Hyogo
Framework for Action 2005-2015:
Building the resilience of nations and communities to disasters
(HFA) Download
document
Report
of the Conference (includes Hyogo Framework)
Contents
I. Preamble
A. Challenges posed by disasters
B. The Yokohama Strategy: lessons learned and gaps identified
II. World Conference on Disaster Reduction: Objectives, expected
outcome and strategic goals
A. Objectives
B. Expected outcome
C. Strategic goals
III. Priorities for action 2005-2015
A. General considerations
B. 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
IV. Implementation and follow-up
A. General considerations
B. States
C. Regional organizations and institutions
D. International organizations
E. The International Strategy for Disaster Reduction
F. Resource mobilization
Annex
Some multilateral developments related to disaster risk reduction
I. Preamble
1. 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[1] and risks to hazards.[2]
It underscored the need for, and identified ways of, building
the resilience of nations and communities to disasters.[3]
A. Challenges posed by disasters
1. 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.
2. 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.
3. 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.
5. 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.[4]
B. The Yokohama Strategy: lessons learned and gaps identified
6. 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.
7. The
review of progress made in implementing the Yokohama Strategy[5]
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.
8. 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.
9. 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.
II. World Conference on Disaster Reduction: Objectives, expected
outcome and strategic goals
A. Objectives
10. The
World Conference on Disaster Reduction was convened by decision
of the General Assembly, with five specific objectives:[6]
(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
11. 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 actors concerned, including governments, regional and
international organizations, civil society including volunteers,
the private sector and the scientific community.
C. Strategic goals
12. 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 resilience[7]
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.
III. Priorities for action 2005–2015
A. General
considerations
13. 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;[8]
(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;[9]
(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
14. 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:
Ensure
that disaster risk reduction is a national and a local priority
with a strong institutional basis for implementation.
Identify, assess and monitor disaster risks and enhance early
warning.
Use knowledge, innovation and education to build a culture
of safety and resilience at all levels.
Reduce the underlying risk factors.
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.
1. Ensure that disaster risk reduction is a national and a
local priority with a strong institutional basis for implementation
16. 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:
(i) National
institutional and legislative frameworks
(a) Support
the creation and strengthening of national integrated disaster
risk reduction mechanisms, such as multi sectoral national
platforms[10], 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 sub-national or local authorities,
as appropriate.
(ii) Resources
(e) 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.
(f) 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.
(g) Governments
should demonstrate the strong political determination required
to
promote and integrate disaster risk reduction into development
programming.
(iii)
Community participation
(h) 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.
2. Identify,
assess and monitor disaster risks and enhance early warning
17. 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:
(i) 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[11] 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[12] on social, economic
and environmental conditions and disseminate the results to
decisionmakers, the public and populations at risk.
(c) Record,
analyse, summarize and disseminate statistical information
on disaster occurrence, impacts and losses, on a regular bases
through international, regional, national and local mechanisms.
(ii) Early
warning
(d) 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.
(e) 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.
(f) 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.
(g) Implement
the outcome of the Second International Conference on Early
Warning held in Bonn, Germany, in 2003[13], 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.
(h) 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.
(iii)
Capacity
(i) Support
the development and sustainability of the infrastructure and
scientific, technological, technical and institutional capacities
needed to research, observe, analyse, map and where possible
forecast natural and related hazards, vulnerabilities and
disaster impacts.
(j) 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.
(k) 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.
(l) 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.
(iv) Regional
and emerging risks
(m) Compile
and standardize, as appropriate, statistical information and
data on regional disaster risks, impacts and losses.
(n) 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.
(o) Research,
analyse 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.
3. Use
knowledge, innovation and education to build a culture of
safety and resilience at all levels
18. 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:
(i) 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
userfriendly 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.
(ii) Education
and training
(h) 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).
(i) Promote
the implementation of local risk assessment and disaster preparedness
programmes in schools and institutions of higher education.
(j) Promote
the implementation of programmes and activities in schools
for learning how to minimize the effects of hazards.
