Communication from the Commission to the Council and the European Parliament - EU strategy for supporting disaster risk reduction in developing countries {SEC(2009) 217} {SEC(2009) 218} {SEC(2009) 220}
Date: 2009-02-23
Institutions: European Commission
Subjects: cooperation policy, developing countries, economic development, environmental risk prevention, humanitarian aid, natural disaster

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 23.2.2009 
COM(2009) 84 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

EU STRATEGY FOR SUPPORTING DISASTER RISK REDUCTION IN 
DEVELOPING COUNTRIES 

{SEC(2009) 217} 
{SEC(2009) 218} 
{SEC(2009) 220}

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1. 

INTRODUCTION  

Disasters  undermine  development  and  jeopardise  the  achievement  of  the  Millennium 
Development Goals (MDGs). Evidence has long suggested that disaster risk reduction (DRR) 
has a high cost-benefit ratio. The UN’s International Strategy for Disaster Reduction (ISDR) 
defines  DRR  as:  "Actions  taken  to  reduce  the  risk  of  disasters  and  the  adverse  impacts  of 
natural  hazards,  through  systematic  efforts  to  analyse  and  manage  the  causes  of  disasters, 
including  through  avoidance  of  hazards,  reduced  social  and  economic  vulnerability  to 
hazards, and improved preparedness for adverse events".  

The  EU  is  the  world's  largest  aid  donor,  but  lacks  a  strategic  framework  to  guide  its  DRR 
support to developing countries. This Communication proposes an EU strategy for supporting 
DRR in developing countries through both development cooperation and humanitarian aid, to 
help support the 2005 Hyogo Framework for Action1 and achieve the MDGs.  

Based on Article 180 of the Treaty establishing the European Community, this Strategy forms 
one half of a package covering aspects of DDR within2 and beyond the EU, addressing also 
appropriate  links  between  the  two  dimensions.  It  complements  and  supports  existing  EU 
initiatives on climate change.  

2. 

RATIONALE  

2.1. 

Disasters are on the increase – developing countries are most affected  

Over  the  last  30  years,  disasters  have  increased  both  in  frequency  and  intensity.  The  total 
number reported rose from 73 in 1975 to about 440 in 2007. The number of climatic disasters 
has almost tripled, from 1280 between 1978 and 1987 to 3435 between 1998 and 2007.3  

Disasters hit developing countries hardest, as they are the most vulnerable and have the least 
capacity to cope. For example, the 6.6 earthquake which hit Iran in 2003 killed over 40 000 
people. By contrast, the 6.5 earthquake which hit central California four days earlier took two 
lives  and  injured  40  people.4  Disasters  also  divert  substantial  national  resources  from 
development to relief, recovery and reconstruction, depriving the poor of the resources needed 
to  escape  poverty.  In  Aceh,  Indonesia,  the  2004  tsunami  is  estimated  to  have  increased  the 
proportion of people living below the poverty line from 30% to 50%.5  

In addition, dependency on healthy animals and plants (crops) is high in developing countries, 
so that disasters caused by biological hazards can have negative impacts on food security and 
subsequently cause new disasters. For biological hazards it should also be kept in mind that 
incursions  of  diseases  or  pests  if  not  adequately  dealt  with  can  easily  become  endemic, 
thereby impacting substantially the "economic" status of the country or region and hence the 
mid- and longer-term economic perspectives.  

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5 

Adopted at the World Conference on Disaster Reduction. 
Commission  communication  on  a  Community  approach  on  the  prevention  of  natural  and  man-made 
disasters (COM(2008)xx). 
Collaborating Centre for Research on the Epidemiology of Disasters. 
DFID (2006): Reducing the Risk of Disasters. 
Idem. 

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The  Intergovernmental  Panel  on  Climate  Change  (IPCC)  has  found  that  some  extreme 
weather  events  have  changed  in  frequency  and/or  intensity.6  These  changes  may  already  be 
contributing to the increasing number and intensity of disasters, making the need for effective 
DRR even greater and more immediate. 

2.2. 

Investing in DRR pays off 

Disasters can be avoided. There are ways to reduce risks and to limit impacts, for example by 
addressing  the  root  causes  of  people’s  vulnerability  and  increasing  their  capacity  to  cope. 
DRR  comprises  preparedness,  mitigation  and  prevention.  It  aims  to  enhance  resilience  to 
disasters  and  is  underpinned  by  knowledge  about  how  to  manage  risk,  build  capacity,  and 
make use of information and communication technology and earth observation tools.  

