Framework
for action
For the Implementation of the International Strategy for
Disaster Reduction (ISDR)
June, 2001
INTRODUCTION 
TIn many parts
of the world, disasters caused by natural hazards such as earthquakes,
floods, landslides, drought, wildfires, tropical cyclones and associated
storm surges, tsunami and volcanic eruptions have exacted a heavy
toll in terms of the loss of human lives and the destruction of economic
and social infrastructure, not to mention their negative impact on
already fragile ecosystems. Indeed, the period between 1960 and 2000,
witnessed a significant increase in the occurrence, severity and
intensity of disasters, especially during the 1990s. This trend poses
a major threat to sustainable development and therefore urgently
needs to be addressed by the international community.
While natural hazards will continue to exist, human action can either
increase or reduce the vulnerability of societies to these hazards
and related technological and environmental disasters by focusing on
socio-economic factors determining such vulnerability. For example,
population growth as well as changing demographic and economic patterns,
which have led to uncontrolled urbanization, together with widespread
poverty have forced large numbers of people to live in disaster-prone
areas and badly constructed shelters, thus increasing vulnerability.
On the other hand, there is considerable scope for the reduction of
risk through the application of disaster prevention and mitigation
efforts based, for instance, on modern forecasting technology. Also,
the development of early warning systems as well as improved land use
planning and building practices can make a considerable difference,
provided that societies ensure the application of these practices in
a manner consistent with the needs of sustainable development.
These considerations led the international community to launch the
International Decade for Natural Disaster Reduction (IDNDR, 1990 -
1999) in order to increase awareness of the importance of disaster
reduction. The experience of the Decade has prompted a major conceptual
shift from disaster response to disaster reduction underscoring the
crucial role of human action.
The emphasis on disaster response, the main area of focus in the past,
has absorbed significant amounts of resources, which would normally
be allocated to development efforts. If this trend were to continue,
the coping capacities of societies in both developed and developing
countries are likely to be overwhelmed. Under these circumstances,
a practical alternative is to promote and support an international
disaster reduction strategy, and initiatives carried out within this
framework, to enable societies to become resilient to the negative
impact of natural hazards and related environmental and technological
disasters. The International Strategy for Disaster Reduction (ISDR),
as the successor arrangement to the IDNDR, is set up to respond to
this need by proceeding from disaster response to the management of
risk through the integration of risk reduction into sustainable development.
Since disaster prevention and disaster reduction are often used interchangeably,
the nature of the relationship between these two concepts should be
clarified. In the more restrictive sense of the term, disaster prevention
can be seen as the adoption of measures aimed at avoiding disasters,
which, unfortunately, is not always possible. On the other hand, disaster
reduction in the narrow sense of the word refers to measures to reduce
or limit the severity of disasters. However, in the broader sense of
the word, disaster reduction involves all measures designed to avoid
or limit the adverse impact of natural hazards and related environmental
and technological disasters. Viewed in these terms, disaster reduction
includes disaster prevention and, as the name of the Strategy suggests,
is used here as the all-encompassing concept.
The Framework for Action embodied in this document reflects the conceptual
underpinnings of the ISDR and identifies the supporting institutional
arrangements based on resolutions of the United Nations Economic and
Social Council (ECOSOC) and General Assembly (GA), as well as on decisions
of the Inter-Agency Task Force for Disaster Reduction (IATF).
It should be noted that the present Framework for Action is part of
an evolving process reflecting changes and emerging trends in the field
of disaster reduction and will therefore be reviewed on a regular basis
in order to fully respond to needs and constraints arising over time.
Part I provides
a brief definition of the main concepts involved in disaster reduction
(i.e.
natural hazards, vulnerability and risks).
It also outlines the vision of disaster reduction embodied in the ISDR,
based on the IDNDR experience, the Yokohama Strategy (1994) and the
strategy “A Safer World in the 21st Century: Disaster and Risk
Reduction”. The latter has been adopted by the participants of
the IDNDR Programme Forum in July 1999 and endorsed by the ECOSOC (E/Res/1999/63)
as well as by an omnibus resolution of the General Assembly (A/Res/54/219)
in accordance with the recommendation of the Secretary General’s
Report on the successor arrangements to IDNDR (A/54/497). Lastly, it
recalls the request by the General Assembly for the ISDR to continue
international cooperation on El Niño (A/Res/54/220) and strengthen
disaster reduction capacities through Early Warning (A/Res/54/219).
