Bridging the gaps
Innovation and cooperation
for practical disaster risk
reduction

Reid Basher
Joint Centre for Disaster Research, Massey University, New Zealand
Climate Change Research Institute, Victoria University of Wellington, New ZealandFormerly Senior Advisor, UN International Strategy for Disaster Reduction
Visiting Professor, IRIDEeS, Tohoku University

Tohoku Forum for Creativity
International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku
University, Sendai Japan, 7 November 2014
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 2014

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Why bridge the gaps? Why cooperate?
§ Access to a bigger pool of knowledge andexperience§ Standardised comparable methods§ Clearer mutual responsibilities, stronger
commitments§ Faster introduction of new methodologies§ Reduced confusion and wasted efforts§ Lowered costs of implementation through theconsent and participation of affected parties

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 20142

Many gaps … we need many bridges
Three fundamental areas of needq Bridging between different conceptual
frameworks for disasterq Bridging between actors in science, policy
and practice, and between sectorsq Bridging between different countries andinternational perspectives and capacities

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 20143

Many gaps … we need many bridgesq Bridging between different conceptual
frameworks for disasterq Bridging between science, policy andpractice, and between sectorsq Bridging between different countries andinternational perspectives and capacities

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 2014

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Historical changes in disaster concepts(1) Pre-science view
Natural hazard

Unpredictable, immensely
powerful, little one can do toprepare, Act of God? fatalism,
punishment

DISASTER

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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(2) – Engineering view
Natural hazard+
Exposure andVulnerability
Avoid risky situations;build well; educate thepeople; be prepared;
have early warnings
and evacuation

Understand the science,
do risk assessments,
monitor the hazards

Result: Lower risk
and lower impacts

DISASTER

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 20146

(3) - Social perspective
Environmental
Natural hazard
degradation
Poverty+
UnsafeExposure andbuildings
Disenfranchisement
Vulnerability
Lack ofinformation
Unplanned
settlements

Lack of assets
or safety nets

Lack of politicalcommitment

DenialLow access topublic services

DISASTER

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 20147

Two meanings of the term “risk”
1) The probability of anegative outcome2) A spatial variable ofpotential negative
consequencee.g. the % chance of an M8
earthquake occurring within
50 km of Tokyo next year

e.g. the density of economic
loss potential from landslides
across Peru, in say $/hectare

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 20148

Two meanings of the term “risk”
1) The probability of anegative outcome2) A spatial variable ofpotential negative
consequencee.g. the % chance of an M8
earthquake occurring within
50 km of Tokyo next year

e.g. the density of economic
loss potential from landslides
across Peru, in say $/hectare

Disasters viewed as discrete
events, precipitated by anatural hazard

Disasters seen as outcomeof system processes,
involving human agency aswell as hazards

Both are useful, but there is increasing
recognition and use of the second meaning
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 20149

Fences or ambulances?
The predominant perspective on disasters world
wide is that of disaster management – being
prepared and responding professionally to events.

Event management paradigm- Humanitarian life-saving concern- Emergency response skills- Command and control methods- Preparedness- Step toward recovery process- Key actors: civil defence, military,
police, fire service

Ambulance

But another perspective is also needed …

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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Namely risk management – the focus on root
causes and the systematic reduction of risk factors

Risk management paradigm- The risk process, socio-economic factors- Risk management tools- Integrated systematic approaches- Long term policies and investments- Trade-offs and politics critical- Key actors: science, engineering,
economics, government
Fence

In fact, we need both - fences and ambulances!

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201411

Another gap - DRR or DRM?
People argue about these – some countries
use DRM, others use DRR. Does it matter?
Disaster Risk Reduction (DRR)
This is the policy objective – it is what we wantto achieve, to avoid losses in future
Disaster Risk Management (DRM)
This is what you do to achieve the policy
objective – the programme of necessary actions
on disaster risk
Both are important – you cannot
have one without the otherTohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 2014

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The components of the “disaster cycle”
The disaster
cycle tries tolink the key
concepts on
disaster action
But …..