DRR success stories 

The category four Hurricane Michelle in 2001 was the strongest hurricane to hit Cuba in 50 years. 
Thanks to Cuba’s effective early warning system and its hurricane preparedness plan, 700 000 people 
were evacuated, of whom 270 000 were provided with temporary accommodation and basic needs for 
a longer time. Some 777 000 animals were moved to safe areas. The hurricane was a major economic 
setback, but only five deaths and 12 injuries were reported. 7 

In 1998 a tsunami struck the north-west coast of Papua New Guinea claiming 2 200 lives. Thanks to 
DRR  efforts  by  the  Asian  Disaster  Reduction  Center  following  this  disaster,  a  tsunami  in  2000 
destroyed thousands of houses but caused no deaths. 8  

Effective DRR can reduce the loss of life and property. Studies suggest benefits in terms of 
prevented or reduced disaster impacts of two to four dollars for each dollar invested in DRR.9  

2.3. 

International DRR efforts  

In  recent  years,  the  focus  has  moved  from  mainly  responding  to  disasters  to  implementing 
comprehensive DRR approaches.  In 2005, 168 governments adopted the Hyogo Framework 
for Action 2005-2015: Building the resilience of nations and communities to disaster and the 
Commission10  fully  supports  its  implementation.  The  challenge  now  is  to  translate  it  into 
effective  action  at  global,  regional,  national  and  local  level.  Many  developing  countries  are 
putting  considerable  effort  into  implementation,  but  are  constrained  by  lack  of  funding  and 
capacity.11 The 2nd Global Platform for DRR, to take place in June 2009, aims to sustain the 
Hyogo  momentum  and  take  stock  of  progress.  Growing  international  awareness  is  evident 
from  initiatives  such  as  the  World  Bank’s  Global  Facility  for  Disaster  Reduction  and 
Recovery (GFDRR).  

Negotiations  under  the  UN  Framework  Convention  on  Climate  Change  (UNFCCC),  in 
particular  the  Bali  Action  Plan  adopted  in  2007,  have  also  identified  DRR  as  a  means  of 

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IPCC (2007): 4th Assessment Report. 
ISDR (2004): Living with Risk: A global review of disaster reduction initiatives. 
ADRC (2001). 
DFID (2006): Reducing the Risk of Disasters. 
Only governments could adopt the Hyogo Framework, which is why the Commission has not formally 
adopted it. 
ISDR: Global Review 2007. 

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adapting to climate change in order to reduce its impact, and as an adjunct to long-term efforts 
to mitigate climate change.12  

2.4. 

Grounds for EU action on DRR 

Both  the  2005  European  Consensus  on  Development  and  the  2007  European  Consensus  on 
Humanitarian  Aid  commit  the  EU  to  supporting  DRR  policy  and  action.  The  2008  Council 
conclusions on reinforcing the Union's disaster response capacity invited the Commission to 
present  a  proposal  for  an  EU  strategy  for  DRR  in  developing  countries.  The  European 
Parliament has also repeatedly argued for a more robust DRR policy and increased financial 
means. 

The  majority  of  EU  Member  States  and  the  Commission  support  DRR  efforts  in  all 
developing country regions on a regular basis and good examples of EU coordination exist, 
for  example  in  Bangladesh  where  the  Comprehensive  Disaster  Management  Programme 
2010-2014 will be jointly supported by the EC and DFID. However, in spite of this, current 
EU action is non-strategic as it mainly follows an ad hoc project/programme approach and is 
often  uncoordinated  and  inadequate.  For  example,  in  10  years  of  intervention  in  disaster 
preparedness, especially through its DIPECHO programmes in six disaster-prone areas in the 
world,  the  Commission  is  aware  of  very  few  formal  cooperation  examples  with  Member 
States. It seems that the effectiveness of EU action is hampered by a number of factors: 

•  Lack  of  policy  and  strategic  frameworks  on  DRR.  While  the  Hyogo  Framework 
provides  harmonised  DRR  guidance,  it  is  not  readily  usable  for  development 
cooperation  purposes.  For  example,  the  regional  context  is  barely  mentioned  in 
spite  of  the  comparative  advantage  and  economies  of  scale  to  be  gained  from 
regional action. Only the UK and Sweden (SIDA) has so far developed a specific 
DRR policy/strategy but other Member States are planning to do so. Indeed, some 
10  Member  States  and  the  Commission  are  currently  stepping  up  individual 
support  for  DRR.  This  will  inevitably  lead  to  more  fragmentation  and/or 
duplication of effort if there is no EU strategy to guide such efforts. 

