Managing institutional fragmentation and time compression in post-disaster reconstruction – the case of Bam

Abstract

Several studies have revealed the difficulties often found in defining stakeholders' roles in post-disaster reconstruction projects. Insufficient and ill-timed collaboration are typically identified as the principal source of problems. Borrowing the concept of Institutional Fragmentation (IF) from the field of project management, this paper examines significant obstacles to collaboration and to sharing knowledge and experience in post-disaster reconstruction projects, revealing the causes and effects at four levels of fragmentation: the construction industry, project procurement, design and construction work. The case of the reconstruction program conducted after the 2003 earthquake in Bam (Iran), illustrates these different levels of fragmentation and their short and long-term impacts. Results show that three of the four levels of fragmentation caused unexpected outcomes during program implantation and afterwards; fragmentation increased the divergence between the many stakeholders with their interests and expectations, during and after their intervention. Conflict and confrontation between two controller organizations led to an excessive emphasis on technical requirements at the expense of heritage preservation. Results also explain how specific conditions after the disaster -such as lack of time coupled with socio-political pressures -increased fragmentation. Post-disaster reconstruction projects require systematic and comprehensive procurement to cover the interfaces that will enable tasks to be conducted effectively. The study proposes a conceptual approach to fragmentation that can help academics, practitioners, and decision-makers understand the origins and consequences of institutional fragmentation on the timely use of resources, and to develop governance structures and mechanisms that can help reduce it in post-disaster reconstruction initiatives.

A conceptual framework for integrated management of Post-Natural Disasters Recovery (PNDR) projects

“…Given the rising prevalence of natural disasters and their sudden and destructive effects, there is an essential need to conduct comprehensive and detailed planning. Contrary to regular construction projects, time and budget limitation (Fayazi et al 2017) and complexity and uncertainty (Ismail et al 2014) in PNDR projects impose overwhelming pressure on the project team and government. Due to these dramatic differences, project life-cycle management plays a more crucial role in PNDR projects than common construction projects (Didem Gunes Yilmaz, Jason Von Meding 2013;Patel and Hastak 2013;Moatty 2017;Vahanvati and Mulligan 2017;Jinhua Han, Peng Zhang 2019).…”

“…As witnessed in reality, many PNDR projects face a lack of resources which is also mentioned as ''supply chain dysfunction'' or ''inadequate procurement'' (Chang et al 2010;Enshassi et al 2017;Fayazi et al 2017;Scott a. Supernaw 2019). Shortage of reconstruction materials makes post-natural disaster reconstruction projects more susceptible to delays (Ismail et al 2014;Scott a. Supernaw 2019).…”

Post-Disaster Collaboration between Governmental and Non-Governmental Stakeholders: The Case of Bam Earthquake, Iran

“…However, many of the NGOs had not been trained in disaster work, which resulted in poor communication and lack of teamwork. Moreover, international aid organizations and NGOs suffered from inadequate experience and limited knowledge about local conditions [57,58]. And their short-term participation did not let them learn and share knowledge with the local informal sectors and other local agencies.…”

“…Based on the expert's authority that can be used by government to legitimise disaster management practises, Iranian government councils became an increasingly political place. In Bam, the diversity of participants in terms of priorities, expertise and resources, generated serious challenges in post-disaster recovery projects such as discontinuity of programs, fragmentation of aid delivery and the conflicting role of agencies in emergency response [57]. Consequently, the lack of coordination and poor information sharing increased the chaos aftermath of Bam earthquake [58] between NGOs and public agencies.…”

“…Consequently, the lack of coordination and poor information sharing increased the chaos aftermath of Bam earthquake [58] between NGOs and public agencies. It is recorded that some NGOs/INGOs decided to give up collaboration [57]. Furthermore, the lack of local agreements has hindered the progress of the project and generated financial blockages [59].…”