In: Glavovic B, Smith G (eds) Adapting to climate change. Lessons from natural hazards planning. Springer, Dordrecht, pp 405–450

    Chapter  Google Scholar 

  • Haddad BM (2005) Ranking the adaptive capacity of nations to climate change when socio-political goals are explicit. Glob Environ Change 15:165–176

    Article  Google Scholar 

  • Handmer JW, Dovers S, Downing TE (1999) Societal vulnerability to climate change and variability. Mitig Adapt Strat Glob Change 4:267–281

    Article  Google Scholar 

  • Hayward BM (2013) Rethinking resilience: reflections on the Earthquakes in Christchurch, New Zealand, 2010 and 2011. Ecol Soc 18:6. https://doi.org/10.5751/es-05947-180437

    Article  Google Scholar 

  • Insurance Council of Australia (2016) Catastrophe events and the community. Insurance Council of Australia Limited

  • International Federation of Red Cross and Red Crescent Societies (2003) World Disasters Report 2003. In: Walter J (ed) International Federation of Red Cross and Red Crescent Societies, Geneva, Switzerland

  • IPCC (2012) In: Field CB, Barros VR, Stocker TF, Qin D, Dokken DJ, Ebi KL, Mastrandrea MD, Mach KJ, Plattner G-K, Allen SK, Tignor M, Midgley PM (eds) Managing the risks of extreme events and disasters to advance climate change adaptation. A special report of Working Groups I and II of the Intergovernmental Panel on Climate Change. Cambridge University Press, Cambridge, p 582

    Google Scholar 

  • Johnston D, Becker J, Paton D (2012) Multi-agency community engagement during disaster recovery: lessons from two New Zealand earthquake events. Disaster Prev Manag Int J 21:252–268. https://doi.org/10.1108/09653561211220034

    Article  Google Scholar 

  • Jordan E, Javernick-Will A (2013) Indicators of community recovery: content analysis and Delphi approach. Nat Hazards Rev 14:21–28. https://doi.org/10.1061/(asce)nh.1527-6996.0000087

    Article  Google Scholar 

  • Jordan E, Javernick-Will A, Tierney K (2016) Post-tsunami recovery in Tamil Nadu, India: combined social and infrastructural outcomes. Nat Hazards 84:1327–1347. https://doi.org/10.1007/s11069-016-2489-4

    Article  Google Scholar 

  • Kates RW, Colten CE, Laska S, Leatherman SP (2006) Reconstruction of New Orleans after Hurricane Katrina: a research perspective. Proc Natl Acad Sci 103:14653–14660. https://doi.org/10.1073/pnas.0605726103

    Article  Google Scholar 

  • Kim S (2016) Five years on, Cardwell economy yet to bounce back after shattering Cyclone Yasi, ABC news. http://www.abc.net.au/news/2016-02-02/cardwell-economy-yet-to-bounce-back-after-cyclone-yasi/7126934. Accessed 2 Feb 2016

  • Klein N (2007) The shock doctrine. Metropolitan Books, New York

    Google Scholar 

  • Klein N, Smith N (2008) The shock doctrine: a discussion. Environ Plan D Soc Space 26:582–595. https://doi.org/10.1068/d2604ks

    Article  Google Scholar 

  • Lawther PM (2016) Towards a natural disaster intervention and recovery framework. Disasters 40:494–517. https://doi.org/10.1111/disa.12163

    Article  Google Scholar 

  • Leadbeater A (2013) Community leadership in disaster recovery: a case study. Aust J Emerg Manag 28:41–47

    Google Scholar 

  • Leitch AM, Bohensky EL (2014) Return to ‘a new normal’: discourses of resilience to natural disasters in Australian newspapers 2006–2010. Glob Environ Change 26:14–26. https://doi.org/10.1016/j.gloenvcha.2014.03.006

    Article  Google Scholar 

  • Leonard HB, Howitt AM (2010) Advance recovery and the development of resilient organisations and societies. In: Swiss Reinsurance Company. Centre for Global Dialogue (ed) Integrative risk management: advanced disaster recovery, pp 45–58

  • Lorenz DF (2013) The diversity of resilience: contributions from a social science perspective. Nat Hazards 67:7–24. https://doi.org/10.1007/s11069-010-9654-y

    Article  Google Scholar 

  • Manyena SB (2006) The concept of resilience revisited. Disasters 30:434–450

    Article  Google Scholar 

  • Marín A, Bodin Ö, Gelcich S, Crona B (2015) Social capital in post-disaster recovery trajectories: insights from a longitudinal study of tsunami-impacted small-scale fisher organizations in Chile. Glob Environ Change 35:450–462. https://doi.org/10.1016/j.gloenvcha.2015.09.020

