The Hyogo Framework for Action,
relevance for water-related disasters
Sálvano Briceño
Director, International Strategy for Disaster Reduction(UN/ISDR)ICHARM Commemorative Symposium
Tokyo, 14 September 2006
www.unisdr.org

Overview

I
II
III
IV
V
VI
VI

Global data and trends on “natural” disasters
Global Data and trends on “natural” disasters

The UN International Strategy for Disaster Reduction (ISDR)
Implementation of the Hyogo Framework for Action

Strengthening the ISDR system

Early Warning systems

Conclusions: what ISDR expects from ICHARM

I

Global Data and trends on “natural” disasters

Global Hotspot study (World Bank with ProVention Consortium)= lowest 40%= middle 30%= highest 20%

35 countries are identified as high in mortality
risk from multiple hazards.

Great "Natural" Disasters 1950-2005
Economic and insured losses with trends© 2006 NatCatSERVICE, Geo Risks Research, Munich Re

200
180
160
140
120
100
80
60
40
20
0
1950

1955

1960

1965

1970

1975

1980

1985

1990

1995

2000

2005

Global Risk Trends - Disasters are NOT natural
Natural and human-induced hazards
Climate change and variables(global warming, global dimming…)

HAZARDS +EXTREME EVENTS

Socio-economic: poverty,
unplanned urban growth, lack ofawareness and institutional capacities...
Physical: insufficient land use planning,
housing, infrastructures located in hazard
prone areas...

VULNERABILITY

Environmental degradation
ecosystem degradation; coastal,watershed, marshland…), etc.

Anatomy of “natural” disasters
Natural hazard X

Vulnerability=

Disaster Risk

Can sustainable development be
achieved without taking into accountthe risk to natural hazards?
Short answer: NO!
Invest to prevent: Disaster Risk Reduction issound investment for sustainable
development
Identification of hazards/vulnerability;
monitoring and management of risk areintegral to sustainable development.
• Risks will always remain• Address root-causes to vulnerability:
social, economic, environmental,
technical-physical factors

II

The UN International Strategy for Disaster Reduction (ISDR)Disaster Risk Reduction – An Agenda in Progress
1989: IDNDR 1990-1999 – promotion of disaster reduction, technical andscientific buy-in
1994: Yokohama Strategy and Plan of Action –first blueprint fordisaster reduction policy guidance (social & community orientation)
2000: International Strategy for Disaster Reduction (ISDR) increased public commitment and linkage to sustainable development,
enlarged networking and partnerships. Mechanisms: IATF/DR, ISDR
secretariat, UN Trust Fund
2002: Johannesburg Plan of Implementation- WSSD Includes a new
section on “An integrated, multi-hazard, inclusive approach to address
vulnerability, risk assessment and disaster management…”
2005: WCDR - Hyogo Framework for Action 2005-2015 Building theResilience of Nations and Communities to Disasters

International Strategy for Disaster Reduction

Launched in 2000 by UN General Assembly Resolution A/54/219 as
successor of the International Decade on Natural Disaster Reduction –IDNDR, 1990-1999:

The ISDR aims at building disaster resilient communities bypromoting increased awareness of the importance ofdisaster reduction as an integral component of sustainable
development, with the goal of reducing human, social,economic and environmental losses due to natural hazards
and related technological and environmental disasters.

ISDR secretariat•

Headquarters in Geneva•

Regional offices: Panama - LAC; Nairobi - Africa; Bangkok - Asia•

Thematic Platforms (Platform for the Promotion of Early Warningin Bonn, Germany; International Recovery Platform in Kobe,
Japan; CIIFEN in Guayaquil, Ecuador; Global Wildland Fire
Network in Freiburg, Germany)•

Partner Networks and Regional Centres (ADPC, ADRC, ASEAN,
SAARC, ECO, SOPAC, CEPREDENAC, CDERA, ACS,CAPRADE, AU/NEPAD, CoE, CIS, etc.)