•  Lack of a common voice. The EU currently lacks a common voice on DRR even 
though  its  thinking  on  DRR  is  clearly  converging.  DRR  needs  to  be  part  of  the 
political  dialogue  between  the  EU  and  developing  countries  and  will  be  most 
effective if the EU’s message is consistent and coordinated. For example, the lack 
of a distinct and coordinated EU presence at the 1st Global Platform on Disaster 
Reduction  in  2007  was  evident.  The  UNFCCC  is  another  forum  in  which  a 
coordinated EU position on DRR and climate change would be helpful.  

•  Limited progress with the integration of DRR. Given the risk that disasters pose to 
development,  DRR  needs 
into  EU  development 
cooperation. Such efforts are currently ongoing in several Member States and the 
Commission  but  progress  so  far  has  been  uneven  and  limited  and  needs  to  be 
improved. 13 

to  be  better 

integrated 

•  Limited linking of DRR and climate change. DRR is an essential part of successful 
adaptation  to  climate  change  and  effective  DRR  increasingly  needs  to  take 

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UNFCCC (2007), Bali Action Plan, decision 1/CP.13 
Tearfund (2007): Institutional donor progress with mainstreaming DRR. 

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account  of  the  changes  in  risk  associated  with  climate  change.  However,  in 
practice,  the  benefits  and  synergies  of  linking  DRR  and  adaptation  are  not 
systematically identified and capitalised upon.  

All of the above suggests that an EU strategy supporting DRR in developing countries would 
give  the  EU  the  strategic  direction  it  is  currently  lacking,  while  at  the  same  time  pulling 
together  all  ongoing  EU  DRR  efforts,  allowing  benefits  and  synergies  to  be  exploited  in  a 
more  coherent  and  coordinated  manner,  including  those  related  to  policy  coherence,  non-
duplication of effort, cost-effectiveness, efficiency and exchange of best practice.  

3. 

TOWARDS AN EU STRATEGY FOR SUPPORTING DRR IN DEVELOPING COUNTRIES 

The proposed strategy builds on strategic work done by the European Commission14 and EU 
Member  States,  and  DRR  lessons  learnt  from  all  developing  country  regions.  While  the 
priority  areas  for  intervention  below  are  fully  in  line  with  the  priorities  of  the  Hyogo 
Framework,  the  strategy’s  overall  objective, the  strategic  objectives  and  the  implementation 
priorities specifically reflect the context of existing partnership and cooperation between the 
EU and developing countries, including at the regional level.  

3.1. 

Objectives 

The overall objective is to contribute to sustainable development and poverty eradication 
by reducing the burden of disasters on the poor and the most vulnerable countries and 
population groups, by means of improved DRR. 

To achieve this overall objective, the EU will support the following strategic objectives:  

(1) 

(2) 

(3) 

support  developing  countries 
development policies and planning effectively; 

in 

integrating  DRR  considerations 

into 

their 

support developing countries and societies in reducing disaster risk more effectively, 
through targeted action on disaster prevention, mitigation and preparedness;  

integrate DRR considerations more effectively into EU development and humanitarian 
aid  policies  and  programming,  and  crisis  response  where  it  covers  disaster  response 
and recovery. 

3.2. 

Geographic coverage, scope and approach 

All developing countries15 and Overseas Countries and Territories (OCTs) are covered by the 
strategy, but particular attention will be given to disaster-prone regions, least developed and 

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Commission communications on Reinforcing the Union's disaster response capacity (COM(2008)130); 
Building  a  Global  Climate  Change  Alliance  between  the  European  Union  and  poor  developing 
countries  most  vulnerable  to  climate  change  (COM(2007)540);  Reinforcing  EU  disaster  and  crisis 
response in third countries (COM(2005)153), the joint High Representative and Commission paper on 
Climate  and  international  security  (S113/08)  and  the  Commission  Staff  Working  Paper  on  Disaster 
Preparedness and Prevention (2003).  
OECD/DAC list of ODA recipients. 

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highly vulnerable countries and localities, and the most vulnerable groups.16 Collaboration on 
DRR with the outermost regions will also be furthered. 

