The Red Cross Red Crescent and the Hyogo Framework for Action Focus on the Asia-Pacific region

© International Federation of Red Cross and Red Crescent Societies

Any part of this handbook may be cited, copied, translated into other languages or adapted to meet local needs without prior permission from the International Federation of Red Cross and Red Crescent Societies, provided that the source is clearly stated.

The maps used do not imply the expression of any opinion on the part of the International Federation of Red Cross and Red Crescent Societies or National Societies concerning the legal status of a territory or of its authorities.

Cover photo: Jenny Matthews/British Red Cross

2008

International Federation of Red Cross and Red Crescent Societies

P.O. Box 372 CH-1211 Geneva 19 Switzerland Telephone: +41 22 730 4222 Telefax: +41 22 733 0395 E-mail: [email protected] Web site: www.ifrc.org

International Federation of Red Cross and Red Crescent Societies Asia Pacific disaster management The Ampwalk Suite 9.06 (North Block) Nº 218 Jalan Ampang 50450 Kuala Lumpur, Malaysia E-mail: [email protected] Web site: www.ifrc.org

The International Federation’s Global Agenda (2006–2010)

Over the next two years, the collective focus of the Federation will be on achieving the following goals and priorities:

Our goals Goal 1: Reduce the number of deaths, injuries and impact from disasters.

Goal 2: Reduce the number of deaths, illnesses and impact from diseases and public health emergencies.

Goal 3: Increase local community, civil society and Red Cross Red Crescent capacity to address the most urgent situations of vulnerability.

Goal 4: Promote respect for diversity and human dignity, and reduce intolerance, discrimination and social exclusion.

Our priorities Improving our local, regional and international capacity to respond to disasters and public health emergencies.

Scaling up our actions with vulnerable commu- nities in health promotion, disease prevention and disaster risk reduction.

Increasing significantly our HIV/AIDS pro- gramming and advocacy.

Renewing our advocacy on priority humanitari- an issues, especially fighting intolerance, stigma and discrimination, and promoting disaster risk reduction.

Introduction ________________________________________________________________________________ Formore than 150 years,National RedCross andRedCrescent Societies have been at the forefront of efforts to reduce the impact of natural and human-made disasters and to alleviate the suffering caused by such disasters. As they seek to improve their services for themost vulnerable people, theNational Societies have seen their disaster-related activities evolve frompurely emergency relief to disaster preparedness and support for recovery and,more recently, to disaster risk reduction.These changes have come about in response to the realization that relief is not enough by itself tomiti- gate the effects of disasters: resilient communities are those that are able towithstand hazards and have developed ca- pacities and resources that are notwiped outwithinminutes by a disaster.

With this inmind,National Societies have beenworkingwith communities at risk to strengthen their coping capaci- ties and resilience, while building their own capacities at every level to assist the communities and reduce their expo- sure to risk. It is no exaggeration to say, therefore, that theNational Societies have been contributing to the achievement of the objectives of theHyogoFramework forAction (HFA)1 formany years.However, there is stillmuch that can be done to enhance actions to reduce risk in vulnerable, disaster-prone communities.

Based on lessons learned and goodpractice frompast experiences and using theHFAas a systematic guide, the Inter- national Federation ofRedCross andRedCrescent Societies (the International Federation), togetherwith theNational Societies, has been fine-tuning its strategies and programmeswith respect to disaster risk reduction.This has resulted in the Framework for community safety and resilience, which provides the foundation for all RedCrossRedCrescent interventions in the area of disaster risk reduction and all actions that contribute to the building of safer andmore re- silient communities.

TheHFA is a global undertaking andhas been endorsed bymost governments, international agencies andnon-govern- mental organizations (NGOs). As part of this global network, theRedCrossRedCrescent is fully supportive of the framework andhas resolved towork towards achieving its goals. All actions taken by the International Federation and National Societies in the context of disaster risk reduction programmes and projects are linked to the five priorities of theHFA.

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Framework for community safety and resilience The International Federation has created a Framework for community safety and resilience. The aim is to support National Societies in the promotion and implementation of a holistic, integrated approach de- veloped with and for communities in response to the multiple hazards they face (including those wors- ened by climate change) and incorporating health, environmental risks, and economic and social issues. The framework consolidates work undertaken to date to reduce underlying vulnerabilities to disasters as part of the Red Cross Red Crescent’s commitments under the HFA.

The Red Cross Red Crescent and the Hyogo Framework for Action

Focus on the Asia-Pacific region

In contributing to theHFA,National Societies have twodistinct advantages: their own, parallel structures to that of their governments – from the national to the community level – and aworldwide network ofmembers and volunteers who live in the heart of their communities.This putsNational Societies in a unique position to assist in, advise on and advocate for the implementation of all of theHFA’s priorities for action.

This document describes some of theways thatNational Societies in theAsia-Pacific region have been contributing to the implementation of the five priorities of theHFA, grouped according to themain activities under each priority.2

HFA priority 1: Ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for implementation

Institutional mechanisms __________________________________________________________________ National Societies in theAsia-Pacific region havemade progress in establishing and enhancing their organizational structureswith respect to disaster risk reduction. Somehave been active in creating or strengthening institutional mechanisms and agreements, clarifying their auxiliary responsibilities with their governments.

InCambodia, theCambodianRedCross Society and the International Federation provided the governmentwith tech- nical and financial support for the development and strengthening of theNationalDisasterManagementCommittee to enable it to take on themain responsibility for disastermanagement in the country.

Multi-sectoral policies and plans __________________________________________________________ National Societies across the region have been endeavouring to incorporate a risk reduction element into their policies, strategies and plans, aswell asmainstreaming it in sectoral programmes, especially community-based programmes. For example, in its disastermanagement policy adopted in 2008, theNepal RedCross Society sets out activities specifically aimed atmainstreaming disaster risk reduction,with a focus on the community level, to be carried out in cooperation with the government and other organizations.

Advocating for the institutionalization of disaster risk reduction and its inclusion in the development policies and plans of the local authorities and other organizations has also been a key task ofNational Societies in recent years. InCam- bodia,China, Indonesia,Nepal, Pakistan, the Philippines and elsewhere,National Societies have been pressing for the inclusion of community-level disaster risk reduction plans in local government development plans.These efforts have proven highly successful, with governments increasingly accepting this approach and encouraging partnershipswith local governments andNational RedCross andRedCrescent Societies.

