INTRODUCTION
DISASTER
Calamitous, distressing, or ruinous effects
of a disastrous event (such as drought, flood, fire, hurricane, war) of such scale that they disrupt (or threaten to disrupt) critical functions of an organization, society or system, for a period long enough to significantly harm it or cause its failure. It is the consequences of a disastrous event and the inability of its victims to cope with them that constitute a
disaster, not the event itself. Although there is no universally accepted
definition of a disaster, the following observation by the US disaster relief specialist Frederick C. Cuny (1944-1995) comes close,
"A situation resulting from an environmental phenomenon or armed conflict that produced stress, personal injury, physical damage, and economic disruption of great magnitude."
The definition adopted by the World Health Organization (WHO) terms a disaster as "The result of a vast ecological breakdown in the relations between man and his environment, a serious and sudden (or slow, as in
drought) disruption on such a scale that the stricken community needs extraordinary efforts to cope with it, often with
outside help or international aid." The US Federal Emergency Management Agency (FEMA) describes it as "An occurrence of a natural catastrophe, technological accident, or human caused event that has resulted in severe property damage, deaths, and/or multiple injuries." Dr. Kathleen J. Tierney (Director, Disaster Research Center, University of Delaware) puts the matter in a different perspective: "Many people trying to do quickly what
they do not ordinarily do, in an environment with which they are not
familiar."
CRISIS - Critical event or point of decision which, if not handled in an appropriate and timely manner
(or if not handled at all), may turn into a disaster or catastrophe.
LEGAL BASIS OF NATIONAL DISASTER RISK REDUCTION
The World Conference on Disaster
Reduction was held from 18 to 22 January 2005 in Kobe, Hyogo, Japan, and
adopted the present Framework for Action 2005-2015:
Building the Resilience of
Nations and Communities to Disasters (here after referred to as the “Framework
for Action”). The Conference provided a unique opportunity to promote a strategic
and systematic approach to reducing vulnerabilities and risks to
hazards. It underscored the need for, and identified ways of, building
the resilience of nations and communities to disasters.
Challenges posed
by disasters
Disaster loss is on the rise with
grave consequences for the survival, dignity and livelihood of
individuals, particularly the poor, and hard-won development gains. Disaster
risk is increasingly of global concern and its impact and actions in one
region can have an impact on risks in another, and vice versa. This, compounded
by increasing vulnerabilities related to changing demographic,
technological and socio-economic conditions, unplanned urbanization,
development within high-risk zones, under-development, environmental degradation,
climate variability, climate change, geological hazards, competition for scarce
resources, and the impact of epidemics such as HIV/AIDS, points to a future
where disasters could increasingly threaten the world’s economy, and its
population and the sustainable development of developing countries. In
the past two decades on average more than 200 million people have been
affected every year by disasters.
Disaster risk arises when hazards
interact with physical, social, economic and environmental vulnerabilities.
Events of hydrometeorological origin constitute the large majority of
disasters. Despite the growing understanding and acceptance of the importance of
disaster risk reduction and increased disaster response capacities, disasters
and in particular the management and reduction of risk continue to pose a
global challenge.
There
is now international acknowledgement that efforts to reduce disaster risks must
be systematically integrated into policies, plans and programmes for
sustainable development and poverty reduction, and supported through bilateral,
regional and international cooperation, including partnerships. Sustainable
development, poverty reduction, good governance and disaster risk reduction are
mutually supportive objectives, and in order to meet the challenges ahead,
accelerated efforts must be made to build the necessary capacities at the
community and national levels to manage and reduce risk. Such an approach is to
be recognized as an important element for the achievement of internationally
agreed development goals, including those contained in the Millennium Declaration.
The
importance of promoting disaster risk reduction efforts on the international
and regional levels as well as the national and local levels has been
recognized in the past few years in a number of key multilateral frameworks and
declarations
The
Yokohama Strategy: lessons learned and gaps identified
The
Yokohama Strategy for a Safer World: Guidelines for Natural Disaster
Prevention,
Preparedness and Mitigation and its Plan of Action (“Yokohama Strategy”), adopted
in 1994, provides landmark guidance on reducing disaster risk and the impacts
of disasters.
The
review of progress made in implementing the Yokohama Strategy identifies
major challenges for the coming years in ensuring more systematic action to
address disaster risks in the context of sustainable development and in
building resilience through enhanced national and local capabilities to manage
and reduce risk.
The
review stresses the importance of disaster risk reduction being underpinned by
a more pro-active approach to informing, motivating and involving people in all
aspects of disaster risk reduction in their own local communities. It also
highlights the scarcity of resources allocated specifically from development
budgets for the realization of risk reduction objectives, either at the
national or the regional level or through international cooperation and
financial mechanisms, while noting the significant potential to better exploit
existing resources and established practices for more effective disaster risk reduction.
Specific
gaps and challenges are identified in the following five main areas:
(a)
Governance: organizational, legal and policy frameworks;
(b)
Risk identification, assessment, monitoring and early warning;
(c)
Knowledge management and education;
(d)
Reducing underlying risk factors;
(e)
Preparedness for effective response and recovery.