ISDR Main functions:(a)

Policy and Coordination (CSD,
LDCs, SIDS, CC, EW, UN/Water,
UN/Oceans,etc.)(b)

Advocacy (annual awarenesscampaign, publications)(c)Information Management andNetworks (website, clearing house,
Living with Risk)(d)Partnerships for Applications (withUN agencies, IGOs, NGOs,
Governments, academic institutions,private sector, media)

ISDR secretariat current
structure

Focus areas&
Key results

Same focus
regional/
national

Service the
ISDR system

Policy andinter-agency
coordination:• Guidelines (HFA)• Progress reporting•Policy papers

Facilitate theimplementation of
HFA & DRR – raisecommitment to
reducing losses
from natural hazards

Advocacy andpublic awareness:•Media outreach•Good practices•Foster champions

Overarchingpriority

Information
Clearinghouse:•PreventionWeb•Network of expertise•Info standards

Regional outreach: Supporting partners in regions and countries•Promote national platforms & action plans•Regional partnerships/strategies

Management, monitoring and resource mobilization•Donor relations – stable funding•DRR investment tracking (prototype)•Work-programme monitoringUN landscape: scope for mainstreaming of Disaster Risk Reduction

Humanitarian

Development MDGs

IASC
OCHA
WFP
UNICEFTo assist
national& localneeds &
capacities

UNDG
UNDP
WB/IFIsISDR

Sustainable
Development
JPoI

Sectoral - technical
UNEP
UNESCOFAO
UN-Habitat

……

WHO
WMO
ILO
ITU

Climate change
Desertification
Biodiversity
SIDS
LDCs
Water
AfricaSome UN water related activities
-

-

-

-

Under UN Water, UNESCO, UNU, WMO and ISDR have joined
forces to produce a policy brief on water-related risks in
integrated water resources management
UN Water also supports the World Water Decade 2005-2015,
which provides an important international agenda to stimulateaction on reducing water-related risks
UNESCO-led UN-wide World Water Development Report (2003& 2006), also integrates findings of inter-agency ISDR
publication, “Living with Risk”, an illustrated compendium ofworldwide practical experience on reducing vulnerability tonatural hazards
2004 Publication “Guidelines for Reducing Flood Looses” wasprepared in collaboration by UN/DESA, ESCAP, WMO, US
National Oceanic and Atmospheric Administration and ISDR

III

Implementation of the Hyogo Framework for Action

World Conference on Disaster Reduction
Hyogo Framework for Action 2005-2015 (HFA)- Building the resilience of nations and communities to disasters

9 3 Strategic goals
9 5 Priorities for action
9 Implementation and follow-up• 168 Governments, 78 regional and int’l orgs, and 161 NGOs attended• Integrate disaster risk reduction into policies, plans and programmesof sustainable development and poverty reduction• Recognize risk reduction as both a humanitarian and development
issue – in the context of sustainable development• Focus on national and local implementation, with bilateral,
multilateral, regional and international cooperation• Targets and indicators to be developed according to needs

Hyogo Framework for Action 2005-2015 (continued):Three strategic goals:- The integration of disaster risk reduction into sustainable
development policies and planning- The development and strengthening of institutions,mechanisms and capacities to build resilience to hazards- The systematic incorporation of risk reduction approaches
into the implementation of emergency preparedness, response
and recovery programmes

Hyogo Framework for Action 2005-2015 (continued):
Five priorities for action:
1. Governance: ensure that disaster risk reduction is a national andlocal priority with strong institutional basis for implementation
2. Risk identification: identify, assess and monitor disaster risks
and enhance early warning
3. Knowledge: use knowledge, innovation and education to build aculture of safety and resilience at all levels
4. Reducing the underlying risk factors in various sectors(environment, health, construction, etc.)
5. Strengthen disaster preparedness for effective response

Progress on implementation of the HFA
9 National level :- National Platforms for DRR established in 35 countries, 60 countries
designated HFA focal points, 31 linked to CCA/UNDAF, 31 linked to
PRSPs of World Bank
9 Regional level:- Regional strategies – Asia (Beijing Plan of Action), Africa (AU/NEPAD),
Europe (Council of Europe), Pacific (Madang Framework) with Ministerial
commitments, regional consultations planned in other regions- Regional cooperation – ISDR Asia Partnership, collaborative centers,
initiatives of drought (China), seismic risk (Iran), etc.
9 International level:- Engagement of different sectors i.e. environment, education, health- Engagment of more NGO actors (ActionAid, Care, Tearfund)- Increased commitment – UN agencies, WB/GFDRR, Regional
Development Banks, EC, Other Donors…
More details on international level…

