This section introduces the institutional framework within which all mitigation and preparedness activities take place, focusing on the various levels of government that operate in our federal system. Chapter 6 discusses how the role of the federal government has changed over time and reviews the federal laws and programs that govern hazards management. Chapter 7 focuses on the authority that states have to manage hazards and the range of tools that states use to prepare for and mitigate against hazards. Chapter 8 reviews hazards management at the local level, including the techniques that local governments use to regulate private property and manage land use. Chapter 9 provides an overview of the ways in which the private sector and nonprofit organizations can reduce risks associated with hazards and help communities become more resilient.
Because of the federalist system of government in the United States, and the separation of powers within each level, intergovernmental relations are a significant factor in determining the manner in which public policy is formulated and public programs are carried out. The lack of centralization and high degree of pluralism in our country make for a patchwork system of governance that is not entirely uniform from one state to the next, or from one community to another. The hodgepodge nature of this system is particularly evident in the federal, state, and local programs and policies that govern hazardous areas, and in turn affects how private landowners are permitted to use their property. Because there is no overarching, consistent policy for governing land use and development in hazard-prone areas within the United States, programs and policies administered by various agencies can often be redundant or sometimes even work at cross purposes.
We explore throughout this section how our society has conflicting public policy goals with regard to the management of hazardous lands. On the one hand, we promote the economically beneficial use of private property. For instance, property located along the oceanfront may have significant value as residential or investment real estate, despite recurrent hurricanes, erosion, flooding, and other coastal hazards. Moreover, much of the land in the United States has already been developed in economically beneficial ways, and there is a reluctance to restrict or prohibit land uses in these developed areas, even if such regulation may prevent property damage from future hazards. On the other hand, we also have a strong tradition of protecting public safety through government intervention. Unwise land use decisions can threaten property owners and become a drain on public resources, including government expenditures for emergency rescue and response, temporary housing, infrastructure repair, and disaster assistance payments. These tensions among private property rights, protection of public health and safety, and limits on government spending are caused by and contribute to the patchwork system within which emergency managers carry out their duties and responsibilities with respect to reducing risks and preventing disasters.
To fully grasp strategies to reduce vulnerability to hazards and climate change within the United States, it is essential to understand how the various levels of governments, as well as private sector and nongovernmental organizations, play unique but intertwined roles. The following chapters describe our hazards management framework, detailing the authorities, unique interests, and opportunities to make the nation more resilient.