Standard 4: Disaster Risk
Our Commitment:
We are committed to reducing the
risk of disaster by strengthening
local capacity and reducing
vulnerability to common hazards as
well as meeting short-term needs.
A teaching aid supporting earthquake preparedness
in schools, Indonesia
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Standard 4: Disaster Risk
The issues
NGO activities are broadly divided into short-term “humanitarian relief” following
a disaster event, and longer-term “development” to improve quality of life.
Relief workers have a duty to reduce vulnerability to future hazards, as well as
reducing suffering and aiding recovery after the recent event (this principle is
embedded in the Red Cross Code of Conduct). Similarly, development workers, in
situations where disaster risk is high, should seek to reduce those risks and ensure
that the benefits coming from development will not be taken away by a disaster.
UNDP addressed this in the publication “Reducing Disaster Risk: a Challenge to
Development” (2004). This approach, in relief or development, is termed Disaster
Risk Reduction.
One of the strongest examples of the impact of a DRR approach has been seen in
Bangladesh, a nation long troubled by floods and cyclones. Early warning systems
have greatly reduced the death toll from cyclones – allowing people to evacuate
to safe shelters before the cyclone makes landfall. The impact of this better
preparedness is evidenced by the contrast between the 300,000 deaths that
occurred during Cyclone Bhola in 1970, and the 3,000 deaths that occurred during
Cyclone Sidr in 2008.
The model below demonstrates how hazards and vulnerabilities can come
together to create disasters:
Vulnerability
D
I
S
A
S
T
E
R
Hazard
Hazards are extreme events, natural or man-made, which will result in disaster if
people are vulnerable to their impact. In some countries, this is called the
“crunch model”, resulting in a ‘crisis’ or a ‘catastrophe’ e.g. a food crisis in the
Sahel region. Examples of natural hazards include Drought, Flooding and
Earthquake. Man-made hazards are often conflict-related, or the product of
unsafe industrial practices. Vulnerabilities are conditions which reduce people’s
ability to withstand or respond to particular hazards. Examples might include
poor quality of housing, fragile livelihoods or low-lying water points.
In contrast capacities are strengths or resources belonging to individuals,
households and communities, which increase their ability to withstand or respond
to those hazards. Some donors, the UN and NGOs prefer to use the language of
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Standard 4: Disaster Risk
‘strengthening resilience,’ which is a positive and alternative way of describing a
DRR approach.
Vulnerabilities and Capacities are often considered within five categories:
Human, Social, Constructed, Natural and Economic. Examples of vulnerabilities
and capacities under these categories include the following:
Category
Human
Vulnerabilities
 a lack of skills or knowledge
 widespread health problems
(e.g. HIV prevalence)
 fatalistic attitudes
 discrimination on basis of
age, gender and ethnicity
Social
 a disorganised or fragmented
society
 poor leadership
Constructed  poorly constructed buildings
 weak structural design
 location of houses on an
unstable slope or in a floodprone area
 bad quality roads and bridges
Natural
 lack of natural resources
 restricted access to natural
resources
 mis-use of environment
causing degradation
Economic




a lack of money
single or fragile livelihoods
no credit & savings facilities
few saleable assets
Capacities
 a high level of skills and
knowledge
 a strong, able bodied
population
 strong motivation & hope
 resilience, empowerment
and support
 Shared knowledge of best
practice procedures for
emergencies
 strong social support
structures
 a sharing culture
 good leadership
 well constructed buildings
 good structural design
 well located buildings
 good roads and bridges
 Well-constructed safe
shelters
 abundant water supply
 good forest cover and
wood availability
 available wild foods
 sustainable environmental
practices
 good alternative livelihood
options
 credit & savings facilities
 saleable assets
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Standard 4: Disaster Risk
Biblical foundations
The Old Testament includes two examples of disaster preparedness. In the
Genesis flood (Gen 6-8), Noah saves his family and a wide selection of land
animals and birds by constructing a large boat. In the story of Joseph, Joseph
interprets the dreams of Pharaoh, King of Egypt. He is made Prime Minister and
entrusted with a nation-wide famine preparedness programme (Gen 41 and 47:1326). His actions saved a nation from starvation.
Good Practice commitments
Our commitment is to design our projects in ways that build community
capacities and reduce underlying vulnerabilities as much as possible, thus
equipping them to face future hazards. If local capacities are neglected or even
undermined by a poorly designed project, then this can create a dependency
mind-set. This basic approach can be applied to both emergency response and to
development contexts, especially where the emergency and development divide
is blurred by on-going chronic vulnerability.
Close links to other Quality Standards
Our Disaster Risk commitment has close links with:
 Technical Quality, as we need to address underlying vulnerabilities in our
technical design (e.g. by constructing earthquake resilient buildings);
 Child Development and Protection as children are particularly vulnerable
due to their young age, smaller size and less ability to speak for
themselves;
 Gender, as we need to consider the different underlying vulnerabilities
faced by women and men and their different capacities;
 HIV, in recognising that HIV presence in a family is likely to increase
disaster vulnerability;
 Environment, recognising the close connections between disaster risk,
climate change and environmental degradation;
 Sustainability, as benefits will not be sustained if wiped out by a disaster;
 Advocacy, as the root causes of vulnerability are often issues of policy,
oppressive practices and cultural traditions.
