Disaster risk reduction Summary of the Oslo conference, February 2009

Transcription

1 Disaster risk reduction Summary of the Oslo conference, February 2009 Building safer, resilient communities Introduction As a result of an increasing number of disasters triggered by natural hazards, the International Federation of Red Cross and Red Crescent Societies (International Federation) is in the process of scaling-up its actions in disaster risk reduction (DRR) as a contribution to community safety and resilience. This is also in line in working towards the achievement of the Millennium Development Goals (MDG) and the Hyogo Framework for Action (HFA). Of particular concern to the International Federation are smaller-scale disasters, with cumulative and repetitive impacts that lead to substantial losses in lives, livelihoods, infrastructure, the economy and the environment, thus hindering sustainable development. Increasingly, National Red Cross and Red Crescent Societies must also address new risks associated with climate change, urbanization, migration and other global dynamics. Mobilizing the worldwide network of Red Cross Red Crescent members and volunteers in communities is a major direct contribution to progressing the Millennium Development Goals and the Hyogo Framework for Action. Bekele Geleta, Secretary general, International Federation To support this increased priority in reducing disaster risks and enhancing community safety and resilience, the International Federation has developed a Global Alliance for Disaster Risk Reduction. During an initial working meeting in Oslo in August 2008, base guidance to steer the foundation of both the International Federation s Global Alliance and all future DRR activities, highlighting a Framework for community safety and resilience, was agreed upon. It was also determined that country-level DRR mapping at the National Society level was needed. Furthermore, the management and implementation of the Global Alliance would be placed with International Federation zonal offices and National Societies, and it was assessed that a communication plan to promote DRR was needed. The second Oslo meeting, held in February 2009, aimed at building commitment with all relevant DRR stakeholders and to discuss and agree on the processes, roles and responsibilities for the implementation of the Global Alliance and the Framework for community safety and resilience. Additionally the meeting was to encourage engagement with these mechanisms as they begin implementation in early 2009, including the building of partnerships and the mobilization of resources. One of the Norwegian Government s goals is to strengthen local resilience and response... In this the Red Cross Red Crescent is and will be a very important partner. Haakon Gulbrandsen, Norwegian Ministry of Foreign Affairs References to related International Federation s publications Highlighted below are some of the more pertinent documents published by the International Federation on progress made thus far on DRR activities: International Federation. The Global Alliance for disaster risk reduction. Building safer, resilient communities, Geneva: International Federation. A framework for community safety and resilience - In the face of disaster risk, Geneva: International Federation. The Red Cross Red Crescent and the Hyogo Framework for Action: Focus on the Asia-Pacific region, Geneva: International Federation: Disaster risk reduction and the International Federation, Geneva: International Federation. Situational analysis on the extent and nature of disaster risk reduction activity among National Red Cross and Red Crescent Societies, Geneva: 2008.

2 Colombian Red Cross Society Nepal Red Cross Society Community involvement in disaster risk mitigation in Nepal Children learning about climate change and disaster risk reduction in Guajiro, Columbia