Part II describes the institutional arrangements for the implementation
of the ISDR, focusing in particular on the Inter-Agency Task Force
and the Inter-Agency Secretariat of the ISDR.
The Annex shows the proposed ISDR Framework for Action in a diagram.
PART
I
1. DEFINITION
The International Strategy for Disaster Reduction revolves around three major
concepts, namely natural hazards, vulnerability and risk, for which the following
definitions apply:
- NATURAL
HAZARDS comprise phenomena such as earthquakes; volcanic activity;
landslides; tsunamis; tropical cyclones and other severe storms;
tornadoes and high winds; river floods and coastal flooding;
wildfires and associated haze; drought; sand/dust storm; infestations.
- VULNERABILITY
to disasters is a function of human actions and behaviour. It
describes the degree to which a socio-economic system is either
susceptible or resilient to the impact of natural hazards and
related technological and environmental disasters. The degree
of vulnerability is determined by a combination of several factors
including hazard awareness, the condition of human settlements
and infrastructure, public policy and administration, and organized
abilities in all fields of disaster management. Poverty is also
one of the main causes of vulnerability in most parts of the
world.
- The RISK
of a disaster is the probability of a disaster occurring. The
evaluation of a risk includes vulnerability assessment and impact
prediction taking into account thresholds that define acceptable
risk for a given society.
In
this context, a NATURAL DISASTER is to be understood as the consequences
of the
impact of a natural hazard on a socio-economic system with a given
level of vulnerability which prevents the affected society from coping
adequately with this impact. The ISDR encompasses TECHNOLOGICAL AND
ENVIRONMENTAL DISASTERS only when caused by natural hazards. The
expression “natural hazards and related technological and environmental
disasters” therefore describes situations where natural disasters
have been compounded by the occurrence of technological and environmental
damages
2.
THE CONCEPT OF DISASTER REDUCTION EMBODIED IN THE ISDR
The Geneva Mandate on Disaster Reduction, which was
adopted at the IDNDR Programme Forum (July 1999), reaffirms the need
for disaster
reduction and risk management to become essential elements of government
policies. In this respect, the IDNDR experience, the Yokohama Strategy
(1994) and the Strategy “A Safer World in the 21st Century: Disaster
and Risk Reduction” (1999) provide the basis for future endeavors
with regard to disaster reduction. Building on these precedents, the
ISDR will strive towards:
Enabling all societies to become resilient to natural hazards and related
technological and environmental disasters, in order to reduce environmental,
human, economic and social losses.
This vision will be realised by focusing on the following four objectives:
- Increasing
public awareness;
- Obtaining
commitment from public authorities;
- Stimulating
interdisciplinary and intersectoral partnership and expanding risk
reduction networking at all levels;
- Further
improving scientific knowledge of the causes of disasters and the
effects of natural hazards and related technological and environmental
disasters on societies.
In addition, the
General Assembly separately mandated the ISDR:
- • continue
international cooperation to reduce the impacts of El Niño
and other climate variability;
- strengthen
disaster reduction capacities through early warning.
2.1 ISDR's Vision
| To
enable all societies to become resilient to natural hazards
and related technological and environmental disasters,
in order to reduce environmental, human, economic and
social losses |
|
The capacity of
human societies to withstand disasters – “resilience”-
is determined by the internal strengths and weaknesses of a given
society. To understand these internal dynamics, a variety of factors,
including social and economic disparities within the community, need
to be taken into account.
The impact of any disaster is felt directly in terms of immediate human
suffering as well as economic and social losses. In many regions of
the world, it aggravates poverty, which has been recognized as a major
cause of vulnerability. In the medium and long-term it affects vital
sectors of the economy including industry, agriculture, health and
education.
Appropriate disaster reduction strategies and initiatives at the national
and international level, as well as the implementation of Agenda 21,
can strengthen the likelihood of reducing or mitigating the human,
economic and social losses caused by disasters, and thereby facilitate
sustained growth.