Where to look for further information:
 Good Practice Guide on Disaster Risk Reduction:
http://tilz.tearfund.org/~/media/Files/TILZ/Topics/DMT/GPG%20%20Project%20Cycle%20Management.pdf
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Standard 4: Disaster Risk
 ROOTS 9 on Reducing Risk of Disaster in our Communities:
http://tilz.tearfund.org/en/resources/publications/roots/reducing_risk_of
_disaster_in_our_communities/
 ROOTS 13 on Environmental Sustainability:
http://tilz.tearfund.org/en/resources/publications/roots/environmental_s
ustainability/
 PILLARS guide on Preparing for Disaster:
http://tilz.tearfund.org/en/resources/publications/pillars/preparing_for_d
isaster/
 Sendai Framework 2015:
http://www.preventionweb.net/files/43291_sendaiframeworkfordrren.pdf
 Famine Early Warning System: www.fews.net
 FAO GIEWS crop prospects and food situation:
http://www.fao.org/giews/english/cpfs/index.htm
 FAO National basis food prices – data and analysis tool by country:
http://www.fao.org/giews/pricetool/
 WFP Food Security Assessment reports by country:
http://www.wfp.org/food-security/reports
 UN Coordinating Body: www.unisdr.org
 Info portal: www.preventionweb.net
 Global network of civil society org in DRR: http://www.gndr.org/
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Standard 4: Disaster Risk
Practical Steps for carrying out our Disaster Risk commitment
Identification
Step 1: Understand the
context of the project,
including people’s
capacities and
vulnerabilities
Design and Implementation
Step 2: Identify and build up
existing community
capacities
Step 3: Identify and address
long term vulnerabilities
Step 4: Support
preparedness for future
disasters (if applicable)
Step 5: Identify underlying
causes of vulnerability and
address them through
targeted advocacy
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Standard 4: Disaster Risk
Step 1: Understand the
context of the project,
including people’s
capacities and
vulnerabilities
Assessment
It is important that we understand the context fully in order to ensure our
projects are designed appropriately:
 Carry out an analysis of the Hazards, Vulnerabilities & Capacities. If it is a
location where natural hazards, such as flooding, drought or earthquake are
common, then a comprehensive assessment should be carried out using the
PADR methodology (Participatory Assessment of Disaster Risk). If there are
man-made hazards, then a simple analysis of vulnerabilities and capacities
can be used to assist project design.
 Does this area experience sudden, unpredicted hazards, or is there a
predictable cycle? What are the expected future trends and will an
emergency response be needed in the future?
 What is the potential impact of climate change and how should this be
taken into account in the design of the project?
 If the project is an emergency response, what steps can be taken to avoid
undermining longer-term development work or creating dependency upon
external resources?
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Standard 4: Disaster Risk
Step 2: Identify and build
up existing community
capacities.
Most communities have traditional methods for coping with extreme, weatherrelated events or conflicts. When these events occur, these methods may be
stretched, but not wiped out. A wise NGO will seek to strengthen these
methods (or coping capacities) and make them more effective. Some examples
of strengthening local capacity:
 Use community members to carry out work projects whenever possible,
teaching new skills, rather than contracting labourers from outside.
 Strengthen local leadership structures, problem solving mechanisms and
support structures for more vulnerable members of the community. (At the
same time, be alert to issues of gender and exploitation; these may need to
be challenged if they are increasing vulnerability of the poor or
marginalised).
 Use local suppliers of goods to boost the local market economy.
 Identify and revive traditional coping strategies, e.g. drought-resistant crops
for drought areas; emergency food sources for people and animals.
 Identify and strengthen local mechanisms for solving disputes.
 The local church, where present, has good knowledge of the community,
including its complex social and political networks, and the existence of
neglected minorities. Through its relationships inside and outside the
church, it is often able to bring people together and facilitate joint action.
If a disaster does occur, the local church has assets and resources which will
be useful in the relief effort – for example, its compound, its building and
its people to serve as volunteers. It may be possible before a flood season to
prepare the church as emergency shelter, or to train up the volunteer team.
 As congregations and sub-groups meet regularly, messages can be
communicated to a significant number of people, for example, health and
hygiene, agricultural practices or disaster preparedness. In situations of
conflict, the local Church can be well placed to support reconciliation and
build peace.
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Standard 4: Disaster Risk
Step 3: Identify and address
long term vulnerabilities
Both relief and development projects can be designed to reduce long-term
vulnerabilities, particularly if the PADR tool (from Roots 9) has been used to
identify localised vulnerabilities.
Some examples:
 If Food for Work (FFW) and Cash for Work (CFW) is being used to provide
immediate food or employment, then consider work projects which will
address an underlying drought or flood problem – such as digging an
irrigation ditch, constructing a water-retaining cross dam, building a flood
embankment, terracing of slopes, etc.