3 International Federation of Red Cross and Red Crescent Societies International Federation. Defusing disaster - reducing the risk: calamity is unnatural: Geneva, Framework The Framework for community safety and resilience was developed as a foundation on which all Red Cross Red Crescent programmes, projects and interventions in DRR and all actions which contribute to the building of safe and resilient communities can be initiated, developed and sustained. It was generated through a consultative process across a range of stakeholders during 2008, with the participation of 80 National Red Cross and Red Crescent Societies across all seven International Federation zones. Key elements and cross-cutting components of Red Cross Red Crescent s work with regard to DRR were identified and promoted as contributions to achieving community safety and resilience, linked with the globally-agreed priorities of the HFA. Disaster risk reduction has to begin with Red Cross Red Crescent volunteers in the local communities. The role for the Red Cross Red Crescent is crucial. The World Bank is committed to working with National Red Cross and Red Crescent Societies... Saroj Jha, Global Facility for Disaster Risk Reduction and Recovery, World Bank Global Alliance for DRR The Global Alliance is the principal mechanism for increasing DRR throughout the International Federation, using the Framework for community safety and resilience as its planning and programming guideline, and the situational analysis as a foundation to build upon. The Global Alliance currently focuses on specific target National Societies and provides them with high level support to achieve agreed DRR goals, with the number of National Societies involved expected to grow. Although fundamentally a Red Cross Red Crescent mechanism, external partners are encouraged to participate. Emphasizing implementation at the community-level, the Global Alliance helps the International Federation promote the agendas of community safety and resilience and DRR, raising their profile at the regional and global levels, thus further mobilizing support to enable achievement of major programme outcomes. It is essential to realize the importance of partnerships and the International Federation s role is key in this process. Glenn Mittermann, United Nations International Strategy for Disaster Risk Reduction Situational analysis Carried out in early 2008, the situational analysis demonstrates the current status of DRR programming within the Red Cross Red Crescent family as accurately and comprehensively as possible. To achieve this, the following was focused on: Through a participatory situational analysis, the International Federation s focus on DRR programming was identified and specific priorities set. A core set of measurable qualitative and quantitative outcome indicators for DRR were identified to be used for monitoring progress in the implementation of prioritized programmes. Baseline information was collected for the identified indicators. Red Cross Red Crescent actions in DRR While a multi-partner national programme for constructing flood/cyclone shelters has proven highly successful in saving lives, the need to protect livelihoods is equally pertinent, as stressed by the Bangladesh Red Crescent Society. Community resilience depends on the ability to minimize livelihood shocks, with new shelters now also providing safety for livestock. To effectively scale-up successful community-based DRR, the Cambodian Red Cross Society has found that diversification of resources and partners, formalization of local structures, decentralization, targeted advocacy, capacity-building, enhanced organizational development across cross-cutting areas and effective communication are needed. The Canadian Red Cross Society recently developed the corporate tool Ready When the Time Comes, through which partnerships with companies provide an extensive network of well-trained volunteers that can quickly mobilize in the event of a local, large-scale disaster. These volunteers serve as reserves that can be called upon when a disaster response requires more capacity than is available through existing local disaster services teams. In response to local infrastructure failures during disasters, the Red Cross Society of China has been supporting the construction of evacuation roads, small dams, local irrigation systems, community water and sanitation systems, as well as enhanced health education and health projects. Participatory processes, including formalization of agreements with local governments, have led to greater motivation and collaboration at all levels. Current strong public interest in climate change has enabled the Colombian Red Cross Society to promote new attitudes about the environment, as well as to better establish a culture of disaster prevention and climate change adaptation within communities.

4 The Costa Rican Red Cross trains community leaders on different methods for mitigating flood risks. Enabled to identify and adapt risk reduction approaches for their local contexts, community leaders were able to reduce disaster impacts even when floods occurred just as training had concluded. After several cyclone disasters, the Cuban Red Cross has been contributing to a government preparation for disasters programme. Specific support is being provided through local training, education, school disaster preparedness and people-centred early warning. Utilizing its experience with community-based DRR, the Gambia Red Cross Society was able to influence national disaster policy development through institutional partnerships, ensuring that the needs and resources of communities were considered at the national level. The Nepal Red Cross Society has found that effective communication is key to scaling-up and institutionalizing DRR. A common understanding of DRR among different stakeholders requires evolving joint communication strategies and participatory approaches at all levels, including training and education. In South Asia, the Building Safer Communities programme constitutes a partnership of seven National Societies, the International Federation and multiple civil, governmental and international organizations. It aims to strengthen and expand community DRR in this high disaster risk region through common approaches, stressing South-South cooperation. In response to annual floods, the International Federation s Southern Africa zone launched the Zambezi River Basin Initiative together with seven National Societies. A variety of DRR activities are being implemented, with the lack of fatalities during the 2008 flood season attesting to the initiative s success. Conference summary The Oslo conference gathered over 100 Red Cross Red Crescent participants from all over the world, from Colombia to the Cook Islands, from Tajikistan to Zimbabwe, as well as representatives from the United Nations International Strategy for Disaster Reduction (UNISDR), European Commission (DG ECHO), World Bank, Zurich Financial Services, the British and Norwegian governments, other Norwegian non-governmental organizations (NGOs) and academic institutions. During the opening sessions, the Norwegian government, which funded the conference, urged the International Federation to use its voice in order to gain needed momentum on DRR. The World Bank, UNISDR, ECHO and Zurich Financial Services also focused on the importance of DRR and showed a strong commitment to cooperation and partnership. During the first two days experiences and challenges from many different National Societies were shared, while during the third day concrete issues, action plans and next steps for the way forward were discussed. Aside from the many impressive examples of ongoing work in DRR (see Red Cross Red Crescent actions above), some key areas are highlighted below as cross-cutting issues of specific interest. We chose the International Federation as a partner in disaster risk reduction because of their expertise, their perseverance, their achievements, and their strategies... Natasha Issa, Zurich Financial Services The auxiliary role of National Red Cross Red Crescent Societies with their respective national governments: the National Red Cross Red Crescent Societies, through their work at national and local levels, have great potential for raising their voices in favour of vulnerable communities in high risk areas. Communication of DRR: in order to promote more effective integration there is a need for better communication regarding DRR at all levels. To enable this, a common language on DRR has to be agreed and so far focus on communicating the positive results of DRR to governments and international bodies has been insufficient. As the World Bank pointed out, DRR is not a stand-alone agenda; the language has to change to focus more on the MDG such as poverty reduction and, more generally, on reducing community vulnerability as part of development strategies. The International Federation should use its voice on behalf of the most vulnerable people. Integration of climate change adaptation into DRR: climate change increases unpredictability and uncertainty about the potential of extreme events in many areas. The most vulnerable people are always the hardest hit, including the elderly, women and children. Often, unforeseen situations make it difficult to properly prepare for and prevent future disasters. Climate change adaptation therefore has to be incorporated into the planning and implementation of all DRR programmes. Knowledge sharing: the need to better communicate the methods and impacts of DRR programmes was elaborated. Reported results, such as those from Bangladesh and Zimbabwe, encourage the application of successful community-centred approaches elsewhere. Many best practices exist, to be used for improved and scaled-up DRR programmes.