These
are the key areas for developing a relevant framework for action for the decade
2005–2015
World Conference
on Disaster Reduction: Objectives, expected outcome and strategic goals
A. Objectives
The World Conference on Disaster
Reduction was convened by decision of the General Assembly, with five specific
objectives.
(a)
To conclude and report on the
review of the Yokohama Strategy and its Plan of Action, with a view to
updating the guiding framework on disaster reduction for the twenty-first
century.
(b)
To identify specific activities
aimed at ensuring the implementation of relevant provisions of the Johannesburg
Plan of Implementation of the World Summit on Sustainable Development on
vulnerability, risk assessment and disaster management.
(c)
To share good practices and
lessons learned to further disaster reduction within the context of attaining
sustainable development, and to identify gaps and challenges.
(d)
To increase awareness of the
importance of disaster reduction policies, thereby facilitating and promoting
the implementation of those policies.
(e)
To increase the reliability and
availability of appropriate disaster-related information to the public and
disaster management agencies in all regions, as set out in relevant provisions
of the Johannesburg Plan of Implementation.
B. Expected
outcome
Taking these objectives into
account, and drawing on the conclusions of the review of the Yokohama Strategy,
States and other actors participating at the World Conference on
Disaster Reduction (hereinafter referred
to as “the Conference”) resolve to pursue the following expected outcome for
the next 10 years:
The substantial
reduction of disaster losses, in lives and in the social, economic and environmental
assets of communities and countries.
The realization of this outcome
will require the full commitment and involvement of all factors concerned,
including governments, regional and international organizations, civil society
including volunteers, the private sector and the scientific community.
C. Strategic
goals
To attain this expected outcome,
the Conference resolves to adopt the following strategic goals:
(a)
The more effective integration of
disaster risk considerations into sustainable development policies, planning
and programming at all levels, with a special emphasis on disaster prevention,
mitigation, preparedness and vulnerability reduction.
(b)
The development and strengthening
of institutions, mechanisms and capacities at all levels, in particular at the
community level, that can systematically contribute to building resilience7 to
hazards.
(c)
The systematic incorporation of
risk reduction approaches into the design and implementation of emergency
preparedness, response and recovery programmes in the reconstruction of
affected communities.
Priorities for
action 2005–2015
A. General
considerations
In determining appropriate action
to achieve the expected outcome and strategic goals, the Conference reaffirms
that the following general considerations will be taken into account.
(a)
The Principles contained in the
Yokohama Strategy retain their full relevance in the current context, which is
characterized by increasing commitment to disaster reduction.
(b)
Taking into account the
importance of international cooperation and partnerships, each State has the
primary responsibility for its own sustainable development and for taking
effective measures to reduce disaster risk, including for the protection of people
on its territory, infrastructure and other national assets from the impact of
disasters. At the same time, in the context of increasing global
interdependence, concerted international cooperation and an enabling
international environment are required to stimulate and contribute to
developing the knowledge, capacities and motivation needed for disaster risk
reduction at all levels.
(c)
An integrated, multi-hazard
approach to disaster risk reduction should be factored into policies, planning
and programming related to sustainable development, relief, rehabilitation, and
recovery activities in post-disaster and post-conflict situations in disaster-prone
countries.
(d)
A gender perspective should be
integrated into all disaster risk management policies, plans and
decision-making processes, including those related to risk assessment, early
warning, information management, and education and training.
(e)
Cultural diversity, age, and
vulnerable groups should be taken into account when planning for disaster risk
reduction, as appropriate.
(f)
Both communities and local
authorities should be empowered to manage and reduce disaster risk by having
access to the necessary information, resources and authority to implement actions
for disaster risk reduction.
(g)
Disaster-prone developing
countries, especially least developed countries and small island developing
States, warrant particular attention in view of their higher vulnerability and
risk levels, which often greatly exceed their capacity to respond to and
recover from disasters.
(h)
There is a need to enhance
international and regional cooperation and assistance in the field of disaster
risk reduction through, inter alia:
•
The transfer of knowledge, technology and expertise to enhance capacity building
for disaster risk reduction
• The sharing of
research findings, lessons learned and best practices
• The
compilation of information on disaster risk and impact for all scales of disasters
in a way that can inform sustainable development and disaster risk reduction
• Appropriate
support in order to enhance governance for disaster risk reduction, for
awareness-raising initiatives and for capacity-development measures at all
levels, in order to improve the disaster resilience of developing countries
• The full,
speedy and effective implementation of the enhanced Heavily Indebted Poor
Countries Initiative, taking into account the impact of disasters on the debt
sustainability of countries eligible for this programme
• Financial
assistance to reduce existing risks and to avoid the generation of new risks
(i)
The promotion of a culture of
prevention, including through the mobilization of adequate resources for
disaster risk reduction, is an investment for the future with substantial
returns. Risk assessment and early warning systems are essential investments that
protect and save lives, property and livelihoods, contribute to the
sustainability of development, and are far more cost-effective in strengthening
coping mechanisms than is primary reliance on post-disaster response and
recovery.