The  disasters  targeted  are  those  caused  by  natural17  and  technological  hazards.  However, 
different hazards can interact, resulting in a domino effect — e.g., environmental degradation 
increasing  the  impact  of  flooding,  bringing  on  epidemics.  A  multi-hazard  approach  should 
therefore  be  adopted  as  appropriate,  since  it  can  lead  to  greater  resilience  to  other  types  of 
disaster  as  well.  While  acknowledging  that  disasters  can  exacerbate  existing  tensions  and 
instability,  the  strategy  will  not  address  man-made  disasters  such  as  conflict  and  war.18 
Consideration will be given to both slow- and rapid-onset disasters; to large-scale as well as 
localised  but  frequently  occurring  disasters  such  as  landslides,  flash  floods,  fires,  storms, 
outbreaks  of  human  and  animal  diseases  and  plant  pests,  bearing  in  mind  that  they  may 
require different approaches.  

The  strategy  combines  support  for  the  integration  of  DRR  in  EU  external  action  and  in 
developing  countries'  strategies,  and  targeted  DRR  action  which  can  usefully  complement 
integration efforts with great immediate impact. Examples include key DRR investment with 
good  replication  potential,  such  as  specific  DRR  programmes  or  regional  early  warning 
systems. The regional dimension is crucial since disasters do not stop at borders. The EU will 
use  its  presence  and  experience  at  regional  level  to  support  action  that  is  more  effectively 
taken at regional level in line with the principles of comparative advantage and subsidiarity.  

4. 

PRIORITY AREAS FOR INTERVENTION 

4.1. 

Ensure that DRR is a national and local priority with a strong institutional basis 
for implementation 

Political  commitment  is  key  to  advancing  DRR  issues  at  all  levels.  The  EU  will  support 
developing countries taking the lead on DRR and implementing the Hyogo Framework, and 
will advocate DDR by increasing its visibility and demonstrating its benefits.  

Implementing  Hyogo  also  includes  support  for  better  integration  of  DRR  into:  (a) 
development  and  humanitarian  policies  and  planning,  (b)  crisis  response  where  disaster 
response and recovery are concerned, and (c) climate change adaptation strategies. Resources 
should  be  made  available  to  support  this  in  the  Commission,  EU  Member  States  and 
developing countries.  

Moreover,  effective  DRR  needs  a  strong  institutional  basis,  which  can  be  made  stronger 
through  e.g.  capacity  building;  good  governance,  promotion  of  appropriate  policies  and 
legislation;  facilitating 
information;  and  effective  coordination  mechanisms.  Multi-
stakeholder dialogue should be formalised in National Platforms to provide policy guidance 
and coordinate activities. It is also important to strengthen the international system's capacity 
to  act  on  international  commitments  and  coordinating  EU  donor  responses  to  maximise  aid 
effectiveness.  

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To  be  further  identified  through  risk  analysis  at  the  relevant  levels  and  resulting  vulnerabilities  and 
specific needs. 
Biological, geophysical or hydro-meteorological. 
In such situations, linking DRR to crisis prevention and response efforts will be important. 

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The EU will: 

►Promote the inclusion of DRR on the agenda of high-level political meetings and make it 
part of regular political dialogue with developing countries 

►Support  the  integration  of  DRR  into  developing  countries'  development  policies  and 
planning, including relevant sectoral policies, climate change adaptation strategies and cross-
cutting issues 

►Better integrate DRR into EU policies, support strategies, programmes and projects  

►Support  the  development  and  implementation  of  national  policy,  legal  and  institutional 
frameworks for DRR, including National and Regional Platforms  

►Ensure closer coordination of support for DRR in developing countries to help implement 
this strategy 

►Support  the  UN/ISDR  as  the  coordinating  body  for  the  implementation  of  the  Hyogo 
Framework 

4.2. 

Identify, assess, and monitor disaster risks – and enhance early warning 

Better knowledge of hazards, particularly in the context of increasing climate variability and 
vulnerability  or  the  huge  increase  in  global  trade  in  live  animals  and  products,  enables 
communities and countries to better understand, anticipate and minimise the risk of disasters 
and should be fed into policy making. 