These strategies, in turn, require standardized concepts. As illustrated
by the IDNDR experience, local, national, regional and global constituencies
should adopt common standards which can quantify losses and assist
in setting priorities to improve planning, policy development, programme
formulation and implementation.
The participation of communities has proved to be an essential element
for successful disaster reduction policy and practice. Vulnerable communities,
especially in developing countries, are forced by the circumstances
in which they live to adopt measures based on experience to limit losses
from disasters. They often demonstrate extraordinary capacities to
prevent such losses. Examples of the merits of incorporating community-based
approaches to risk management are numerous, although the adoption of
these approaches too frequently faces unnecessary obstacles.
Local authorities need to take decisions based on specific scenarios
related to vulnerability to different hazards. Risk-assessment tools
for land use planners need to be developed taking into account national
and global experiences gained during the previous decade.
In order to create disaster-resilient societies and prevent human,
economic and social losses, it is of paramount importance to engage
public participation at all levels of implementation of the Strategy
for Disaster Reduction.
The ISDR vision can be achieved through 1) public awareness, 2) commitment
by public authorities, 3) multidisciplinary and inter-sectoral partnership
and networking, and 4) scientific knowledge.
2.2. Public Awareness
Objective: To
increase public awareness of the risks that natural hazards
and related technological and environmental disasters
pose to societies and economies. Furthermore, to increase
awareness of existing solutions to reduce vulnerability
to hazards, in order to build a global community dedicated
to making risk and disaster prevention a common good. |
|
Background:
Promoting a culture of prevention as advocated by IDNDR requires creative
and innovative approaches to disseminate its message and to make it an
integral part of an overall planning process, especially targeting communities
in disaster-prone countries.
Past disasters have served to raise political awareness of the need to reduce
vulnerability. However, practical tools and guidelines are still lacking or
insufficient. In order to raise public awareness of disaster reduction, there
is a need for standardized and widely known indicators to assess risk and implement
early warning systems and mitigation programs.
Disaster reduction starts from the understanding of the elements of risk: hazard,
vulnerability and resilience. Progress has been made during the IDNDR in building
awareness on these issues and this has led to political commitments and to
the incorporation of disaster reduction concepts into national development
plans. However, many factors continue to increase the vulnerability of societies
worldwide to the forces of nature. There is an increasing demand from these
societies for concrete application of disaster reduction policies and practices.
In this respect, the sharing of experience and lessons learned between local
communities, cities, countries and regions is an effective way to increase
public awareness. It has enabled many vulnerable communities to apply best
practices and techniques to both risk management and disaster reduction.
Issues
to be addressed:
- Developing
sustained programmes of public information.
- Including
disaster prevention in educational programs and curricula at all
levels.
- Institutionalizing
training programmes on hazards and their impact, risk management
and disaster prevention practices for all
age-groups.
2.3 Commitment by public authorities
Objective:
To obtain commitment by public authorities to reduce
risks to people, their livelihoods, social and economic
infrastructures, and the environment, with special attention
given to the poor.. |
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Background:
Public authorities face a major challenge in transforming political declarations
of support into action. The "Culture of Prevention" should therefore
aim at people in decision-making positions in national governments as well
as local authorities. The ISDR provides a platform to further develop the
basic principles of multi-disciplinary and inter-sectoral involvement,
engaging both officials responsible for policy formulation as well as those
responsible for implementation.
The assignment of responsibility for disaster reduction varies according to
national legislation and local regulations. However, joint approaches between
local authorities, technical entities and communities to assess risk and to
prepare scenarios and action plans have proved useful. Effective action requires
constant dialogue, mutual understanding, co-ordination and co-operation between
the various entities.
Building commitment to disaster-reduction policies includes joint scenario
planning and economic incentives for local mitigation. Once established at
the local level, such initiatives can be consolidated at the national and global
level.
Many of the disaster reduction activities initiated at the local level have
influenced action at the global level, and vice versa. Therefore, there is
a mutually enforcing relationship between activities carried out at different
levels.