(j)
There is also a need for
proactive measures, bearing in mind that the phases of relief, rehabilitation
and reconstruction following a disaster are windows of opportunity for the
rebuilding of livelihoods and for the planning and reconstruction of physical
and socio-economic structures, in a way that will build community resilience
and reduce vulnerability to future disaster risks.
(k)
Disaster risk reduction is a
cross-cutting issue in the context of sustainable development and therefore an
important element for the achievement of internationally agreed development
goals, including those contained in the Millennium Declaration. In addition,
every effort should be made to use humanitarian assistance in such a way that risks
and future vulnerabilities will be lessened as much as possible.
B. Priorities
for action
Drawing on the conclusions of the
review of the Yokohama Strategy, and on the basis of deliberations at the World
Conference on Disaster Reduction and especially the agreed expected outcome and
strategic goals, the Conference has adopted the following five priorities for
action:
1. Ensure that disaster risk reduction
is a national and a local priority with a strong institutional basis for
implementation.
2. Identify, assess and monitor
disaster risks and enhance early warning.
3. Use knowledge, innovation and
education to build a culture of safety and resilience at all levels.
4. Reduce the underlying risk
factors.
5. Strengthen disaster
preparedness for effective response at all levels.
In their approach to disaster
risk reduction, States, regional and international organizations and other
actors concerned should take into consideration the key activities listed under
each of these five priorities and should implement them, as appropriate, to
their own circumstances and capacities.
Ensure that
disaster risk reduction is a national and a local priority with a strong
institutional
basis for implementation
Countries that develop policy,
legislative and institutional frameworks for disaster risk reduction and that
are able to develop and track progress through specific and measurable
indicators have greater capacity to manage risks and to achieve widespread consensus
for, engagement in and compliance with disaster risk reduction measures across all
sectors of society.
Key activities:
National
institutional and legislative frameworks
(a) Support the creation and
strengthening of national integrated disaster risk reduction mechanisms, such
as multi sectoral national platforms, with designated responsibilities at the
national through to the local levels to facilitate coordination across sectors.
National platforms should also facilitate coordination across sectors,
including by maintaining a broad based dialogue at national and regional levels
for promoting awareness among the relevant sectors.
(b) Integrate risk reduction, as
appropriate, into development policies and planning at all levels of
government, including in poverty reduction strategies and sectors and multi
sector policies and plans.
(c) Adopt, or modify where
necessary, legislation to support disaster risk reduction, including
regulations and mechanisms that encourage compliance and that promote
incentives for undertaking risk reduction and mitigation activities.
(d) Recognize the importance and
specificity of local risk patterns and trends, decentralize responsibilities
and resources for disaster risk reduction to relevant subnational or local
authorities, as appropriate.
Resources
(a) Assess existing human
resource capacities for disaster risk reduction at all levels and develop
capacity-building plans and programmes for meeting ongoing and future requirements.
(b) Allocate resources for the
development and the implementation of disaster risk management policies,
programmes, laws and regulations on disaster risk reduction in all relevant
sectors and authorities at all levels of administrative and budgets on the
basis of clearly prioritized actions.
(c) Governments should
demonstrate the strong political determination required to promote and
integrate disaster risk reduction into development programming.
Community
participation
(a) Promote community participation
in disaster risk reduction through the adoption of specific policies, the
promotion of networking, the strategic management of volunteer resources, the
attribution of roles and responsibilities, and the delegation and provision of
the necessary authority and resources.
Identify, assess
and monitor disaster risks and enhance early warning
The starting point for reducing
disaster risk and for promoting a culture of disaster resilience lies in the
knowledge of the hazards and the physical, social, economic and environmental
vulnerabilities to disasters that most societies face, and of the ways in which
hazards and vulnerabilities are changing in the short and long term, followed
by action taken on the basis of that knowledge.
Key activities:
National and
local risk assessments
(a) Develop, update periodically
and widely disseminate risk maps and related information to decision-makers,
the general public and communities at risk in an appropriate format.
(b) Develop systems of indicators
of disaster risk and vulnerability at national and sub-national scales that
will enable decision-makers to assess the impact of disasters on social,
economic and environmental conditions and disseminate the results to decision makers,
the public and populations at risk.
(c) Record, analyze, summarize
and disseminate statistical information on disaster occurrence, impacts and
losses, on a regular bases through international, regional, national and local
mechanisms.
Early warning
(a) Develop early warning systems
that are people centered, in particular systems whose warnings are timely and
understandable to those at risk, which take into account the demographic,
gender, cultural and livelihood characteristics of the target audiences, including
guidance on how to act upon warnings, and that support effective operations by disaster
managers and other decision makers.
(b) Establish, periodically
review, and maintain information systems as part of early warning systems with
a view to ensuring that rapid and coordinated action is taken in cases of
alert/emergency.
(c) Establish institutional
capacities to ensure that early warning systems are well integrated into
governmental policy and decision-making processes and emergency management
systems at both the national and the local levels, and are subject to regular system
testing and performance assessments.
(d) Implement the outcome of the
Second International Conference on Early Warning held in Bonn, Germany, in
2003, including through the strengthening of coordination and cooperation among
all relevant sectors and actors in the early warning chain in order to achieve
fully effective early warning systems.
(e) Implement the outcome of the
Mauritius Strategy for the further implementation of the Barbados Programme of
Action for the sustainable development of small island developing States,
including by establishing and strengthening effective early warning systems as
well as other mitigation and response measures.
Capacity
(a) Support the development and
sustainability of the infrastructure and scientific, technological, technical
and institutional capacities needed to research, observe, analyze, map and
where possible forecast natural and related hazards, vulnerabilities and disaster
impacts.
(b) Support the development and improvement
of relevant databases and the promotion of full and open exchange and
dissemination of data for assessment, monitoring and early warning purposes, as
appropriate, at international, regional, national and local levels.
(c) Support the improvement of
scientific and technical methods and capacities for risk assessment, monitoring
and early warning, through research, partnerships, training and technical
capacity- building. Promote the application of in situ and space-based
earth observations, space technologies, remote sensing, geographic information
systems, hazard modelling and prediction, weather and climate modelling and
forecasting, communication tools and studies of the costs and benefits of risk
assessment and early warning.
(d) Establish and strengthen the
capacity to record, analyze, summarize, disseminate, and exchange statistical
information and data on hazards mapping, disaster risks, impacts, and losses;
support the development of common methodologies for risk assessment and monitoring.
Regional and
emerging risks
(a) Compile and standardize, as
appropriate, statistical information and data on regional disaster risks,
impacts and losses.
(b) Cooperate regionally and
internationally, as appropriate, to assess and monitor regional and trans-boundary
hazards, and exchange information and provide early warnings through
appropriate arrangements, such as, inter alia, those relating to the management
of river basins.
(c) Research, analyze and report
on long-term changes and emerging issues that might increase vulnerabilities
and risks or the capacity of authorities and communities to respond to
disasters.
Use knowledge,
innovation and education to build a culture of safety and resilience at all
levels
Disasters can be substantially reduced
if people are well informed and motivated towards a culture of disaster
prevention and resilience, which in turn requires the collection, compilation
and dissemination of relevant knowledge and information on hazards, vulnerabilities
and capacities.
Key activities:
Information
management and exchange
(a) Provide easily understandable
information on disaster risks and protection options, especially to citizens in
high-risk areas, to encourage and enable people to take action to reduce risks
and build resilience. The information should incorporate relevant traditional
and indigenous knowledge and culture heritage and be tailored to different
target audiences, taking into account cultural and social factors.
(b) Strengthen networks among
disaster experts, managers and planners across sectors and between regions, and
create or strengthen procedures for using available expertise when agencies and
other important actors develop local risk reduction plans.
(c) Promote and improve dialogue
and cooperation among scientific communities and practitioners working on
disaster risk reduction, and encourage partnerships among stakeholders,
including those working on the socioeconomic dimensions of disaster risk
reduction.
(d) Promote the use, application
and affordability of recent information, communication and space-based
technologies and related services, as well as earth observations, to support
disaster risk reduction, particularly for training and for the sharing and
dissemination of information among different categories of users.
(e) In the medium term, develop
local, national, regional and international user friendly directories,
inventories and national information-sharing systems and services for the
exchange of information on good practices, cost-effective and easy-to-use
disaster risk reduction technologies, and lessons learned on policies, plans
and measures for disaster risk reduction.
(f) Institutions dealing with
urban development should provide information to the public on disaster
reduction options prior to constructions, land purchase or land sale.
(g) Update and widely disseminate
international standard terminology related to disaster risk reduction, at least
in all official United Nations languages, for use in programme and
institutional development, operations, research, training curricula and public
information programmes.
Education and
training
(a) Promote the inclusion of
disaster risk reduction knowledge in relevant sections of school curricula at
all levels and the use of other formal and informal channels to reach youth and
children with information; promote the integration of disaster risk reduction
as an intrinsic element of the United Nations Decade of Education for
Sustainable Development (2005–2015)
(b) Promote the implementation of
local risk assessment and disaster preparedness programmes in schools and
institutions of higher education.
(c) Promote the implementation of
programmes and activities in schools for learning how to minimize the effects
of hazards.
(d) Develop training and learning
programmes in disaster risk reduction targeted at specific sectors (development
planners, emergency managers, local government officials, etc.).
(e) Promote community-based
training initiatives, considering the role of volunteers, as appropriate, to
enhance local capacities to mitigate and cope with disasters.
(f) Ensure equal access to
appropriate training and educational opportunities for women and vulnerable
constituencies; promote gender and cultural sensitivity training as integral
components of education and training for disaster risk reduction.