International level (para. 32, HFA)
1. Integration of DRR into development assistance andhumanitarian frameworks:• Mainstreaming in development - 25 high disaster prone countries

countries targeted by UNDP (in CCA/UNDAF); over 30 countries
targeted by the World Bank (mainly through PRSPs).
• Humanitarian policy support for building disaster risk resilience
EC/ECHO policy dialogue to support mainstreaming efforts
UK/DFID allocation 10% of humanitarian budgets to DRR
IFRC has adopted HFA as guiding principle in their work
Humanitarian Flash Appeals and ISDR system:• Tsunami Early Warning System and follow up, Indian Ocean• Overcoming gaps in risk reduction knowledge andawareness in champion initiatives, Pakistan

International Level (continued)

2. Strengthened capacity of environmental and othertechnical areas of UN System to assist disaster-prone
developing countries in mainstreaming DRR:

• DRR in environmental policies and management (lead by UNEP)• DRR and climate change adaptation: how to use NAPAs to reduce
disaster risk and other on going discussions with the UNFCCC and IPCC
• DRR in other sectors gradually being developed: health (WHO, PAHO),
agriculture (FAO, IFAD and WFP), water (UN Water), desertification(UNCCD), telecommunications (ITU), space applications (UN/OOSA,GEO), oceans (UN Oceans)…

International Level (continued)

3. Other policy-related• “Getting Started” guide to implementing risk reduction at national level
under the HFA (to be issued for wide consultation shortly)•Matrix of commitments and initiatives in support of HFA being updated,available on the ISDR website <www.unisdr.org>• Development of indicators for disaster risk reduction, via on-line dialogue,
expert consultations, etc.

International Level (continued)
4. Thematic platforms, clusters, partnerships• International Recovery Platform (ISDR/UNDP, Kobe) addressing knowledge andcapacity building gaps in enhancing recovery operations• Indian Ocean regional tsunami early warning system (UNESCO-IOC); national
assessments; regional Indian Ocean TEW system launched July 2006;
Consultation on human aspects, Bangkok, June 2006 (ISDR, ESCAP, IOC);
Package offer by 7 ISDR system partners, endorsed by President Clinton, to assist
development of tsunami EW action plans: strong interest expressed by, e.g.,
Madagascar, Kenya, Sri Lanka, Pakistan, Somalia, etc…
• Early warning - EWC-III, Bonn 27-29 March 2006, Checklist; Project portfolio,
Global Survey of EWS (requested by UN SG); ISDR Platform for Promotion of
Early Warning; International EW Programme for HFA; Symposium on multi-hazard
early warning (WMO)• ISDR 2006-2007 Media Campaign on Education and Safer Schools (2007-2008
on health and safe hospitals)• HFA Education “cluster” UNESCO, Action Aid, ADRC, UNICEF, ISDR secretariat,
and others – recent study by Prof Ben Wisner (see www.unisdr.org)

International Level (continued)
5. Adapt and strengthening inter-agency disastermanagement training for DRR and capacity building:• Reshaping of the UN Disaster Management Training Programme(DMTP, UNDP)

6. Support data collection, sharing of experiences – building
disaster risk reduction into post-disaster recovery and other
ISDR platforms• International Recovery Platform: addressing knowledge and capacity

building gaps in enhancing recovery operations (lead by UNDP)• Global Risk Indexing Programme formulated (lead by UNDP)• Platform for Promotion of Early Warning and International EW
Programme: follow up on EWC-III project compendium and Global EW
Survey (lead by UN/ISDR)• Tsunami EW Systems: (lead by IOC-UNESCO)• Reducing risk and vulnerability to El Niño (lead by CIIFEN and WMO)• Reducing risk and vulnerability to Wildland Fires (lead GFMC and FAO)

Progress in Resource Mobilization
for DRR• Increased commitment and resources – World Bank’s GFDRR,
regional and other development banks (IADB, AsDB, AfDB, CDB, CAF,
BCIE, IDB, IFAD), European Commission, G8, and bilateral donors,
OECD/DAC Guidelines• Multilateral: “Global Facility for Disaster Reduction and Recovery” insupport of HFA implementation was recently approved by World Bank in
June• Bilateral: Launch of new UK-DFID Policy: 10% of funds spent on
disaster relief would be invested in initiatives to reduce the impact ofdisasters• Review of ISDR Trust Fund: potential role in support of ISDR system

Overview and challenges

Twenty months after the World Conference of Disaster
Reduction and adoption of the HFA….