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The Hyogo Framework for Action

The World Conference on Disaster Reduction convened in Kobe, Japan, in 2005 identified five priorities in its action plan, the Hyogo Framework for Action: • Ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for implementation

• Identify, assess and monitor disaster risks and enhance early warning • Use knowledge, innovation and education to build a culture of safety and resilience at all levels

• Reduce the underlying risk factors • Strengthen disaster preparedness for effective response at all levels.

Legislation to support disaster risk reduction __ The IndonesianRedCross Societywas invited by the govern- ment to participate in a three-year process to develop theNa- tional ActionPlan forDisaster Reduction 2006–2009 and to formulate guidelines for theNationalDisasterManagement Authority. In addition, theNational Society played a key sup- port role to the People’sConsultativeAssembly in reviewing and providing input to the draft of theDisasterManagement Bill.

Many otherNational Societies, such as those in theCook Is- lands,Nepal and Sri Lanka, have participated in similar processes. At the regional and global level,National Societies have also advocated for the implementation of disaster risk re- duction activities in accordancewith national laws, policies and strategies, bothwithin and outside theRedCross andRed CrescentMovement (theMovement).

Decentralization of responsibilities and resources __________________________________ Gradually, clear roles and responsibilities in disaster risk reduc- tion are being assigned and the necessary resourcesmobilized at different levels.TheMalaysianRedCrescent Society, for exam- ple, has set up disastermanagement coordination centres in five zones of the country, expanded its network of chapters and branches to disaster-prone areas and clarified the responsibilities of and resources for each level with regard to disaster risk reduc- tion activities.TheCambodianRedCross Society is currently implementing a nationwide disaster preparedness programme, which is supporting the decentralization of initial disaster re- sponse responsibilities to the 24 branches across the country.

Muchhas also been done to support community-based disaster risk reduction, a focus being encouraged by the International Federation and implemented bymanyNational Societies throughout theAsia-Pacific region.

Assessment of human resources and capacities Thewell-preparedNational Society is a key assessment tool that helpsNational Societies to regularly review their progress in building capacity and enables them to analyse their strengths and identify areas for improvement. It also facilitates tailored support frompartners bothwithin and outside the Interna- tional Federation.

National Societies such as in Laos andTimor-Leste have used thewell-preparedNational Society tool to develop their disaster preparedness programmes and to identify human resource needs nationally and,most importantly, in hazard-prone areas of the country.

Fostering political commitment__________________ SomeNational Societies have engaged in advocacy efforts at all levels, from local to global, to promote the implementation of

The Red Cross Red Crescent and the Hyogo Framework for Action – Focus on the Asia-Pacific region

Chronology of Red Cross Red Crescent commitment to disaster risk reduction

1984 The Swedish Red Cross publishes a ground- breaking study entitled “Prevention is better than cure”, stressing the importance of disaster prevention.

1980s A new direction is taken, with development-fo- cused programmes, including community-based disaster preparedness activities, in Africa, Asia and Latin America.

1999 A new disaster preparedness policy recognizes disaster preparedness as a link between emer- gency response, recovery and development.

2003 The Agenda for Humanitarian Action adopted at the 28th International Conference of the Red Cross and Red Crescent affirms a plan of ac- tion aimed at reducing vulnerability to disaster impacts and risks.

2005 The International Federation supports the Hyogo Framework for Action and adopts its own Global Agenda, which includes an emphasis on reducing disaster risk.

2007 Disaster management and recovery policies are drafted, along with a disaster management strat- egy that places a major emphasis on disaster risk reduction. The declaration Together for Humanity, adopted at the 30th International Conference of the Red Cross and Red Crescent, affirms the importance of ensuring that “environmental degradation and adaptation to climate change are integrated, where relevant, in disaster risk reduction and disaster management policies and plans”. The Global Alliance for disaster risk reduction is created with the aim of scaling up the Inter- national Federation’s efforts to reduce disaster risks among the most vulnerable communities where National Red Cross and Red Crescent Societies operate.

2008 A Framework for community safety and re- silience is developed with a focus on disaster risk reduction through the building of safer and more resilient communities.

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disaster risk reduction to their governments and the public, and havemade a community-centred approach to disaster risk reduction a focus of their agendas.

TheBangladeshRedCrescent Society encouraged local authorities to improve their services and/or policies related to dis- aster risk reduction for the benefit of vulnerable communities.This included providing access to government livestock services, enforcing river erosion policies and creating awareness of the importance of adopting safe sheltermeasures.

The Solomon IslandsRedCross has beenworking closelywith the government’sNationalDisasterManagementOf- fice, the Solomon IslandsClimateChangeDivision andOffice, and the Solomon IslandsMeteorological Service to en- sure that climate change issues are included in vulnerability reduction

Community participation __________________________________________________________________ In all community-based disaster risk reduction programmes, such as those being implemented by theNational Soci- eties inChina,Kiribati,Nepal, the Philippines and elsewhere, the participation of communitymembers is encouraged. This not only gives them the opportunity to have their voices heard but also builds their confidence in contributing to the reduction of their vulnerability and reinforcing their coping capacities.

A self-reliant spirit has been fostered in communities through awareness-raising andmobilization campaigns, leading to people taking tangible actions to reduce risk.

HFA priority 2: Identify, assess and monitor disaster risks and enhance early warning

Risk assessment____________________________________________________________________________ Theuse of vulnerability and capacity assessment (VCA), geographic information systems (GIS) and other risk-assess- ment tools to identify andmonitor disaster risks is nowwidespread amongNational Societies.

After the IndianOcean tsunami, the IndonesianRedCross Society stepped up its activities, using bothVCAandGIS, to identify local risks and relevant solutions for recovery and community-based programmes in the affected areas of Aceh andYogyakarta.Mapswere created to illustrate survey results, shelter locations andhousing construction areas.Themaps have been used by theNational Society to identify further needs and coordinate use ofRedCross andRedCrescent part- ners’ resources.

TheMongolianRedCross Society, through its regional disaster preparedness centres, has developed a series of regional hazardmaps (marking drought areas, earthquake-prone areas, dangerous lakes, hazardousmountains andwater sources) in consultationwith nomadic herders and volunteers.The regionalmaps have been consolidated into a national hazardmap, whichwas sharedwith the government and is used by theNational Society to assess its preparedness and response needs.

