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 restoration 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.