From disaster recovery to whole-of-society resilience: The impact of the 2021 British Columbia atmospheric rivers event on flood risk management policy and governance

Abstract

Flooding poses significant risks to the safety, well-being, and long-term security of many Canadian communities. In recent years, extreme weather events, as a result of a changing climate, have cost Canadians billions in insured and uninsured losses annually, and such losses do not encapsulate the various social, ecological, and health impacts that are difficult to quantify. In addition to climate change, misaligned land-use planning, intensified development in floodprone areas, fragmented risk governance, gaps in funding and policy, and an over-reliance on protective structures continue to place many Canadians in harm’s way, while creating barriers for proactive adaptations at the watershed scale. Major disasters, like the 2021 atmospheric rivers floods in British Columbia, underscore the need for transformative flood risk management [FRM] policy and governance by highlighting the systemic drivers of flood risk, namely a FRM system that was never designed to withstand the dynamic realities of the present day. Such focusing events—relatively rare, sudden, and impactful events like disasters—are often critical in generating significant public interest around a focal issue, garnering political will to advance policy agendas, and enabling governance actors to advocate for policy reform. In the post-disaster landscape, coalitions of policy actors can seek to leverage these emergent ‘windows of opportunity’ to advance a paradigm shift in how various public issues, like disaster risk reduction and climate change adaptation, are understood and managed, who is involved in decision-making processes, and what solutions are considered socially-acceptable and politically-feasible. Actors are most likely to be successful in advancing agenda items if enabled by the institutional environments that policy processes are embedded within, and if there is an existing foundation of collaboration among others within the broader policy community. This research, utilizing a case study of a major Canadian flood disaster, evaluates the ways in which policy champions, advocacy coalitions, and institutional actors have sought to leverage existing relationships, prior learnings, and post-disaster momentum to advance shifts in FRM policy and governance at the local, regional, and provincial scales. Semi-structured key informant interviews provide insights into how the disaster manifested as a focusing event, what enabling conditions contributed to the creation of a window of opportunity for policy change, and how recent shifts in British Columbia’s flood governance and policy regimes have been shaped by longer-term institutional developments and interjurisdictional partnerships. This research illustrates the transformational nature of adaptive learning and multi-scalar governance, and is intended to assist FRM decision-makers, policymakers, and practitioners in advancing resilience.