National Societies have also contributed to the development of the International Federation’s guidelines for risk assess- ment, includingmulti-hazard risks and socio-economic analysis at regional and global level.These tools have been used and adapted to the local context and for disaster risk reduction programming. Increasingly, risk assessments are being sharedwith other sectors and stakeholders.

Indicators on disaster risk reduction and vulnerability ____________________________________ The International Federation facilitated the extraction of lessons learned and best practices from theDisaster Reduc- tionPhase II programme supported by theUnitedKingdomDepartment for InternationalDevelopment (DFID).On the basis of these lessons,National Societies in SouthAsia have been able to contribute to the development of disaster risk reduction indicators and theCharacteristics of a disaster-resilient community.The indicators are currently being field-tested byNational Societies in the region.

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5The Red Cross Red Crescent and the Hyogo Framework for Action – Focus on the Asia-Pacific region

Children drawing what disasters mean to them - This was part of a VCA exercise that was carried out in Sri Lanka.

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Data and statistical loss information ______________________________________________________ The creation of regional networks, such as the SouthAsiaDisasterManagementWorkingGroup, the South-east Asia RegionalDisasterManagementCommittee and the PacificDisasterManagement Forum, has improved access to dis- aster damage andneeds data collected by the government and other organizations, facilitating coordinated decision- making byNational Societies. Communication systems have been set up and are beingmaintained byNational Societies, and communication channels betweenNational Societies and betweenNational Societies and the Interna- tional Federation, aswell aswith other stakeholders, have been enhanced to ensure a smooth and effective informa- tion flow.

The International Federation’sDisasterManagement Information System (DMIS) is nowwell established andmany National Societies have received training in its use,making timely information available in the event of a disaster.The DMIS iswidely used as a tool for easy access to disaster-related information.

Sub-regional capacity-building events inEast, South and South-east Asia and the Pacific have enabled staff and volun- teers from all of the region’sNational Societies to improve their understanding of and capacities with regard to the data and information assessment techniques that are guided by the International Federation’s Guidelines for assessment in emergencies.3 Furthermore,manyNational Societies, for example inVietNam, regularly participate in damage and needs and recovery assessment teams alongside representatives of other humanitarian agencies and government ministries.

TheWorldDisasters Report, which is produced annually and iswidely distributed toNational Societies and other hu- manitarian organizations, is a recognized reference on disaster statistics from around theworld.

Early warning______________________________________________________________________________ TheCambodianRedCross Society has piloted a community-level FloodEarlyWarning System in the provinces of Kandal, Kratie andPreyVeng as amajor component of its disaster risk reduction approach.The pilot project involved workingwith local communitymembers andRedCross volunteers, who took dailywater-levelmeasurements and set up a systemof community notice boards indicatingwhen floodingwas likely.Thewater-levelmeasurementswere also relayed to theMekongRiverCommission,whichwas able tomonitor the river flow and send additional earlywarning messages to communities further downstreamvia radio networks.The project has increased the awareness and capaci- ties of communities to copewith and respond to flood risk.

The earlywarning capacity of theRedCrossRedCrescent has been strengthened, particularly byNational Societies in high-risk countries, through the training of staff and volunteers and by having staff on duty seven days aweek, espe- cially during seasonal hazards. Improved procedures exist to ensure that understandable earlywarningmessages are sent out and disseminated to at-risk vulnerable communities (referred to as “the lastmile”).

WhenCyclone Sidrwas heading for the coastal areas of Bangladesh in 2007, trainedRedCrescent volunteers raised the alarm in the villages,many by riding around onbicycles and shoutingwarningmessages throughmegaphones.The simple earlywarning system,made up of 40,000men andwomen trained in disaster response, was set inmotionwhen authorities alerted the volunteers to the imminent arrival of theworst cyclone to hit the country in a decade. As a re- sult, an estimated 3.2million people evacuated their homes andmore than amillionwere safely inside shelters when Cyclone Sidr struck.More than 3,500 peoplewere killed and about 2million displaced by the cyclone, butUnitedNa- tions (UN) andRedCrossRedCrescent officials estimate thatwithout thewarning system the toll could have been as high as that caused by a cyclone of similar intensity in 1970,which killed 300,000 people.

A number ofNational Societies have established a rapportwith their respectiveNationalMeteorologicalOffice to re- ceive timely hydro-meteorological information, enabling them to disseminate this information to the general public through their staff and volunteers. Linkswith research institutions availing of updated scientific and technological in- formation onhazards have improved knowledge, which has then been applied in disaster risk reduction programming.

TheRedCross Society of theDemocratic People’s Republic ofKorea has access to and linkswith theNational Early Warning System so that it can receivewarningmessages and relay them to households and communities through its network.

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Fresh initiatives to learnmore about newhazards and threats and to devise bettermeans to tackle themhave also been taken by a number ofNational Societies.

HFA priority 3: Use knowledge, innovation and education to build a culture of safety and resilience at all levels

Information exchange and cooperation __________________________________________________ Newmechanisms for information sharing and cooperation have been established anddeveloped at global, regional and national level.The South-east AsiaRegionalDisasterManagementCommittee, the SouthAsiaDisasterManagement WorkingGroup and the Pacific EmergencyManagementCoreGroup, at regional level, and theCambodiaDisaster RiskReductionForumand theDisaster PreparednessNetworkNepal, at country level, serve as forums forNational Societies to share experiences, best practices and challenges in implementing disaster risk reduction programmes, to pool knowledge on emerging risks such as climate change, and to seek advice and technical support from their peers and partners.

The sharing of good practice in and knowledge of disaster risk reduction amongNational Societies, other humanitarian organizations andnational authorities is promoted throughnational and regionalmeetings andworkshops.The regional network ofNational Societies in South-east Asiameets to exchange experiences and develop a commonposition on means to address climate change.The collaboration has resulted in a guidance document forNational Societies covering issues relating to climate change adaptation. Addressing climate change should not be considered as a new area of activity forNational Societies per se but be part of an overall approach to disaster risk reduction and agreement on the use of ap- propriate tools to assist community preparedness for hazards that are also appropriate for responses to climate change.