Current analytical gaps make it necessary to better map and strengthen risk analysis capacity, 
promote  integrated  vulnerability  and  capacity  assessment,  upgrade  data  monitoring  stations 
and  reliable  early  warning  (EW)  capacity,  and  promote  joint  post  damage  and  needs 
assessment  (PDNA)19  in  order  to  develop  DRR  strategies  and  measures  appropriate  to  the 
unique  circumstances  of  the  people  at  risk  and  strengthen  resilience.  Capacity  building  and 
instruments to ensure that EW will go ‘the last mile’ to benefit the communities and people 
most at risk will be vital in this process.  

Expanded research and statistical capacity and dissemination of results related to DRR are key 
to bridging this gap. The EU has significant research capacity, including the 7th Framework 
Programme  for  Research  and  the  Joint  Research  Centre,  which  supports  tools  such  as 
Kopernikus that should contribute to and complement developing countries’ own efforts. The 
EU  will  ensure  that  appropriate  linkages  are  made  with  knowledge  consolidation  initiatives 
explored  within  the  context  of  the  Communication  on  a  Community  approach  on  the 
prevention of natural and manmade disasters. 

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UN/WB/EC common Platform for action for "Post-Crisis Assessments and Recovery Planning" in post 
disasters (PDNA) scenarios. 

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The EU will: 

►Support  expanded  research  (scientific,  technological  and  socio-economic)  and  statistical 
capacity in developing countries 

►Promote the establishment of multi-hazard national risk assessment and the sharing of risk 
information and knowledge 

►Promote joint PDNA with WB and UN in support to nationally led assessment to enhance 
country resilience to crises 

►Support  participatory  community  risk  assessment  and  link  it  to  national  and  regional 
assessment 

►Promote  the  exchange  of  best  practice,  ideas  and  experience  both  between  developing 
countries and between developing and developed countries  

►Support the development or strengthening of EW systems, including people-centred EW, 
and related capacity building 

4.3. 

Use  knowledge,  innovation,  and  education  to  build  a  culture  of  safety  and 
resilience at all levels 

Disasters  can  be  reduced  substantially  if  people  are  well  informed  about  the  risk  they  may 
face and about possible options and measures they can take to reduce vulnerability and better 
prepare themselves.  

Public  awareness  of  DRR  can  be  heightened  by  disseminating  disaster  risk  information  to 
relevant  authorities  and  local  populations  in  order  to  empower  people  to  protect  themselves 
and make their livelihoods more resilient to disasters. The media can play an important role. 
Children, in particular, can also be made aware of DRR by including DRR material in formal, 
non-formal  and  informal  education  and  training  activities  and  providing  easy  access  to 
information on disaster risk and means of protection.  

Support for implementing market based insurance mechanisms can also be a tool to improve 
public awareness of disaster risks and should give incentives to risk reducing behaviour. 

The EU will: 

►Support awareness-raising campaigns and programmes 

►Support the inclusion of DRR in education and training 

►Help make DRR information more easily available, particularly to people in high-risk areas 

►Support  the  development  or  up-scaling  of  community-based  disaster  risk  management 
programmes, including the use of market based insurance mechanisms 

4.4. 

Reduce the underlying risk factors  

Vulnerability  to  hazards  is  increased  by  many  factors:  e.g.  poverty,  poor  land-use  planning 
and  unsafe  settlements,  rapid  population  growth,  increasing  population  densities  and  rapid 
urbanisation,  poor  governance,  lack  of  social  and  financial  safety-nets,  poor  health  and 
disability, poor natural resource management, environmental degradation, gender inequalities, 

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food  insecurity,  increasing  climate  change  and  the  fact  that  more  people  are  living  today  in 
exposed areas.  

The EU will support the linkage between DRR and these various issues with a view to making 
all  EU  support  more  coherent  and  disaster-resilient  while  taking  advantage  of  possible 
synergies.  In  particular,  the  EU  will  ensure  that  appropriate  linkages  are  made  with  natural 
resources and  environmental programmes, including initiatives such as  the  GCCA,  the  joint 
EC-SEC paper on “Climate Change and International Security”20 and the EU Action Plan on 
climate  and  development21.  Linking  DRR  and  climate  change  adaptation  can  have  many 
benefits in terms of non-duplication of effort and institutions.  

The EU will: 

►Support  the  integration  of  DRR  into  issues  that  constitute  an  underlying  risk  factor  for 
disasters 

►Seek ways to more explicitly and harmoniously link DRR and adaptation objectives 

►Support integrated programmes or projects addressing DRR and multiple issues identified 
as compound risk factors (e.g. DRR / climate adaptation / food security) 

►Explore  how  innovative  funding  can  be  mobilised  for  the  benefit  of  both  DRR  and 
adaptation 

4.5. 