5 Disaster risk reduction Summary of the Oslo conference, February 2009 Partnerships: although a few examples of National Red Cross Red Crescent Societies partnering in DRR programming were shared, the need for partnerships with different types of organizations and institutions was expressed by almost all delegates, due to the fact that there seems to be a lack of DRR capacity at both national and international levels. Therefore, a request for capacity-building through partnerships became a central issue in planning for the future as well as for intensified activities. South-South partnerships: this was raised by the Norwegian government at the beginning of the conference. Focusing on learning from similar situations and activities, South-South partnerships could become a corner-stone for scaling-up DRR activities. The learning and exchange between National Societies, as well as between other relevant stakeholders in the same region and across regions could trigger activities which could result in more rapidly implemented and better structured integrated programmes. During the conference, very few indications of such cooperation were reported but the potential was immediately recognized and encouraged. Baselines/mapping efforts: for any type of scaling-up effort, the point of departure has to be established, inherently including the initiation of baseline studies. Mapping efforts were referred to by many while also indicating that the established Vulnerability and Capacity Assessment (VCA) tool has potential for use in this type of baseline analysis. Scaling-up: the Global Alliance is all about scaling-up. Although some mapping efforts continue to cover larger areas (e.g., Costa Rica VCA-mapping), there is still a lack of guidelines and capacities in supporting a significant increase in DRR efforts. Generally, partnerships have been seen as the principle vehicle for scaling-up but concrete concepts still seem to be lacking. Future efforts in the direction of scaling-up are needed and requested by many National Societies. Other participants including the World Bank, UNISDR and ECHO see a great potential in the International Federation s desire for increased DRR activities. Gender focus: it is clearly reported that disasters mainly target the vulnerable, of which women are often the most affected. Efforts are, therefore, required to develop programmes that target the needs of women, as well as the elderly, children and men in different ways. More information needs to be gathered on the implications of this important observation. Red Cross Red Crescent and DRR Communiqué from the Oslo Conference This conference affirms the importance of scaling-up DRR globally as a major contribution to safety and resilience in vulnerable communities. Red Cross Red Crescent cooperation with local communities represents a strong foundation for addressing disaster risks. The conference acknowledges climate change and environmental degradation as a major driver of disaster risks and increasing vulnerability. Climate change adaptation must be integrated into Red Cross Red Crescent community-based disaster preparedness and DRR. The conference states the important link between investment in DRR and poverty alleviation. The conference, with support of all present partners, urges the International Federation to: Be a strong voice on behalf of the most vulnerable and people affected by disasters. Advocate the need for governments and international institutions to invest and become involved in the work of DRR. Agree on the roles and responsibilities of different stakeholders in promoting and communicating the Global Alliance and other mechanisms for delivering community safety and resilience. Promote the Red Cross Red Crescent as a partner of choice in prevention and development for international organizations, governments and local authorities and other relevant stakeholders. Promote DRR as a key component of a culture of prevention and development to be mainstreamed within the Red Cross Red Crescent. Establish robust partnerships with key partners based on the strong commitments expressed by ECHO, World Bank, UNISDR, ProVention Consortium and the Norwegian government. Fully utilize the Red Cross Red Crescent auxiliary status with governments at local and national levels. Expand the partnerships at national, local and community levels, including the private sector, to secure the effective implementation of risk reduction actions. Mobilize the resources necessary to support the implementation of increased DRR. Develop good cooperation with research institutions to secure good mapping and necessary baselines. Develop the capacities at national, local and community levels necessary to ensure the effective implementation of DRR, incorporating the important role of the Red Cross Red Crescent volunteers.