Networks and dialogue __ Through regional exchanges, the Thai,Cambodian, Lao andViet- nameseNational Societies were able to drawon their collective experi- ences to develop a sub-regional ap- proach to the elaboration of contingency plans in the event of flooding of theMekong river, which transcends national borders.The National Societies shared their indi- vidual approaches and pooled knowledge to develop a common approach and format ensuring con- sistency and also reducing the po- tential formisunderstandingswhen engaging in cross-border assistance.

In addition, existing networks for knowledge sharing and support re- garding disaster risk reduction activi- ties, such as theDipECHO4 partners’ network in South-east Asia and re- gionalNational Society networks, have been further developed and ex- panded to bemore inclusive ofRed Cross andRedCrescent partners.

7The Red Cross Red Crescent and the Hyogo Framework for Action – Focus on the Asia-Pacific region

Glossary

Disaster risk reduction Risk reduction aims to minimize the impact of natural hazards like earthquakes, landslides and hurricanes on disaster-prone communities by doing everything possible before disaster occurs to protect lives, limit damage and strengthen their capacity to bounce back quickly from adversity. A natural hazard only becomes a disaster when it dis- rupts society’s normal functioning. Risk reduction is a framework of el- ements ranging from early warning of hazards to community self-assessment and action to reduce local vulnerability.

Disaster Disaster hits all countries, rich and poor. But it is poor people who usually suffer the most. Poor people often live in unprotected or dan- gerous environments. A natural disaster can severely disrupt the way they cope with life and hinder their development.

Disasters damage infrastructure, reduce productivity and generate so- cial tensions. Disasters consume precious resources that could be bet- ter directed towards development. Disasters can wipe out years of development in minutes. Vulnerable communities are often confined to cycles of disaster and response

To enhance the effectiveness of risk reductionmeasures, the SouthAsiaDisasterManagementWorkingGroup came together to create theBuilding SaferCommunities initiative, supported byDipECHO.Akey component of this ini- tiative is to develop a standardized community-based disaster risk reduction training curriculum targeting field practi- tioners in order to improve the overall quality and impact of disaster risk reduction training programmes in SouthAsia.

Inclusion of disaster risk reduction in formal and informal education ____________________ There are numerous examples ofNational Society involvement in the development and implementation of school dis- aster risk reduction programmes, including the development of information, education and communicationmaterials for use in teacher training anddisaster preparedness awareness-raising in schools.TheNational Societies in Fiji, In- donesia,Nepal, Sri Lanka,VietNamand elsewhere have been advocating for the inclusion of disaster risk reduction in formal school curricula, in cooperationwith national and international organizations such asOxfam, Save theChil- dren,UNICEF,GTZand theUNInternational Strategy forDisaster Reduction (ISDR).

The Fiji RedCross Society recently revised a booklet on disaster preparedness for primary school children first pub- lished in 1981 to raise their awareness of hazards and to encourage them to be proactive in reducing risks in school, at home and in the community before and during disasters.

TheNepalRedCross Society piloted a school-based disaster risk reduction programme from2004 to 2006 in 40 schools in three districts prone to earthquakes, floods and landslides.Textbookswere produced to help students de- velop disaster preparedness plans and hazardmaps. First-aid skills were also taught. Some1,000 students participated in peer learning sessions on disastermanagement. In addition, a safe unit was built in each school to provide shelter during and after disasters.

Training and learning on disaster risk reduction __________________________________________ ManyNational Societies have developedmaterials on disaster risk reduction and organized training in community- based disaster risk reduction, damage andneeds assessment, andVCA for different target groups, includingmanage- ment practitioners, communitymembers,National Society staff and volunteers, government officials, and staff of other organizations.

InAfghanistan, Bangladesh, India,Nepal, Pakistan and Sri Lanka, theNational Societies, with the support of the In- ternational Federation and in cooperationwith theAsianDisaster PreparednessCenter, have launched an initiative to develop a standardized disaster risk reduction training curriculum for field practitioners and communitymembers.The aim is to improve the overall quality and impact of disaster risk reduction training programmes in SouthAsia. Pilot training eventswere conducted in Pakistan and Sri Lanka to obtain comments from field staff and volunteers to ensure that the accompanying handbook on community-based disaster risk reduction is applicable to local contexts.

The International Federation has facilitated the application ofVCAby organizing regional andnational trainingwork- shops onVCA learning by doing and lessons learned fromdisaster risk reduction and recovery programmes through- out theAsia-Pacific region.

The Solomon IslandsRedCross is developing a new toolkit forworkingwith communities based on its field experi- ence of the International Federation’sVCAandWWF’sClimateWitnessToolkit.The toolkit is designed to gather baseline information on community vulnerability to disaster and climate change using participatorymethods.The Solomon IslandsRedCrosswill analyse the information collected to identify how it canworkwith communities to help thembetter prepare for disasters and the impacts of climate change.

Research __________________________________________________________________________________ The IndianRedCross Society undertook research on the role ofwomen in disaster risk reduction and on the relation- ship between climate change and disasters and then used the results to improve its policy and practice. In 2004,with the support of the International Federation, theNational Society also conducted a study onparticipatory action learn- ing in programming for community-based disaster risk reduction activities to enhance coping skills and sustain com- munity participation.

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National Societies, in cooperationwith civil society organizations, including academic institutes, are increasingly in- volved in research or studies on a range of issues related to disaster risk reduction, such as: climate change, avian in- fluenza,migration, risks in urban settings, unknown risks, and the integration of disaster risk reduction into socio-economic development processes.

Public awareness and media ______________________________________________________________ National Societies have developed awealth of excellent communicationmaterials (brochures, leaflets, posters, plays, street drama, television and radio programmes, etc.), often in cooperationwith other organizations, includingUN agencies and internationalNGOs, to raise public awareness of commonhazards and to promote practical behaviour to improve safety and resilience.

In 2006, theThaiRedCross Society conducted a campaign entitled “Disaster SafetyMind” usingmascots,mobile the- atre, cartoons, video presentations, calendars and pamphlets to promote disaster preparedness, first aid and fire safety amongRedCross youth volunteers, students and the general public in the tsunami-affected provinces of PhangNga, Phuket and Satun. In light of the campaign’s success, theNational Societywas asked to expand the activities into other areas. A total of 5,084 people attended events, including 4,531RedCross youth volunteers and students, 258 teachers and 295 communitymembers.The activity also enhanced networking and close coordinationwith local stakeholders, in particular provincial RedCross chapters, theDisaster Prevention andMitigationOffice, and theOffice forNon-for- mal EducationCentres.