(k) Develop
training and learning programmes in disaster risk reduction
targeted at specific sectors (development planners, emergency
managers, local government officials, etc.).
(l) Promote
community-based training initiatives, considering the role
of volunteers, as appropriate, to enhance local capacities
to mitigate and cope with disasters.
(m) 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.
(iii)
Research
(n) 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.
(o) 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.
(iv) Public
awareness
(p) 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.
4. Reduce
the underlying risk factors
19. 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:
(i) 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,[14] 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 climaterelated
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.
(ii) Social
and economic development practices
(d) 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.
(e) 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.
(f) 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.
(g) 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.
(h) Incorporate
disaster risk reduction measures into post-disaster recovery
and rehabilitation processes[15] 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.
(i) Endeavor
to ensure, as appropriate, that programmes for displaced persons
do not increase risk and vulnerability to hazards.
(j) 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.
(k) Promote
the development of financial risk-sharing mechanisms, particularly
insurance and reinsurance against disasters.
(l) 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, predisaster activities such as risk assessments and early
warning systems.
(m) Develop
and promote alternative and innovative financial instruments
for addressing disaster risk.
(iii)
Land-use planning and other technical measures
(n) 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.
(o) 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.
(p) 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.
(q) 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,
(r) 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.
5. Strengthen
disaster preparedness for effective response at all levels
20. 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.
IV. Implementation and follow-up
A. General
considerations
21. 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.
22. 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.
23. 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.
24. 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.[16]
25. 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 earlywarning 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.
26. 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.
27. 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.
28. 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.
29. The
implementation of this Framework for Action for the period
2005-2015 will be appropriately reviewed.
B. States
30. 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, in
line with paragraphs 33 and 34.
(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;[18]
(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
31. 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.[19]
D. International
organizations
32. 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 disasterresilient 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 databases,
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.[20] 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
33. 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 process[22] 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;[23]
(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).[25]
F. Resource
mobilization
34. 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 eduction, 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 postdisaster 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.
--------------------------------------------------------------------------------
1 Vulnerability is defined as: “The conditions determined
by physical, social, economic, and environmental factors or
processes, which increase the susceptibility of a community
to the impact ofhazards”. UN/ISDR. Geneva 2004.
2 Hazard is defined as: “A potentially damaging physical event,
phenomenon or human activity that may cause the loss of life
or injury, property damage, social and economic disruption
or environmental degradation. Hazards can include latent conditions
that may represent future threats and can have different origins:
natural (geological, hydrometeorological and biological) or
induced by human processes (environmental degradation and
technological hazards)” UN/ISDR. Geneva 2004.
3 The scope of this Framework for Action encompasses disasters
caused by hazards of natural origin and related environmental
and technological hazards and risks. It thus reflects a holistic
and multihazard approach to disaster risk management and the
relationship, between them which can have a significant impact
on social, economic, cultural and environmental systems, as
stressed in the Yokohama Strategy (section I, part B, letter
I, p. 8).
4 Some of these frameworks and declarations are listed in
the annex to this document.
5 Review of the Yokohama Strategy and Plan of Action for a
Safer World (A/CONF.206/L.1).
6 As per General Assembly resolution 58/214 of 23 December
2003.
7 Resilience: “The capacity of a system, community or society
potentially exposed to hazards to adapt,by resisting or changing
in order to reach and maintain an acceptable level of functioning
andstructure This is determined by the degree to which the
social system is capable of organising itself toincrease this
capacity for learning from past disasters for better future
protection and to improve riskreduction measures.” UN/ISDR.
Geneva 2004.
8 The Johannesburg Plan of Implementation of the World Summit
on Sustainable Development,Johannesburg, South Africa, 26
August-4 September 2002, paragraphs 37 and 65.
9 As reaffirmed at the twenty-third special session of the
General Assembly on the topic “Women2000: gender equality,
development and peace for the twenty-first century”.
10 The establishment of national platforms for disaster reduction
was requested in Economic and Social Council resolution 1999/63
and in General Assembly resolutions 56/195, 58/214, and 58/215.