6 Promote and facilitate the exchange of South-South knowledge, experience, resources and cooperation. Ensure that DRR is integrated into all its major programme areas, especially disaster response, health and care and organizational development. Urge governments and donors to allocate a significant portion of funding for emergency response to DRR. Regularly monitor progress and account for results during the annual Red Cross and Red Crescent Safety and Resilience Forum. Strengthen its support to National Societies in their communications and advocacy efforts. Oslo, 11 February 2009 Challenges way forward Framework for community safety and resilience: efforts are needed to put this framework into practice. Identifying modalities for cooperation and implementation: although the Global Alliance has been an agreed vehicle for the International Federation, details of the modalities of integrated DRR activities have to be improved to ensure effectiveness and maximum impact. Scaling-up: simply communicable and easily manageable guidelines will allow a scaling-up of efforts, thus reaching more people, doing better and multiplying best practices. Methodologies for scaling-up have to be improved and adapted to local variations. Resource mobilization: although many DRR programmes have been implemented and are under progress, new resources will be needed to cover for additional needs at all levels. Both national and international resources have to be mobilized, including the private sector. Good monitoring and sharing of results are needed to properly inform donors on progress and achievements. Identifying a common platform for mapping, indicators, measurement of success and impact analyses: for monitoring progress and successes proper baseline studies are needed. Common platforms and indicators have to be agreed in order to compile different mapping efforts in an accessible manner. Building capacity as rapidly as possible in order to plan, implement and monitor DRR programmes: capacity-building has to happen at all levels (i.e., volunteers in communities, branches and National Societies). In addition, capacity development for monitoring and follow-up needs to occur at the zonal and global levels. This requires training based on common curricula and work plans. Such initiatives have to be implemented in the immediate future in order to support the efforts of scaling-up. South-South cooperation needs to be fully utilized: exchange of information and experiences among people and National Societies in similar situations and environments expedites the learning process and raises awareness. Therefore, South-South partnerships and working relationships should be used during scaling-up efforts. Meeting these challenges in terms of policy, planning and delivery of DRR services and programmes will require strong commitments and partnerships with key players at all levels: community, national, zonal and global. Using the Red Cross Red Crescent s local to global network, there is an urgent need to scale-up our cooperation and partnership with the wider UNISDR system (governments, United Nations, NGOs, donors, private sector, civil society, etc.), through national, regional and global platforms as well as the United Nations Framework Convention on Climate Change process. The International Federation is working to strengthen community safety and resilience and integrate climate change adaptation into DRR at the community level, while being the voice, eyes and ears of the most vulnerable at all levels. As DRR requires a long term approach close articulation between development and humanitarian stakeholders is important. Because of their permanent presence in disaster prone regions and their recognized role in supporting governments Red Cross Red Crescent Societies are perfectly placed to play a critical role in making this link happen. Hermann Spitz, European Commission s Humanitarian Aid Office /2009 E 500 For further information, please contact: International Federation of Red Cross and Red Crescent Societies Disaster policy and preparedness department P.O. Box 372, 1211 Geneva 19, Switzerland, secretariat@ifrc.org, Web site: