EMERGENCY RISK REDUCTION

                 Disaster risk reduction is, in essence, what it says. It is the concept and practice of reducing the risk of disasters through systematic efforts to analyse and reduce the causal factors.

The three-pronged elements of Disaster Risk Reduction are:

• preventing disasters
• mitigating disasters (reducing the impact)
• preparing for disasters.

The UN International Strategy for Disaster Reduction (UNISDR) defines Disaster Risk Reduction  as “the conceptual framework of elements considered with the possibilities to minimize vulnerabilities and disaster risks throughout a society, to avoid (prevention) or to limit (mitigation and preparedness) the adverse impacts of hazards, within the broad context of sustainable development.”

Disaster Risk Reduction (DRR) aims to reduce the damage caused by natural hazards like earthquakes, floods, droughts and cyclones, through an ethic of prevention or limiting impact. Preventing or reducing exposure to hazards, lessening vulnerability of people and property, wise management of land and the environment, and improving preparedness for adverse events are all examples of disaster risk reduction. Because many disasters are also caused either intentionally (i.e. civil conflict, political upheaval) or non-intentionally (i.e. hazardous material spills, natural disaster accidents), I would argue that DRR also should embrace human-induced disaster.

Closely linked to DRR programming is Climate Change Adaptation (CCA). The Intergovernmental Panel on Climate Change (ICPP) defines climate change adaptation as “adjustments in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial opportunities.”

Disasters often follow natural hazards. A disaster’s severity depends on how much impact a hazard has on society and the environment. The scale of the impact in turn depends on the choices we make for our lives and for our environment —  how we grow our food, where and how we build our homes, what transportation and communications decisions we make, what kind of government we have, how our financial system works, etc. Each decision and action makes us more vulnerable to disasters – or more resilient to them. The positions are irrelevant taken by scientists and climatologists on each side that climate change is the result of natural cycles or human impact is immaterial. Regardless, climate variation is a factor in disaster frequency and severity. Climate Change Adaptation programming should be applied to any robust disaster management plan.  

Disaster risk reduction includes disciplines like disaster management, disaster mitigation and disaster preparedness, but DRR is also a part of sustainable development.  Development activities that are sustainable must also reduce the risk of disaster. Conversely, unsound development policies will increase disaster risk – and therefore disaster impacts. Therefore, DRR involves every sector of society – public, private, and professional.

History of Disaster Risk Reduction

Disaster Risk Reduction (DRR) has been a buzzword for the last several years, especially since the Southeast Asian tsunami in late 2004. However, initiatives to promote the concept of Disaster Risk Reduction at an international level have been around for years.  Launched by the General Assembly in 1989,  the United Nations designated 1990-1999 as the International Decade for Natural Disaster Reduction. The International Strategy for Disaster Reduction built upon the emphasis of this decade. The Strategy reflected a shift from the traditional emphasis on disaster response to addressing disaster reduction, and in effect sought to promote a “culture of prevention”.  The International Strategy for Disaster Reduction embodied the principles articulated in a number of major documents adopted during the decade. Initiatives included the Geneva Mandate on Disaster Reduction,  the Yokohama Strategy for a Safer World: Guidelines for Natural Disaster Prevention, Preparedness and Mitigation and its Plan of Action, and documents such as “A Safer World in the 21st Century: Disaster and Risk Reduction”.

The term ‘disaster risk management’ (DRM) is often used in the same context as DRR and means much the same thing: a systematic approach to identifying, assessing and reducing risks associated with hazards and human activities. It is more properly applied to the “management” or the operational aspects of DRR. In other words, it is the practical implementation of DRR initiatives.

Hyogo Framework for Action

A World Congress on Disaster Reduction (WCDR) was held 18-22 January 2005 in Kobe, Hyogo, Japan. The conference was particularly significant because it marked  almost 10 years to the day after the Great Hanshin earthquake in Kobe.  More noteworthy was that it occurred  less than one month after the 2004 Indian Ocean earthquake and resulting tsunami.  Japan’s long history of severe natural disasters, prominence in international humanitarian aid and development and scientific achievements monitoring dangerous natural phenomena also made it a suitable conference venue. The Congress provided a unique opportunity to promote a strategic and systematic approach to reducing vulnerabilities and risks to hazards. It underscored the need for, and identified ways of, building the resilience of nations and communities to disasters.  Due to the enormous devastation caused by the SE Asian tsunami, considerable emphasis was placed on reduction measures for future disasters.