Issues to be addressed:
- Engaging relevant
public authorities, community leaders, private entrepreneurs and
experts in partnerships, to ensure the reorientation of the allocation
of resources to facilitate the incorporation of disaster reduction
components in relevant development projects and programmes.
- Identifying
innovative funding involving private and public sectors, so as
to support continued commitment to risk management and disaster
prevention work.
- Linking efforts
of disaster reduction more closely with the Agenda 21 implementation
process for enhanced synergy with environmental and sustainable
development issues. In this context, periodic reviews of accomplishments
in hazard, risk and disaster reduction efforts relating to policy
planning, institutional arrangements, and capacity building at
all levels should be undertaken by public authorities. Post disaster
evaluation from a disaster reduction perspective should also be
carried out.
- Reducing severe
and recurrent disasters, by promoting a proactive interface between
natural resources management and risk-reduction practices;
- Developing
and applying risk-management strategies and measures at all levels
bearing in mind the specific requirements of the poor, urban concentrations
and agricultural sectors.
- Facilitating
the improved coordination of international and inter-agency efforts
and promoting coordination of activities on the regional and especially
national levels across sectors in policy-making, planning and implementation
of disaster-related initiatives.
2.4 Multidisciplinary and inter-sectoral
partnerships and networking
Objective: To
stimulate multidisciplinary and inter-sectoral partnerships
and expand risk reduction networks by engaging public
participation at all stages of the implementation of
the ISDR |
|
Background:
Throughout the IDNDR, and particularly in recent years, the IDNDR National
Committees and Focal Points proved to be key organizational mechanisms
in many countries by expanding the understanding and perceptions of disaster
reduction and increasing the opportunities for association of diverse professional
interests committed to the subject.
These bodies, which are multi-disciplinary and inter-sectoral in nature, made
an important contribution in developing national strategies for their countries
and served as a basis for sub-regional, regional and international cooperation
with regard to natural disaster reduction. They also contributed to the overall
awareness of the need for disaster reduction.
However, the proliferation of actors in the field of disaster reduction in
recent years calls for reviewing and re-committing appropriate forms of local,
national and regional platforms for disaster reduction in order to fulfill
the objectives of the ISDR. Enhanced partnerships and networking are required
in order to ensure cooperation, complementarity of action, synergy and solidarity
between governments, private sector, civil society, academia and international
agencies.
It is therefore necessary to build on and amend existing structures in the
field of disaster reduction by involving as many partners as possible to develop
a sense of ownership of the ISDR among actors involved in disaster reduction
worldwide and to generate a culture of prevention.
Issues
to be addressed:
- Strengthening
and/or building national, sub-regional, regional and international
coordination mechanisms and networks for information exchange,
and promoting collaborative arrangements that can increase disaster
reduction capacities.
- Emphasizing
the critical relationship between risk reduction and economic growth
in order to ensure sustainable development.
2.5 Scientific knowledge
Objective: To
enhance scientific knowledge of the causes of disasters
and the effects of natural hazards and related technological
and environmental disasters on societies as well as to
facilitate its wider application to reduce the vulnerability
of disaster-prone communities. |
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Background:
There has been remarkable progress in the field of technology over the past
50 years, and it is expected that the pace of change will continue to increase
dramatically in the decades ahead. Risk reduction practices should benefit
from this process. Knowledge, especially scientific and technical research
and its application, plays a key role in the development of disaster resilient
societies.
Technological change and advances in research are expanding opportunities for
the improvement of risk assessment, information exchange, disaster-resilient
engineering, education, training and early warning, which are essential elements
of an effective disaster reduction strategy.
Considerable progress has been made over the last ten years in the translation
of scientific and technical knowledge into local, national and regional level
disaster prevention strategies. As shown in its Final Report (IDNDR, 1999),
the Scientific and Technical Committee (STC) of the International Decade for
Natural Disaster Reduction played an important role in supporting the application
of Science and Technology in disaster prevention.
However, further solutions need to be found to facilitate the transfer of technology,
including South-South transfer in the application of research, science and
technology to disaster reduction. As in the case of public awareness, horizontal
exchanges of experience and approaches between local communities, cities, countries
and regions could increase capacities and promote the transfer of knowledge.