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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Does the disaster cycle make sense?
No! It mixes up two different tasks!
1 Responding to andrecovering fromdisaster events

2 Reducing disasterrisks including
preparedness

This is done only forthe specific locations
and time frames of theevents.

This must be done
everywhere andcontinually, and notjust following events.

Disaster risk reduction requires
ongoing policy and action and is notpart of the disaster response lifecycle.

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201414

Natural hazards? Or national security?
100%

Multi-risk
nationalrisk matrix

10%

1%

New Zealand’s
National Security
System, May 2011

.1%

.01%

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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Many gaps … we need many bridgesq Bridging between different conceptual
frameworks for disasterq Bridging between science, policy andpractice, and between sectorsq Bridging between different countries andinternational perspectives and capacities

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201416

Bridges for the science sector itself•

DRR relies on a very wide range of established science•

By itself, “Disaster Risk Science” is an immature field•

Science linkages, integration and modelling are critical•

Interdisciplinary and cross-sector interaction needed•

Significant differences between natural and social sciences

Natural sciences

Social sciences

Universal laws
Experimental repeatability
Standardised variables
Mechanised data collection
Large data archives

Limited universality
Context and value dependent
Diverse definitions of variables
Mostly manual data collection
Limited data archives

E.g., consider variables “temperature” and “vulnerability”

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201417

Scientific information and data needs –motivating and evaluating public policy:
Public - will
demand action ifconcerned

Risk!

The public isaffected andneeds to know

Publicinformation

Government will act if
motivated
Policy and action
on DRR – but are
they effective?

A weight on society – but
how heavy? Is it growing or
shrinking? Who carries theload? What to do about it?

Analysis andevaluation

Research andmeasurement
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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What makes policymakers pay attention
to disaster risk science?
National experience of hazards and disasters
Public awareness & pressure; strong accountability mechanisms
Availability of specific cost-benefit evidence; and tradition ofevidence-based policymaking
Active scientific and professional bodies, institutional
mechanisms and intermediaries*
Recent disaster events – the big motivator!

Main constraints on use of science
Corruption, vocal self-interest groups, poor information; poor
communication; weak institutions; lack of resources andexpertise; fatalistic non-scientific attitudes* Intermediaries – bridge builders: teachers, science
communicators, journalists, extension workers, etc
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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National bridging mechanisms
Government cross-sectoral mechanisms- Whole-of-government policies- Annual budget processes- Coordination roles of key ministries (Treasury, Departmentof Prime Minister, etc)
- Legislative tools, like Japan’s Disaster White Paper- National Platform on Disaster Risk Reduction
Note: Specific issues (like risk reduction) needstrong departmental sponsors

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201420

Japanese experience on use of S&T
Long and costly history of natural hazards and disasters
High scientific and engineering capabilities
Successive advances undertaken after major disasters
Flood management, early warning systems, tsunami defences,seismic engineering, public education, and legislation

Disaster Countermeasures Basic Act, 1961
Enacted after >5000 died and heavy damage
throughout Japan in 1959 Ise Bay Typhoon
Comprehensive approach
Budgetary allocation
Annual “White Paper” (Bosai Hakusho) thatcovers events, policies and evaluation
Annual review by parliamentThis is a powerful tool for disaster risk reduction!
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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The gap in the application of S&T
Lonely scientist: “Why
don’t they make use of
the great knowledge wehave here?”

Busy manager: “Why
don’t they give me
good methods that I
can really use?”… partial understanding of therisk process, often neglecting
social and political elements… technical language andconcepts difficult to translate… lack of technical knowledge
and lack of understanding of risk
and its management… low frequency events easy toignore; economic payoffs
unclear… competition for the time andpriorities of policy maker… weak linkages to affected
users/clients/communities

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 2014

22

The gap in the application of S&T
Lonely scientist: “Why
don’t they make use of
the great knowledge wehave here?”

