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All Journal Journal of Environmental Economics and Sustainability
Ma Wangling
Thammasat University
Economics, Econometrics & Finance Environmental Science Social Sciences

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Adaptive Governance Failure Under Extreme Rainfall: An Adaptive Capacity Analysis of the 2021 Zhengzhou Flood Ma Wangling
Journal of Environmental Economics and Sustainability Vol. 3 No. 3 (2026): May
Publisher : Indonesian Journal Publisher

Show Abstract | Download Original | Original Source | Check in Google Scholar | DOI: 10.47134/jees.v3i3.1196

Abstract

The design of multi-level warning and risk communication systems is a critical but analytically underexplored dimension of urban flood governance. Using a qualitative institutional document analysis design, this study reconstructs how Zhengzhou's warning and risk communication system was formally structured to function across eight governance levels (L1–L8) prior to the extreme rainfall event of July 2021. Drawing on the Emergency Response Law, national meteorological regulations, and the Zhengzhou Municipal Urban Flood Control Emergency Plan, the study identifies four structural tensions embedded in the institutional design. First, the "Tiao-Kuai" divide between warning issuance and emergency response activation as institutionally separate systems. Second, the gap between framework-level contingency plans and the operational precision required by extreme events. Third, long vertical transmission chains combined with insufficient horizontal coordination mechanisms. Fourth, the absence of institutionalized public feedback loops from the receiving end of the communication chain. These tensions did not individually determine system failure, but together constituted specific institutional pressure points that shaped the conditions under which governance capacity would be tested under extreme climate stress. These findings contribute to understanding how institutional design in hierarchical governance systems can embed structural vulnerabilities that remain latent until activated by extreme events, offering direct implications for flood governance reform in Chinese cities and rapidly urbanizing contexts across the Asia-Pacific region facing intensifying climate risks.
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