Research, Science and Technology are crosscutting issues with regard
to disaster reduction. Their promotion and application in this area
remains a key challenge in building a safer world in the 21st Century.
Issues
to be addressed:
- Establishing
internationally and professionally agreed indicators, standards
and methodologies for the analysis and assessment of the environmental
and socio-economic impacts of disasters on societies. This would
include the quantification of the impact of actual and projected
disasters in order to provide the basis for determining insurability
and vulnerability indicators and up-front economic investment in
prevention;
- Developing
and applying standard forms of statistical recording of risk factors,
disaster occurrences and their consequences, to enable the development
of a cohesive disaster database for monitoring purposes, consistent
comparisons and comprehensive risk assessments to be integrated
within development plans;
- Promoting research
and its application, developing indigenous capabilities and supporting
the transfer of knowledge and the exchange of information and experiences
among countries with a view to better understanding the characteristics
of natural hazards and the causes of natural disasters;
- Stimulating
the application of research on socio-economic determinants of vulnerability,
on resilience and coping strategies in public policies and practices
and on the improvement of the early warning in respect of natural
disasters;
- Establishing
national, sub-regional/regional and global database and information
exchange facilities dedicated to disaster reduction, supported
by agreed communication standards and protocols, adequate mechanisms
for the control of scientific quality as well as social and cultural
appropriateness;
- Increasing
opportunities for scientific and technical contributions to public
decision making for risk management and disaster prevention drawing
from the widest possible range of expertise.
3. AREAS OF COMMON CONCERN
In pursuing the
objectives mentioned above, special attention will be given to areas
of common concern including:
- Incorporating
the recognition of the special vulnerability of the poor in disaster
reduction strategies
- Environmental,
social and economic vulnerability assessment with special reference
to health and food security;
- Ecosystems management,
with particular attention given to the implementation of Agenda
21;
- Land use management
and planning, including appropriate land use in at-risk rural,
mountain and coastal areas, as well as unplanned urban areas in
megacities and secondary cities;
- National, regional
and international legislation with respect to disaster reduction.
4. MODALITIES
The approach used
to realize the ISDR vision should be coherent and initiatives undertaken
under each objective should be based on the following modalities:
- Advocacy;
- Coordination;
- Horizontal
exchanges of information, knowledge and experiences;
- Mainstreaming
of disaster reduction in sustainable development and in national
planning processes;
- Regional and
national capacity building with special emphasis on developing
countries.
5. TASKS MANDATED BY SEPARATE RESOLUTIONS
Background:
In its resolutions (A/Res/54/220) and (A/Res/54/219) respectively, the General
Assembly requested the successor arrangements to the IDNDR to continue
international cooperation on El Niño and the strengthening of disaster
reduction capacities through early warning.
These two multisectoral, interdisciplinary and cross-cutting issues will be
addressed within the ISDR as outlined above by giving special emphasis to the
following:
- Policy formulation
and inter-agency coordination;
- Scientific
cooperation and technology transfer;
- Transformation
of existing knowledge into action;
- Sharing of
knowledge and information; and
- Promotion of
the establishment of risk-monitoring capabilities and early warning
systems as integrated processes, with particular attention being
given to emerging hazards with global implications, such as those
related to climate variability and change.
PART
II
IMPLEMENTATION
OF THE ISDR BY THE INTER-AGENCY TASK FORCE AND THE SECRETARIAT
FOR THE ISDR
The ISDR, as detailed in the first part of this document, will be
implemented in a cross-sectoral and inter-disciplinary manner and serve
as an international platform for disaster reduction. Such implementation
will be carried out bearing in mind the need to focus not only on disaster
response but to aim at an all-encompassing approach to the management
of risk through the integration of risk reduction into sustainable
development. While all relevant actors involved in disaster reduction
activities are called upon to contribute to the implementation of the
ISDR, the Inter-Agency Task Force and the secretariat for the ISDR
have been assigned special mandates described in the report of the
UN Secretary General on the Successor Arrangements for the International
Decade for Natural Disaster Reduction (A/54/497) and endorsed by General
Assembly Resolution A/54/219. Moreover, discussions of the Inter-Agency
Task Force during its first meeting led to specific understandings
concerning allocation of tasks between these two constituent elements
of the ISDR.