Busy manager: “Why
don’t they give me
good methods that I
can really use?”… partial understanding of therisk process, often neglecting
social and political elements… technical language andconcepts difficult to translate… weak linkages to affected
users/clients/communities… lack of technical knowledge andlack of understanding of risk andits management… low frequency events easy toignore; economic payoffs unclear… competition for the time andpriorities of policy maker• Promote better understanding of risk process• Work on language and communication

How toclose the • Build mechanisms for mutual engagementgap?
• Develop underpinning institutional arrangements
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201423

Scientific bridging organisations
Organisations that proactively link science
production and application (like IRIDeS)- Sometimes called “boundary organisations”- Durable sponsorship and funding can be a problem- Problem of internal conflicts of culture (e.g. academic
publications vs useful applications)- Potential competition with sponsor organisations- Important to have strong feedback from those who benefit

ExamplesInternational Research Institute for Climate and Society, NY
Global Fire Monitoring Center (GFMC), Freiburg
Asian Disaster Research Centre (ADRC), Kobe
Public Works Research Institute, Japan

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201424

Many gaps … we need many bridgesq Bridging between different conceptual
frameworks for disasterq Bridging between science, policy andpractice, and between sectorsq Bridging between different countries andinternational perspectives and capacities

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201425

UN and other international institutions
Elegant
bridging of
the gaps
betweencountries?

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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UN and other international institutions…. or justtalking, goingaround andaround,getting
nowhere??

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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Why international
leadership andaction is needed• Hazards span borders(e.g. typhoons, floods)• International impacts
Prince William and Prince Naruhito,
World Water Forum, Istanbul, 2009
(trade, insurance)• Data exchange for EWS and risk management• Common standards and terminology• Solidarity with developing countries• Better results by sharing knowledge and experience
International action is built on national action!
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201428

International science cooperation
examples of major benefits
Real-time exchange of global weather data,
coordinated by World Meteorological Organization (WMO)

Scientific consensus reports on climate change,
by Intergovernmental Panel on Climate Change (IPCC)

Global monitoring of food production & scarcity,
coordinated by Food and Agricultural Organization (FAO)

International research programmes, e.g. World
Climate Research Programme (WCRP), many others ingeophysics, . Integrated Research on Disaster Risk (IRDR),
International Human Dimensions Programme (IHDP),
Note: almost all the activities are carried out incountries, by national organisations and experts
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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UNESCAP Expert Group on Statistics
and Disasters
Innovation!
Joint effort of disasters
and statistics offices
Bridging the gap
between two fields

MandateUpgrade basis of disasterstatistics for national andinternational programmes.
Report to ESCAP bodies.
Aim for results by 2016.

First EG Meeting, IRIDeS, Sendai, 27-29 Oct 2014

Wide membershipArmenia, Azerbaijan, Bhutan, Fiji,
Indonesia, Iran, Japan, Mongolia, Myanmar,
New Zealand, Philippines, Korea, Sri Lanka,
Vanuatu, plus support from UN and others

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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International policy making process« High stakes – trade, security, environment, etc« Governments are the actors and negotiators« Decisions mostly by consent« Secretariats play key supporting role
Outcome: International policies toguide and support national action
on matters of common concern
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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Key interlinked processes for DRR
q Hyogo Framework for Actionq Framework Convention on Climate Changeq Sustainable Development Goals
HFA
CC

Inputs andlobbying on risk
reduction

The triple win!
SDG

Disaster risk reduction:1) cuts disaster losses;
2) supports adaptation to CC; and
3) improves development outcomes!

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201432

The Hyogo Framework for Action 2005-2015:
Building the resilience of nations and communities to disasters

Agreed by 168 governments at the World
Conference on Disaster Reduction, Kobe, Hyogo,
Japan, 18 – 22 January, 2005

Seeks to achieve a“substantial reduction in losses”
q Disaster reduction as part of sustainable development.
q Strengthen institutions (especially in communities) to build resilience.
q Build risk reduction into emergency management and recovery.

