A Ladder of Urban Resilience: An Evolutionary Framework for Transformative Governance of Communities Facing Chronic Crises

This paper explores the concept of evolutionary urban resilience by framing cities as complex, open, and adaptive Social-Ecological-Technological Systems (SETS), shaped by multi-scalar dynamics, systemic uncertainty, and interdependent crises. It challenges the reductionist view of resilience as a fixed capacity or linear sequence of risk management phases, and instead proposes a process-based paradigm rooted in learning, creativity, and the ability to navigate disequilibrium. The framework defines urban resilience as a continuous and iterative transformation process, supported by: (i) a combination of tangible and intangible qualities activated according to problem typology; (ii) cross-domain processes involving infrastructures, flows, governance, networks, and community dynamics; and (iii) the engagement of diverse agents in shared decision-making and coordinated action. These dimensions unfold across three incremental and interdependent scenarios—baseline, critical, and chronic crisis—forming a ladder of resilience that guides communities through escalating challenges. Special emphasis is placed on the role of Information and Communication Technologies (ICTs) as relational and adaptive tools enabling distributed intelligence and inclusive governance. The framework also outlines concrete operational and policy implications for cities aiming to build anticipatory and transformative resilience capacities. Applied to the case of Taranto, the approach offers insights into how structurally fragile communities facing conflicting adaptive trajectories can unlock transformative potential. Ultimately, the paper calls for a shift from government to governance, from control to co-creation, and from reactive adaptation to chaos generativity, recasting urban resilience as an evolving project of collective agency, systemic reconfiguration, and co-production of emergent urban futures.