    Article  Google Scholar 

  • McGowan J (2012) A missed opportunity to promote community resilience? The Queensland Floods Commission of Inquiry. Aust J Public Adm 71:355–363. https://doi.org/10.1111/j.1467-8500.2012.00778.x

    Article  Google Scholar 

  • McLennan BJ, Handmer J (2012) Reframing responsibility-sharing for bushfire risk management in Australia after Black Saturday. Environ Hazards 11:1–15. https://doi.org/10.1080/17477891.2011.608835

    Article  Google Scholar 

  • McLennan B, Whittaker J, Handmer J (2016) The changing landscape of disaster volunteering: opportunities, responses and gaps in Australia. Nat Hazards 84:2031–2048. https://doi.org/10.1007/s11069-016-2532-5

    Article  Google Scholar 

  • Melo Zurita ML, Cook B, Harms L, March A (2015) Towards new disaster governance: subsidiarity as a critical tool. Environ Policy Gov 25:386–398. https://doi.org/10.1002/eet.1681

    Article  Google Scholar 

  • Middelmann MHE (2007) Natural hazards in Australia. Identifying risk analysis requirements. Geoscience Australia, Canberra

    Google Scholar 

  • Nakagawa Y, Shaw R (2004) Social capital: a missing link to disaster recovery. Int J Mass Emerg Disasters 22:5–34

    Google Scholar 

  • Nigg JM (1995) Disaster recovery as a social process. Preliminary Paper. University of Delaware Disaster Research Center, Newark, DE, USA

  • Norris FH, Tracy M, Galea S (2009) Looking for resilience: understanding the longitudinal trajectories of responses to stress. Soc Sci Med 68:2190–2198. https://doi.org/10.1016/j.socscimed.2009.03.043

    Article  Google Scholar 

  • Olshansky R, Johnson L, Topping K (2006) Rebuilding communities following disaster: lessons from Kobe and Los Angeles. Built Environ 32:354–374

    Article  Google Scholar 

  • Olshansky R, Hopkins L, Johnson L (2012) Disaster and recovery: processes compressed in time. Nat Hazards Rev 13:173–178. https://doi.org/10.1061/(asce)nh.1527-6996.0000077

    Article  Google Scholar 

  • Oppenheimer M, Campos M, Warren R, Birkmann J, Luber G, O’Neill B, Takahashi K (2014) Emergent risks and key vulnerabilities. In: Field CB, Barros VR, Dokken DJ, Mach KJ, Mastrandrea MD, Bilir TE, Chatterjee M, Ebi KL, Estrada YO, Genova RC, Girma B, Kissel ES, Levy AN, MacCracken S, Mastrandrea PR, White LL (eds) Climate change 2014: Impacts, adaptation, and vulnerability. Part A: global and sectoral aspects. Contribution of Working Group II to the Fifth Assessment Report of the Intergovernmental Panel on Climate Change. Cambridge University Press, Cambridge, pp 1039–1099

    Google Scholar 

  • Ostrom E (2000) Crowding out citizenship. Scand Polit Stud 23:3–16

    Article  Google Scholar 

  • Overseas Development Institute (ODI), International Bank for Reconstruction and Development (IBRD) and The World Bank (2015) Interim policy note. Unlocking the ‘Triple dividend’ of Resilience. Why investing in disaster risk management pays off

  • Queensland Government (2014) Queensland Strategy for Disaster Resilience. http://www.dilgp.qld.gov.au/resources/plan/local-government/queensland-strategy-for-disaster-resilience.pdf. Accessed 15 Feb 2016

  • Reason P, Bradbury H (2006) Handbook of action research. SAGE, London

    Google Scholar 

  • Regional Australia Institute (2013a) From disaster to renewal. The centrally of business recovery to community resilience. Final report. Regional Australia Institute, ACT, Australia

  • Regional Australia Institute (2013b) From recovery to renewal. Case study reports. Regional Australia Institute

  • Reisinger A, Kitching RL, Chiew F, Hughes L, Newton PCD, Schuster SS, Tait A, Whetton P (2014) Australasia. In: Barros VR, Field CB, Dokken DJ, Mastrandrea MD, Mach KJ, Bilir TE, Chatterjee M, Ebi KL, Estrada YO, Genova RC, Girma B, Kissel ES, Levy AN, MacCracken S, Mastrandrea PR, LL White (Eds) Climate Change 2014: Impacts, Adaptation, and Vulnerability. Part B: Regional aspects. Contribution of Working Group II to the Fifth Assessment Report of the Intergovernmental Panel on Climate Change. Cambridge University Press, Cambridge, pp 1371–1438

  • Rumbach A, Makarewicz C, Németh J (2016) The importance of place in early disaster recovery: a case study of the 2013 Colorado floods. J Environ Plan Manag 59:2045–2063. https://doi.org/10.1080/09640568.2015.1116981