Research
(a) Develop improved methods for
predictive multi-risk assessments and socioeconomic cost–benefit analysis of
risk reduction actions at all levels; incorporate these methods into
decision-making processes at regional, national and local levels.
(b) Strengthen the technical and
scientific capacity to develop and apply methodologies, studies and models to
assess vulnerabilities to and the impact of geological, weather, water and climate-related
hazards, including the improvement of regional monitoring capacities and
assessments.
Public awareness
(a) Promote the engagement of the
media in order to stimulate a culture of disaster resilience and strong
community involvement in sustained public education campaigns and public
consultations at all levels of society.
Reduce the
underlying risk factors
Disaster risks related to
changing social, economic, environmental conditions and land use, and
the impact of hazards associated with geological events, weather, water, climate
variability and climate change, are addressed in sector development planning
and programmes as well as in post-disaster situations.
Key activities:
Environmental
and natural resource management
(a) Encourage the sustainable use
and management of ecosystems, including through better land-use planning and
development activities to reduce risk and vulnerabilities.
(b) Implement integrated
environmental and natural resource management approaches that incorporate disaster
risk reduction, including structural and non-structural measures, such as
integrated flood management and appropriate management of fragile ecosystems.
(c) Promote the integration of
risk reduction associated with existing climate variability and future climate
change into strategies for the reduction of disaster risk and adaptation to
climate change, which would include the clear identification of climate related
disaster risks, the design of specific risk reduction measures and an improved
and routine use of climate risk information by planners, engineers and other
decision-makers.
Social and
economic development practices
(a) Promote food security as an
important factor in ensuring the resilience of communities to hazards,
particularly in areas prone to drought, flood, cyclones and other hazards that
can weaken agriculture-based livelihoods.
(b) Integrate disaster risk
reduction planning into the health sector; promote the goal of “hospitals safe
from disaster” by ensuring that all new hospitals are built with a level of
resilience that strengthens their capacity to remain functional in disaster
situations and implement mitigation measures to reinforce existing health
facilities, particularly those providing primary health care.
(c) Protect and strengthen
critical public facilities and physical infrastructure, particularly schools,
clinics, hospitals, water and power plants, communications and transport
lifelines, disaster warning and management centres, and culturally important
lands and structures through proper design, retrofitting and re-building, in
order to render them adequately resilient to hazards.
(d) Strengthen the implementation
of social safety-net mechanisms to assist the poor, the elderly and the
disabled, and other populations affected by disasters. Enhance recovery schemes
including psycho-social training programmes in order to mitigate the psychological
damage of vulnerable populations, particularly children, in the aftermath of disasters.
(e) Incorporate disaster risk
reduction measures into post-disaster recovery and rehabilitation processes and
use opportunities during the recovery phase to develop capacities that reduce
disaster risk in the long term, including through the sharing of expertise,
knowledge and lessons learned.
(f) Endeavor to ensure, as
appropriate, that programmes for displaced persons do not increase risk and
vulnerability to hazards.
(g) Promote diversified income
options for populations in high-risk areas to reduce their vulnerability to
hazards, and ensure that their income and assets are not undermined by
development policy and processes that increase their vulnerability to disasters.
(h) Promote the development of
financial risk-sharing mechanisms, particularly insurance and reinsurance
against disasters.
(i) Promote the establishment of
public–private partnerships to better engage the private sector in disaster
risk reduction activities; encourage the private sector to foster a culture of
disaster prevention, putting greater emphasis on, and allocating resources to,
pre-disaster activities such as risk assessments and early warning systems.
(j) Develop and promote
alternative and innovative financial instruments for addressing disaster risk.
Land-use
planning and other technical measures
(k) Incorporate disaster risk
assessments into the urban planning and management of disaster-prone human
settlements, in particular highly populated areas and quickly urbanizing
settlements. The issues of informal or non-permanent housing and the location
of housing in high-risk areas should be addressed as priorities, including in
the framework of urban poverty reduction and slum-upgrading programmes.
(l) Mainstream disaster risk
considerations into planning procedures for major infrastructure projects,
including the criteria for design, approval and implementation of such projects
and considerations based on social, economic and environmental impact assessments.
(m) Develop, upgrade and
encourage the use of guidelines and monitoring tools for the reduction of
disaster risk in the context of land-use policy and planning.
(n) Incorporate disaster risk
assessment into rural development planning and management, in particular with
regard to mountain and coastal flood plain areas, including through the
identification of land zones that are available and safe for human settlement.
(o) Encourage the revision of
existing or the development of new building codes, standards, rehabilitation
and reconstruction practices at the national or local levels, as appropriate,
with the aim of making them more applicable in the local context, particularly in
informal and marginal human settlements, and reinforce the capacity to
implement, monitor and enforce such codes, through a consensus-based approach,
with a view to fostering disaster-resistant structures.
Strengthen
disaster preparedness for effective response at all levels
At times of disaster, impacts and
losses can be substantially reduced if authorities, individuals and communities
in hazard-prone areas are well prepared and ready to act and are equipped with
the knowledge and capacities for effective disaster management.
