[PDF] Assessing the role of vertical and horizontal communication in

218641 1

Assessing the role

of vertical and horizontal communication in disaster risk reduction learning and planning:

The case of the Spanish Tous dam-break, 1982

A report for the UN ISDR for the mid-term review of the Hyogo Framework for

Action

11 January 2011

Anna Serra (UAB) J. David Tàbara (UAB) Ilan Chabay (CHUT)

Autonomous University of Barcelona, Spain (UAB)

Chalmers University of Technology, Gothenburg, Sweden (CHUT) ____________________________________________________________________ 2

Executive summary:

The breaking of the Tous dam in 1982 was one of the most important socio-natural disasters in Spain during the 20 th century. That event triggered a paradigm change in the way disaster risks were perceived and managed, not only locally, but also at multiple levels of governance. In the light of the international implementation of the 2005 Hyogo Framework for Action (HFA), this report summarizes this case study in order to shed some light on the role of vertical and horizontal communication in disaster risk reduction learning and planning. To this end, a total of 15 interviews with relevant stakeholders have been carried out, together with content analysis of scientific literature, and a review of historical and media accounts. Results indicate that the collapse of the Tous dam had four major effects. 1. It prompted a process of institutional development which led to the growth and increase in the complexity of the organisations involved both in vertical and horizontal communication of disaster risk reduction. 2. Actions taken and experiences gained in dealing with disaster risk reduction in the Tous area were used as a benchmark to develop new strategies, as well as new mechanisms for communication and planning in other territories and other risk domains in Spain. 3. Two 'logics of action' or modes have been identified, each of which drive different strategies and communication processes, mobilise different types of resources, and provoke distinct responses to risk taking and prevention. One is risk averse and is based on emergency relief capacity building, while the other has to do with economic growth and risk taking. Both are related and produce some synergies, as well as many contradictions that affect the actual implementation of DRR plans. 4. While there are many first order learning loops and communication procedures within institutions that function primarily within each of the two logics or modes, learning is nevertheless impeded between the agents and institutions that operate in or across both modes. Our report has also identified three main stages in the evolution of disaster risk reduction planning in the area, showing a progressive shift towards a more integrated and preventative approach. However, this process is far from complete and many issues - mainly related to dealing with different domains of risk action, introducing concepts of ecological resilience and climate change, and promoting public awareness and effective participation - still remain unresolved. 3

CONTENTS

I. Objectives, context, research questions, and methods.

I. 1. Introduction.

I. 2. Objectives and research questions.

I. 3. The collapse of the Tous Dam (1982).

I. 4. Methodology.

II. Assessing the role of vertical and horizontal communication in disaster risk reduction learning and planning. II. 1. The communication process before, during, and after the collapse of the Tous Dam: a "credibility crisis" in risk communication. II. 2. The intertwining of hydro-meteorological factors with human causes. II. 2. 1. Meteorological and hydrological aspects of the "cold drop". 1

Assessing the role

of vertical and horizontal communication in disaster risk reduction learning and planning:

The case of the Spanish Tous dam-break, 1982

A report for the UN ISDR for the mid-term review of the Hyogo Framework for

Action

11 January 2011

Anna Serra (UAB) J. David Tàbara (UAB) Ilan Chabay (CHUT)

Autonomous University of Barcelona, Spain (UAB)

Chalmers University of Technology, Gothenburg, Sweden (CHUT) ____________________________________________________________________ 2

Executive summary:

The breaking of the Tous dam in 1982 was one of the most important socio-natural disasters in Spain during the 20 th century. That event triggered a paradigm change in the way disaster risks were perceived and managed, not only locally, but also at multiple levels of governance. In the light of the international implementation of the 2005 Hyogo Framework for Action (HFA), this report summarizes this case study in order to shed some light on the role of vertical and horizontal communication in disaster risk reduction learning and planning. To this end, a total of 15 interviews with relevant stakeholders have been carried out, together with content analysis of scientific literature, and a review of historical and media accounts. Results indicate that the collapse of the Tous dam had four major effects. 1. It prompted a process of institutional development which led to the growth and increase in the complexity of the organisations involved both in vertical and horizontal communication of disaster risk reduction. 2. Actions taken and experiences gained in dealing with disaster risk reduction in the Tous area were used as a benchmark to develop new strategies, as well as new mechanisms for communication and planning in other territories and other risk domains in Spain. 3. Two 'logics of action' or modes have been identified, each of which drive different strategies and communication processes, mobilise different types of resources, and provoke distinct responses to risk taking and prevention. One is risk averse and is based on emergency relief capacity building, while the other has to do with economic growth and risk taking. Both are related and produce some synergies, as well as many contradictions that affect the actual implementation of DRR plans. 4. While there are many first order learning loops and communication procedures within institutions that function primarily within each of the two logics or modes, learning is nevertheless impeded between the agents and institutions that operate in or across both modes. Our report has also identified three main stages in the evolution of disaster risk reduction planning in the area, showing a progressive shift towards a more integrated and preventative approach. However, this process is far from complete and many issues - mainly related to dealing with different domains of risk action, introducing concepts of ecological resilience and climate change, and promoting public awareness and effective participation - still remain unresolved. 3

CONTENTS

I. Objectives, context, research questions, and methods.

I. 1. Introduction.

I. 2. Objectives and research questions.

I. 3. The collapse of the Tous Dam (1982).

I. 4. Methodology.

II. Assessing the role of vertical and horizontal communication in disaster risk reduction learning and planning. II. 1. The communication process before, during, and after the collapse of the Tous Dam: a "credibility crisis" in risk communication. II. 2. The intertwining of hydro-meteorological factors with human causes. II. 2. 1. Meteorological and hydrological aspects of the "cold drop".