Storm Surges, Disaster Planning, and Vulnerable Populations at the Urban Periphery: Imagining a Resilient New York after Superstorm Sandy
Storm Surges, Disaster Planning, and Vulnerable Populations at the Urban Periphery: Imagining a Resilient New York after Superstorm Sandy
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风暴潮、灾难规划和城市周边的弱势群体：想象超级风暴桑迪后的纽约的复原力
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发表时间：
2014
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通讯作者：
Andrea Mcardle
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作者：
Andrea Mcardle
2012 年，破坏性超级风暴“桑迪”对纽约市和美国东北部其他地区造成了毁灭性影响。在这场灾难之后，关于纽约等沿海城市如何采取弹性策略来帮助抵御下一次与天气相关的袭击的想法和数据激增。本文认为，这座城市实际上是否具有弹性，必须考虑其提案在多大程度上满足了沿海地区弱势群体的需求。超级风暴桑迪暴露了脆弱性，包括被分配到避难所的 6,800 名疏散人员，其中 1,800 人是洪水区慢性病护理机构的居民。弱势群体还包括无数的老年人、残疾人和不会说英语的人，由于风暴潮淹没了地下室的供暖和电力系统，他们被困在纽约市住房管理局拥有的建筑物中，没有电力、暖气和热水，长达数周之久。至关重要的是，住房委员会 45% 的建筑物位于海滨附近的疏散区；这些建筑的选址，特别是它们的高层、公园塔楼设计，反映了中世纪住房政策的主要特征，这些政策以贫民窟清理目标、二战后住房短缺和成本考虑为基础。为了阐述这一想法，第二部分描述了桑迪对城市影响的主要类别，以及城市的立即反应，包括启动重建和恢复力特别倡议（SIRR）。然后，第三部分将考虑该城市关于复原力的脱节言论，包括对该术语的普遍使用，以及对复原力更专业含义（即系统响应性）的很大程度上未解释的应用。这一部分将根据生物生态学、国际救灾和心理学文献中公认的复原力概念来解构城市对复原力的定义。第四部分将研究其报告《更强、更有复原力的纽约》中反映的城市复原力举措的主要类别，以及该报告对管理撤退替代方案的讨论。第五部分将研究纽约市通过重建和持续的滨水区开发来确定复原力对其居住在滨水地区的弱势群体（通常流动性较低）的影响。本部分借鉴了第三部分讨论的纪律方法中反映的更丰富的复原力概念，并认识到收入和教育差异、种族和性别等社会影响因素的影响。它提供了一种复原力的概念，强调城市基于法律和社会公平的主权义务，以预测和监测高危居民的具体和持续需求，即使其应对措施需要有管理的撤退策略，而不是适应性重建，或者除了适应性重建之外。
In the aftermath of Sandy, the destructive superstorm that had a devastating impact in New York City and other parts of the Northeastern U.S. in 2012, ideas and data proliferate about how coastal cities, such as New York, can pursue strategies of resilience to help withstand the next weather-related onslaught. This article argues that whether the city in fact acts resiliently must take into account the extent to which its proposals respond to the needs of vulnerable people housed along its coastline. Superstorm Sandy put a face to vulnerability, including 6,800 evacuees assigned to shelters, 1,800 of whom were residents of chronic care facilities located in flood zones. The vulnerable also included countless numbers of elderly and disabled people, and non-English speakers, who were stranded in New York City Housing Authority-owned buildings without electricity, heat, and hot water for weeks as a consequence of storm surges that flooded basement-level heating and electrical systems. Crucially, forty-five percent of the Housing Authority’s buildings are located in evacuation zones near the waterfront; the siting of these buildings, and particularly their high- rise, tower-in-the-park design, reflect key features of mid-century housing policies informed by slum clearance goals, a post-World War II housing shortage, and considerations of cost.To develop this idea, Part II describes the major categories of Sandy’s impact in the city, and the city’s immediate responses, including the launch of its Special Initiative on Rebuilding and Resiliency (SIRR). Part III will then consider the city’s disjointed rhetoric of resilience, consisting of a popularized usage of the term coupled with a largely unexplained application of a more specialized meaning of resilience as systems responsiveness. This part will deconstruct the city’s definition of resilience in relation to recognized conceptions of resilience developed in bio-ecological, international disaster relief, and psychological literatures.Part IV will examine the city’s principal categories of resilience initiatives as reflected in its report, A Stronger, More Resilient New York, as well as the report’s absence of discussion of managed retreat alternatives. Part V will examine the implications of New York City’s identification of resilience with rebuilding and continued waterfront development for its vulnerable (and typically less mobile) populations living in the waterfront areas. This Part draws on a richer conception of resilience reflected in the disciplinary approaches discussed in Part III, and recognizes the effects of socially influenced factors such as income and education disparities, race, and gender. It offers a conception of resilience emphasizing a city’s sovereign obligations grounded in law and social equity to anticipate and monitor the specific and ongoing needs of its more at-risk residents, even if its responses entail strategies of managed retreat rather than, or in addition to, adaptive rebuilding.