resources, seldom leads to programs which can be expected to function.
The same weakness is evidenced at the State and local government
levels with few exceptions. The stresses likely to occur in emergency
response programs after a catastrophic earthquake will be such that
effective response will require a cooperative, integrated effort among
different jurisdictions and levels of government.

Experience in other areas of planning and preparedness, particularly
for civil defense, indicates that damage to existing programs occurs
when the Federal Government raises expectations of the public and of
other levels of government and then fails to follow through with
implementation and funding. It is better to maintain the _status quo_
with minor changes at the margin than to announce substantial program
initiatives and not meet their requirements.

CHAPTER V

AN ASSESSMENT OF THE SOCIAL IMPACTS

Often, it is assumed that disasters leave masses of the population in
the impacted areas dazed and helpless and unable to cope with the new
conditions, or that those not so immobilized panic or display
antisocial behavior. Another common assumption is that local
communities and organizations are rendered ineffective to handle the
many problems, leading to further disorganization, loss of morale, and
requiring the quick assertion of "strong" outside leadership and
control.

Practical experience and field studies of disasters indicate that
these assumptions are not necessarily correct. The widespread sharing
of danger, loss, and deprivation produces an intimate cooperativeness
among the survivors, which overcomes social isolation and provides a
channel for very close communication and expression and a major source
of physical and emotional support and reassurance. This capacity seems
to account for the resiliency of personality and social organization
in dealing with threat and danger. It is also at the base of the
ability of social life to regenerate.

In addition, a good case can be made in that community systems
experiencing impact may be more efficient and rational than they are
in "normal" circumstances. Normal (pre-disaster) community life
traditionally operates at a low level of effectiveness and efficiency.
Activities are directed toward a very diffuse set of goals, just as
human resources within the community are inadequately utilized. Upon
disaster impact, certain community goals--care for victims and the
resto