Key activities:
(a) Strengthen policy, technical
and institutional capacities in regional, national and local disaster
management, including those related to technology, training, and human and
material resources.
(b) Promote and support dialogue,
exchange of information and coordination among early warning, disaster risk
reduction, disaster response, development and other relevant agencies and
institutions at all levels, with the aim of fostering a holistic approach towards
disaster risk reduction.
(c) Strengthen and when necessary
develop coordinated regional approaches, and create or upgrade regional
policies, operational mechanisms, plans and communication systems to prepare
for and ensure rapid and effective disaster response in situations that exceed
national coping capacities.
(d) Prepare or review and
periodically update disaster preparedness and contingency plans and policies at
all levels, with a particular focus on the most vulnerable areas and groups.
Promote regular disaster preparedness exercises, including evacuation drills,
with a view to ensuring rapid and effective disaster response and access to
essential food and non-food relief supplies, as appropriate, to local needs.
(e) Promote the establishment of
emergency funds, where and as appropriate, to support response, recovery and
preparedness measures.
(f) Develop specific mechanisms
to engage the active participation and ownership of relevant stakeholders,
including communities, in disaster risk reduction, in particular building on
the spirit of volunteerism.
Implementation
and follow-up
A. General
considerations
The implementation of and
follow-up to the strategic goals and priorities for action set out in this
Framework for Action should be addressed by different stakeholders in a multi-sectoral
approach, including the development sector. States and regional and international
organizations, including the United Nations and international financial institutions,
are called upon to integrate disaster risk reduction considerations into their sustainable
development policy, planning and programming at all levels. Civil society, including
volunteers and community-based organizations, the scientific community and the private
sector are vital stakeholders in supporting the implementation of disaster risk
reduction at all levels.
While each State has primary
responsibility for its own economic and social development, an enabling
international environment is vital to stimulate and contribute to developing
the knowledge, capacities and motivation needed to build disaster resilient nations
and communities. States and regional and international organizations should
foster greater strategic coordination among the United Nations, other
international organizations, including international financial institutions,
regional bodies, donor agencies and nongovernmental organizations engaged in disaster
risk reduction, based on a strengthened International Strategy for Disaster
Reduction. In the coming years, consideration should be given to ensuring the
implementation and strengthening of relevant international legal instruments
related to disaster risk reduction.
States and regional and
international organizations should also support the capacities of regional
mechanisms and organizations to develop regional plans, policies and common practices,
as appropriate, in support of networking, advocacy, coordination, exchange of information
and experience, scientific monitoring of hazards and vulnerability, and institutional
capacity development and to deal with disaster risks.
All actors are encouraged to
build multi-stakeholder partnerships, at all levels, as appropriate, and on a
voluntary basis, to contribute to the implementation of this Framework for
Action. States and other actors are also encouraged to promote the strengthening
or establishment of national, regional and international volunteer corps, which
can be made available to countries and to the international community to
contribute to addressing vulnerability and reducing disaster risk.
The Mauritius Strategy for the
further implementation of the Barbados Programme of
Action for Small Island
Developing States underscores that small island developing States are located
among the most vulnerable regions in the world in relation to the intensity and
frequency of natural and environmental disasters and their increasing impact,
and face disproportionately high economic, social and environmental consequences.
Small island developing States have undertaken to strengthen their respective
national frameworks for more effective disaster management and are committed,
with the necessary support of the international community, to improve national
disaster mitigation, preparedness and early warning capacity, increase public
awareness about disaster reduction, stimulate interdisciplinary and
inter-sectoral partnerships, mainstream risk management into their national
planning process, address issues relating to insurance and reinsurance arrangements,
and augment their capacity to predict and respond to emergency situations, including
those affecting human settlements stemming from natural and environmental disasters.
In view of the particular
vulnerabilities and insufficient capacities of least developed countries to
respond to and recover from disasters, support is needed by the least developed
countries as a matter of priority, in executing substantive programmes and
relevant institutional mechanisms for the implementation of the Framework for
Action, including through financial and technical assistance and for capacity
building in disaster risk reduction as an effective and sustainable means to
prevent and respond to disasters.
Disasters in Africa pose a major
obstacle to the African continent’s efforts to achieve sustainable development,
especially in view of the region’s insufficient capacities to predict, monitor,
deal with and mitigate disasters. Reducing the vulnerability of the African
people to hazards is a necessary element of poverty reduction strategies,
including efforts to protect past development gains. Financial and technical
assistance is needed to strengthen the capacities of African countries,
including observation and early warning systems, assessments, prevention,
preparedness, response and recovery.
The follow-up on the World
Conference on Disaster Reduction will, as appropriate, be an integrated and
coordinated part of the follow-up to other major conference in fields relevant
to disaster risk reduction.17 This should include specific reference to
progress on disaster risk reduction taking, into account agreed development
goals, including those found in the Millennium Declaration.
The implementation of this
Framework for Action for the period 2005-2015 will be appropriately reviewed.
