Warren Ladbrook: At Kaikoura we should learn the lessons of Christchurch

Recovery from the Kaikoura earthquakes should be an improvement on what we did in Christchurch, pictured, not just a repeat of the same. Photo / Supplied

Disaster recovery is not just about rebuilding roads and infrastructure. It's about the people and their community. Roads and infrastructure serve the needs and requirements of the community, so their needs must be carefully considered before simply rebuilding what was damaged or destroyed.

Recovery from the Kaikoura earthquakes should be an improvement on what we did in Canterbury, not just a repeat of the same. There will be no lessons learned from Christchurch's recovery, or from other disaster recoveries, if we don't ensure our focus is based on the required outcomes for affected communities.

In my experience, successful disaster recovery requires flexibility, adaptability, and the ability to create the most appropriate, fit-for-purpose solutions. Anything can be rebuilt with enough time and money. However, it is more important to ask if we should. Are there better options for meeting the needs of the community than simply rebuilding back to the way things were? Thinking outside the box, challenging conventional thought, and being flexible, can sometimes lead to better outcomes.

Kaikoura presents some specific considerations. The primary problem for State Highway 1 into Kaikoura has been the massive rockfalls blocking this main route. Seabed rise within the harbour has also restricted access.

Most people understand it's the rocks remaining in the hills that will be the problem during future major earthquakes - which will occur, and with a high likelihood of similar damage in the Hurunui to Marlborough region. If so, is the most appropriate solution to rebuild exactly the same thing, and incur similar costs onto future generations? And, should the harbour remain in the same location where the same thing could recur, or should it be moved to a more resilient site?

There are three overarching considerations for the region: tourism, freight and primary industry. Each is significant for the local and national community and we should consider the optimal outcomes for all.

Could Kaikoura benefit from becoming a destination in itself, like Milford Sound or Aoraki Mt Cook Village? Investment in robust primary access from the south, with a resilient alternative, the inland road, could ensure minimal disruption after future earthquake events.

While direct access from the north provides a picturesque drive, I don't believe it's essential for Kaikoura's success. KiwiRail and various ports have quickly made good use of under-utilised coastal shipping for moving freight. With resilient wharf structures, coastal shipping can effectively move freight and people wherever needed. A benefit of being near the coast is that the Navy, and other ships, can quickly arrive to render aid and deliver supplies.

I'm not saying that we can't or shouldn't be rebuilding SH1 and roads providing service to primary industries, however, rebuilding what we've lost is generally a popular sentiment that isn't always in our best interest. Building resilient infrastructure means that a future event disrupts the least amount of the network for the least amount of time, inconveniencing the least amount of people.

In disaster recovery, it is common for big companies to swoop in and do everything because they have the resources and experience with large projects. This means smaller local companies can be overlooked or marginalised, which is not helpful to the local economy.

While large companies have the capabilities and capacity to do large programmes of work, we should ensure that the needs of the local businesses are also considered. One year of work for a major national company might provide seven years' work for seven local companies. While certain matters should be addressed as quickly as possible, there are many lower priority projects that can be addressed over time.

It's common in disaster recovery for big budgetary dollar figures to be set early in the process, and Kaikoura has been no exception. In my experience, these funding levels need to be reviewed regularly as more information becomes available. There is always unseen damage below ground that we won't find out about until later in the recovery, and there is always additional cost to address these discoveries. This happened in
Christchurch and Iraq and in both cases the level of the infrastructure rebuild was adjusted down as time progressed, with funding constraints a fixed limit.

For Kaikoura, reserve funding is essential for the unexpected things that will be discovered during the recovery. I suspect that the damage could be worse than it first appears. The Government's $2 billion investment may need to be adjusted, up or down, once we get more information. Let's not fixate on the estimated $2b. We may discover that we only need $1.5b, or perhaps $2.5b.

The art of continuous improvement is how we can both avoid the mistakes of the past - and replicate its successes, for the benefit of all affected communities.

* Warren Ladbrook is Christchurch-based civil and infrastructure services manager for the engineering and design consultancy, Harrison Grierson.