• Vulnerability increases more rapidly than expected,
disasters also
• Countries are taking concrete action, possibly notenough• ISDR System is being strengthened but requires
predictable funding• Greater focus on more explicit, long-term, systematic
approaches to support implementation of HFA

IVStrengthening the ISDR system

Towards increased capacity to support
implementation of HFA- building adisaster risk reduction movement

Build a disaster risk reduction
movement – ISDR system
9 Our objective:

To reduce disaster risk,
worldwide, focussing on
nations and communities

9 The instrument: Hyogo Framework for Action
2005-2015
9 The vehicle:

ISDR system - ‘movement ’including Global Platform forDisaster Risk Reduction

Main elements of the strengthened ISDR System insupport of the Hyogo Framework for Action
Responsible fornational
strategies andprogrammes,
baselines studies,
reporting…

Nations andcommunities
National Platforms,
Government agencies, local authorities,
NGOs, CBOs, technical organisations,private sector , media…

Governance
Globalcoordination
Global Platform for DRR andsubsidiary bodies (PAC…)

UN General Assembly,
ECOSOCUSG Humanitarian Affairs
Management Oversight Board
ISDR secretariat

Supporting
mechanisms
ISDR regional and thematic
platforms
International and regional org.
UN Country Teams, Red Cross/
Red Crescent societies
WB Country offices

Management, oversight, programme guidance,
support, joint work programme, monitoring

Support and technical advice to agencies,
authorities, institutions and organizations

ISDR system levels of action (“platforms”)

National implementation

Regional
Based on existing regional and sub-regional strategies and mechanisms

local capacities

coordinated international and regional
efforts to support national and

ISDR programme

National frameworks, multi-stakeholders, and multi disciplinary with
Support from UN country team – when appropriate

Thematic
Building on existing networks, clusters, programmes and other mechanisms

GlobalAnnual sessions
Subsidiary Programme Advisory/Committee

Strengthening of ISDR systemfor enhanced international coordination, coherence andmonitoring progress in implementation of DRR & HFA• Proposal put forward by UN/USG Jan Egeland. Main elements:-Global Platform for Disaster Risk Reduction (to replace the
IATF/DR) with full involvement of Governments, annual sessions, 1stsession in Geneva, tent. June 2007
- Programme Advisory Committee to elaborate on ISDR system
joint work-programme to support HFA national implementation- Management Oversight Board (IFRC, OCHA, WB, UNDP, WMO,
UNEP) to assist USG to oversee ISDR Secretariat and provide
strategic guidance to ISDR system (first MOB meeting, March;second in October 2006)- transitional Reference Group to prepare first session of Global
Platform and ISDR joint work-programme• NEXT STEP: UN/General Assembly to adopt resolution with the newworking modalities of ISDR system (by Dec 2006)

V

Early Warning systems

A people-centred early warning system is…
A major element of disaster risk reduction More than just a technical or scientific prediction
 And, to be effective, it comprises four elements:
• Risk knowledge (understanding hazards andvulnerabilities)• Monitoring and warning service• Dissemination and communication• Response capability

Benefits of Early Warning
•
•

•
•

Early warning saves lives and livelihoods
Economic losses worldwide from disasters triggered by natural
hazards in the 1990s could have been reduced by $280 billion if $40
billion had been invested in preventive measures.
In China, $3.15 billion spent on flood control over the past four
decades of the 20th century averted losses of about $12 billion.
Investing in mitigation results in big gains. Calculated as ‘avoided
losses’ range between two to four times the value of the investment

Early warning short comings - what needs to be done
 Often isolated and technically Integrate early warning into

public policies in development,
based, not people centred, withenvironment and poverty
weaknesses in preparedness andreduction; at local, national andresponse
international levels
 Mostly not well integrated into Build linkages between scientificpolicy and not part of risk
and technical data, and needs ofmanagement approach
people and communities Lack of multi-hazard approaches, Use established coordination andspecific hazards andsharing mechanisms (e.g.
vulnerabilities are not well
ISDR/IEWP, which includes
coveredrelevant internationalorganizations)• Origins in the Second International Early Warning Conference inBonn, 16-18 October 2003

• Recognition that many countries do not have effective early
warning systems and they need EW systems• A vehicle for partners to develop shared and systematic

approaches, improved international dialogue, good practices,
improved tools, and capacity building• Advisory and governance mechanisms, programme definition andwork plan being developed• Supported by the ISDR Platform for the Promotion of Early
Warning (Bonn, Germany)ISDR Platform
for the Promotion of Early Warning
Objectives:• To develop the International Early Warning Programme• To promote early warning into UN policy processes,
development agendas and public policies• To stimulate innovation and methodology - e.g. conceptual
frameworks, benchmarking, guidelines for governments• To disseminate information and best practices