The WCDR began the process to bring international agencies and national governments beyond the vague rhetoric of most policy statements and toward setting clear targets and commitments for DRR. The first step in this process was the formal approval of the Framework for Action (2005-2015):  Building the Resilience of Nations and Communities to Disasters. This was the first internationally accepted framework for DRR. It sets out an ordered sequence of objectives (outcome – strategic goals – priorities), with five priorities for action attempting to ‘capture’ the main areas of DRR intervention. The  WCDR  Hyogo Framework for Action suggests five specific priorities:

1. Making disaster risk reduction a priority
2. Improving risk information and early warning
3. Building a culture of safety and resilience
4. Reducing the risks in key sectors
5. Strengthening preparedness for response

The Hyogo Framework for Action addresses several issues:

• Challenges posed by disasters
• The Yokohama Strategy: lessons learned and gaps identified
• WCDR: Objectives, expected outcome and strategic goals
• Priorities for action 2005-2015
• Implementation and follow-up

The overall goal of the HFA is find ways to reduce the toll of disasters through mitigation and preparation. With recent memory of the devastating tsunami, developing a global tsunami warning systems was high on the agenda. Other topics included:

• pledges to reduce disaster damage
• healthcare after disaster
• early warning systems
• safe building standards
• agree upon cost-effective preventative countermeasures
• a global database on relief and reconstruction and a centre on water hazards

Financial pledging guidelines were aired during the Kobe Congress. With the increasing financial, human, and property toll from the SE Asian tsunami three weeks before, the cost-effectiveness of preventative and preparation measures was recognized by donor countries. An appeal for 10% of disaster funds that traditionally focus on disaster response and recovery to be diverted to DRR was exressed.  The Pacific Rim Tsunami Warning system is one example of a cost-effective warning system. The yearly operating cost is approximately USD 4 million. The estimated annual operating cost of a global warning system is USD $30 million. The international aid donations billion for the 2004 Indian Ocean earthquake and tsunami response of approximately USD $8 clearly shows the cost effectiveness of such a system.

 Challenges in DRR

Priority – Disaster Risk Reduction remains a lower priority than other aspects of disaster management, despite the recent recognition of its importance. All aspects of disaster coordination require financial outlays, which become non-negotiable with this decade’s increased frequency and magnitude of disasters, such as Hurricane Katrina, the SE Asian Tsunami, or Superstorm Sandy. Emergency practitioners and policy makers agree with the cost-effectiveness of DRR funds, but a full commitment to intentional programming in Disaster Risk Reduction for donor, coordination, and imoplementation agencies involved in Disaster Management remains a challenge.

Complexity –  Disaster Risk Reduction is multi-faceted. Capacities and resources of governments, IOs, and NGOs are limited. Priorities must be set. Many risk reduction solutions are long-term rather than ‘short-term’ disaster management. Some practitioners endorse efforts toward sustainable development. Others wish to consider actions that specifically reduce disaster risk.  One concept of that of ‘invulnerable development’ —  development focusing on reducing vulnerability to disaster, including actions designed to reduce risk and susceptibility, and that raise resistance and resilience to disaster.

Agency co-ordination –  Related to the above, disasters demand a complex response.  Co-ordination in conventional emergency management is difficult, because many organisations may converge on a disaster site to assist.   No group can embrace every aspect of disasters, much less disaster risk reduction. Relationships between various organisations and between sectors (public, private and non-profit, as well as communities) are extensive and complex. DRR requires  both vertical and horizontal linkages.

Conclusion

Like other aspects of disaster management, Disaster Risk Reduction requires specialized professionals and practitioners. All agencies do not have this expertise in-house. Consultants are required to formulate DRR policies, procedures, and practices. Risk Reduction Strategies represents consultancies on five continents in areas of disaster management and risk reduction with a spectrum of NGO, IO, and bi-lateral donor agenies.  Risk Reduction Strategies welcomes inquires regarding how we can assist your agency in disaster prevention, mitigation, preparation, and response.