On the occasion ofWorldEnvironmentDay (5 June), theTuvaluRedCross Society launched a two-week campaign to raise community awareness of climate change impacts and to encourage people to become active agents for sustainable development. Activities included a poster and essay competition in schools, a community-awareness campaign onbio- fuels, and a climate changeworkshop that featured a screening ofAn InconvenientTruth.TheTuvaluRedCross also coordinated a clean-up campaign onFunafuti and sponsored a radio quiz for youth groups, which focused on climate change and disaster risk reductionwith a special emphasis on healthy coral reefs andwastemanagement.

TheMongolianRedCross Society has produced a series of posters outlining preparedness actions for families to take to reduce the impact of drought and “dzud” (severewinterweather conditions) and improve access to feed andwater for livestock.The posters have been distributed throughout the country among both urban populations andnomadic herding families.

The Solomon IslandsRedCross, in cooperationwith theEnvironmentMinistry,MeteorologicalOffice andNational DisasterManagementOffice, produced a set of posters outlining the impacts of climate change in the country and promoting traditionalmethods of copingwith them.The posters have also been turned into aDVDfor use in com- munities and schools.

9The Red Cross Red Crescent and the Hyogo Framework for Action – Focus on the Asia-Pacific region

Risk reduction campaign In recent years there has been a growing recognition that strengthening resilience to disasters is not only about disaster management; a community/household with sustainable livelihoods, good levels of health care and access to a strong and accountable civil society is also better able to withstand hazards. How- ever, it is important that these development gains are protected from disasters. Fully mainstreaming dis- aster risk reduction in to its development work, therefore, continues to remain a priority for the International Federation. The campaign while continuing to promote disaster preparedness and disas- ter mitigation, will take measures at all levels – governance, policy, management and practice – to main- stream disaster risk reduction.

HFA priority 4: Reduce the underlying risk factors

Theplanting ofmangroves is being encouraged in coastal areas ofVietNam to protect the sea dyke system and reduce the intensity of strongwinds and seawaves, thus protecting local communities from these potential hazards. In addi- tion,mangrove roots provide excellent conditions formarine creatures, which is helping to balance the ecosystem. Other types of trees are being planted in areas prone to landslides as part of community-based disaster risk reduction programmes.

TheRedCross Society of theDemocratic People’s Republic ofKorea has incorporated tree-planting into its commu- nity-based disaster preparedness programmes in areas threatened by soil erosion.The programme is implemented by RedCross volunteers and youth alongside technical workers from forestry stations.

Integration of disaster risk reduction and climate change adaptation ____________________ National Societies in the Pacific and South and South-east Asia sub-regions have been implementing climate change adaptation initiatives, including participation in regional forums andworkshops, to raise concerns about changing weather patterns and their impacts and implications for disaster risk reduction.They are also integrating climate change adaptation into disaster risk reduction programmes.National Societies in theCook Islands, the Solomon Is- lands andTonga have been especially active in incorporating climate change adaptation into their ongoing disaster risk reduction activities, aware as they are that climate change is a real threat to their countries’ populations.

InMarch 2008, a national RedCrossworkshopwas organized in Indonesia to define a strategy to reduce the risks and impacts of disaster through climate change adaptation. In achieving this, it was decided theway forwardwould involve advocacy and awareness-raising, the development of tools and approaches to climate change adaptation, and the inte- gration of climate change into community-based programmes such as disaster preparedness and health promotion.The IndonesianRedCross Society also intends to integrate climate change adaptation into its existing strategic plans, poli- cies and trainingmaterials.

Food security for resilience ________________________________________________________________ Where appropriate,National Societies are helping to boost local agricultural production through projects such as sustain- able farming,microfinance, small-scale irrigation systems and the establishment of food insecurity early alert systems.

In response to chronic food shortages that occurred over a two-year period due to drought and the failure of the annual potato crop, theTimor-LesteRedCross Society supported communities facedwithmalnutrition andhunger in estab- lishing farming collectives (each comprising 20members, at least 20 per cent ofwhomwerewomen) to develop veg- etable gardens as an alternative food source.The communitywas able to generate funds through sales, aswell as having fresh vegetables for personal consumption.Upon the request of the community and theTimor-LesteRedCross Soci- ety, theMinistry of Agriculture supported the project by providing the farmerswith vocational and agricultural skills development to improve productivity.

Health and disaster risk reduction ________________________________________________________ “Community First Aid” and “Health inEmergencies” are amongNational Societies’ core activities and are increasingly being integrated into disaster risk reduction efforts.TheLaoRedCross, for example, is piloting a programme integrat- ing community-based disaster preparedness and community-based first aid, the construction ofmulti-hazard-resistant health facilities and response to avian influenza.

TheRedCross Society ofChina, recognizing that community safety and resilience ismost effectively achieved through integrated actions, has developed a community vulnerability reduction programme to assist themost flood-prone and flood-affected villages inGuangxi andHunanprovinces. An initial assessment identified all aspects of community vul- nerability, needs and possible solutions.The resulting programme combines sanitation (toilet construction), health and hygiene education, disaster preparedness andwater supply activities.Through this integrated approach, communities’ access to a safewater supply, improved sanitation andhygiene education help prevent the spread of disease, while

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health education ensures that they have the resources and knowledge to support a sustainable improvement in their general health and living conditions. In addition, the inclusion of disaster preparedness activities encourages communi- ties to develop locally appropriate strategies tomitigate the impact of disasters and reduce their vulnerability.

Use and protection of public facilities ____

RedCrossRedCrescent vol- unteers and community members are often called upon to assist with the up- keep of public facilities, es- pecially ones constructed in communities and designed to be safer andmore resilient to different types of hazards. Cyclone shelters were built in coastal communities of Bangladesh and India, with the support of the Interna- tional Federation, partner National Societies and other humanitarian organizations, as part of a cyclone pre- paredness programme to provide safe places for the local people to seek shelter. These places aremaintained by communitymembers and RedCrossRedCrescent vol- unteers to ensure that they are ready for usewhen needed.

Schools and hospitals are also used for evacuation and temporary shelterwhendis- asters occur.Within recovery programmes in Indonesia, the Philippines and Sri Lanka, theNational Societies are endeavouring to con- struct or renovate schools and hospitals in a saferman- ner. Local people can then seek shelter there if a disaster strikes.