Strengthen disaster preparedness for effective response at all levels 

Preparedness may involve many types of activities, such as contingency planning, stockpiling 
of equipment and supplies, emergency services and standby arrangements, communications, 
information management and coordination arrangements, capacity building in communities at 
risk  and  their  institutions,  personnel  training,  community  drills  and  exercises,  and  public 
education.  

Preparedness activities also link naturally with response and recovery activities. In this sense 
they  provide  a  good  opportunity  for  ensuring  coherence  between  disaster  management 
activities,  often  falling  within  the  remit  of  civil  protection  organisations  and  to  ensure 
coherence  and  complementarity  between  the  humanitarian  and  development  spheres  for 
example through developing or expanding national capacity to conduct post-disaster damage 
and  needs  assessments  and  to  prepare  plans  for  recovery  and  reconstruction  from  a  DRR 
perspective. 

Effective  preparedness  plans  and  organization  also  help  to  cope  with  the  many  small  and 
medium-sized disasters that repeatedly occur in so many communities. Support for enabling 
communities to help themselves in the event of a disaster and financial preparedness in order 
to  be  able  to  absorb  the  effects  of  a  disaster  without  creating  undue  macro-economic  or 
budgetary  problems  is  vital  for  sustainable  poverty  reduction.  Governments  could  provide 
responsible  corporate  behaviour  and  public-private 
incentives/support 
insurance 
partnerships,  which  are  particularly 
mechanisms against disasters. 

to  developing  (affordable) 

to  promote 

important 

20 
21 

(S113/08) 
Council document 15164/04. 

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The EU will: 

►Support community-based preparedness programmes 

►Support the development of preparedness and contingency plans that are informed by the 
latest risk assessments 

►Promote the integration of DRR into disaster response and recovery processes 

►Promote risk sharing and transfer mechanisms 

5. 

IMPLEMENTATION OF THE STRATEGY  

5.1. 

Implementation priorities 

The EU will support the full implementation of the strategy making use of its wide experience 
with DRR. However, it is suggested that a quick start be made in the below areas where the 
EU has a comparative advantage:  

•  Political dialogue on DRR. The EU will launch a political dialogue on DRR with 
all  developing  regions  and  countries  in  existing  fora,  including  in  support  of 
advancing  climate  change  negotiations  on  a  UNFCCC  post-2012  arrangement. 
The EU will further aim for a coordinated presence at the 2nd Global Platform for 
DRR in June 2009.  

•  Regional  Action  Plans  on  DRR.  The  EU  will  support  the  development  and 
implementation  of  DRR  action  plans  in  disaster-prone  regions.  These  could  be 
implemented  partly  by  up-scaling  existing  EU  DRR  projects  and  programmes, 
building  on  developing  countries’  strategies  and  priorities.  They  should  also 
complement and support adaptation initiatives such as the GCCA. It is suggested 
to  start  with  an  Action  Plan  for  the  Caribbean  to  support  inter  alia  the 
implementation  of  the  Comprehensive  Disaster  Management  Strategy22.  Others 
should follow, e.g. for Latin America, South-East Asia, Africa and the Pacific.  

•  Integration  of  DRR  into  EU  and  developing  country  policies  and  planning  and 
support  for  key  national  DRR  investment.  The  EU  will  integrate  DRR  into  EU 
development  cooperation,  humanitarian  response  and  recovery  efforts,  making 
full use of  best  integration practice and tools developed by the Commission and 
individual  Member  States,  including  those  for  the  environment  and  climate 
change  and  civil  protection  authorities.  The  Commission  will  use  the  next  mid-
term review of country and regional strategy papers as an entry point for having 
DRR  considerations  fully  integrated  in  its  development  assistance,  where 
appropriate, in the next programming cycle starting in 2012.  

•  The  EU  will  also  support  the  integration  of  DRR  into  developing  countries’ 
national  policies  and  planning,  including  relevant  sector  policies  and  strategies, 

22 

The  Eastern  Caribbean  countries  are  among  the  10  most  disaster-prone  countries  in  the  world.  An 
Action Plan for the Caribbean should also be closely linked to the implementation of the Cariforum–EU 
Declaration on Climate Change and Energy (05/08).  