Platform for the Promotion of Early Warning

Progress:
•
•
•
•
•
•
•
•

Advocating for EW in UNGA,
WCDR, Hyogo Framework
Concepts (4-element framework)
Public Information
Development of International
Early Warning Programme
Major multi-partner tsunami EW
strengthening project
Global Survey on EW systems(requested by Kofi Annan)
EW project portfolio for EWC III
EW Checklist

Next steps:
•
•
•
•
•
•

Progress on guidelines,
benchmarking, tools
Progress on the International
Early Warning programme
Wide buy-in by other EWorganisations
Proper governance/advisory
mechanism
Build on gaps/recommendationsof the Global Survey
Linking to/promoting
community-based initiatives on
EW and disaster risk reduction

Tsunami Early Warning Strengthening Project (1)UN Flash Appeal for Indian Ocean Earthquake-Tsunami-2005
 Multi-Donor support: European Commission (ECHO), Finland,

Germany, Japan, Netherlands, Norway and Sweden (US$ 11m)
 Multi-Partner engagement: UN agencies, regional & nationalorganizations, research institutes, and local communities
 Coordinated by: ISDR Platform for the Promotion of Early

Warning and ISDR Regional Offices in Bangkok and Nairobi
 Time frame: January 2005-December 2006

Tsunami Early Warning Strengthening Project (2)Overall integrated framework for strengthening tsunami early
warning systems in the Indian Ocean region, focusing on:Core system implementation to support the establishment of thecore elements for a regional tsunami early warning system.

Integrated risk management to ensure sustainability andeffectiveness of the system by integrating tsunami early warning
into national disaster risk reduction plans.



Public awareness and education to support creation of a cultureof safety and resilience based on knowledge of hazards and their
risk.



Community-based approaches to strengthen the response
capacity of local communities in coastal zones.

Tsunami Early Warning Strengthening Project (3)Next phase: building resilience to tsunamis
in the Indian Ocean 2006-2008
1.

To strengthen national institutional capacities in disaster risk
reduction.

2.

To further enhance public awareness and education on tsunami risk
reduction.

3.

To strengthen response capacity of local communities in coastal
zones.

4.

To facilitate research on tsunami risk assessment and mitigation.

VI
VI

Conclusions: what ISDR expects from ICHARM

What ISDR expects… (1)ISDR has been pleased in contributing to the development of theInternational Flood Initiative and the ICHARM•••ISDR expects IFI/ICHARM to take a leading role for promoting andsupporting implementation of the Hyogo Framework for Action in thearea of water-related disasters, i.e., to reduce risk to floods, droughts,
tsunamis, landslides, etc.
Involvement of experts from various participating countries in thenational platform for disaster risk reduction
In Japan, platform is coordinated by the Cabinet Office and includes
many ministries and technical institutions

What ISDR expects (2)- Active participation in the Global Platform for Disaster Risk Reduction(GP/DRR) and eventually assist in developing a thematic platform onwater-related disasters- ICHARM and ISDR to jointly disseminate Japan’s expertise,knowledge and experience in reducing risk to water-related disasters- Information sharing - networking, hyper base/database, etc.

What ISDR expects (3)•Contribution and active involvement in the International Early Warning
Programme, facilitated by ISDR/PPEW in Bonn•

Following on the collaboration by WMO, UNU, PWRI under the ISDR
for the 2nd World Water Development Report (2006), a similararrangement is expected for the 3rd WWDR for 2009•

Tsunami training – EC/AIDCO project: for Information sharing among
Indian Ocean countries, and introduction of tsunami structural
measures to be undertaken and adapted in each country

" More effective prevention strategies would save not only
tens of billions of dollars, but save tens of thousands of lives.
Funds currently spent on intervention and relief could be
devoted to enhancing equitable and sustainable development
instead, which would further reduce the risk for war anddisaster. Building a culture of prevention is not easy. Whilethe costs of prevention have to be paid in the present, its
benefits lie in a distant future. Moreover, the benefits are nottangible; they are the disasters that did NOT happen. "Kofi Annan, “Facing the Humanitarian Challenge:
Towards a Culture of Prevention”, UNGA, A/54/1