B. States
All States should endeavour to
undertake the following tasks at the national and local levels, with a
strong sense of ownership and in collaboration with civil society and other
stakeholders, within the bounds of their financial, human and material
capacities, and taking into account their domestic legal requirements
and existing international instruments related to disaster risk
reduction. States should also contribute actively in the context of regional
and international cooperation.
(a) Prepare and publish national
baseline assessments of the status of disaster risk reduction, according to the
capabilities, needs and policies of each State, and, as appropriate, share this
information with concerned regional and international bodies.
(b) Designate an appropriate
national coordination mechanism for the implementation and follow up of this
Framework for Action, and communicate the information to the secretariat of the
International Strategy for Disaster Reduction.
(c) Publish and periodically
update a summary of national programmes for disaster risk reduction related to
this Framework for Action, including on international Cooperation.
(d) Develop procedures for
reviewing national progress against this Framework for Action, which should
include systems for cost benefit analysis and ongoing monitoring and assessment
of vulnerability and risk, in particular with regards to regions exposed to hydrometeorological
and seismic hazards, as appropriate.
(e) Include information on
progress of disaster risk reduction in the reporting mechanisms of existing
international and other frameworks concerning sustainable development, as
appropriate.
(f) Consider, as appropriate,
acceding to, approving or ratifying relevant international legal instruments
relating to disaster reduction, and, for State parties to those instruments,
take measures for their effective implementation.
(g) Promote the integration of
risk reduction associated with existing climate variability and future climate
change into strategies for the reduction of disaster risk and adaptation to
climate change; ensure that the management of risks associated with geological
hazards, such as earthquakes and landslides, are fully taken into account in disaster
risk reduction programmes.
C. Regional
organizations and institutions
Regional organizations with a
role related to disaster risk reduction are called upon to undertake the
following tasks within their mandates, priorities and resources:
(a) Promote regional programmes,
including programmes for technical cooperation, capacity development, the
development of methodologies and standards for hazard and vulnerability
monitoring and assessment, the sharing of information and effective
mobilization of resources, in view of supporting national and regional efforts
to achieve the objectives of this Framework for Action.
(b) Undertake and publish
regional and sub-regional baseline assessments of the disaster risk reduction
status, according to the needs identified and in line with their mandates.
(c) Coordinate and publish
periodic reviews on progress in the region and on impediments and support
needs, and assist countries, as requested, in the preparation of periodic
national summaries of their programmes and progress.
(d) Establish or strengthen
existing specialized regional collaborative centers, as appropriate, to
undertake research, training, education and capacity building in the field of disaster
risk reduction.
(e) Support the development of
regional mechanisms and capacities for early warning to disasters, including
for tsunami.
D. International
organizations
International organizations,
including organizations of the United Nations system and international
financial institutions, are called upon to undertake the following tasks within
their mandates, priorities and resources:
(a) Engage fully in supporting
and implementing the International Strategy for
Disaster Reduction, and cooperate
to advance integrated approaches to building disaster resilient nations and
communities, by encouraging stronger linkages, coherence and integration of
disaster risk reduction elements into the humanitarian and sustainable development
fields as set out in this Framework for Action.
(b) Strengthen the overall
capacity of the United Nations system to assist disaster-prone developing
countries in disaster risk reduction through appropriate means and coordination
and define and implement appropriate measures for regular assessment of their
progress towards the achievement of the goals and priorities set out in this
Framework for Action, building on the International Strategy for Disaster
Reduction.
(c) Identify relevant actions to
assist disaster-prone developing countries in the implementation of this
Framework for Action; ensure that relevant actions are integrated, as appropriate,
into each organization’s own scientific, humanitarian and development sectors, policies,
programmes and practices and that adequate funding is allocated for their
implementation.
(d) Assist disaster-prone
developing countries to set up national strategies and plans of action and
programmes for disaster risk reduction and to develop their institutional and technical
capacities in the field of disaster risk reduction, as identified through the
priorities in this Framework for Action.
(e) Integrate actions in support
of the implementation of this Framework into relevant coordination mechanisms
such as the United Nations Development Group and the Inter-Agency Standing
Committee (on humanitarian action), including at the national level and through
the Resident Coordinator system and the United Nations Country teams. In addition,
integrate disaster risk reduction considerations into development assistance frameworks,
such as the Common Country Assessments, the United Nations Development Assistance
Framework and poverty reduction strategies.
(f) In close collaboration with
existing networks and platforms, cooperate to support globally consistent data
collection and forecasting on natural hazards, vulnerabilities and risks and
disaster impacts at all scales. These initiatives should include the
development of standards, the maintenance of database the development of
indicators and indices, support to early warning systems, the full and open
exchange of data and the use of in situ and remotely sensed
observations.
(g) Support States with the
provision of appropriate, timely and well coordinated international relief
assistance, upon request of affected countries, and in accordance with agreed
guiding principles for emergency relief assistance and coordination
arrangements. Provide this assistance with a view to reducing risk and
vulnerability, improving capacities and ensuring effective arrangements for
international cooperation for urban search and rescue assistance.21 Ensure
that arrangements for prompt international response to reach affected areas are
being developed at national and local levels and that appropriate linkages to
recovery efforts and risk reduction are strengthened.