    Article  Google Scholar 

  • Scolobig A, Prior T, Schröter D, Jörin J, Patt A (2015) Towards people-centred approaches for effective disaster risk management: balancing rhetoric with reality. Int J Disaster Risk Reduct 12:202–212. https://doi.org/10.1016/j.ijdrr.2015.01.006

    Article  Google Scholar 

  • Serrao-Neumann S, Crick F, Low Choy D (2013a) “You can kiss my Yasi”—recovering in time compression. In: State of Australian Cities Conference, Sydney

  • Serrao-Neumann S, Di Giulio GM, Ferreira LC, Low Choy D (2013b) Climate change adaptation: is there a role for intervention research? Futures 53:86–97. https://doi.org/10.1016/j.futures.2013.08.002

    Article  Google Scholar 

  • Serrao-Neumann S, Crick F, Harman B, Sano M, Sahin O, Staden R, Schuch G, Baum S, Low Choy D (2014) Improving cross-sectoral climate change adaptation for coastal settlements: insights from South East Queensland, Australia. Reg Environ Change 14:489–500. https://doi.org/10.1007/s10113-013-0442-6

    Article  Google Scholar 

  • Smith GP, Wenger D (2006) Sustainable disaster recovery: operationalizing an existing agenda. In: Rodrigues H, Quarantelli EL, Dynes R (eds) Handbook of disaster research. Springer, New York, pp 234–257

    Google Scholar 

  • The World Bank, Queensland Reconstruction Authority (2011) Queensland recovery and reconstruction in the aftermath of the 2010/2011 flood events and Cyclone Yasi. http://www.qldreconstruction.org.au/publications-guides/reports/world-bank-report. Accessed 20 Sept 2012

  • Tierney K, Oliver-Smith A (2012) Social dimensions of disaster recovery. Int J Mass Emerg Disasters 30:123–146

    Google Scholar 

  • Tompkins EL, Lemos MC, Boyd E (2008) A less disastrous disaster: managing response to climate-driven hazards in the Cayman Islands and NE Brazil. Glob Environ Change 18:736–745. https://doi.org/10.1016/j.gloenvcha.2008.07.010

    Article  Google Scholar 

  • UNISDR (2015) Sendai framework for disaster risk reduction 2015–2030. United Nations Office for Disaster Risk Reduction (UNISDR) p 32

  • Vallance S (2015) Disaster recovery as participation: lessons from the Shaky Isles. Nat Hazards 75:1287–1301. https://doi.org/10.1007/s11069-014-1361-7

    Article  Google Scholar 

  • Vallance S, Carlton S (2015) First to respond, last to leave: communities’ roles and resilience across the ‘4Rs’. Int J Disaster Risk Reduct 14(Part 1):27–36. https://doi.org/10.1016/j.ijdrr.2014.10.010

    Article  Google Scholar 

  • Walker G, Whittle R, Medd W, Watson N (2010) Risk governance and natural hazards. CapHaz-Net WP2 Report,. Lancaster Environment Centre, Lancaster University, Lancaster

  • Welsh M (2014) Resilience and responsibility: governing uncertainty in a complex world. Geogr J 180:15–26. https://doi.org/10.1111/geoj.12012

    Article  Google Scholar 

  • Whittaker J, McLennan B, Handmer J (2015) A review of informal volunteerism in emergencies and disasters: definition, opportunities and challenges. Int J Disaster Risk Reduct 13:358–368. https://doi.org/10.1016/j.ijdrr.2015.07.010

    Article  Google Scholar 

  • Wilson PA (2009) Deliberative planning for disaster recovery: re-membering New Orleans. J Public Delib 5:1–23

    Google Scholar 

  • Zhang Y, Wildemuth BM (2009) Qualitative analysis of content. In: Wildemuth B (ed) Applications of social research methods to questions in information and library science. Libraries Unlimited, Westport, CT, pp 308–319

    Google Scholar 

Download references

Acknowledgements

This research has been funded by the Griffith Climate Change Response Program, the Cardwell Community Futures Forum, Australian Regional Institute. We thank the Cardwell community members for their time and participation in this research. The authors thank the two reviewers who provided insightful comments to the original manuscript.

Author information

Authors and Affiliations

Authors

Corresponding author

Correspondence to Silvia Serrao-Neumann.

Rights and permissions

Reprints and permissions

About this article

Check for updates. Verify currency and authenticity via CrossMark

Cite this article

Serrao-Neumann, S., Crick, F. & Low Choy, D. Post-disaster social recovery: disaster governance lessons learnt from Tropical Cyclone Yasi. Nat Hazards 93, 1163–1180 (2018). https://doi.org/10.1007/s11069-018-3345-5

Download citation

  • Received:

  • Accepted:

  • Published:

  • Issue Date:

  • DOI: https://doi.org/10.1007/s11069-018-3345-5

Keywords

Navigation