The expression “national platform” is a generic term used
for national mechanisms for coordination and policy guidance
on disaster risk reduction that need to be multi-sectoral
and inter-disciplinary in nature, with public, private and
civil society participation involving all concerned entities
within a country (including United Nations agencies present
at the national level, as appropriate). National platforms
represent the national mechanism for the International Strategy
for Disaster Reduction.
11 See footnotes 1, 2 and 3 for the scope of this Framework
for Action.
12 See footnotes 1, 2 and 3.
13 As recommended in General Assembly resolution 58/214.
14 “Structural measures refer to any physical construction
to reduce or avoid possible impacts of
hazards, which include engineering measures and construction
of hazard-resistant and protective
structures and infrastructure. Non-structural measures refer
to policies, awareness, knowledge development, public commitment,
and methods and operating practices, including participatory
mechanisms and the provision of information, which can reduce
risk and related impacts”. UN/ISDR.
Geneva, 2004.
15 According to the principles contained in General Assembly
resolution 46/182.
16 In compliance with General Assembly resolution 58/118 and
OAS General Assembly resolution 2018
(xxxiv-0/04).
17 As identified in General Assembly resolution 57/270 B.
18 Such as the Tampere Convention on the Provision of Telecommunication
Resources for Disaster
Mitigation and Relief Operations (1998), which entered into
force 8 January 2005.
19 The United Nations Advisory Board on Water and Sanitation
established by the Secretary-General
made an urgent appeal to halve loss of human life caused by
major water related disasters, including
tsunami, by 2015.
20 Defined by General Assembly resolution 46/182.
21 Work towards the consistent implementation of General Assembly
resolution 57/150.
22 A review process regarding the institutional arrangements
within the United Nations pertaining to
disaster reduction is currently being carried out and will
be completed, following the World
Conference on Disaster Reduction, with an evaluation of the
role and performance of the International
Strategy for Disaster Reduction.
23 To serve as a tool for sharing experience and methodologies
on disaster reduction efforts. States and
relevant organizations are invited to actively contribute
to the knowledge-building process by
registering their own effort on a voluntary basis in consideration
of the global progress of the
Conference outcomes.
24 General Assembly resolution 57/270B, follow-up to United
Nations conferences, and the General
Assembly resolutions on Implementation of the International
Strategy for Disaster Reduction, which
request the Secretary-General to report to the second committee
of the General Assembly under
“ Sustainable development” (54/219, 56/195, 57/256 58/214,
58/215, 59/231).
25 General Assembly resolution 58/214.
Annex
Some multilateral developments related to disaster risk reduction
Among
the multi-lateral frameworks and declarations that are of
relevance to this document there are the following:[1]
The International
Meeting to Review the Implementation of the Programme of Action
for the Sustainable Development of Small Island Developing
States,[2] held in Mauritius in January 2005, calls for increased
commitments to reducing the vulnerability of mall island developing
States, due to their limited capacity to respond to and recover
from disasters.
The Agenda
for Humanitarian Action adopted by the International Conference
of the Red Cross and Red Crescent in December 2003 includes
a goal and actions to “reduce the risk and impact of disasters
and improve preparedness and response mechanisms”.
The Johannesburg
Plan of Implementation of the World Summit on Sustainable
Development,[3] held in 2002, paragraph 37 requests actions
under the chapeau: “An integrated, multi-hazard, inclusive
approach to address vulnerability, risk, assessment and disaster
management, including prevention, mitigation, preparedness,
response and recovery, is an essential element of a safer
world in the 21st century”, supporting the International Strategy
for Disaster Reduction as the first action. The theme of “vulnerability,
risk reduction and disaster management” is included in the
multi-year programme of work of the Commission on Sustainable
Development in 2014-2015, and as a cross-cutting theme throughout
the programme.
The third
Action Programme for Least Developed Countries,[4] adopted
in 2001, requests action by development partners in view of
giving priority attention to these countries in the substantive
programme and institutional arrangements for the implementation
of the International Strategy for Disaster Reduction.