(h) Strengthen the international
mechanisms with a view to supporting disaster stricken States in the transition
phase towards sustainable physical, social and economic recovery and to
reducing future risks. This should include support for risk reduction activities
in post-disaster recovery and rehabilitation processes and sharing of good practices,
knowledge and technical support with relevant countries, experts and United Nations
organizations;
(i) Strengthen and adapt the
existing inter-agency disaster management training programme based on a shared,
inter-agency strategic vision and framework for disaster risk management that
encompasses risk reduction, preparedness, response and recovery.
E. The
International Strategy for Disaster Reduction
The partners in the International
Strategy for Disaster Reduction, in particular, the
Inter-Agency Task Force on
Disaster Reduction and its members, in collaboration with relevant national,
regional, international and United Nations bodies and supported by the inter-agency
secretariat for the International Strategy for Disaster Reduction, are
requested to assist in implementing this Framework for Action as follows,
subject to the decisions taken upon completion of the review process22 of
the current mechanism and institutional arrangements.
(a) Develop a matrix of roles and
initiatives in support of follow-up to this Framework for Action, involving
individual members of the Task Force and other international partners;
(b) Facilitate the coordination
of effective and integrated action within the organizations of the United
Nations system and among other relevant international and regional entities, in
accordance with their respective mandates, to support the implementation of
this Framework for Action, identify gaps in implementation and facilitate
consultative processes to develop guidelines and policy tools for each priority
area, with relevant national, regional and international expertise.
(c) Consult with relevant United
Nations agencies and organizations, regional and multilateral organizations and
technical and scientific institutions, as well as interested States and civil
society, with the view to developing generic, realistic and measurable indicators,
keeping in mind available resources of individual States. These indicators
could assist States to assess their progress in the implementation of the
Framework of Action. The indicators should be in conformity with the
internationally agreed development goals, including those contained in the
Millennium Declaration. Once that first stage has been completed, States are
encouraged to develop or refine indicators at the national level reflecting
their individual disaster risk reduction priorities, drawing upon the generic
indicators.
(d) Ensure support to national
platforms for disaster reduction, including through the clear articulation of
their role and value added, as well as regional coordination, to support the
different advocacy and policy needs and priorities set out in this Framework
for Action, through coordinated regional facilities for disaster reduction,
building on regional programmes and outreach advisors from relevant partners.
(e) Coordinate with the
secretariat of the Commission on Sustainable Development to ensure that
relevant partnerships contributing to implementation of the Framework for
Action are registered in its sustainable development partnership database.
(f) Stimulate the exchange,
compilation, analysis, summary and dissemination of best practices, lessons
learned, available technologies and programmes, to support disaster risk
reduction in its capacity as an international information clearinghouse; maintain
a global information platform on disaster risk reduction and a web-based
register “portfolio” of disaster risk reduction programmes and initiatives
implemented by States and through regional and international partnerships.
(g) Prepare periodic reviews on
progress towards achieving the objectives and priorities of this Framework for
Action, within the context of the process of integrated and coordinated
follow-up and implementation of United Nations conferences and summits as mandated
by the General Assembly,24 and provide reports and summaries to the
Assembly and other United Nations bodies, as requested or as appropriate, based
on information from national platforms, regional and international
organizations and other stakeholders, including on the follow-up to the implementation
of the recommendations from the Second International Conference on Early
Warning (2003).
F. Resource
mobilization
States, within the bounds of
their financial capabilities, regional and international organizations, through
appropriate multilateral, regional and bilateral coordination mechanisms,
should undertake the following tasks to mobilize the necessary resources to support
implementation of this Framework for Action:
(a) Mobilize the appropriate
resources and capabilities of relevant national, regional and international
bodies, including the United Nations system.
(b) Provide for and support,
through bilateral and multilateral channels, the implementation of this
Framework for Action in disaster-prone developing countries, including through
financial and technical assistance, addressing debt sustainability, technology
transfer on mutually agreed terms, and public–private partnerships, and encourage
North–South and South–South cooperation.
(c) Mainstream disaster risk
reduction measures appropriately into multilateral and bilateral development
assistance programmes including those related to poverty reduction, natural
resource management, urban development and adaptation to climate change.
(d) Provide adequate voluntary
financial contributions to the United Nations Trust Fund for Disaster
Reduction, in the effort to ensure the adequate support for the follow-up
activities to this Framework for Action. Review the current usage and
feasibility for the expansion of this fund, inter alia, to assist
disaster-prone developing countries to set up national strategies for disaster
risk reduction.
(e) Develop partnerships to
implement schemes that spread out risks, reduce insurance premiums, expand
insurance coverage and thereby increase financing for post disaster reconstruction
and rehabilitation, including through public and private partnerships, as
appropriate. Promote an environment that encourages a culture of insurance in developing
countries, as appropriate.