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particularly  Poverty  Reduction  Strategy  Papers  (PRSPs),  disaster-sensitive 
sectors, and relevant cross-cutting issues. The EU will coordinate its support for 
key  DRR  investment  already  identified  and  planned  for  in  such  national 
frameworks. 

5.2. 

EU collaboration, complementarity and coordination 

The EU will implement the strategy in the spirit of the Paris Declaration on Aid Effectiveness 
and  the  EU  code  of  conduct  on  division  of  labour:  building  on  active  coordination 
mechanisms; increasing EU policy dialogue on DRR in developing countries while supporting 
national and local ownership striving to bridge institutional gaps that exist between DRR as a 
development,  a  humanitarian  and  a  climate  change  issue;  actively  promoting  strong  in-
country and regional coordination between donors and governments with particular emphasis 
on EU coordination and harmonising methodologies.  

At headquarters, the EU will coordinate its efforts with other major policy-setting processes, 
instruments  and  programmes23,  both  across  the  EU  and  working  with  regional  and 
international  organisations,  non-EU  donors,  international  and  community  NGOs,  the 
Federation of the Red Cross and Red Crescent, the World Bank, the UN and the ISDR system.  

To  take  forward  the  political  dialogue  on  DRR,  oversee  the  implementation  of  the  strategy 
and foster coordination and alignment of EU support, the Commission will set up an EU DRR 
Steering Group (SG) including the Commission and EU Member States. This SG will: 

•  In  2009,  develop  an  Implementation  Plan 

the  key  actions, 
responsibilities,  main  instruments  and  the  sequencing  of  implementation  for  the 
priorities  listed  in  para  5.1.  In  2011,  review  this  in  order  to  take  forward 
implementation of the remainder of the Strategy. 

to  clarify 

•  Promote the setting up of DRR networks in disaster-prone countries and regions 
information  and  experience  and  promote  opportunities  for 

to  exchange 
collaboration and enhanced implementation of the Strategy.  

•  Establish a forum for regular consultation and exchange with civil society, NGOs 

and national and regional representatives.  

•  Establish  an  appropriate  framework  to  monitor  progress  and  financing,  and 

evaluate the implementation of the strategy.  

5.3. 

EU funding instruments24 

The EU will implement the strategy using the full range of funding instruments at its disposal 
and  in  the  context  of  the  EU  target  of  raising  Official  Development  Assistance  (ODA)  to 
0.56% of GNP by 201025. Indeed, several Member States and the Commission26 are currently 
scaling  up  funding  for  DRR  within  existing  financial  frameworks.  Although  the  present 
communication  does  not  have  any  additional  financial  implications  and  the  actions  will  be 

23 
24 
25 
26 

Such as the WB's GFDRR and UNDP-led disaster reduction and country climate adaptation efforts. 
Annex II. 
Target reconfirmed in Doha 2008. 
Commitments  in  2006 :  €39.95  million,  and  in  2007:  €65.06  million,  from  Dipecho,  Greater  Horn  of 
Africa and EDF resources. 

EN 

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financed within the existing financial framework 2007-20013, it provides the framework for 
ensuring  that  existing  instruments  are  complementary  and  are  used  to  best  effect,  including 
better inter-linking of DRR funding from development and humanitarian instruments.  

As to the EC, its main funding sources include the European Development Fund (EDF) and 
instruments of the EC general budget27. Individual DRR allocations are set out in Country and 
Regional  Strategy  Papers  for  all  developing  regions,  intra-ACP  programmes,  Drought 
Preparedness  and  DIPECHO  programmes  in  the  humanitarian  aid  context,  and  in  thematic 
programmes on food security and environment/natural resources. For example, €180 million 
has  been  proposed  to  be  allocated  to  DRR  under  10th  EDF  intra-ACP  resources.28  The 
Commission will explore a better integrated articulation between the above. The 7th Research 
Framework  Programme  (FP7)  and  the  Commission’s  Joint  Research  Centre  also  support  a 
substantial amount of hazard- and disaster-related research and tools.  

The EU will also explore ways of mobilising innovative funding, additional to existing ODA, 
for  the  benefit  of  both  DRR  and  climate  change  adaptation.  The  Global  Climate  Financing 
Mechanism, currently being developed by the Commission, could be one such instrument. 

27 

28 

EN 

for: 
Instruments 
Neighbourhood and Partnership. 
Multi-annual intra-ACP programme to be adopted in February 2009. 

i) development  cooperation, 

ii) humanitarian  aid, 

iii) stability, 

iv) European 

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