 Rebuilding houses in a different (safer) place or according to a stronger,
more hazard-resistant design.
 Carrying out health promotion activities, which will not only help families to
stay healthier in the short term, but will also make them less vulnerable in
times of future disaster.
 Seeking new or alternative livelihoods to diversify sources of income such as
market gardening, or adjusting farming or herding methods, in order to be
less affected by a future hazard or changes in climate.
 Incorporating peace-building elements into the project so that the risks of
future communal violence or escalating conflict are decreased.
 Wherever projects are constructing buildings, such as schools or clinics,
consider the risk of cyclones, floods and earthquake and ensure that the
design of the building is resistant to that particular hazard, e.g. earthquake
resistant or cyclone resistant.
 Livestock may be more vulnerable to drought because of poor health; simple
interventions, such as de-worming treatment, will help them survive better.
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Standard 4: Disaster Risk
Step 4: Support
preparedness for future
disasters (if applicable)
Where there is a significant
risk of a disaster in the future
e.g. an area subject to annual
flooding, cyclical drought, or
located in an earthquake
zone, then try to work with
communities to help them be
better prepared for any future
hazards or shocks. This could
include:
 Carrying out a review of what happened in a recent disaster event and what
essential needs/services were missing. This can lead to developing a
contingency plan which will enable the community to cope better next time.
Contingency plans can be drawn up at both the community and family level.
 Consider forming a Community Disaster Committee, or use an already existing
committee, to develop and implement the plan.
 For rapid onset hazards like flooding, preparedness can include establishing an
early warning system, evacuation plans, evacuation routes, evacuation
shelters, stockpiles of food, stockpiles of rescue equipment, and training of
able bodied disaster volunteers in evacuation, First Aid and other skills.
 For slow onset hazards like drought, preparedness can include establishing an
early warning system, destocking arrangements for livestock, use of grain
banks, and planning to build up available water reserves.
 Providing education and support in disaster preparedness.
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Standard 4: Disaster Risk
Step 5: Identify underlying
causes of vulnerability and
address them through
targeted advocacy.
The root causes of vulnerability and risk are
often associated with failures in the
development process, or with government
inability to provide the rights and
entitlements of its people. Advocacy is often
necessary to engage with authorities,
businesses and decision-makers at different
levels on disaster risk reduction issues.
 At higher levels, NGO networks may be able to remind the government of their
commitments to the Sendai Framework for Disaster Risk Reduction 2015-30 (A
UN agreement, which seeks to integrate activities of all country stakeholders
in reducing Disaster Risk) and runs from 2015-2030, as a successor to the
previous Hyogo Framework for Action).
 Locally, an NGO may be able to influence the operation of a government
Disaster Management Committee, stimulating it to engage in pre-disaster
activity, not just post-disaster response.
 Landowners, commercial farms or business interests may also be contributing
to vulnerability and may respond to appropriate lobbying. (For example, issues
around over-extraction of ground water.)
 The underlying causes of people’s vulnerability are often connected to
cultural values and beliefs. A fatalistic mind-set can significantly hinder both
disaster preparedness and disaster response work in communities. Where there
are local churches, they are well-placed to address these issues given their
positive vision of the future. Churches have experience of wrestling with
values, behaviour and differing world-views, and of seeing transformation in
these areas.
 See Standard 12: Advocacy for more information.
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Standard 4: Disaster Risk
Project Examples:
In Ethiopia, a partner organised cash for work projects with communities
affected by food insecurity. This had the dual effect of providing vitally
needed cash for the most vulnerable families to buy food and undertaking
community projects such as terracing and tree planting to improve soil
quality, thereby reducing vulnerability.
In Niger, a partner working with a pastoralist group has set up a
comprehensive destocking programme to reduce the vulnerability in
drought. This includes monitoring market prices, supporting the timely sale
of livestock while they have a higher value, and supporting transportation to
the market when the livestock need to be sold.
In Ethiopia, a partner undertook an irrigation project using water from a
river to allow for two or more planting seasons each year. This reduced the
vulnerability of farmers in the area to annual food gaps.
In Kashmir, Pakistan, the reconstruction of homes following an earthquake
included training on earthquake resilient design, and the provision of tools
and salvage equipment in communities in order for them to be better
prepared for future earthquakes.
A partner working in NE India worked with local churches to challenge the
fatalistic mind-set of the communities whose land was flooded every year; an
attitude of dependency had arisen from repeated relief hand-outs. This was
a key component to the Disaster Risk Reduction approach.
Local churches in Puno, Peru were mobilised and along with the community
set about building miles of channels to drain away excess water and prevent
the erosion of their land.
Partners in India constructed houses with staircases up to flat roofs so that in
the case of future flooding or another tsunami people would be able to
quickly access a high, safe place. Early warning systems were installed. Small
teams were trained at community level to organise and assist vulnerable
people with evacuation.
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