Disasters are typically managed locally, however they become
increasingly complex when the impacts cross jurisdictional
boundaries and outstrip community resources (McConnell &
Drennan, 2006). Discussions of systems of critical infrastructure
tend to focus on securing and protecting hard capital resources,
such as facilities, supplies (e.g. vaccines), technology, and equipment.
Recognition of soft capital (e.g. people and knowledge) has
been slower, and there is a need for deeper understanding of the
dynamics of critical social infrastructure and how it influences
community capacity. Several authors have recognized this gap and
suggest more empirical studies focused on social infrastructure
such as communication networks, social capital, collaboration and
community engagement, and methods for evaluating resilienceoriented
intervention activities which focus on soft infrastructure
are needed (Chandra et al., 2011; Sherrieb, Norris, & Galea, 2010;
Wyche et al., 2011).
Complexity theory provides an appropriate lens for modeling
social infrastructure in a disaster context for several reasons. First,
disaster management, which is dynamic and adaptive, involves
cross boundary integration and a diverse mix of people. Second,
previous literature has expanded our understanding of the
complexity of disasters, but few studies have examined empirically
what the necessary ingredients for crisis management are at the
grass roots, micro level, and howdynamic elements of critical social
infrastructure influence community capacity. This gap in the literature
is particularly apparent with respect to protecting and
promoting the health of high risk populations, who are people at
heightened risk for negative impacts from a crisis, due to the
intersection of the social determinants of health (O’Sullivan &
Bourgoin, 2010). These groups are reliant on community supports
for activities of daily living, and when these supports are compromised,
high risk populations, particularly people with complex
medical needs, are at even greater risk for health and social problems,
which create additional demands for health and social
services.