For more information:www.unisdr.org
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201433

Main elements of the Hyogo Framework
Priorities for action
1) Disaster risk reduction as a priority with strong institutional basis for
2)
3)
4)
5)

action.
Identify, assess and monitor disaster risks and enhance early warning.
Knowledge, innovation, education for culture of safety and resilience.
Reduce the underlying risk factors.
Strengthen disaster preparedness for effective response.

Implementation and follow-up
q
q
q

Primary role of the State; supporting roles for international and regionalorganisations, ISDR secretariat.
Monitoring and reporting, and indicators of progress in risk reduction.
Resources needs.

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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Progress on the HFA and reducing risksØ Growing recognition of disasterrisks and action by public, NGOs,
communities, cities, businessesØ Some Governments making good
progress, actively building their
institutions
Ø Focus is still on preparedness,
weak on underlying causes of risk inland use, environment, social policyØGrowing linkages with climate change: disaster risk reduction
is now recognised a key part of the UNFCCC action.
Ø Developing countries still highly at risk, and lacking incapacities.

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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The WCDRR; new post-2015 framework« UN-sponsored World Conference on Disaster Risk
Reduction (WCDRR), Sendai, 14-18 March 2015
« Key aims: Review progress on the HFA; Agree onan updated framework for next decade 2015-2025;
Share information and stimulate action« A big event – many heads of state and ministers,
and thousands of participants, journalists,scientists, government staff« Preparatory process over 2013-2014 forGovernments to debate and develop draft of a
new agreement (Prof. Ono has participated)Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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What happens at the WCDRR« Decisions are largely based on a long preparatory
process run by UNISDR. This includes progress
reports, reviews, position papers, consultations,several major regional meetings, and an evolving
draft outcome document.

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201437

What happens at the WCDRR« Decisions are largely based on a long preparatory process
run by UNISDR. This includes progress reports, reviews,
position papers, consultations, several major regional
meetings, and an evolving draft outcome document.

« Governments make speeches, but only difficult
final issues are dealt with at the conference. This
involves face to face meetings by governments
and lobby groups. It may require long overnight
sessions by negotiators and secretariat staff.

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
International Research Institute of Disaster Science (IRIDeS), Tohoku University, Sendai Japan, 7 November 201438

What happens at the WCDRR« Decisions are largely based on a long preparatory process
run by UNISDR. This includes progress reports, reviews,
position papers, consultations, several major regional
meetings, and an evolving draft outcome document.
« Governments make speeches, but only difficult final issues
are dealt with at the conference. This involves face to facemeetings by governments and lobby groups. It may require
long overnight sessions by negotiators and secretariat staff.
« UN agencies, NGOs and other groups run parallel technicalsessions, e.g. on education and DRR, early warning systems.
Major international meetings like thisfocus the minds of Governments andother participants and are highly
influential in setting future agendas

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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The new post-2015 framework« UN General Assembly has called for “a concise, focused, forwardlooking and action-oriented outcome document”« The “Zero draft” was released on 21 October – 18 pages, its
general approach is similar to that of the Hyogo Framework« Science and data issues appear to be well addressed« Five global numerical targets are proposed on: mortality; people
affected; economic loss; protection of health and education
facilities; and number of national strategies« But no numerical details have been provided yet – and there will
be great methodological challenges to address« Appears to tackles the weak progress on HFA Priority for Action 4(on core sources of risk) through indirect means – a strengthened
focus on understanding risk generating processes, and more
explicit monitoring and accountability

A work-in-progress until 18/3/15!
Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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ConclusionsØ Bridge building is an important task for disasterrisk reductionØ Bridging organisations have a special role toplay, both within countries and between countriesØ International bridging is critical for standards
setting and global advancesØ May the little
IRIDeS “bridge”
grow and prosper!

Tohoku Forum for Creativity: International Workshop on Implementing Practical Disaster Risk Reduction
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