Urban resilience in the making? The governance of critical infrastructures in German cities

Abstract

Over the last decade, the protection of urban infrastructures has become a focus in German security policies. These point not solely to the multiple external infrastructural threats (e.g. natural disasters, terrorist and cyber-attacks), but also to the endogenous risks of cascading failures across geographical and functional borders that arise from interlocking and often mutually dependent infrastructures. As geographical nodes in infrastructurally mediated flows, cities are considered to be particularly vulnerable to infrastructure breakdowns. Their capability to prevent and to prepare for infrastructural failures, and thus to manage infrastructural interdependencies, is seen as a major prerequisite for resilient societies. However, as our article demonstrates, the institutional capacity of the local authorities and utility companies for risk mitigation and preparedness is limited. Drawing on qualitative research in selected German cities, we argue that the governance of critical infrastructures involves considerable challenges: it overarches different, often fragmented, policy domains and territories and institutionally unbundled utility (sub-) domains. Moreover, risk mitigation and preparedness are usually not based on experience from past events, but on destructive scenarios. They involve considerable uncertainty and contestations among local decision-makers. Interviews with local experts indicate that effective governance of critical infrastructures requires more regulatory efforts by national policies. At the same time, they point to the need for identifying and assessing place-based vulnerabilities, for defining locally differentiated mitigation and preparedness strategies and for the training of local utility companies as well as crisis management.