Safemulti-purpose commu- nity buildings, such as menasa in Indonesia and community centres inNepal and Sri Lanka, have also been constructedwith the

11The Red Cross Red Crescent and the Hyogo Framework for Action – Focus on the Asia-Pacific region

Samoa, September 2007. Fa’apopo Samoata and family are helped by Red Cross volunteers to create a vegetable garden to help fight food shortage for the poor in Palisi, Apia.

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contributions of communitymembers and local authorities/agencies. In normal times, these buildings are used for communitymeetings, training or gatherings, but they can be turned into safe shelters during times of disaster.

Recovery schemes and social safety nets__________________________________________________ Within community-based disaster risk reduction or recovery programmes,National Societies are supporting communi- ties in developing local safety nets that can help people facing a crisis. Examples of this are community-managed emer- gency funds normally set up for small-scale crises. Community committees can decide to use the funds to support vulnerablemembers suffering from illness and unable to cope by themselves. A recovery policy is being developed by the International Federation.

Vulnerability reduction ____________________________________________________________________ Vulnerability is being addressed byNational Societies supporting communitymembers in diversifying their livelihoods and income sources. InMongolia, for example, a livelihood concern for nomadic herders is access to sufficient food for their livestock during the longwinters. After a series of dzud in the early 2000s, stocks of feedwere running low.To address this problem, theMongolianRedCross Society, with support fromECHOand togetherwith the communities concerned, set up a programmeof communal hay harvesting, which has successfully ensured that there have been ade- quate feed stocks for subsequentwinters.

InNepal, a livelihood component of theDFID-supportedDisaster ReductionPhase II programmewas highly valued by vulnerable groups. Beneficiaries were selected through a participatory process, providedwith community-managed loans and vocational training, and given opportunities to diversify their sources of income. Livelihood activities ranged from small businesses, such as small-scale rice trading, to vegetable farming and animal husbandry. As a result of this initiative, the local authorities were able to rankmany beneficiaries as having been lifted from the poor to themedium- poor and better-off categories.

Public-private partnership ________________________________________________________________ Partnerships and linkageswith the public and private sectors are being developed at all levels to obtain their support for and cooperation in disaster risk reduction activities.TheThaiRedCross Society has established a partnershipwith Tesco Lotus, a leading retailer inThailand,whereby the company donates relief items up to a certain value and trans- ports relief goods for free to anywhere in the country.The SingaporeRedCross Society has agreementswithMcDon- ald’s for food relief, with theCivic Ambulance Services for pandemic response andwithAlexandraHospital for the deployment of volunteers.

Land-use planning and building codes ____________________________________________________ In their recovery programmes, theNational Societies of Indonesia (after the tsunami in 2004), the Philippines (after the typhoon in 2007) and Sri Lanka (after the tsunami in 2004) consulted communitymembers and local authorities on the location anddesign of newhouses to be built so that peoplewould be safer in the event of a similar disaster.To help protect the rights of vulnerable people, theNational Societies also negotiatedwith the local authorities to provide land use certificates to the housing beneficiaries as a precondition of construction in their areas.

Rural development plans and disaster risk reduction ____________________________________ When carrying outVCAs,National Societies are encouraging the establishment of links between community prepared- ness and response plans and development plans to ensure support from the local authorities and other organizations for programme implementation. Examples of effective partnerships can be found inCambodia,China andNepal, where theNational Societies have established excellent cooperationwith local authorities.

In its community-based disaster preparedness programme initiated in 2003 after severe flooding in previous years, the CambodianRedCross Society helped communities inKratie province set up commune disastermanagement commit- tees.Villagers, volunteers and community-based organizationsworked together to increase understanding of the vari- ous hazards facing communities and to teach people how to copewith them.After conducting aVCA, theNational Society, in cooperationwith the local authorities, facilitated the formulation of community disaster preparedness and risk reduction plans and linked themwith community development plans to ensure that the plans achieved both devel- opment and disaster risk reduction goals.

12 International Federation of Red Cross and Red Crescent Societies

13The Red Cross Red Crescent and the Hyogo Framework for Action – Focus on the Asia-Pacific region

HFA priority 5: Strengthen disaster preparedness for effective response at all levels

Disaster management capacities __________________________________________________________ The International Federation iswell known for its disaster response activities.Over time, theNational Societies have de- veloped policies, standard procedures, organizational structures, and human andmaterial resources to enable them to provide an effective response to natural disasters andmeet the needs of disaster-affected people rapidly and efficiently.

The International Federation has produced aDisaster response and contingency planning guide forNational Societies, supports the training of disaster response teams,maintainswarehouseswith pre-positioned relief stocks, and provides disaster response tools andmaterials for use at various levels.National Societies are also involved in Inter-AgencyCon- tingency Planning processes at the country level.

Dialogue, coordination and information exchange between the disaster management and development sectors ______________________________________ The International Federation has been assisting PacificNational Societies in establishing closeworking relationships with organizationsworking in the fields of climate change and disaster risk reduction, such asWWF, theUNDevelop- ment Programme (UNDP) and the Pacific IslandsAppliedGeoscienceCommission (SOPAC).ThePacificCommuni- ties andClimate Forum, jointly organized inNovember 2007 by the International Federation,UNDP, theRed Cross/RedCrescentClimateCentre andWWF, provided an opportunity for the PacificNational Societies and civil so- ciety practitioners from the disastermanagement, health and environment sectors to share the latest information on climate change, put forward ideas for community-based activities in the Pacific Islands region and identify opportuni- ties for further partnership and information exchange.

Coordinated regional approaches ________________________________________________________ To ensure a consistent approach to disaster responsewithin theMovement,National Societies are encouraged to use and strengthen global and regional disaster responsemechanisms and are supported in doing so.

Throughout theAsia-Pacific region,RegionalDisaster ResponseTeams have been establishedwith the aimof optimiz- ing human resources and expertise in support of national and international disaster response operations. In the event of a disaster, teammembers are deployed at short notice to assist aNational Society in conducting a relief operation and to undertake activities such as assessment, core relief functions (i.e. food,water, health, telecommunications, logistics, shelter and restoring family links) and,when required, support for humanitarian coordination.

