ration of essential services--develop a high priority while
others are ignored or held in abeyance. Thus, the entire range of
community resources, even taking into account "losses," can be
allocated to the accomplishment of the more critical goals. Also,
human resources are better utilized. Many women, older persons,
younger persons, and members of minorities now become "productive;"
the "labor" market after impact is open to those underutilized
resources. In effect, then, disasters create the conditions for the
more efficient utilization of material resources and the more
effective mobilization of human resources.

To accomplish this, certain modifications have to occur in the normal
community structure, since the usual decision-making structures are
designed for a different range and type of problem. Outsiders see this
restructuring process as disorganized, chaotic, and creating the
necessity for the imposition of some strong outside authority. On the
contrary, this restructuring process is functional and adaptive. Its
consequences are seen in communities and societies that rebound
dramatically from the disruption and destruction to levels of
integration, productivity, and growth capacity far beyond the
pre-disaster state.

In summary, the picture drawn points to the capacity of individuals
and institutions to deal with difficult problems created by disaster
impact. It also points to the adaptive capacity of social organization
within communities to deal with unique and dramatic problems. These
findings are not an argument against planning nor against "outside"
assistance, but they should condition both the nature of planning and
the direction of assistance.

ANNEX 1

LETTERS OF CORRESPONDENCE

THE WHITE HOUSE

WASHINGTON

September 19, 1980

To Governor Jerry Brown

As you know, following my trip to view the destructive impacts of the
volcanic eruption of Mt. St. Helens in the State of Washington, I
directed that an assessment be undertaken of the consequences and
state of preparedness for a major earthquake in California. This
review, chaired by my Science and Technology Advisor, Frank Press, is
now complete. We are grateful for the assistance provided by your
staff and the other State, and local officials in this effort.

Although current response plans are generally adequate for moderate
earthquakes, Federal, State, and local officials agree that additional
preparation is required