The Millennium
Declaration[5] of September 2000, identified key objectives
of “Protecting the vulnerable” and “Protecting our common
environment”, which resolve to “intensify cooperation to reduce
the number and effects of natural and man-made disasters”.
A comprehensive review of the progress made in the fulfillment
of all the commitments contained in the United Nations Millennium
Declaration will be held in July 2005.[6]
The International
Strategy for Disaster Reduction was launched in 2000[7] by
the Economic and Social Council and the General Assembly as
an inter-agency framework and mechanism (inter-agency task
force on disaster reduction and an inter-agency secretariat)
to serve as a focal point within the United Nations system
with the mandate to promote public awareness and commitment,
expand networks and partnerships, and improve knowledge about
disaster causes and options for risk reduction, building on
the Yokohama Strategy and Plan of Action and as follow-up
to the International Decade for Natural Disaster Reduction.
The Johannesburg
Plan of Implementation of the World Summit on Sustainable
Development[8], held in 2002, requested the Intergovernmental
Panel on Climate Change to “improve techniques and methodologies
for assessing the effects of climate change, and encourage
the continuing assessment of those adverse effects…”. In addition,
the General Assembly[9] has encouraged the Conference of the
Parties to the United Nations Framework Convention on Climate
Change,[10] and the parties to its Kyoto Protocol[11] (entering
into force in February 2005) to continue to address the adverse
effects of climate change, especially in those developing
countries that are particularly vulnerable. The United Nations
General Assembly[12] also encouraged the Intergovernmental
Panel on Climate Change to continue to assess the adverse
effects of climate change on the socio-economic and natural
disaster reduction systems of developing countries.
The Tampere
Convention on the Provision of Telecommunication Resources
for Disaster Mitigation and Relief Operations of 1998 entered
into force on 8 January 2005. - The Yokohama Strategy for
a Safer World: Guidelines for Natural Disaster Prevention,
Preparedness and Mitigation and its Plan of Action[13] (1994),
was adopted at the World Conference on Natural Disaster Reduction,
building on the mid-term review of the International Decade
for Natural Disaster Reduction.
The United
Nations Convention to Combat Desertification in Those Countries
Experiencing Serious Drought and/or Desertification, Particularly
in Africa,[14] was adopted in 1994 and entered into force
in 1996. The United Nations Convention on Biological Diversity[15]
was adopted in 1992 and entered into force in 1993.
The General
Assembly[16] (1991) requested strengthening of the coordination
of emergency and humanitarian assistance of the United Nations,
in both complex emergencies natural disasters. It recalled
the International Framework of Action for the International
Decade for Natural Disaster Reduction (resolution 44/236,
1989), and set out guiding principles for humanitarian relief,
preparedness, prevention and on the continuum from relief
to rehabilitation and development.
--------------------------------------------------------------------------------
1 For a more comprehensive listing of relevant frameworks
and declarations, see information
document: Extracts Relevant to Disaster Risk Reduction From
International Policy Initiatives 1994-
2003, Inter-Agency Task Force on Disaster Reduction, ninth
meeting 4-5 May 2004.
2 General Assembly resolution 58/213. Further implementation
of the Programme of Action for the
Sustainable Development of Small Island Developing States.
3 A/CONF.199/20
4 A/CONF.191/11
5 General Assembly resolution 55/2
6 General Assembly resolution 58/291
7 General Assembly resolutions59/231, 58/214, 57/256, 56/195,
54/219
8 A/CONF.199/20, paragraph 37 e).
9 General Assembly resolutions on natural disasters and vulnerability
(59/233, and 58/215)
10 United Nations, Treaty Series, vol. 1771, No. 30822.
11 FCCC/CP/1997/7/Add.1, decision 1/CP.3, annex.
12 General Assembly resolutions on natural disasters and vulnerability
(59/233, and 58/215)
13 A/CONF.172/9
14 United Nations, Treaty Series, vol. 1954, No. 33480
15 United Nations, Treaty Series, vol. 1760, No. 30619
16 General Assembly resolution 46/182
|