Within theAsia-Pacific region, a total of 530 potential RegionalDisaster ResponseTeammembers have been trained, approximately 250members are currently active and ready for deployment, and 131have been previously deployed.

Disaster preparedness and contingency plans ____________________________________________ The response of theMyanmarRedCross Society to the deadlyCycloneNargis inMay 2008was enhanced through ef- fective consultationwith the local authorities and the launch of a contingency planning process prior to the cyclone. Through a series ofmeetings and regular dialoguewith 26 government departments, theMyanmarRedCross Society was able to foster understanding of its role in responding to disasters and the importance of developing contingency plans. As a result of these efforts, theNational Societywas able to respond to the needs of people affected byCyclone Nargis immediately after it struck theAyeyarwady delta and the city of Yangon. Furthermore, as the authorities were fully aware of theNational Society’s role and actions in such situations, accesswas permitted to the affected areas and customs dutieswaived.

National Societies are increasingly developing disaster response and contingency plans formajor hazards and conduct- ing simulation exercises at all levels, especially in disaster-prone communities, to ensure that the planswork in practice. The plans are often reviewed andupdated annually or in the aftermath of a disaster. Links are alsomade between the National Society’s plans and the Inter-Agency StandingCommittee’s country-level contingency plans.

Emergency funds __________________________________________________________________________ Emergency funds (national and sub-national emergency or contingency funds and community funds) have been estab- lished at all levels to enable an immediate response to disasters. If a disaster exceeds local capacities to respond, support can be requested fromhigher up the chain. In the event of a large-scale disaster, national and international appeals can be launched. Approximately 70 per cent ofNational Societies in theAsia-Pacific region have their own emergency funds in place.

Volunteer participation ____________________________________________________________________ Within theAsia-Pacific region, there are currently 62millionRedCross andRedCrescent volunteers andmembers. Theymake up 65per cent of the International Federation’s total volunteer numbers.National Society volunteers are the backbone of disaster risk reduction activities, so allNational Societies strive to increase andmaintain volunteer numbers at all times.TheRedCross Society of theDemocratic People’s Republic ofKorea improved its volunteer management by formulating guidelines clearly describing the roles of volunteers in emergency response and disaster preparedness, thus helping them to function better in their communities.

In South-east Asia, theNational Societies of Indonesia,Malaysia,Myanmar, the Philippines,Thailand andVietNam have developed a set ofminimum standards for the effectivemanagement of volunteerswho contribute to regular and emergency disastermanagement activities.The aim is to build a healthy and effective volunteermanagement frame- work to support and recognize the valuable input ofNational Society volunteers inmeeting the needs of vulnerable communities in preparing for, themitigation of and the possible prevention of and response to disasters.

Cross-cutting issues ________________________________________________________________________ In their programmes,National Societies have also taken into account the cross-cutting issues highlighted in theHFA. These include: � factoring an integratedmulti-hazard approach to disaster risk reduction into policies, plans and programming relat- ing to sustainable development, relief, rehabilitation and recovery activities

� integrating a gender perspective into all disaster riskmanagement policies, plans and decision-making processes

14 International Federation of Red Cross and Red Crescent Societies

Pictured, guard Cao Thanh Son, who is the head of 7-10 guards who protect the forest from fishermen who would cut mangroves to expand their seafood farms. In April he looks for the “fruit” of the mangroves, long pods that he can plant into the mud. So far, 30km of Nam Dinh province’s 80km coastline have been protected by 10,000 ha of mangroves.

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� taking into account cultural diversity, age and vulnerable groups in disaster risk reduction planning � empowering communities and local authorities to reduce disaster risk � international and regional cooperation, including the transfer of knowledge, technology and expertise to enhance capacity building for risk reduction.

National Societies’ approach to and consideration of these cross-cutting issues in their programming and interventions are outlined below. It is worthmentioning that the International Federationwas instrumental in the development of theHumanitarianCharter andMinimumStandards inDisaster Response (the Sphere Project5), which sets standards and indicators for cross-cutting issues, including gender balance and participation. It also had a leading role in the for- mulation of theCode ofConduct for the International RedCross andRedCrescentMovement andNon-governmen- talOrganizations inDisaster Relief,6 which includes the principle of respect for culture and custom.

A multi-hazard approach __________________________________________________________________ The Sri LankaRedCross Society applies amulti-hazard approach to all of its community-based disaster risk reduction programmes.Communitymembers, facilitated byRedCross staff and volunteers, identified hazards and risks facing their communities, such as floods in themonsoon season, drought and fire in the dry season, landslides inmountain- ous areas, and other health hazards due to environmental degradation. Secondary information on local hazardswas also obtained fromgovernment hazard and risk assessment data (e.g., theDisasterManagementCommittee’s country risk profile and landslide information from theNational BuildingResearchOrganisation) to get a clearer understanding of the issues. Possible solutionswere then discussed to address the problems caused by the hazards.

All hazards and risks and their possible impacts are taken into consideration duringVCAs, a participatory risk assess- ment process pioneered by the International Federation. Findings from such assessments help to determine the appro- priate activities to include in programmedesign andpreparation, for examplemulti-hazard earlywarning systems and disaster response plans that addressmulti-hazard situations.

Gender perspective and cultural diversity ________________________________________________ Efforts are beingmade to address the issue of gender inequality in programme areas. Although ensuring a gender per- spective is not just aboutwomen–but rather about bothwomen andmen– experience shows thatwomen are often adversely affected by disasters owing to expected social and cultural roles or to prejudices.

Maximizing the capacities of bothmen andwomen for disaster risk reduction activities increases the effectiveness of such activities and reduces vulnerabilitymore substantially. In the long term, this will help to change gender roles, ulti- mately achieving gender equality, which is the thirdMillenniumDevelopmentGoal.

In its community-based disaster preparedness programme, theBangladeshRedCrescent Society pushed formore fe- malemembers in theRedCrescent volunteer teams.This enabled theNational Society to gain access to some of the most vulnerablewomenwho, owing to local custom,were not allowed to leave their houses ormeet in the presence of men, and to get them involved in project activities that resulted in improvements in their lives and those of their fami- lies.

On the basis of theMovement’s fundamental principle of impartiality, theNational Societies recruit staff and volun- teers from all backgrounds, irrespective of race, religion or culture, towork alongside each other and to help provide better services to vulnerable groups.

Community and volunteer participation __________________________________________________ National Society disaster risk reduction activities are founded on the principle of inclusion of all stakeholders.This means that communities are key partners in developing an understanding of the risks and in designing and implement- ing jointly identified and prioritized actions to enhance safety and resilience.Communities are at the centre ofNa- tional Society actions, and volunteers are the backbone of disaster risk reduction actions.

A recent pilotVCAconducted by theNational Society in 10 villages in Laos created considerable interest among com- munitymembers andRedCross volunteers.The local people got enthusiastically involved in identifying critical issues and finding appropriate solutions and prioritizing community action to reduce the possible impact of future disasters,

15The Red Cross Red Crescent and the Hyogo Framework for Action – Focus on the Asia-Pacific region

thereby reducing their vulnerability.The leader ofNakiaou village inKhamMuonprovince said: “Thanks to this process, our village benefited.Clearly some actions need to be considered anddiscussedmore among ourselves for fu- ture reduction of risk, including the rebuilding ofwhatwe call our ‘lifeline bridge’.”

Capacity building and technology transfer ________________________________________________ National Societies have a long history ofmutual support in terms of both technical and financial assistance.This takes place in the core programme areas of organizational development and disastermanagement and is guided by the Inter- national Federation. Further assistance is received fromgovernments, other organizations and donor agencies.

The International Federation supported the founding of theMaldivesRedCrescent as part of the tsunami recovery op- eration in order to build local capacity tomeet the needs of vulnerable communities in theMaldives better andmore appropriately.

Communication systems, including the provision anduse of information technology andHF/VHFequipment, espe- cially for disaster response in coordinationwith government agencies and the armed forces, has been introduced,with the support of the International Federation, in themost disaster-prone countries, such as Bangladesh, Indonesia, Nepal, the Philippines and Sri Lanka.This helps speed up communications during emergencies. Elsewhere,GPS and GIS technology is being used in Indonesia and the Philippines to develop hazardmaps and support risk assessments.

The way forward __________________________________________________________________________ Since the adoption of theHFA,what has been undertaken so far byRedCross andRedCrescent Societies has un- doubtedly had a significant impact on the lives of vulnerable people in disaster-prone areas in theAsia-Pacific region. However, in order to enhance this goodwork andhelp communities build even greater resilience to disasters, there needs to be a significant scaling up of activities and replication of good practice.

National Societies, through their national networks of branches and volunteers operating at the grassroots level, are best placed to implement disaster risk reduction activities in their communities.However, it requires increased funding and a greater flexibility on the part of local governments to incorporate in their development planning actions identi- fied by vulnerable communities and civil society for disaster risk reduction.

Furthermore, it is important for governments at all levels to ensure that a focus on strengthening community safety and building resilience is reflected in national legislation, policies, strategies and programmes.

Reducing disaster risk cannot be achieved by theRedCrossRedCrescent alone. It can certainlymake a big contribu- tion, but the systematic reduction of risk can only be brought about through strongworking partnerships between all stakeholders, be they the communities themselves, local andnational governments, governmental andnon-governmen- tal organizations or the private sector.

The challenge forNational Societies in scaling up their disaster risk reduction actions is to ensure that they keep a focus on their organizations’ distinctive competencies and comparative advantages, increasingwhat they are good at and sharing their experienceswith others. EachNational Society is encouraged to determine its niche in disaster risk reduction in its respective country and to focus on strengthening community safety and resilience, while ensuring that disaster risk reduction is reflected in national policies, strategies and programmes for the achievement of the five priori- ties of theHFA.

16 International Federation of Red Cross and Red Crescent Societies

1 HyogoFramework forAction 2005–2015: Building theResilience ofNations andCommunities,WorldConference onDisaster Reduction,Kobe, Japan, January 2005 www.unisdr.org/eng/hfa/docs/Hyogo-framework-for-action-english.pdf.

2 As stated earlier, disaster risk reduction activities are not static, stand-alone interventions, andmanyNational RedCross andRedCrescent Societies have been contributing to risk reduction in their countries formany years.The contributions described here include activities thatmay have been initiated before theHFA’s adoption.

3 International Federation,Guidelines for assessment in emergencies,March 2008,www.ifrc.org/Docs/pubs/disasters/resources/helping-recover/guidelines-emergency.pdf.

4 Disaster preparednesswing of theEuropeanDepartment ofHumanitarianAid (ECHO).

5 The Sphere Project:HumanitarianCharter andMinimumStandards forDisaster Response, http://www.sphereproject.org.

6 Code ofConduct for the International RedCross andRedCrescentMovement andNon-governmentalOrganizations inDisaster Relief, http://www.ifrc.org/publicat/con- duct/.

The Fundamental Principles of the International Red Cross and Red Crescent Movement Humanity The International Red Cross and Red Crescent Movement, born of a desire to bring assistance without discrimination to the wounded on the battlefield, endeavours, in its international and national capacity, to prevent and alleviate human suffering wherever it may be found. Its purpose is to protect life and health and to ensure respect for the human being. It promotes mutual understanding, friendship, cooperation and lasting peace amongst all peoples.

Impartiality It makes no discrimination as to nationality, race, religious beliefs, class or political opinions. It endeavours to relieve the suffering of individuals, being guided solely by their needs, and to give priority to the most urgent cases of distress.

Neutrality In order to enjoy the confidence of all, the Movement may not take sides in hostilities or engage at any time in controversies of a political, racial, religious or ideological nature.

Independence The Movement is independent. The National Societies, while auxiliaries in the humanitarian services of their governments and subject to the laws of their respective countries, must always maintain their autonomy so that they may be able at all times to act in accordance with the principles of the Movement.

Voluntary service It is a voluntary relief movement not prompted in any manner by desire for gain.

Unity There can be only one Red Cross or Red Crescent Society in any one country. It must be open to all. It must carry on its humanitarian work throughout its territory.

Universality The International Red Cross and Red Crescent Movement, in which all societies have equal status and share equal responsibilities and duties in helping each other, is worldwide.

The International Federation of Red Cross and Red Crescent Societies promotes the humanitarian activities of National Societies among vulnerable people.

By coordinating international disaster relief and encouraging development support it seeks to prevent and alleviate human suffering.

The International Federation, the National Societies and the International Committee of the Red Cross together constitute the International Red Cross and Red Crescent Movement.

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