The Inter-Agency Task Force
The Task Force, which reflects a tripartite arrangement, is chaired
by the Under-Secretary General for Humanitarian Affairs and composed
of representatives of United Nations agencies, civil society, NGO's
and regional entities. Except for United Nations agencies, members
of the Task Force rotate every two years to ensure both continuity
of work and increased participation of relevant entities representing
regional and civil society interests. Upon request, Governments, organizations
not designated among the Task Force members, interagency bodies and
experts may participate in the Task Force meetings as observers.
Functions and
responsibilities as set out in Secretary General’s report
A/54/497
- To serve as
the main forum within the United Nations system for devising strategies
and policies for the reduction of natural hazards;
- To identify
gaps in disaster reduction policies and programmes and recommend
remedial action;
- To ensure complementarity
of action by agencies involved in disaster reduction;
- To provide
policy guidance to the secretariat; and
- To convene
ad hoc meetings of experts on issues related to disaster reduction.
Working groups
The role of the Task Force is to ensure the implementation of the International
Strategy for Disaster Reduction with the active participation of the Task
Force members. In doing so, the Task Force may decide to create ad hoc
working groups for those areas mandated by relevant UN General Assembly
Resolutions or identified by the Task Force as a common concern. The working
groups will comprise Task Force members and non-Task Force members. The
working groups operate with the support of the secretariat for the ISDR,
and prepare recommendations to be submitted to the Task Force for review.
Initiatives
The Task Force, based on its mandated roles, will elaborate initiatives of
an operational nature to be implemented under the leadership of member
organizations of the Task Force and their partners as a contribution to
the overall implementation of the Strategy. .
Activities
by individual Task Force members
The Task Force members, working through the organizations that they represent
and their respective operational partners, are important vehicles for advancing
the objectives of the Strategy, together with other local, national, regional
and international organizations. Task Force members and organizations will
benefit from the ISDR platform to promote their own activities in disaster
reduction and ensure complementarity with other activities in this field. Members
of the Task Force should mobilize support for the ISDR within their own entities,
including by facilitating the adoption of decisions relevant to the implementation
of the Strategy.
The secretariat for the ISDR
The secretariat
for the ISDR has been established as a flexible structure with core
staff composed of a small number of professionals and managed by
a Director under the direct authority of the Under-Secretary General
for Humanitarian Affairs. Staff additional to the core staff can
be considered on the basis of special funding for specific activities
to be carried out by the Secretariat in connection with its key functions.
The ISDR Secretariat is funded exclusively through voluntary contributions..
Functions and
responsibilities as per Secretary General’s report A/54/497
- To serve as
the focal point within the United Nations system for the coordination
of strategies and programmes for natural disaster reduction, and
to ensure synergy between disaster reduction strategies and those
in the socio-economic and humanitarian fields;
- To support
the inter-agency task force in the development of policies on natural
disaster reduction;
- To promote
a worldwide culture of reduction of the negative effects of natural
hazards, through advocacy campaigns;
- To serve as
an international clearing house for the dissemination and exchange
of information and knowledge on disaster reduction strategies;
and
- To backstop
the policy and advocacy activities of national committees for natural
disaster reduction.
ISDR funding
The Secretariat for the ISDR will raise funds to cover the costs of its mandated
functions and selected activities to be carried out under its auspices
in collaboration with other partners. Funds raised in this manner will
be channeled through the ISDR Trust Fund established for this purpose.
Annual strategic
plans of action
The Secretariat will support the implementation of the ISDR by formulating
annual strategic plans of action/workplans delineating activities of a substantive
nature to be carried out within specified timeframes.
ANNEX
ISDR
FRAMEWORK FOR ACTION
“ to proceed from protection against hazards to the management of risk
through the integration of risk reduction into sustainable development”
International
Strategy for Disaster Reduction
based on the IDNDR experience, the Yokohama Strategy and the Strategy “A
Safer World in the 21st Century: Disaster and Risk Reduction”
 |
